REPORT Joint Committee on Administra- tive Reorganization With Surveys of State Administration Agencies Pursuant to the Senate Joint Resolu- tion No. 36, adopted by the General Assembly of Ohio, April 9, 1919 COLUMBUS, OHIO: The F. J. Hebr Printing Co. 1921 Bound at the State Bindery. As- Ore CONTENTS JOINT COMMITTEE ON ADMINISTRATIVE REORGANIZATION Senate Joint Resolution No. 36, V ; Introductory Note, V ; Preliminary report of committee, VII ; Resolution proposed by committee, XII. FIELD INVESTIGATORS Names and brief sketches of, 2. REPORTS OF DR. DON C. SOWERS Summary of recommendations of field investigators, 3-38; office of the gov- ernor, 39-42; state department of agriculture, 83-94; Ohio agricultural experiment station, 101-106; tax commission, 146-149. REPORTS PREPARED UNDER DIRECTION OF DR. L. D. UPSON by Harrington Place Civil service, 59-82. C. E. Right or Budget commissioner, 43-58; department of finance, 140-143; state insurance department, 164-171; superintendent of banks and banking, 172-177; department of building and loan associations, 178-182. C. E. Rightor and Henry Steffens, Jr. Auditor of state, 110-126. Arch Mandel Secretary of state, 127-139; industrial commission, 242-272; state fire marshal, 293-297 ; state oil inspector, 298-300. Henry Steffens, Jr. Treasurer of state, 144-145. REPORTS BY DR. WILLIAM H. ALLEN State department of health, 183-191; tuberculosis sanatorium, 191-194; bureau of vital statistics, 195-197; state leadership in Ohio education, 305-307; Ohio's state supported education, 307-315; Ohio's state department of public instruction, 315-321; increase the salary of Ohio's state superintendent of public instruction, 321-325; tax assessments for school revenues, 325-326; state board of school exam- iners, 326-327; state library service, 327-329; representative state educational coun- cil, 329-330; Ohio state archseological and historical society, 331-333; an art com- mission for Ohio, 333-337 ; suggestions by county and city superintendents for improving Ohio's public education, 337-342 ; suggestions by Ohio's state faculties for Ohio's public education, 342-361 ; examining boards belong in educational de- partment, 361-369; possible forward steps in Ohio education without reorganizing the state department of education, 369-373; Ohio's three universities, 374-385; Ohio's need for junior colleges, 385-391 ; faculty organization, 391-395 ; remunerative work by faculties, 395-399; non-remunerative diversion of faculty energy, 399-400; inter- (iii) M 8062 IV CONTENTS changeable credit for work in Ohio schools, 4O(i-401 ; annual reports and catalogues of Ohio educational institutions, 401-406; non-resident students in Ohio univer- sities, 400-410: Ohio State university, 410-422: graduate school and graduate work in Ohio state university, 422-428; organization for research, 429-436; medical and near medical colleges, Ohio State university, 436-439 : Ohio's state provision for teacher training, 440-446; normal college or normal school? 447; advertising the rewards of teaching, 447-450 ; finding positions for teachers and teachers for posi- tions, 4-51-4o5; college of education, 455-463: shall the teaching profession be sub- sidized? 463-467; loan funds for students preparing to teach, 467-469; Ohio's county normal schools, 469-479; college credit for county normal work, 480-481: slacker counties in teacher training, 481 ; combined normal and industrial depart- ment at Wilberforce university, 481-487 ; shall Ohio have a chancellor of educa- tion, 487-488; unsettled educational problems in Ohio, 488-494; tenure of voluntary boards, 494-496; need for rotary funds, 496-498; one head for four in administering welfare institutions, 499-513; physical education at the schools for the blind and the deaf, 514-517; Ohio commission for the blind, 518; preventive education as to sub-normals, 519-522; Ohio hoard of state charities, 523-530; Ohio board of clem- ency, 552-555; Ohio soldiers' and sailors' orphans' home, 556-563; citizen co-opera- tion needed by director of welfare administration, 564-565. REPORT BY DR. WILLIAM H. ALLEN AND ROBERT ROSENBLUTH Opportunities for the Ohio board of administration that do not require reor- ganization, 531-551. REPORTS BY GAYLORD C. CUMMIN Adjutant general's department. 107-li»8; commissioner of soldiers' claims, 108- 109; state printing, 151-159; commissioner of securities, 100-163; state highway department, 198-212; department of public works, 213-217; superintendent of buildings, 218-237; state building commission, 238-239: state geologist, 240-241: jHiblic utilities commission, 301-304; proposed new penitentiary. 566-574. REPORT BY S. H. WOLFE Ohio's state insurance fund, 273-289. REPORT BY J. I. FALCONER State farms, 94-100. REPORTS BY C. B. GALBREATH Shall the state insurance fund pay the cost of its administration? 290-292; administrative reorganization in other states. 575-617; bibliography on efficiency and economy with special reference to state government, 648-659. JOINT COMMITTEE ON ADMINISTRATIVE REORGANIZATION INTRODUCTORY NOTE In recent years a movement has been in progress in the United States to simpHfv government and to render it more efficient and economical. This movement began with the national government but was afterward extended to the states where it has had most effective recognition. In a number of states efficiency and economy commissions have been created to make surveys of administrative functions and report opportunities for improvement through consoHdation, elimination and reorganization. This movement has had much encouragement through the public press. Reports of what had been accomplished in other states, especially in the state of Illinois, added to the interest in this movement and no doubt had influence in the creation of a demand for such a commission in Ohio. To meet this, the General Assembly at its regular session in 1919 took steps to make appropriate provision. Senator F. E. Whittemore introduced Senate Joint Resolution No. 36 which was adopted April 9. 1919, in the following form: Whereas, The general assembly of the state of Ohio has from time to time created various offices, bureaus, boards, departments, and commissions, and other additions to the state government ; and Whereas, The duties and functions of these various commissions, boards and bureaus frequently and in many cases overlap and conflict, one with the other, and with the state departments, and the expenses of administration have multiplied greatly during recent years ; and Whereas, The duties of these various commissions, bureaus and boards could, in many instances, be more efficiently and more econom- ically performed, waste eliminated and duplication of authority dis- pensed with, by combining and consolidating many departments, and abolishing those which are superfluous and are unnecessary drains on the public treasury; and . ,, , . Whereas, By reason of the rapid growth of our state in all ot its departments of government a thorough reorganization is essential with a view to greater efficiency and greater economy ; therefore Be it resolved by the Senate and the House of Representatives of the State of Ohio, That a joint committee of six, composed of three senators, to be appointed bv the president of the senate, not more than two of whom shall be of the same political party, and three representa- tives, to be appointed by the speaker of the house, not more than two of whom shall be of the same political party, who shall have full power and authority to examine into accounts and business management of the various boards and departments of state, and generally to examine into and investigate all of the boards, commissions, bureaus, and all offices which have been created bv the general assembly ; (v) VI JOINT COMMITTEK ON ADMINISTRATIVE REORGANIZATION Such investigations to be made with a view of securing a more per- fect system of accounting, combining and centralizing the duties of the various departments, eHminating such as are useless and securing for the state of Ohio such a reorganization of its governmental activities as will promote greater efficiency and greater economy therein ; Be it further resolved, That the joint committee shall have full power and authority to subpoena witnesses, to examine and compel the production of books, papers, and documents, and to employ expert ac- countants, attorneys, actuaries, stenographers, and other assistants nec- essary to carry on their investigation and make their report; Be it further resolved. That the expenses of said committee and of the persons to be employed shall be paid out of an appropriation made therefor by the general assembly upon vouchers properly drawn upon the auditor of state, signed by the chairman and secretary of the joint committee, and properly itemized. The committee shall conduct its in- vestigation and report its findings, and make its recommendations to- gether with such bill or bills as it may deem proper to submit to the general assembly; Be it further resolved, That the finance and appropriation com- mittees of the house of representatives and the senate, are authorized and directed to make a sufficient appropriation for the expenses of carrying out the provisions of this resolution. Acting under the provisions of this resolution the following com- mittee was appointed: Senators: F. E. Whittemore, Wallace W. Bellew, Howell Wright. Representatives : C. C. Crabbe, Robert C. Dunn, J. E. Foster. On July 8. 1919, the committee met and organized by electing Sen- ator Whittemore Chairman, Senator Wright Vice Chairman, and Rep- resentative Crabbe Secretary. At this preliminary meeting C. B. Gal- breath was employed to make a chart graphically representing the dif- ferent administrative agencies of the state as at present organized. This was done and the chart presented and considered at the next meeting of the committee. Mr. Galbreath was then directed to make, with such material as he could gather through correspondence and reports, a sur- vey of what had been accomplished in other states that had appointed similar committees or other agencies to make investigations in the interest of efficiency and economy. These surveys, as they were made, were to be reported in typewritten form to each member of the committee. The committee decided that, in order to carry out successfully the provisions of the resolution under which it was created, the best avail- able talent should be secured to conduct investigations in the different state departments. At a later meeting, D. C. Sowers, Ph. D.. Director of the Akron Bureau of Mu'.iicipal Research, was chosen executive secretary of the committee. On recommendation of Dr. Sowers the following investigators were chosen to conduct the field work: Wm. H. Allen, Ph. D., Director of the Institute for I'ublic Service. New York City; D. D. Upson. Ph. D.. JOINT COMMITTEE ON ADMINISTRATIVE REORGANIZATION vii Director of the Detroit Bureau of Governmental Research ; Gaylord C. Cummin, C. E., Consulting Engineer of the Institute for Public Service, New York City. Col. S. H. Wolfe, Consulting Actuary of New York City, was employed to make a special- investigation of the administration of the state insurance fund under the industrial commission. Acting under the direction of Dr. D. D. Upson much of the special work assigned to him was done by C. E. Rightor, Captain Harrington Place. Arch Mandel and Henry Stefifens, Jr. These field agents were directed to make a survey of the different departments of the state government and report suggestions of any changes that in their judgment should be made. They were given entire freedom in their work and the cooperation of departments, boards, com- missions and officials administering the affairs of the state was solicited and freely given. The reports of all these experts and Mr. Galbreath, are herewith submitted in full, together with the preliminary report of the committee. PRELIMINARY REPORT ON ADMINISTRATIVE REORGAN- IZATION. Submitted by the Joint Legislative Ccnunittee on Administrative Reorganization. To the General Assembly : Your Joint Legislative Committee on Administrative Reorganiza- tion, appointed pursuant to senate joint resolution No. 36, by Mr. Whittemore, has assumed that in the opening days of this adjourned session you would wish from it only a brief report of progress. For doing the work already undertaken by the state we have gone far enough, even in a few short weeks of study, to see the possibility of saving many times the total appropriation for this committee. The three sources of direct waste of money and energy are defective organization, defective operation and programs that are too small for Ohio's present needs. The responsibility for waste of money and energy and of opportunity is also threefold: Constitutional requirements which foster waste and mismanagement ; statutory requirements which foster waste and misman- agement; and administrative break-downs or defects in internal organiza- tion which can be corrected without change of statute or constitution. For correcting these conditions the committee is considering pro- posals which have come to it from citizens and agencies in all parts of the state. Some few will require constitutional amendments ; most of viii JOINT COMMITTEK OX ADM I XlSTRATIVK KKORCAXIZ ATK IX ihem will require only statutory changes, in making which the executive will have every reason to co-operate with the legislature. A few of the more serious defects of administration that require neither statutory nor constitutional change will undoubtedly be corrected as the facts are re- ported to the responsible ofificers and to the public. For 49 present separate administrative offices, departments, boards, commissions and agencies to which appropriations are made we are asked to propose a reduction to not more than i6, probably fewer, with- out making any mere paper changes, and consolidating only for improv- ing service. We are asked to consider the possibility of reducing the number of existing trustees and commissioners, while at the same time i)romoting increased efficiency. One vast gain, one almost new service, namely, continuous analytical audit of operation results, we shall suggest in addition to the i)resent audit of accounts. The time has come for our state, spending as it does over twenty million dollars a year, to take more intelligent and business- like interest in the results of this expenditure. For exarple, ihe present audit finds out whether the orders for printing are according to law and the prices according to contract ; that is a financial audit. An operation audit would point out that by multigraphing instead of printing the lists of automobile registration numbers, enough would be saved to net $13,000 a year plus an enormous amount of time. When the auditor of state reports a difiference between the supplies sup])ose(l to be on hand and the supplies actually on hand, that is a financial .' udit. When he states that girls in the industrial school suffering from venereal diseases are without medical care he is making an operation audit. To check salary vouchers for the state universities against salary expenditure is a finan- cial audit. To point out that Ohio is not charging tuition to several hundred non-resident students is an operation audit. As typical of changes in organization that can easily be effected by the legislature without constitutional amendment, the following have been proposed to us : I . Abolition of the advisory council to the highway department and other changes in organization will result in a saving of $52,000 a year without loss of efficiency. 2. Consolidation, under constitutional officer, of superintendent of ])ublic works, the supervision of highways, canals, state lands, state parks, public buildings and state geologist. 3. The establishment of an unpaid board of education to sup- plement the state superintendent of public instruction in super- vising elementary and secondary schools, in enforcing adequate standards of instruction in the industrial schools, reformatories and orphans' home at Xenia, and in collecting and publishing information with respect to normal schools and universities. JOINT COMMITTEE ON ADMINISTRATIVE REORGANIZATION IX 4. The substitution of one for four commissioners for the work of tlie present board of administration and the administrative work of the board of charities. 5. Transier of the bureau of vital statistics from the secretary of state's office to the department of heaUh. 6. Giving to the state auditor the duty of auditing the results of state work as well as the financial accounts. 7. Consolidation under one administrative officer several of the present inspectional services, and a similar consolidation of registering and licensing services. 8. Abolition of the separate college of homeopathy at the state university and provision for a separate course in materia medica peculiar to the homeopathic school in the main college of medicine at the state university. 9. Abolition of the printing commission and supervisor of public printing and establishment of central purchasing of printing under the purchasing agent responsible for other central pur- chases. 10. Transfer of dairy and food division from the department of agriculture to the department of health. 11. Reorganization of present election system, which is flagrantly cumbersome and unnecessarily expensive. 12. Making the cost of administration of the state insurance fund a direct charge upon the insurance fund instead of being paid out of state appropriations. 13. Repeal of laws providing for confirmation of appointments by the Senate. 14. Modification of the civil service laws to carry out the original theory of civil service, which was to insure the highest obtain- able capacity above a minimum of qualifications for employees entering public service, but which is at present too frequently administered as an agency for holding incompetents on their jobs. Typical of changes which, if approved, would require constitutional amendment, the following have been proposed to us : 1 . Lengthening the term of the governor from two years to four years. 2. Separation of the auditing from the operating function of the auditor of state with a view to placing the operating function such as actual bookkeeping in an executive department respon- sible to the governor, but enlarging the auditor's powers and duties to audit the operation of administrative departments so X JOINT COMMITTEE ON ADMINISTRATIVE REORGANIZATION as to compare results obtained with amounts expended as well as to test the honesty and accuracy of bookkeeping. 3. Placing the appointment of the state superintendent of public instruction in the hands of a small appointive board instead of as at present with the governor and changing his term of office from the present constitutional limit of four years to a longer term or an indefinite term subject to the board of education. Typical of conditions which need correction but which require no legislation and can be remedied by executive action, the following have been reported to us : 1. The electric wiring in state house and the method of storing supplies constitute a menace to life and property. 2. From twenty to thirty thousand dollars a year might easily be saved by the introduction of a central multigraph service. 3. The state library has practically abandoned the important serv- ice of library organization. 4. The girls' industrial school is and for years has been without running hot water for baths and without soft water for domestic and laundry use. 5. The state board of charities has practically discontinued visita- tion by board members of institutions under its supervision. 6. Charity franchises are in effect admitted to practice upon the helpless and the dependent of this state without elementary protective questions being asked by the secretary of state be- fore granting their charter. 7. The co-operation between the civil service commission and the departments can be vastly increased without any additional expense. 8. A central telephone system for state house and state depart- ments would save money and increase efficiency. 9. Records that now contain invaluable information can be made to give up and advertise that information for public uses. Tyi^ical of services said to be needed which are not yet being ade- quately rendered or are not being undertaken at all. the following have been reported to us : I . Biennial reports which clearly set forth state needs, state work and state costs are desired by the public and reporting depart- ments and are indispensable to the legislature, to the budget commissioner and to the executive himself. Such reports will make it possible with reasonable ease to pass intelligently upon budget requests. JOINT COMMITTEE ON ADMINISTRATIVE REORGANIZATION XI 2. A bureau of markets which, while paying due regard to the interest of producing farmers and gardeners, would also be alert in representing the consumers. The shortsightedness of a policy which handles a bureau of markets from the stand- point of producers alone is obvious when it is remembered that producers are also consumers. 3. Self study is needed by departments of their own responsibili- ties, operation, methods and results and searching analysis to complete operation audit of all state's services. 4. Public recognition of the fact that it is a penny-wise pound foolish policy in state's business as in private business to send a boy on a man's job or to employ incompetent persons on work where competent persons are needed. 5. Definition and enforcement of state standards for weights and measures, oils, gasoline, gas, electricity, and various materials and suppHes. 6. Several instances have come to our attention where departments have undertaken services which are not being adequately per- formed. It is vastly safer to advertise the fact that work is not being undertaken at all by state departments than to give a sense of security to the public by undermanned, underpro- grammed activities. 7. The unification of the educational interests, universities, normal schools, special schools, secondary schools, elementary schools and local county and state supervision in one great strongly organized properly co-operating service whose two main char- acteristics are common aim and team work. Development of research laboratories, research standards and a scientific re- search supervision at the state university is urged by the facul- ties of state supported and privately supported institutions. More use of the state's technically equipped educators by state departments and more use by educational institutions of the opportunities and materials for instruction in the state depart- ments are greatly needed. 8. Information with respect to the humane and economic dealing with problems of dependency and delinquency should be uni- versalized and the public led to support methods which promise reduction in the number of feeble-minded, insane and delinquent at the cost even of traditions based upon ignorance and short sighted economic policy. 9. The tremendous potential value to industry and business of the state's natural resources must be recognized by the general pub- lic and by the state's officers as never before. Xll JOINT CO.NF MITTEK ON ADMINISTRATIVE REORGANIZATION It is a pleasure to report the unstinted co-operation which has been given to this committee by the governor, the department heads and em- ployes, university and normal faculties, numerous civic agencies, indi- vidual citizens and editors. Thanks to the interest shown by responsible officers it has been possible to secure quickly much definite information and numerous constructive suggestions taken from their intimate knowl- edge of state needs and their profound interest in furthering the aims of the General Assembly in its search for opportunities to improve the quantity and quality of service rendered by the state departments through consolidation or other reorganization of state boards, commissions and departments. Ohio will be particularly grateful for helpful suggestions and in- formation which have been generously sent to us in answer to our ques- tions by authorities on public administration, state superintendents of public instruction and heads of normal schools and universities of other states. In making the field studies we have had the help for different periods of the following persons, chosen for their experience as field inves- tigators in other states and cities : Don C. Sowers, Executive Secre- tary, now Director of the Akron Bureau of Municipal Research ; Gay- lord C. Cummin, C. E., former city manager of Jackson and Grand Rapids, Michigan, and now with the Institution for Public Service, New York City ; Lent D. Upson, Director of the Detroit Governmental Research aided by staff' members. Arch Mandel, C. E. Rightor, Har- rington Place and by Henry Steffens, Jr., Comptroller of Detroit and William H. Allen. Director of the Institute for Public Service, New York City. For the actuarial work in connection with the study of the state in- surance fund the committee has engaged the services of S. H. Wolfe, Consulting Actuary of New York. Mr. Wolfe has just begun his in- vestigation and no facts or suggestions in this report have resulted from this study. While we have been unable even to digest all the suggestions that have come, we are prepared, if the legislature wishes, to make a few con- structive suggestions at this session, or, after hearings, to make a com- prehensive report early in the new year. We propose a joint resolu- tion on which we hope the legislature will take favorable action, urging a statewide educational campaign in the interest of an adequate supply of properly prepared teachers. It is true that probably no other legis- lature has ever made such an appeal as we hope this legislature will make for a popular campaign recruiting ablest young men and women into the teaching ranks of Ohio's schools. We believe, however, that a grave emergency is here and that the legislative representatives of JOINT COMMITTEE ON ADMINISTRATIVE REORGANIZATION Xlll the people should take prompt cognizance of the opportunity that is in the hands of the people themselves to meet this emergency. The committee is prepared to submit a final report on one depart- ment within a few days. F. E. Whittemore, Chairma/n. Howell Wright, Vice-Chainruin. C. C. Crabbe, Secretary. Wallace W. Bellew, Robert C. Dunn, J. E. Foster. December. 1919. Resolution Proposed by Committee. SENATE JOINT RESOLUTION. Mr. Whittemore. Whereas, The growing, shortage of teachers threatens a condition at an early date where hundreds, perhaps thousands of Ohio's school classes will be without teachers and tens, or scores of thousands of children will be without adequately prepared teachers ; and Whereas, The menacing shortage of teachers is due to contributing causes of which too low salaries are but one ; and Whereas, Public discussion of higher salaries to teachers has directly or indirectly disparaged and discredited the opportunities and rewards of teaching by over-coloring the attractions and rewards of other occupations, or by understating the rewards and opportunities for advancement that are offered by teaching ; therefore Be it Resolved, That the General Assembly commends the action of state superintendent F. B. Pearson in appointing a committee to in- form and organize the public interest of the state in placing before children, young people in our schools and colleges, former graduates and married women equipped for teaching, the opportunities for patriotic service which teaching ofifers and the pecuniary rewards and the oppor- tunities for advancement in school fields and private business which follow successful teaching ; and Be it Further Resolved, That the General Assembly request the governor of the state by proclamation to ask that all forces of the state join in this educational crusade by addresses and by printed advertise- ments which will help recruit the ablest young men and young women of Ohio as teachers in our public schools. REPORTS OF EXECUTIVE SECRETARY AND FIELD INVESTIGATORS Ohio Joint Legislative Committee on Administrative Reorganization FIELD INVESTIGATORS DON C. SOWERS, PH. D. Dr. Don C. Sowers was chosen Executive Secretary of the Committee on .Administrative Reorganization. Dr. Sowers has had seven years experience in governmental research work. After graduation from Columbia University, Nev/ York, he was connected one year with the training school for Public Service conducted by the New York Bureau of Municipal Research. For the next three years he was Director of Municipal Research work in the cities of Oregon and taught civil government classes in the University of that state. He was after- ward Assistant Director of the Dayton Bureau of Municipal Research. For the past three years he has been and now is Director of the Akron Bureau of Municipal Research. WM. H. ALLEN, PH. D. Dr. .-Mien is Director of the Institute for Public Service, New York City. He has been director of the Rural School Survey of Wisconsin and of the Uni- versity of Wisconsin Survey; Director of the Build-As- You-Go Budget Survey of the state of Virginia; surveyed 22 Denver charities for the Colorado Taxpayers' League; supervised other municipal and school surveys dealing with all city departments and all lines of educational work. Teacher, author and lecturer, he is an expert of nation-wide reputation on educational matters. L. D. UPSON, PH. D. Dr. Upson is Director of the Detroit Bureau of Governmental Research and was formerly Director of the Dayton Bureau of Municipal Research; supervisor of Training School, New York Bureau of Municipal Research; collaborator in the survey of the State of Virginia; lecturer and writer on Governmental Research. GAYLORD C. CUMMIN, C. E. Mr. Cummin was graduated from Cornell University; is at present Con- sulting Engineer with the Institute for Public Service, New York City. He has at different times engaged in engineering work in Idaho, Washington, Arkansas and Texas; was City Engineer in Dayton during the 1013 f^ood ; was later City Manager of Jackson, Michigan and- Grand Rapids, Michigan; Assistant to the President of Kelsey, Brewer & Company of Grand Rapids, Michigan. He is also associate member of the American Society of Civil Engineers and Past President of the National City Managers .Association. S. H. WOLFE. Colonel S. H. Wolfe, of New York City, was employed to make a special investigation of the administration of the state insurance fund under the in- dustrial commission. Mr. Wolfe is an actuarial expert and tlic author of special articles and book in ihc line of his ])rc)fessinn. (2) REPORT ON SUMMARY OF RECOMMENDATIONS By DON C. SOWERS, Director, Akron Bureau of Municipal Research Senator F. E. Whittemore, Chairman, ^ > y • Joint Legislative Committee on Administrative Reorganisation, State House, Columbus, Ohio. Dear Sir : The following report is a summary of the recommendations and suggestions contained in the detailed reports of the field investigators. The investigation has dealt only with the administrative departments of Ohio's state government and has not included the legislature and the judiciary. The present state administrative organization consists of 49 separate ofifices, boards, commissions and institutions ; six ex-ofificio boards which h^ve administrative duties and a number of special commissions. The total appropriation for these governmental units, exclusive of the legis- lature and judiciary, amounted to $i6,ooo,0(X) for the year ending June 30, 1920. The administrative departments may be classified as follows : I. Single Elective Officials. Governor. Lieutenant Governor. Secretary of State. Attorney General. Auditor. Treasurer. Single Appointive Officials. Appointed by Governor zt'ithout Senate confirmation. 7. 8. 9. 10. Adjutant General. Budget Commissioner. State Geologist. Superintendent of Public In- struction. a. Board of School Exam- iners. b. Teacher s' Retirement Board. Commissioner of Securities. Superintendent of Public Works. Appointed by Governor with Set ate confirmation. State Highway C o m m i s - sioner. Superintendent of Insurance. Inspector of Building & Loan Associations. Supervisor of Public Print- ing. Commissioner of Soldiers' Claims. State Fire Marshal. Superintendent of Banks. State Inspector of Oils. (3) 4 REPORT OF JOINT LEGISLATIVE COMMITTEE Vil Lo/.RPS A>;C Co ADMISSIONS. Appointed by Governor zvithout Appointed by Governor with Sen- Senate confirmation. ate confirmation. a. Composed of two members. 21. Board of Clemency. 22. Civil Service Commission. b. Composed of three members. 23. Board of Accountancy. 27. Industrial Commission. 24. Blind Commission. 28. Library Commission. 25. Board of Embalming Exam- 2!). Tax Commission. iners. 30. Public Utilities Commission. 26. State Veterinary Examiners. c. Composed of four members. 31. Highway Advisory Board. 32. Board of Administration. d. Composed of five members. 33. State Council of Health. 31. Board of Dental Examiners. 35. Board of Pharmacy. 3'j. Board of Optometry. 37. Board of Control, O. A. E. Station. 38. Trustees of Soldiers' and Sailors Orphans' Home. e. Composed of seven members. 39. Board of Education. 40. State Medical Board. a. Nurse Registration (3). f. Composed of eight members. 41. Board of State Charities. g. Composed of ten members. 42. Board of Agriculture IV. Educational Institutions. Appointed by Governor without Appointed by Governor with Sen- Senate confirmation. ate confirmation. 43. Ohio State University (7 trustees). 44. Ohio University (21 trus- tees). 45. Miami University (27 trus- tees). 46. Bowling Green Normal (5 trustees). 47. Kent Normal (5 trustees). V. Institutions and Societies Re- ceiving State Aid. Appointed by Governor xinthout Appointed by Governor -with Sen- Senate confirmation. ate confirmation. 48. Wilberforre University. 49. Archjeological & Historical Society ADUIHISTRATIVS ORGAMIZATIOB OF OHIO STATB OOVBRBlffiNT Ohio Penitentiary Conimi88lon-6 Trustees of Archaeo lo fjlcal and Historical Society 6 and Governor ex-offlclo State Veterinary Exaniiners-3 All officials, boards and icommlBDionB on right of chart are appointed with the advice and consent of the Senate; those on left side of chart, without ouch confirmation. Appointive Boards and Com- mlBoions. Figure indlo»teB number of members , iblio litles :lsBion-S Board ot 4 Administration ,_L [urses - 3 legiBtration Library - 3 CommissionetB (LegislativeN Reference I Librarian^ Tax CommlBBion. Board of Agriculture Board of Control 0. A. B. Station- 6 Board of Pharmacy 5 n Board of Optometry [Btees of :j state ■araity- 7 Trustees of Ohio University-Sl Trustees of Ikiaml Univer8ity-27 Trustees of Bowling Green Normal - 5 [ ateee of Cent nnal-5 Trustees of Wilberforce University Trustees of Soldiers; and Sailors Orphan's Home - 5 BoEtrd of Director's of Longview Asylum ON ADMINISTRATIVE REORGANIZATION VI. Ex-Officio Boards. 1. Commissioners of Public Printing 2. Board of Control 3. Emergenc}' Board 4. Commissioners of Sinking Fund ■^ State Building Commission 6. Sundry Claims Board — Composed of Sec'y of State, Auditor and Attorney General. — Composed of 5 ex-ofp.cio members. — Composed of 5 ex-officio members. — Composed of Sec'y of State, Auditor and Attorney General. — Composed of Governor, Sec'y of State and Auditor. — Composed of 3 ex-officio members and Auditor of State as Secretary. VII. Special Commissions. 1. Ohio Penitentiary Commis- sion £. Ohio State Normal School Commission 3. Executive Mansion Board 4. Board of Uniform State Laws 5. Fort Meigs Commission G. Select Site for Institution for Deformed and Crippled Children 7. To Purchase Land and Erect Buildings for Above 8. Women Visitors for Benevo- lent, Correctional and Pe- nal Institutions ■ Composed of 5 members. 5 members. 3 members. 3 members. 5 members. 3 members and Governor and Auditor ex-officio members. 3 members. This information is shown graphically on the foregoing chart 6 REPORT OF JOINT LEGISLATIVE COMMITTEE The state's business is conducted by a number of different types of organization; single headed departments, boards and commissions vary- ing in size from two to ten members. Some of the department heads and the members of boards are appointed by the governor with the advice and consent of the senate and some without. The reason for senate confirmation in some cases and not in others is not clear. PRINCIPLES GOVERNING REORGANIZATION. In formulating the plan for reorganizing the state government, the following principles have been followed : 1 — The governor, who is elected by the people, would be the re- sponsible head of the state government and would possess power and authority commensurate with his responsibility. The term of the gov- ernor would be extended from two to four years and all department heads would have the same term as governor except members of boards with overlapping terms. 2 _ The auditor, who is also elected by the people, would constitute a continuing check upon the work of the Governor and his subordinates. The investigations of the auditor would include not only financial audits, but criticisms of operation and results. 3 — Departments and boards performing work of a similar or re- lated character would be grouped together into a major department; the various functions would constitute bureaus or divisions operated under an accountable chief who would report to the head of the department. The department head would be directly responsible to the governor. 4 _ Departments having to do largely with matters of policy would be controlled by boards In order to insure the application of group judg- ment. Boards would be retained for the health department, industrial commission, public utilities commission, department of education and state board of welfare. The following methods are outlined for making the governor the responsible head of the state government in fact as well as in name • 1 _ All department heads would be appointed by the governor and be directly responsible to him without the confirmation of the senate. This involves an amendment to the constitution permitting the appoint- ment of the secretary of state, attorney general and treasurer by the governor. 2 — A reduction in the number of independent departments, offices, boards and commissions is recommended. The number of elective offices would be reduced from six to three and the activities now performed by thirty-six independent boards and commissions would be combined into thirteen major departments. The governor would be relieved of the necessity of supervising and coordinating the work of thirty-six depart- ments. Staff meetings of department heads would become possible ard state of Ohio ATMINISTBATIVE KEOKGANIZATIOM Proposed to Joint Legislative x:oiiiniltt«« April, 1920 DEPARTlilENT OP STATB Secretary of State COUNCIL OF HEaLTH-5 CommiBBioner Dlvleion of. ...... Administration Division of . .' Engineering Division of Tuberculosis Division of Public ' Health Nursing Division of Laboratories Division of Communicable. . . . Diseases Division of. Industrial Hygiene Division of Child... Hygiene Division of Vital. StatisticB Division of Hotel. Inspection Division of Food and Dairy Inspection DEPARTltKNT OF MILITARY AFFAIRS Adjutant General DKPARTMBNT OF LAW Attorney General Commissioner of Soldiers' Clalma Chief Administrator Bureau of Workmen' a Compensation Claim Division Auditing Division Actuarial Division Bureau of Inspection Division of. Workshops ........ Factories, and... Public Buildings. Division of Boilers Division of Mines Division of Fire. . . Prevention Bureau of Statistics and.. . Investigation Bureau of Employment Mediation and Arbitration Ae. Now Organised 1 Boards For ! Educational : OHIO STA1 UNIVKRJ AGRICU: Expa STAT OHIO UNI' |>UIA1U UN BOWLING i NORMAL KENT NOR WILBERPO AND I DEPA DBPARTMSNT OF TRADE AHD CaMUBRCB Director Bureau of CorporatlOJiB Bureau of Inauranoe Bureau of Banks Bureau of Building. and Loan Association Bureau of Standards Oil Inspector DEPARTMENT OP PUBLIC TORK3 Director Bureau' of Highways Bureau of Lands,... Parks, etc Bureau of Public... Buildings State Geologist Director Bureau State Fair Bureau Fish and. Game Bureau of Animal Industry Bureau of Feeds and ertilizers Bureau of Horticulture Bureau of Markets ^^- Higher itutions :-7 AL .... . . iNT lTY-7 ■ ;siTY-7 iM...:.. 1 •5 NORMAL 3TRIAL SKT Director Superintendent of.. Public .. Instruction Common Schools Vocational Schools County Normal Schools Bureau of Examination ajid. . Registration Library Art Commission Americanization. . . . Commission Educational Council DEPARTlffiNT OF WELFARE ADMINISTRATION TRUSTKES OF ARCHEO LOGICAL AND HISTORICAL SOCIETY-e Director Bureau of Administration Bureau of Support Bureau of Children's Welfare Bureau of the Blind Soldiers' and Sailors' Home at Xenia Girls' Industrial.. School Boys' Industrial. . . School Kens Reformatory... Women's Reformatory Penitentiary. .. . . School for Deaf. . School for Blind. ON ADMINISTRATIVE REORGANIZATION 7 by this method, he could obtain a bird's-eye view of all of the state's activities. Considerations of expediency have been a negligible factor in the formulation of the following recommendations. The controlling thought has been to devise the best possible plan of state reorganization after careful consideration of all the available facts bearing upon the problem. Hundreds of letters were written to former state officials, present state officials, civic, professional, social and business organizations and inter- ested citizens for the purpose of securing ideas and facts. Conferences were held with individuals, state officials and a few public hearings were conducted for the purpose of securing additional information. In addi- tion to the ideas and suggestions which were received from citizens of Ohio, a large amount of valuable information was obtained from persons of wide experience in governmental affairs in other states. The preceding chart shows in graphic form the proposed reorganiza- tion plan and the following pages give in summary form a description of the plan together with the reasons for the grouping and coordination of the various departments. Respectfully submitted, Don C. Sowers, Executive Secretary. Summary of Recommendations for the Reorganiza- tion of State Government The organization of the administrative activities of the state gov- ernment into the following departments is recommended : 1. Office of governor. 2. Lieutenant governor. 3. Office of auditor. 4. Department of state. 5. Department of military affairs. 6. Department of law. 7. . Department of finance. 8. Department of trade and commerce. 9. Department of public works. 10. Department of agriculture. 11. Department of health. 12. Industrial commission. 13. Public utilities commission. 14. Department of education. 15. Department of welfare administration. 16. State board of welfare. 17. Civil service commissioner. In addition the following educational and research agencies would be continued as organized at present. Ohio state university. Ohio university. Miami university. Bowling Green normal college. Kent normal college. Wilberforce combined normal and industrial department. .Archaeological and historical society. OFFICE OF GOVERNOR. The ])lan proposes to extend the "supreme executive power of the state" to he vested in the governor, as contemplaed by the state consti- tution. (Art. III. Sec. 5.) The governor is to have the power to choose the heads of depart- ments, who will constitute his cabinet and who will serve at his pleasure. (8) ON ADMINISTRATIVE REORGANIZATION 9 In this way direct responsibility for administration will rest with the governor. Citizens will know whom to hold accountable and on the other hand the governor will possess the power to exercise control over all administrative departments through his power of appointment and removal. The position of the governor will be similar to that of ihe president of the United States, and clearly in line with the position which the Ohio constitution gives to the governor. The governor would be elected for a term of four years instead of for two years as at present. Two years is too short a time for the governor to become familiar with the duties of his office and to im- prove the organization necessary for accomplishing results. Investigators would be attached to his office to advise and report to him on methods, organization and other problems con- nected with state activities, in order that he would have the neces- sary machinery for adequate and effective supervision of all depart- ments. The details of this internal organization may be left to the governor. The governor now possesses three such agencies, viz. his secretary and staff, the budget commissioner and the board of clem- ency. Each of these should be retained as organized at present. The investigations herein mentioned as essential might be performed by en- larging the staff of the budget commissioner. There is need of carefully supervising the publication of the annual and special reports of the state departments, to the end that informa- tion which is unessentail may be eliminated and information which is desirable may be published in an intelligent and readable form. This work should be done under the governor's supervision either in the office of the governor or if the secretary of state is appointed by the governor, as recommended in this report, it might be done by the bureau of records of the department of state. A constitutional amendment will be required to lengthen the term of governor from two to four years. All other recommendations will require no statutory changes and can be effected by administrative order. LIEUTENANT GOVERNOR. The lieutenant governor is a constitutional officer elected for a term of two years. He is the presiding officer of the senate and in case of a vacancy succeeds as governor. The term of lieutenant governor should be for the same period as that of the other elective officers, governor and auditor, which under the proposed scheme of reorganization will both be four years. A constitutional amendment will be required to lengthen the term of lieutenant governor from two to four years. 10 REPORT OF JOINT LEGISLATIVE COMMITTEE OFFICE OF AUDITOR. The auditor of state is a constitutional officer elected for a term of four years. Statutory changes are recommended limiting the functions of the auditor to those of an auditing nature, transferring to a new department, the department of finance, all those finsmcisd functions which have to do with planning and spending emd specifying that the auditor shall make operation as well as financial audits. At present the auditor not only audits all financial accounts, but handles the routine administrative functions concerned with accounting, collection of revenues, expenditures, property control and other financial transactions. No distinction now exists between the function of auditing and the function of bookkeeping and accounting. The auditor is in the position of auditing his own work, which of course tends to destroy the disinterestedness of his audit. The routine administrative duties divert the energy of the auditor and his statT from the much needed study and investigation of operation results. It is recommended that the auditor should be charged only with the auditing function and that he be continued to be elected by the people so that he may be independent of the whole executive govern- ment and be free to criticise its performances when necessary. In addition to auditing the financial records with respect to accuracy and legality, he should be charged with the duty of ascertaining the wisdom, economy and effectiveness of expenditures ; in other words, there is need for a continuous independent, analytical study of operations and re- sults accomplished by the executive government. Provision should be made by law for publication of the findings of the auditor so that these wou'd be available to the general assembly, the governor and citizens. The following functions now performed by the auditor would be re- tained : Audit of state departments. Bureau of inspection and supervision of public offices. All otiicr functions now performed by the auditor would be trans- ferred to otlier departments as follows: Accounting control over revenues and expenditures would be transferred to the proposed department of finance. Devising and installing accounting systems would be transferred to the department of finance. Supervision of school and ministerial lands would be transferred to the department of public works. The compilation of complete records showing the location of all school lands through surveys and examination of local records and the lease or sale of such lands properly belongs to the bureau of state lands, canals and parks, which is to be a part of the department of public works. ON ADMINISTRATIVE REORGANIZATION I I Custody of land records would be transferred to the department of state. The custody of land records is mainly a matter of preservation of records, rather than of finance. Bonds of transportation agents would be transferred to the de- partments of trade and commerce. Agents selling steamship or railroad tickets to and from foreign countries must receive certificates of authority and deposit bonds. This activity is a matter of regulating a business and not primarily a financial activity. Supervision of highway accounting would be transferred to the proposed department of finemce. It is a part of the duties of the proposed department of finance to devise and install accounting records in all departments and to supervise and control all financial transactions. Statutory changes only are required to carry these recommendations into eiTect. DEPARTMENT OF STATE. The head of the proposed department of state will be the secretary of state appointed by the governor and serving at his pleasure. The functions that logically belong to a department of state are the custody of the state archives and supervision and enforcement of election laws. For the' performance of these duties a bureau of records and a bureau of elections is recommended. BUREAU OF RECORDS. This bureau would have the custody of all state do:uments and laws and all state papers and records, including the land records, which would be transferred from the office of auditor. It would be the center of distribution for all public documents issued by the various departments. Its duties might include the editing of departmental reports and publica- tions or this w^ork might be handled by a bureau of records and publica- tions in the ofBce of the governor. The important point is that the gov- ernor, as the responsible head of the state organization, should possess the machinery to supervise and criticise all the reports and publications dealing with the administration of public business. If the secretary of state is appointed by the governor he might be charged with these duties. The duties of this department as herein outlined consist of purely routine administrative activities ; the department would not be con- cerned with the formulation of public policies and hence there would be no logical reason for the election of the head of this department bv the people. Appointment by the governor would eliminate the possibliity of friction which so often arises between two separate, independent elective officials. 12 REPORT OF JOINT LEGISLATIVE COMMITTEE The strongest objection which has been urged against the appoint- ment by the governor of the secretary of state is that the control of the election machinery would thereby fall into the hands of the governor. \\1ien it is recalled that at the present time the secretary of state merely appoints deputy state supervisors of election, upon the recommenda- tions of the executive committees of the two leading political parties, this objection loses much of its force. In New York State the state superintendent of elections is appointed by the governor. The auditor would have the authority and duty to audit methods and results. All the other functions now carried on by the department of state would be transferred to other departments. BUREAU OF VITAL STATISTICS. The bureau of vital statistics would be transferred to the department of health. Vital statistics belong in the health department where there is con- stant need for them. The most important purpose which justifies the expense involved in collecting this information is to help the state study its health problems, learn where forces are at work which menace the health and life of its citizens and enable its health engineers and other serial engineers to take steps for increasing human vitality. The secre- tary of state has no administrative uses for this information whereas the department of health should constantly study and analyze this informa- tion. BUREAU OF MOTOR VEHICLE LICENSES. The bureau of motor vehicle licenses would be transferred to the department of finance. It would seem logical to place the issuance of automobile licenses in the finance department. The activity is primarily one of producing an income for the state. The work is also seasonal in character, re- quiring a large number of employes at certain times who are either idle a portion of the year or must be discharged. This condition might be corrected if this division were included in a department where the idle time could be used. STATE PURCHASING DEPARTMENT. The state purchasing department would be transferred to the de- partment of finance. The function of purchasing all commodities used by the state can most satisfactorily be undertaken from the point of view both of economy and service by a single purchasing department. Large economies can be effected through quantity buying where all purchases are made through one agency. It seems logical to place this function in the department of finance, since the purchase orders and requisitions are the first steps in the expenditure of public funds for supplies and equipment and ON ADMINISTRATIVE REORGANIZATION I3 therefore it sustains a very intimate relation to the other activities of this department. BUREAU OF CORPORATIONS. The bureau of corporations would be transferred to the proposed department of trade and commerce. The responsibility of the secretary of state ceases with the granting of certificates of incorporation. However, before a corporation for profit is allowed to operate or sell its securities, its financial ability must be investigated and approved by the commissioner of securities. The advantages of combining in one agency the investigation and grant- ing of certificates of incorporation are obvious. Such consolidation of function would simplify the procedure of organizing new corporations and would enable the state to obtain a complete record of the history and operation of corporations. Those engaged in supervising are the best judges of the desirability and propriety of granting authority to solicit stock subscriptions to a new group of promoters. The reason for placing the bureau of corporations in the department of trade and commerce is the desire to place the supervision and regulation of all corporations in one department. Such a combination would give better service to the public and would be of advantage economically. At the present time the several regulatory services are located in different buildings in Columbus and this leads to loss of time and effort on the part of citizens. (For further discussion see under Dept. of Trade and Commerce.) Constitutional changes. A constitutional amendment will be required to change the secretary of state from an elective official to an appointive one. All the other changes can be effected by legislation. DEPARTMENT OF MILITARY AFFAIRS. The governor is commander-in-chief of the military and naval forces. He appoints an adjutant general and such other staff officers as may be provided by law. A department of military aiffairs is recommended with the adjutant general as the administrative head appointed as at present to have com- plete charge of the military affairs of the state, under the supervision of the governor. The functions performed by the commissioner of soldiers' claims naturally belong in this department and it is recommended that the commissioner be appointed by the adjutant general. This office is con cerned with giving aid and assistance to soldiers and sailors and their heirs, in perfecting claims for pension, back pay and bounties, in securing admission for them to state and national military homes and in other ways. 14 REPORT OF JOINT LEGISLATIVE COMMITTEE All non-military functions now performed by the adjutant general should be placed elsewhere. As a matter of principle the department of military affairs should be charged with only military duties so that prompt and vigorous action may be taken in case an emergency should demand the call of the national guard into service. The function of superintendence of buildings and grounds would be removed and attached to the proposed department of public works. The strongest argument for this change is the present condition of the state house. As a matter of fact the department under its present control does not function. These recommendations require only statutory changes. DEPARTMENT OF LAW. The attorney general is a constitutional officer elected by the people for a term of two years. The duties of the attorney general are defined by statute and may be summarized as follows : He is the chief law officer for the state and all its departments and is required to prosecute and defend all actions or proceedings in which the state is interested. He gives legal advice to state officers and boards and to either house of the general assembly when so requested by resolution. He is the codifier of the laws of the state. He advises the prosecuting attorneys of the several counties when requested by them. He prepares forms of contract and has certain duties to perform in con- nection with the collection of moneys due the state and state institutions. One point which has aroused some discussion among students of government is that of the relation of the attorney general to the legal staffs of other departments. This question is not an important one in Ohio because both in law and in fact all the legal counsel employed in the several departments are under the supervision and control of the at- torney general. The law provides that no state officer, board, or the head of a department or institution of the state shall employ, or be represented by other counsel or attorneys-at-law. The trend of judicial opinion in other states where the question has been raised is in accord with the present situation in Ohio. It has come to be generally recognized that all the legal work of the state should be centralized under the attorney general. It is obvious that if the whole time of some attorney is needed by some departments, the attorney general will assign special attorneys to these departments on full time. With the attorney general elected by the people and thus independent of the governor there exists a condition which might develop to seriously limit the effective authority of the governor as the chief executive of the state. If the elected attorney general were of opposite politicaljfaith ON ADMINISTRATIVE REORGANIZATION 15 to the governor, the situation might become embarrassing. In govern- mental activities executive officials are circumscribed in their work by a mass of legal requirements and technicalities and if results are to be secured it is necessary that the executive officer be guided through this maze of legal restrictions by competent and sympathetic legal counsel. If one course of action is blocked by legal restriction, then some other way must be found to accomplish the desired results. The danger that the attorney general might make rulings and de- cisions to suit the wishes of the governor who appoints him is more theoretical than real. To maintain this attitude w^ould be to malign the legal profession. Furthermore, the plan of appointment by the executive works satis- factorily in the United States department of Justice, in cities, and it is in operation in a few states. The attorney general is head of the depart- ment of justice and chief law officer of the national government. He is appointed by the president and has similar duties to the attorney general of the state. In both Pennsylvania and New Jersey the attorney general is appointed by the governor. It is recommended that the attorney general of Ohio be appointed by the governor and serve at his pleasure. A constitutional amendment will be required to make the attorney general an appointive officer under the governor. DEPARTMENT OF FINANCE. A new department is proposed to be called the "department of finance." The head of this department would be the director of finance, who would be appointed by the governor and serve at his pleasure. All the administrative financial affairs of the state now performed by several different offices and boards would be coordinated and central- ized in this department. The department would have the management and control of the levy, assessment, collection, disbursement and custody of state funds, the purchase and storage of supplies and equip- ment and the maintenance of financial records. The head of the depart- ment would be the financial advisor to the governor on all matters of state finance. The following functions would be transferred from other de- partments : Bureau of accounting transferred from the office of auditor. Bureau of income and taxation transferred from the office of auditor, tax commission and superintendent of insurance. Bureau of motor vehicle licenses transferred from the secretary of state. Bureau of treasury transferred from the office of state treasurer. Bureau of purchasing transferred from the office of secretary of state. l6 REPORT OF JOINT LEGISLATIVE COMMITTEE BUREAU OF ACCOUNTING. The work of this bureau would include the bookkeeping- work of the state government now performed by the auditor together with the task of devising and instalHng improved methods of financial control throughout all state departments. BUREAU OF INCOME AND TAXATION. The work of this bureau would include the accrual of revenues, assessing and levying taxes on corporations, insurance companies and banks; supervising the assessment and equalization of general property valuation; determining franchise valuation and the issuance of licenses, and the collection of fees upon the recommendation of departments con- cerned except motor vehicle licenses. This bureau would assume the duties now performed by the tax commission. For the purpose of equalizing the assessment of the several counties and performing the other quasi judicial functions now performed by the tax commission a board of equalization would be created consisting of the director of finance, attorney general and director of trade and com- merce. BUREAU OF MOTOR VEHICLE LICENSES. This bureau would perform the activities of the division of auto- mobiles in the office of the secretary of state. The chief reason for this transfer is the centralization of purely financial transactions in one de- partment. The motor vehicle bureau is primarily a revenue producing agency and is only secondarily concerned with the regulation of motor vehicle trafific. BUREAU OF TREASURY. .This bureau would perform all the functions of the present state treasurer's ofifice. The collection, disbursement and custody of state and trust funds is but one of the several steps in the process of state finance and the work would be placed on the same plane and handled in a manner similar to the coordinate steps. The continuous check by an independent auditor should be sufificient safeguard against loss of funds without resorting to the expediency of establishing a separate de- partment of the treasury. BUREAU OF PURCHASING. This bureau would purchase and distribute the printing, supplies, materials and equipment for the several departments and institutions in- cluding the purchasing now done by the board of administration, highway department and universities. In the few instances where it might be found impractical to do the purchasing by the purchasing agent specific releases could be issued. Central purchasing control should result in both economy and improved service. Several states, notably New Jersey ON ADMINISTRATIVE REORGANIZATION 1/ and Wisconsin, have centralized purchasing systems. The duties of the supervisor of state printing and the state printing commission would be absorbed by this bureau. CONSTITUTIONAL CHANGES. The state treasurer, who is an elective officer under the constitution would have to be made an appointive officer under the director of finance. STATUTORY CHANGES. Only statutory changes would be required to abolish the supervisor of printing, the printing commission, the tax commission and to transfer the functions now performed by other departments to the department of finance. DEPARTMENT OE TRADE AND COMMERCE. It is proposed to create a new department to be called the "depart- ment of trade and commerce". I'he head of this department would be a director appointed by the governor and serving at his pleasure. The purpose of this department would be tq coordinate and central- ize, as far as it is possible, all the activities of state government which have to do with the supervision, regulation and control of corporations and businesses other than public utilities. It is not only an annoyance to business interests but it also costs considerable in time, money and effort to have to deal with a large number of state departments located in widely separated buildings as they are at present and to file several kinds of reports required by dififcrcnt state departments. All corpora- tions operating for profit render reports to the corporation division, to the commissioner of securities and to the tax commission. Public utilities making a fourth report to the public utilities commission. Cor- porations are thus required to furnish separately much common informa- tion. By centralizing the functions which have to do with the granting of certificates of incorporation, granting permission to issue and sell securities, making examinations, filing statements and reports, safeguard- ing securities on deposit-, etc., in one department, a start would be made in the direction desired which might be expected to influence future de- velopments in the field of business regulation. The work of the department would be organized under the following bureaus : Bureau of corporations which would combine the work of the corporatfon division now in the ofHce of secretary of state with the work of the conunissioner of securities. It is obviously illogical to have one agency grant certificates of incorporation and another agency make investigations as to financial ability. Bureau of insurance. l8 REPORT OF JOINT LEGISLATIVE COMMITTEE Bureau of banks. Bureau of building and loan associations. The superintendent of insurance, the superintendent of banks and the inspector of building and loan associations would be appointed by the director of the department of trade and com- merce instead of being appointed by the governor eis at present, but the internal organizations of the bureaus would remain sub- stsmtially as at present. Bureau of stsmdards to be discussed later. Such a reorganization as herein outlined would strengthen the gen- eral organization of the state and in no way interfere with the conduct of the service now rendered. By the appointment of a director of trade and commerce, the governor would be relieved of the necessity for direct supervision over a number of separate units. Similar regulatory services would be coordinated in a single department and their direct relation to the state government would be made more clear and definite. There has been observed a tendency on the part of some of these departments to feel that they are employed by and for a particular class of business and to fail to emphasize the direct concern of every citizen in the proper regulation of financial institutions. By consolidation in one administrative department, certain overhead costs should be reduced — as rent, use of office space and equipment, telephones and libraries. Possible reduction of office staff might be aft'ected and at least it would be possible to provide for their permanent employment on the work of several bureaus where the work is some- what seasonal in a single bureau. The feasibility of combining examin- ing staffs could be definitely determined and the possibility o feft'ecting economy through routing examiners to reduce traveling expenses could be considered by the proper administrative official under the proposed reorganization plan. Bureau of Standards. There is need for a state agency which would concern itself with the determination and enforcement of standards of quality and quanity for various commodities purchased and sold within the state. Standards are needed for weights and measures, oils, gasolene, gas, electricity and various materials and supplies. It is recommended that a start be made in this direction by the creation of the bureau of standards in the de- partment of trade and commerce, and that the inspection of oils and the regulation of weights and measures be carried on by this bureau. The office of state inspector of oils was created to prevent the sale of illuminating oil which contained too high a percentage of volatile sub- stances. Oil is rejected which on test shows a flashing point at 120 de- grees Fahrenheit or below. Today the tendency is for oil to contain a too small a percentage of volatile substances, and the law does not cover ON ADMINISTRATIVE REORGANIZATION I9 this point. In other words the quahty of oil is not insured by the present inspection. The inspection of oil as now performed is practically of no value to the consumer of oil. The inspector of oil and his 42 deputies, who operate in 38 districts, are not employed under civil service regu- lations and hence the positions furnish political plums for the party which happens to be in control of the state administration. The fees paid by owners of oil for insi>ection amount annually to twice the ex- penditures of the department. Citizens interested in economy in state affairs should be on their guard against specious arguments which will be made in behalf of this department should this recommendation be seriously considered and an attempt made to abolish this office. Statutory changes only are required to put these recommendations mto effect. DEPARTMENT OF HEALTH. The new plan of organization provided for in the Hughes Act, passed at the last session of the legislature, should be thoroughly tried out before further changes are made in the organization, of this depart- ment. Three exceptions to this general statement are suggested for the double reason of relieving other departments of services which do not belong to them and which belong properly to the health department and will easily fit into the new health law. It is recommended that the following services be transferred to the department of health : Bureau of vital statistics would be transferred from the sec- retary of state. Inspection of hotels would be transferred from the fire marshal. Food and dairy division would be transferred from the department of agriculture. BUREAU OF VITAL STATISTICS. The bureau of vital statistics is to the commissioner of health what the cost accounting department is to the industrial manager. It furnishes him the only means available of checking up on his activities. The in- fant mortality rate is a guide to him with respect to the efficiency of his division of child welfare. The deaths from tuberculosis enable him to gauge the results of the work of the bureau of tuberculosis. The secre- tary of state has no administrative use for this information, whereas the department of health must constantly study and analyze vital statistics. So far as these records serve a non-health purpose as for identification of parentage, determination of age, nationality, etc., such purpose can be just as easily served at health headquarters as at the secretary of state's office. 20 REPORT OF JOINT LEGISLATIVE COMMITTEE INSPECTIOU OF HOTELS. It is obvious that the matter of proper handling of food, sanitary conditions ni hotels and restaurants, the freedom of food handlers from communicable disease arc functions belonging properly to that depart- ment responsible for the prevention and control of disease. Furthermore, the inspection necessary before licenses are granted to hotels and restaur- ants duplicates the vi^ork of health departments in the cities and when the work of the county health organization is perfected there will be further duplication of inspections outside of the large cities. FOOD AND DAIRY DIVISION. Health authorities must concern themselves with the prevention of the sale of unclean and impure milk and dangerously contaminated food, wliether specifically charged with the enforcement of the food laws or not. The inspection of foods and drugs and sanitary inspection of food handling establishments is essentially a matter of public health and for this reason its transfer from the department of agriculture to the health department is recommended. The work of the bureau of dairy and food inspection, as it is now functioning, has nothing whatever to do with the promotion and development of the dairy industry, and has little relation to the other bureaus of the department of agriculture. (For further discussion see Department of Agriculture.) PLUMBING INSPECTION. It is recommended that the division of plumbing inspection, now under the department of health, be transferred to the division of work- shops and factories under the industrial commission. The best modern thought with reference to plumbing inspection in- dicates that there is very little, if any connection between defective plumbing and conditions detrimental to health. In accordance with this idea many cities have already transferred plumbing inspection from the board of health to the building inspection department. The state department of health retains a small force for this work which is entirely inadequate to cover all the work of the state and it is thought that by combining that activity with the inspection of workshops and factories the work will probably be carried on as efficiently as at present at a saving in expense. DEPARTMENT OF PUBLIC WORKS. A department of public works is proposed which will combine under one administrative (?i"ficer the functions of the state highway commis- sioner, superintendent of public works, superintendent of lands and buildings, the state geologist, and the control of school and ministerial ON ADMINISTRATIVE REORGANIZATION 21 lands now under the control of the auditor. The head of this depart- ment would b? a director appointed by the governor to serve during h;s pleasure. The activities of this department would be performed by the follow- ing bureaus : Bureau of highways. Bureau of Isinds, canals, parks. Bureau of public buildings and grounds. State geologist. BUREAU OF HIGHWAYS. At present the highway work is handled by a commissioner of highways appointed by the governor and a so-called highway ad- visory board of four members appointed by the governor. This board is not in reality an advisory board but an administrative board clothed with large administrative powers. It is recommended that the highway advisory board be abolished and that the director of public works appoint a chief engineer of highways. In these recom- mendations the highway commissioner concurs. The reasons advanced for the creation of the highway advisory board are first; to constitute a check upon the highway commissioner in the exercise of the large discretionarv' powers granted to him in the distribution of state highway funds and to insure that highway routes are wisely laid out and planned with respect to main thoroughfares. Second ; to prevent the "material" men from obtaining undue in- fluence with the commissioner, and, third; to prevent undue county in- fluence in the state highway department. The existence of this board has resulted in delay and indecision. An honest competent highway commissioner would need no check by a lay board and an incompetent dishonest commissioner should be removed. In general, lay men are more easily fooled by the selling talk of "material" men than technically trained engineers. Lay men coming from different sections of the state would be more apt to parcel out funds in accordance with local desires than would a smgle trained commissioner. The dif- ficulty of functioning rmder the present arrangement led to the recom.- mendation to abolish the advisory board and to provide for the right of app^^al from a decision of the highway commissioner to an appeal board consisting of three officials of the state, resident in Columbus. In practice resident engineers, local inspectors, etc., employed on state highway work are nominated by the county surveyors and con- firmed by the highway commissioner. Employees thus appointed are more amenable to local influence than to the orders of the state highwav department. The cost of road maintenance is paid for by the state but spent and supervised by county surveyors. The incentive is here to get as much as 22 REPORT OF JOINT LEGISLATIVE COMMITTEE possible from the state for the double purpose of patronage and making a good showing on the roads. A unified system of maintenance using standardized methods is im- possible. This injection of the county surveyors into the work of the state highway department results in delay, loss of time, poor work and conflict of authority and interest as between state and county. It is recommended that the county surveyor be divorced from the control of state highway work and that the resident engineer and local inspectors, now appointed by the county surveyors and paid by the state, be appointed directly by the state highway department. The state pays 1/5 of the salary of the county surveyors for their sup- posed supervision. This amounted to $48,529.00 last year. It would not be necessary to add a single man to the department to handle the present amount of work, and the amount now paid as salary to the county sur- veyors would be entirely saved with actual benefit to the operation of the highway department. BUREAU OF STATE LANDS, CANALS, PARKS. This bureau would exercise control over the activities performed by the superintendent of public works. The superintendent of public works is a constitutional officer appointed by the governor for a term of one Near. This provision would be repealed and the head of this bureau would be appointed by the director of public works. This bureau has control of the remains of the old Ohio canals, the leasing and selling of state lands, surplus water power, control of state parks, licensing of boats, and supervising control over inter-county drain- age, and over swamp, mar.sh and overflow land. Supervision of school and ministerial lands would be transferred to the bureau from the office of auditor of state. BUREAU OF PUBLIC BUILDINGS. The supervision and control of the state house and grounds, now performed under the direction of the adjutant general would be placed in this bureau. The head of the department of public works would probably be an engineer and her.ce would be better able to supervise such work than a military officer. The function performed by the ex- officio state building commission would be lodged with this bureau, l^or concrete illustrations of the failure of the adjutant general to properly supervise the state house and grounds see detailed report on superintend- ent of public buildings. One problem which is pressing for attention is the urgent need thai steps be taken to design and construct a state office building to house all state departments. It will reriuire considerable time to make the proper study of space needed, to select a site and make the plans. ON ADMINISTRATIVE REORGANIZATION 23 STATE GEOLOGIST. The State geologist would be appointed by the director of public works instead of by the governor. In scientific work of this kind it is most important that there be continuity of tenure of office and there should be no opportunity afforded for a new governor to appoint a new state geologist. The work of the state geologist might have a very definite relation to the activities of this department. Geological formations have a bearing upon water supply, locations of canals, of roads and conservation of state parks. The location of road materials is of great importance to the highway department. CONSTITUnONAT, CHANGES. A constitutional amendment would he required to abolish the super- intendent of public works. Only statutory changes are required to effect the other changes recommended. DEPARTMENT OF AGRICULTURE. * It is proposed to abolish the Iioard of agriculture as an administra- tive agency and to transfer the administrative duties to a director of agriculture, who would be appointed by the governor to serve at hi? pleasure. The board might be retained in an advisory capacity. In 1917 the act governing this department was revised throughout by striking out "board of agriculture" and inserting the word "secretary". The time has now arrived for the final step, namely, placing all the purely executive duties in the hands of a director of the department. The purpose of the large board of ten members was to secure repre- sentation of the varied interests dealt with by the department and to bring to bear upon the agricultural problems of the state the advice and counsel of the leading agricultural and business men of the state. This purpose is interfered with to some extent by requiring these men to de- vote a considerable part of their time, when in session, to routine execu- tive duties such as the approval of appointments, promotion and dis- missal of employes concerning which the board has little knowledge, little time or opportunity to investigate and consequently must rely almost wholly upon the decision of the secretary. It is obvious that an unpaid board meeting monthly can act in an advis9ry capacity but cannot super- vise and coordinate the work of several departments. By the creation of an advisory board the original puropses would be served and the de- partment could function properly and effectively and assume the position which rightfully belongs to it as one of the coordinate major depart- ments of state government having a representative on the governor's cabinet. The tendency in other states, notably Illinois, Niebraska and Idaho, is to place at the head of the department of agriculture a single executive appointed by the governor. 24 REPORT OF JOINT LEGISLATIVE COMMITTEE The transfer of the fcjllowing functions to the other departments is recommended: Dairy and food inspection to the department of heahh. l5oard of veterinary examiners to the department of education. . DAIRY AND lOOD INSPECTION. The functions, performed by this bureau are the enforcement of the food and drug laws of the state; enforcement of the narcotic drug law: m iking sanitary inspections of food handling establishments and testing ana adjusting the work standards of cr.unty and city sealers of weights and measures. These activities have nothing whatever to do with the promotion and development of the dairy industry of the state and there- fore, i;he work is not closely related to the other bureaus of the depart- ment of agriculture. The following facts point to the conclusion that the logical place for this work is under the department of health. I — The 'inspection of food and drugs and the sanitary inspection of food handling establishments and dairies is essentially a matter of public health. 2 — The local health authorities in cities and towns of the state are charged with these functions and it is desirable that the state health department should exercise control and supervision over their activities and that they should' turn to the state health department for advice and guidance in the solution of their problems. 3 — The analysis of food, drugs and milk samples collected by dairy, food and drug inspectors are made by the laboratory of the state board of health and it would be advantageous to place the supervision of all this work in the same place. BOARD OF VETERINARY EXAMINERS. The function performed by this board is similar in character to that performed by other registration and licensing boards for other professions such as accountancy, dentistry, medicine, etc. In the interest of economy and of higher standards this work should be done by a single division of registration for all profes.-;ions. It is therefore recommended that the duties ot this board be transferred to the examining and licensing division in Llic (kinrtment of education. INSPECTION OF WEIGHTS AND MEASURES. This function is now performed by the dairy and food inspection division in the department of agriculture and would be transferred to the bureau of standards in the department of trade and commerce. ON ADMINISTRATIVE REORGANIZATION 25 All the above recommendations can be put into effect by statutory changes. INDUSTRIAL COMMISSION. The industrial commisison is composed of three members appointed by the governor for over-lapping terms of three years. The functions of the commission include the following: administer- ing the state insurance fund for the benefit of injured and dependents of killed employees; enforcing laws relative to the protection of life, health and safety of persons employed in industrial and commercial establishments, frequenters of public buildings and occupants of tene- ment, or apartment houses and institutions ; prescribe hours, labor safety devices and safeguards ; promote voluntary arbitration, mediation and conciliation of disputes between employer and employee; establish free public employment agencies and supervise private employment agencies ; collect and publish statistical information; examine and license steam engmeers and censor moving picture films. The organization of the commission nominally consists of five de- partments actually it consists of ten coordinate divisions, the head of each being a director responsible to the industrial commission. The workmen's compensation department receives* at least. 90% of the attention of all the members of the commission. This leaves only 10% of their time for the supervision of the nine other independent activities. It is recommended that the commission constitute a separate de- partment of government with tlirce commissioners appointed as at present. The commission has quasi-jitdicial and quasi-legislative powers in the awarding of damages and in the making of rules and enforcing thom. The changes recommended in this department have to do largely with the internal organization. The most important changes are as follows : A chief administrator would be ap]iointed to have supervision and control over all administrative matters concerned with the operation and co-ordination of the several bureaus. This would leave the members of the commission free to devote their energies to comprehensive plan- ning, determination of policies and the exercise of judicial functions. A state insurance fund manager would be employed under the direction of ?. chief administrator to ro-ordinate the activities of the several divisions of the workmen's compensation department. The compensation department as at present constituted is made up of four co-ordinate divisions, each under the direction of a chief respon- sible immediately to the ccmmissirin. The ultimate aim of all four divisions is the same, and the fulfillment of this aim depends unon properly articulated action among these divisions. To secure this a single held with authority to enforce co-ordination is essential. 26 REPORT OF JOINT LEGISLATIVE COMMITTEE It is recommended that the inspection activities — workshops and factories, boiler inspection, mines — he consoHdated into one division under the direction of one chief, and that the functions now performed by the state fire marshal be transferred to this division of inspection. All inspections have the same end in view and the principle and philosophy governing them is a common one. It is recognized that mine inspection requires the services of specialized inspection, and that for practical reasons boiler inspection may have to be continued as at present. But the concentration of supervision will bring together all the forces in the industrial commission to work on the problem of reducing accidents, promoting the safety and welfare of all employes. The chief inspector of the department of inspection would be furnished a staff of qualified technical assistants, so that the work of this department might be carried on more eflFectively. Safety engineering has become a specialized profession. Large factories employ safety engineers whose sole business it is to introduce safety measures and to prevent accidents and injuries. If the industrial commission wants to accomplish results in safety work it must provide employees who can speak with authority and whose judgments will be respected by employers throughout the state. A stafif of specialists is needed who can pass authoritatively on problems brought in by inspectors in the field. The inspectors would continue to be employed in their present capacity. It is recommended that the accident statistics be furnished the divi- sion of workshops and factories currently, and that this information be used as a basis for planning the work of inspectors. This is necessary if the inspection department is to know what its problems are, where they are and if it is to be able to direct the efforts of the inspectors to the maximum advantage. It is recommended that the department of investigation and statistics be divided into two independent divisions. Namely ; division of employ- ment, and division of statistics and investigation. Each under a separate officer. The division of statistics and investigation would be under the direction of a qualified statistician, and all the statistical work of the industrial commission would be centralized here. This work would include the collection of and analysis of accident statistics A proper system of rec(jr(l and accounts should be maintained in the state insurance fund (sec report of S. 11. Wolfe). The department of film censorship bears no natural relationship tc the functions and activities of the other branches of the industrial com- mission and little supervi'^ion is exercised by the industrial commission over the department. It is recommended that this deparlment be transferred to the depart- ON ADMINISTRATIVE REORGANIZATION 2'J mtnt of education; and constitute one of the divisions of the educational department. STATE FIRE MARSHAL. The functions of this office are similar in character to the work performed by the inspectors of the division of workshops and factories. It would be a comparatively simple matter for factory inspectors to in- clude all conditions which make a building dangerous to life, or make it a fire hazard. In fact the distinction in many instances is almost im- possible to make. For an inspector to visit a building, inspect it thor- oughly and refrain from ordering corrections because these belong to another department results in serious loss. This is the situation under present conditions. On the otlier hand it is not inconceivable to have two recommendations made for the correction of the same defect. There is a distinct duplication of work without any special benefit accruing from this duplicate inspection. For purposes of investigating fire and prosecuting persons suspected of arson, and similar crimes, a staff of men delegated solely for this work would be employed by the division of worshops and factories. The educational work now carried on by the state fire marshal could be carried on by a safety director of the division of workshops and fac- tories, whose duty it is to educate factory owners and the people of Ohio in taking precaution against accidents. The education for fire prevention is along the same line and could be done by the same organization. PUBLIC UTILITIES COMMISSION. The public utilities commission consists of three members who are appointed by the governor with the advice and consent of the senate for over-lapping terms of six years. It is recommended that the commission constitute a separate depart- ment with three commisisoners appointed by the governor, without the advice and consent of the senate. It seems illogical to expect results from a governor and tie his hands by requiring the confirmation of the senate of his appointments. A public utilities commission exercises both semi-judicial and administrative functions and a several headed control is justified. It is believed tht such a conmiission should not be under the control of any other department. DEPARTMENT OF EDUCATION. The educational activities of the state are performed by thirteen different types of organizations as follows : I. A state department of public instruction at the head of which is a state superintendent of public instruction, a constitutional officer appointed by the governor for a term of four years. 28 REPORT OF JOINT LEGISLATIVE COMMITTEE 2. A State board of education tor the administration of federal vocational aid (Sniith-Hugbes) appointed by the governor. 3. Three universities: Miami (1033); Ohio (1023); Ohio state (6608), each separate from the other with its own board of trustees appointed by the governor. 4. An agricultural experiment station at Wooster under a separate board of trustees appointed by the governor. 5. Two normal colleges, at P.ovvling Green (240), Kent (209). with separate board of trustees. 6. Thirty-five county normal schools maintained jointly by the state and counties, each under the supervision of the county superintendent of schools and department of public instruction working through a normal school director. 7. A combined normal and industrial department of Wilberforce university (194 Onio students, 575 total), which is operated under a board of nine trustees five of whom are appointed by the governor. 8. The soldiers' and sailors' Orphans' Home at Xenia (650) imder a board of trustees named by the governor. 9. Six school departments, m the girls' industrial school at Dela- ware (4.S0) ; boys' industrial school at Lancaster (1200); woman's reformatory at Marysville (140) ; men's reformatory at Mansfield (1400)-. penitentiary at Columbus (2,000) and the new prison farm at London (200), each of these being under the supervision of the board of administration. 10. Two state schools, for the blind fi8o) and for the deaf (4/0). also under the board of administration. 11. The state library service under a board of three commissioners appointed by the governor. 12. The archaeological and historical society under a board of six trustees appointed by the governor and of nine trustees elected by the society. 13. The department of fihn censorship. No central control or relationship now exists for these separate services. There is no debate as to the need of organization for team work, but there has been some discussion as to the best methods of ac- complishing this result. Three methods have been conidered : First, placing all state educational services under a single board with a single executive who would be responsible for naming the heads of the universities, normal schools and the educational heads in correctional institutions ; Second, placing the universities and normal schools under a state board of education with one executive of^cer ; ON ADMINISTRATIVE REORGANIZATION 29 Third, combining facts about educational services before a combination of management takes place. This can be done by re- organizing the state department of public instruction and making it responsible for studying 100% of Ohio's school needs and school work and reporting the facts to the governor, legislature and public. The organization of the universities and normal schools under a single board is not suggested because opposition to it has already been organized and intrenched. The alumni of these institutions would present formidable opposition to such a movement. The utter- most that is considered practicable is to give the state department of education the responsibility for investigative supervision over all of Ohio's educational needs and services. The following organization is suggested to accomplish this re- sult : A board of education composed of five members to be appointed by the governor, without reference to party affiliation, for overlap- ping terms; this board to appoint a director of education who would be in charge of all the administrative work of the department, in- cluding the powers now possessed by the state superintendent of public instruction. Provision would be made by law whereby the present superintendent of public instruction would act under the super- vision of the director. The functions of the board of education would be to study all of Ohio's educational activities, including the supervision of rural, elementary and secondary schools, state educational institutions ; inspect and report upon the educational work of the girls' and boys' industrial schools,- state reformatories, penitentiary, schools for the blind and deaf and the soldiers' and sailors' orphans' home; study and report upon the five state colleges for teacher training; visit and report upon the services of the three state universities and review all educational budgets for the governor and legislature with special reference to the needs of elementary education and a balanced educational program for the state. The following activities would be transferred to the department of education : State board of education for vocational education; State board of school examiners; Examining board for professions; Board of library commissioners; Americanization commission; Department of film censorship. Two new activities are suggested, namely, an art commission and a voluntary educational council. ST.^TE BOAiy) OF EDUCATION FOR VOCATIONAL EDUCATION. This board was created to obtain and administer federal (Smith- Hughes) money for teaching domestic science, agriculture and vocations. 30 REPORT OF JOINT LEGISLATIVE COMMITTEE The same minds that are apportioning federal aid for teaching domestic science, etc., should be the res}X)nsil)le minds in directing the develop- ment of the entire school system. This work can be performed by the reorganized department of education and even the present board, which would be abolished favors this action. STATE BOARD OF SCHOOL EXAMINERS. This board consists of five members appointed by the superintendent of public instruction. The function of this board is to fix standards of examinations for school certificates. The responsibility for this work should rest squarely upon the de- partment of education and its executive officer. Furthermore, the ques- tion of certification needs immediate and continuousi study such as only an administrative department can be expected to give. The members of this examining board can give but little attention to the work and in practice the responsibility of detail work is borne by the department of public instruction. EXAMINING BOARDS FOR PROFESSIONS. At present there are eight separate examining boards with 32 mem- bers, each chosen from within the profession whose entrance and profes- sional standards it guards. The professions which have such boards are: Accountancy, dentistry, medicine, nursing, optometry, pharmacy, veterinary and embalming. A total of $10,850 was expended last year for expenses of board members and $7,950 for traveling expenses out of a grand total of $46,263 for maintaining these separate boards. It is apparent that a great saving could be efifccted through the consolidation of these boards in a single department. The reasons for placing the supervision of "this work in the department of education, however, are much more funda- mental than a desire to effect economy. The basic idea underlying every one of these exsunining boards is the protection of the profession, rather than a protection of the public. It is true that within each profession there exists a socially- minded grou]) which strives successfully to think of the public interest first, but it is also true that in spite of the best intentions on the part of examining board members and of the socially-minded individuals the point of view has hitherto been primarily that of the profession which does not want its accepted standards lowered. The time has come when the public's interests, that is the inter- ests of those who patronize these professions should be the primary consideration in making up examinations. It is for this reason that it i> su,^,!4(sk(l to alxilisb ilic ])r('S(nl Ixiards and to recognize the solidarity of the state's interests and the educaticnal motive which should dominate ON ADMINISTRATIVE REORGANIZATION 3 1 professional examinations by placing all this work under the direction of the proposed department of education. Under the proposed plan no physician, dentist or nurse would be permanently retained, except as a possible employe, by the state as an advisor in examinations. Individuals or groups would be called in, each a specialist in his field, for advice with respect to examinations, perhaps to interview and test the candidates and to mark papers. Not an iota of professional and scientific ability would be detracted from the prepara- tion of the examination and the marking of it. Laymen would not be engaged for professional examinations. By coordinating this work under die department of education the public purpose of all these professions would be emphasized. No per- son ought to be given the state's permission to practice medicine who does not know the facts about modern preventive hygiene. A dentist should know how teeth can be saved and the social importance and moral obligation of saving teeth, as well as the mechanical technique of repairing them. The reasons for not recommending the placing of these consolidated services in the department of health are that this department must secure the full cooperation of all practitioners, if it is to be successful. This full cooperation would be difficult, if not impossible, if the state depart- ment of health were mixed up with a factional discussion of proposed' new standards for admission into the profession and investigating charges ag'^inst individual practitioners. By recommending that this examining work come under the depart- ment of education instead of a consolidated examining board, it is hoped to secure all the advantages of concentration plus the additional advan- tages of recognizing the state's part in the admission of new practitioners to professions which it licenses as part of its educational program and accountability. LIBRARY SERVICE. The board of library commissioners consists of three members ap- pointed by the governor. The functions of this commission are the main- tenance of a public, general reference and document library in the state house ; organization of new libraries ; traveling libraries and a legislative reference library. The library system is not only at a standstill, but has for sometime been loosing ground. .Such is the emphatic and public testimony of the state library association. Insiders and outsiders alike admit that no part of Ohio's public work is more in politics than the state library. At no point, except in the legislative reference division, is the present organiza- tion for rendering service at all adequate. If the library work were transferred to the reorganized department of education there could be created a special library division with. an 32 REPORT OF JOINT LEGISLATIVE COMMITTEE able librarian at its head who would be free from all entanglements and the work could be developed as it should be. Furthermore, it should be recognized that library work is educational work. It would be easier to interest the teachers in the country districts and small towns in the Av-ork of the library and make larger use of it if it were advertised, as it could be done, as a part of the educational system. ART COMMISSION. It is recommended that an art commission be organized under the department of education. The functions of this commission would be to review all plans for state buildings and parks from the standpoint of beauty and conformity to art standards. The administrative work would be performed by a subordinate of the director of education. The problem would not call for continued attention of professional men. As new plans were submitted a commission or jury of specialists best equipped to review the particular problem would be named. Alter the report had been made the duties of this voluntary commission would cease. The kind of art commission Ohio needs is not so much one that in- sists upon conventional artistic merit in public buildings, but which will keep alive throughout the state an interest in beauty making. It is a vastly bigger ideal to have the public keenly interested in beauty making in the country around farms, on school grounds and front yards, in ap- proaches to town, through railroad stations and in public buildings than to have a uniform and acceptable type of architecture. The director of the art needs and advances in the state would give continuous studv and attention to ways and methods of teaching school children, teachers and parents the double satisfaction of outward beauty and of inward desire to participate in beauty making. Conferences would be called to consider what could be done from time to time for beauty throughout the state ; progressive educational campaigns would be waged by promoting community art and assistance would be offered local com- mittees, which in the next few years will be erecting many memorial monuments and buildings. VOLUNTARY EDUCATIONAL COUNCIL. A re[)resentative educational council is suggested for the purpose of establishing some direct and official contact between the department of education and the various civic interests which are, or ought to be, con- tmuously working for better educational policies in their localities, counties and the state. Representatives from various civic organizations, such as the Federation of Women's Clubs, Federation of Labor, Ro- tarians, Kiwanians, Society of Fngineers, Accountants, Dentists, etc., would be selected by the organization-; and certified to the director of ON ADMINISTRATIVE REORGANIZATION . 33 education who would call conferences for the purpose of suggestions, information, criticism and proposals with respect to Ohio's educational needs. No salary should attach to membership in this council. It is doubt- ful if it would be necessary or expedient to have the state pay the ex- penses of members as all such agencies have a vital interest in education. The solidarity of the state's interest in education could thus be continually and progressively emphasized. ARCHAEOLOGTCAL AND HISTORICAL SOCIETY. It is recommended that the department of education be charged with responsibility for studying the work of this society, with a view to the use of its results by public schools, teacher training schools and univer- sities and that the result of such inspection and analysis of its budget estimate be submitted biennially to the governor, legislature and public. DEPARTMENT OF WELFARE ADMINISTRATION. The board of administration was created in 191 1 tmder Governor Harmon's administration for the purpose of centralizing the administra- tion of the state benevolent, correctional and penal institutions tmder one central authority. The independent boards which managed each institu- tion separately were abolished and a board of administration, consisting of four members appointed by the governor at salaries of $4000 each, assumed control. Great economies have resulted from this change. This board is responsible for expressing Ohio's best thought in managing twenty-three difl"erent in.stitutions having an aggregate popula- tion of 25,000 and spending $12,000,000 each biennium. The institutions under its control are as follows: eight hospitals for insane — Athens, Cleveland, Columbus, Dayton, Lima, Long View, Massillon and Toledo; Ohio hospital for epileptics; institution for feebleminded; state school for blind; state school for deaf; Ohio soldiers' and sailors' home; Madi- son home ; boys' industrial school ; girls' industrial school ; Ohio reforma- tories at Mansfield and Marysville ; penitentiary ; reformatory for women' new prison farm and Ohio state sanatorium. It is recommended that the board of four members be abolished and that a department of Welfare administration be created under a director to be appointed by the governor and to serve at his pleasure. It is further recommended that the following activities be transferred to this department : Administrative work of the commission for the blind. The support bureau and children's welfare work of the board of state charities. Management of the soldiers' and sailors' orphans' home at Xenia. 3 34 REPORT OF JOINT LEGISLATIVE COMMITTEE If adopted, these recommendations will put into one executive's hands the administrative duties now carried on by sixteen board mem- bers, make for better administration of all services involved and release salaries, expense money and energies that will elsewhere accomplish vastly more for the state than is now being accomplished by the present organizations. The reason for substituting a single director for four members as head of the state's administration of institutions are four : 1. — The work of a judicial character that called for board action when the separate institutional boards were first abolished has now been accomplished ; present work calls for study, decision, action, dispatch, efficiency, for each and all of which one head is everywhere better than four; 2. — The cost of obtaining four men of the caliber contemplated when in 191 1 the salaries were fixed at $4000 is now prohibitive for it means at present rates from $40,000 to $60,000 a year for initial salaries in this one office ; 3. — Far more work can be secured from specialists employed for field work if they have to account to but one superior instead of four; 4. — One person able to decide and to execute will have a con- tmuing motive to study causes and consider and propose remedies where a board of four has found it impossible in nine years to ade- quately utilize in this way either the expert abiHty on its own pay- roll or the progressive citizen interest and institutional experience of Ohio and other states. More fundamental reasons still for substituting one executive for four coordinate conferring heads have to do with the larger purposes for which Ohio maintains these institutions : 1. — The board has after all these years failed to provide for the same systematic study of its human problems which it has given to problems of purchasing and of controlling finances; 2. — Although free to print illuminating reports and to require scientific analysis of its results and lessons, it has failed to do both ; 3. — After taking the statesmanlike step of bringing on a specialist in mental abnormalities as head of its bureau of juvenile research it has given him only restricted use even of its own labora- tories, has failed to use him in its institutions and has actually per- mitted his exclusion from the boys' industrial school ; 4. — It has failed to give the state the truths needed to show whether the new penitentiary plans are an unimaginative org}^ of expense and misj^lanning as Mr. Cummin has reported to your com- mittee, or are as the building commission maintains, a wise expendi- ture of $10,000,000; ON ADMINISTRATIVE REORGANIZATION 35 5. — It has failed to turn the searchlight of its institutional ex- perience upon the causes of crime and the possibility of greatly de- veloping probation work in counties in order to keep men out of state penal institutions ; 6. — It has failed to develop leadership of state thought re- garding the vast problems entrusted to it. It has has failed in these services not because it did not want to help, but because it was asked to do what boards and commissions seldom do, namely, manage and administer as well as legislate. It has been no one member's duty to look ahead for the entire many-sided problem. Even where one member has special knowledge, he must defer to three others who lack his special knowledge but who are compelled to go through the form of weighing his evidence and challenging his recommendations. With such diffusion at the top, it has naturally been impossible for the state to secure from trained subordinates the service they could give were efficiency and initiative fostered and compelled by an exacting head with a consistent cumulative policy. The detailed report on the work of the board of administration contains many concrete il- lustrations of the failure of the present board to manage and administer, as well as a lack of supervision and conrol. The reason for transferring the administrative services of the com- mission for the blind to the department of welfare administration, is that this commission has now become a large business enterprise. Its pur- chases, its sales, its patrons, its homes to be visited and blind persons to be taught at home, and its traveling expenses, have exceeded the point where a voluntary commission can give more than perfunctory attention to its work, costs, and results. The time of a capable executive should be free for extending and improving the wgrk without the necessity of trying to give a widely scattered, seldom-meeting board enough knowl- edge about the work to justify it in voting authorization. The voluntary interest of persons devoted to furthering the interests of the blind can be utilized more effectually in educational work that does not involve administrative duties. The reason for transferring the administrative duties now being performed by the state board of charities is three-fold; they belong properly with other administrative services in this same field where they may receive exacting supervision ; they cannot be well enough done by anv board that meets infrequently ; and they divert the attention and energy of board members from duties of inspection, criticism and recommenda- •tion which should be regarded as imperative, but which actually has lapsed to almost negligible consequence. The reason for placing the soldiers' and sailors' orphans' home in a large administrative department is that this institution for over six hun- dred children, is entitled to advantages of wholesale purchasing, system- 36 Ki;i'(>kT oi'- JOINT I.KCrSLATJAJ-: C:(-)MiMlTTi:E atic repairs, expert advice on farming ami gardening, expert promotion at budget time, expert executive supervision and helpfulness which a volun- tary board of trustees does not and cannot furnish. The objection that soldiers' children should not be classified with the unfortunates who are cared for by the administrative department, seemed strong enough when the board of administration was established to prevent including this school under central administration. But that objection was largely the result of misunderstanding. No disparagement of any class is involved in giving it heat or engineering service or budgetary oversight or execu- tive supervision from the same center which supplies other diiTerent con- stituencies. The friends of the Xenia home surely do not want less for the children at this school than the utmost which expert direction will give. Nor can they, after the facts are explained, be willing to deny the state advantages that would come from putting this service where the utmost can be learned from it. STATE BOARD OF WELFARE. To take the place of the present board of state charities a state board of welfare consisting of five members appointed by the governor for overlapping terms of five years each, is recommended as a propa- ganda, educational and inspectional agency. This board would have no administrative duties to perform, but its duty would be to visit and in- vestigate state institutions for the purpose of checking up on the work which is being done by the department of welfare administration, and re- port the facts to the director, the legislature and the public. It will have no connection whatever with the management of institutions, its chief function being analysis and criticism of programs and results and con- structive recommendations as to new policies and programs which should be undertaken. The reasons for abolishing the present board and establishing a dif- ferently constituted board include these: the present board has a com- bination of duties, inspectional, advisory and administrative, of which the administrative duties have taken much the greater part of its time and interest. Its inspectional and advisory functions have ebbed to a lov/ point. If the administrativq functions were taken from it and it were required toi do more by way of inspection and recommendation it would be extremely difficult for it to shake oi? the bonds of a few years and habits which have become adapted to its administrative duties. By abolishing the present board the governor would be free to select men and women without prejudice because of present membership on the board. DEPARTMENT OF CIVIL SERVICE. The dei)artmcnt of civil service is the employment department of the state government. Tt is charged with the administration of the civil ON ADMINISTRATIVE REORGANIZATION 37 service laws which were passed in conformity with that provision of the constitution which provides that appointment and promotion shall be made according to merit and htness to be ascertained, as far as practicable by competitive examination. The original functions of civil service were to oppose and destroy the abuses of the spoils system by a system of checks on entrance to the service and retention of persons so checked at entrance during good behavior. The gradually increasing extent of the functions performed by the state government renders it continually more important that trained and competent persons shall be secured for the conduct of public business. At the present time increased attention is being given to the methods of securing and holding highgrade experts in public service. The excessive cost of labor turnover, or the hiring and firing of employees indiscriminately, is realized as never before and efforts are being made in both industry and public service to reduce these costs. This cost has been variously estimated by private employers as being from $40 to $200 per person discharged. From an organization standpoint the work of the department of civil service is exactly comparable with the employment department in industry; both are likened to the purchasing department, the difference being that the two former purchase personal service and the latter material, supplies and equipment. Out of a total expenditure of $25,000,000 for the state of Ohio last year $7,000,000 or one-third was expended for personal service. The commission consists of two members appointed by the governor for terms of four years each. Their salaries are $4,000 each. The usual number of commissioners in other states which have civil service com- missions is three. The first civil service commission m Ohio had three members (1913-15). The two member commissions has existed since the middle of 1915. it is the usual practice for the members of such com- missions to be appointed by the governor, and it is also usual to require that not more than two members shall belong to the same political party. In practice such provision carries with it the implication that the mem- bers shall all bear a party label and" results in injecting political con- sideration into the selection and work of the commission. Emphasis is placed on politics in a body where politics should not exist. Respon- sibility for lax or vigorous administration under the present plan in Ohio can not be definitely lodged with either party. A more logical restriction on the appointing power of the governor would be the re- quirement that members of the commission should be trained experienced employment managers. The commission performs legislative, judicial and administrative functions. The legislative function is to formulate rules and regulations which should have the force of law. The judicial functions relate to appeals from rules of department heads and for discharges after charges have been filed. The administrative functions are to hold competitive 38 REPORT OF JOINT LEGISLATIVE COMMITTEE qualifying examinations for determining eligibility for appointment; to establish such eligible lists; to make certifications from eligible lists to fill vacancies; to see that appointments are made from such lists duly certi- fied; if no list exists to authorize temporary appointment; to keep records of service on all employees ; to control promotional prcedure and to check all pay rolls relative to the legality of the appointment. These administrative functions would be performed by one man much more efficiently than by a commission. Such a man would be chosen because of his familiarity with the needs of the public service, because of his knowledge of employment methods and technique of ex- aminations, because of his knowledge of service records and efficiency ratings, and because of his familiarity with the problems of departmental organization. For performing the legislative and judicial functions the aid of a personnel board might be provided, composed of the heads of some of the major departments. Such a connection between department heads and the administrative head of the civil service work would be valuable in many ways, especially in the work of drafting specifications, in devising efficiency rating methods and in creating a sense of obligation on the part of all public employees to comply with the civil service laws of the state. It may well be questioned if the detached position of the civil service com- mission and its lack of contact with the several departments except when a crisis arises is not one of the causes for the friction and misunder- standing which so often arises between the civil service commission and the department. It is therefore recommended that a single civil service commis- sioner be appointed by the governor, to serve at his pleasure to re- place the present commission of two members appointed by the governor for terms of two years each. That the law specify that this person shall have knowledge and experience in employment methods and personnel management. That a personnel board be cre- ated, composed of department heads or their representatives to co- operate with the civil service commissioner in the performance of the quasi-legislative and quasi-judicial functions. The state of Maryland in its recently enacted "Merit Law" provides for a single state employment commissioner to be appointed by the gov- ernor for a term of six years at a salary of $5000 per annum. An alternative recommendation is that there be at the head of the department of civil service a chairman appointed by the governor who would receive an adequate salary and be responsible for the administra- tive work. Two other additional commissioners would be appointed b\ the governor on a part time basis, who with the chairman would consti- tute a board to pass on quasi-legislative and (|uasi-judicial matters. These two additional commissioners would receive nominal salaries and traveling expenses. OFFICE OF THE GOVERNOR By DON C. SOWERS, According to the Constitution the executive department of the state consists of a governor, Heutenant-governor, secretary of state, auditor of state, treasurer of state and attorney general, all of whom are elected by the people. All the above officers are elected for two years except the auditor, who is elected for four years (Article III, Section 2). The supreme executive power of the state is vested in the governor (Section 5). POWERS AND DUTIES The powers and duties of the governor may be classified with respect to the following subjects: 1. Legislature. 2. Other executive officers. 3. Military affairs. 4. Commissioning of notaries and commissioners. 5. Granting reprieves and pardons. 6. Administrative officials.. 7. Ex-officio boards and commissions. RELATION OF GOVERNOR TO LEGISLATURE ' . . The governor is required to transmit a message to the General Assembly. He may call a special session of the legislature and may adjourn the General Assembly in case of disagreement. At least five days preceding each regular session of the General Assembly the other executive officers are required to submit reports to the governor, who in turn transmits these reports with his report to the legislature. DUTIES WITH RESPECT TO OTHER EXECUTIVE OFFICERS The governor may require information in writing from the officers of the other executive departments upon any subject relating to the duties of their office. He shall fill vacancies in the office of auditor, treasurer, attorney general and secretary of state and receive and trans- mit their reports. A semi-annual report of the proceedings of the sink- ing fund commissioners is required to be made to the governor and to be published. (Article VITT. Section 11). 39 40 REPORT OF JOINT LEGISLATIVE COMMITTEE MILITARY AFFAIRS The governor is commander-in-chief of the military and naval forces, lie appoints the adjutant general and such other staff officers as may be provided l)v law and commissions all officers of line and staff. He has power to call forth the militia to execute the laws of the state to sup- press insurrection and repel invasion. COMMISSIONING NOTARIES AND COMMISSIONERS The governor must sign all grants and commissions issued in the name of the state and these are countersigned by the secretary of state. Notaries public and commissioners for the state of Ohio are appointed for terms of three years. The former pay fees of one dollar and the latter fees of three dollars. Each judge of the court of record, state officer, county officer, militia officer and justices of the peace must receive a commission from the governor to fill such office. Justices of the peace pay two dollars and all other officers pay five dollars. GRANTS, REPRIEVES AND PARDONS The governor may grant reprieves, commutations and pardons for all crimes and offenses except treason and cases of impeachment and must report to the General Assembly detailed facts regarding each case. To assist the governor in performing these duties a board of clemency has been created. (See Report on Board of Clemency.) DUTIES WITH RESPECT TO ADMINISTRATIVE DEPARTMENTS The administrative departments of the state government consist of six single elective officers and forty officials, boards or commissions who are all appointed by the governor. The governor appoints four- teen single appointive officials of whom eight are appointed with the consent of the Senate and six are appointed without confirmation of the Senate. He also appoints the members of 28 boards and commis- sions ranging in size from 2 up to 10 members; two boards or commis- sions have 2 members each ; seven boards or commissions have 3 mem- bers each ; one board is composed of 4 members ; six boards are com- posed of 5 members each ; two boards arc composed of 7 members each, one board of 8 members and one l)oar(l of 10 members. 13 of these boards and commissions are api)oinle(l 1)\ the go\ernor without the con- firmation of the Senate and thf remainder re(|uire the confirmation of the Senate. In addition he appoints the trustees of the two normal schools, Bowling Green and Kent, the trustees of three state universities, of Wilberforce University and of the Ohio Soldiers' and Sailors' Or- ])hans' Home. While the members of many of thesi' boards and com- missions have over-lap]~)ing terms, if we assume that at least one new ON ADMINISTRATIVE REORGANIZATION 4^ member is appointed by each governor, it means that each governor has to appoint no less than forty-two administrative officials. It is a physical impossibility for the governor to exercise supervision and con- trol over this large number of independent and unrelated departments of government. It is unfair to the governor and to the people of the state to expect any person to do the impossible. If the governor is to be made responsible for the administration of state affairs the organiza- tion of the state should be simplified and the number of boards and commissions reduced in order to make this possible. EX-OFFICIO BOAIiDS AND COMMISSIONS The governor is an ex-officio member of the following boards and commissions: Board of control, emergency board, board of state charities, state building commission, and coiiimission appointed to select site and erect a building for deformed and crippled children. He is also trustee ex-officio of the archaeological and historical society and he appoints six trustees. Nine trustees are elected by the society. From time to time special commissions are appointed to accomplish specific things and it usually devolves upon the governor to appoint the members of such commissions. PERSONNEL OF THE DEPARTMENT The governor receives a salary of $10,000 a year. The work of his office is carried on by a secretary, executive clerk, correspondence clerk, commission clerk, stenographer and messenger. The total appro- priation is $38,475. The budget commissioner is appointed by the governor and works in close cooperation with him- in the preparation of the biennial budget. At present the office of budget commissioner is the only agency which the governor has for keeping in touch with the activities of the various departments except through the filing of the annual reports of the several departments. The governor should have sufficient assistance to enable him to obtain first hand information regarding the current operation of each department and should have at hand the means for making special studies and investigations whenever he deems it desirable. RECOMMENDATIONS It is recommended — That the governor be elected for a term of four years. Two years is too short a time for a governor to become familiar with the duties of his office and to build up the necessary organization for accompHshing results. To accomplish this change a constitutional amendment will be necessary. 42 REPORT OF TOINT LEGISLATIVE COMMITTEE That there be established in the Governor's Office a Bureau of Research and Investigation. Tlie purpose of this l)ureau would be to make studies and investiga- tions of the operations of the various state departments and to make special investigations and report their findings to the governor. In no other way will it be possible for the governor to have the information which is necessary for exercising control and supervision over state departments. This bureau might also be charged with the duties of edit- ing the reports of the various departments which are submitted annually to the governor. That the Board of Clemency be retained as at present. That the Budget Commissioner be retained as at present. The budget commissioner sli(juld report directly to the governor since the governor is directly responsible for the formulation of the annual budget and work program. An adequate budget stafif should be employed to keep the governor informed of actual operating conditions in the several departments. THE BUDGET COMMISSIONER Prepared Under Direction of DR. L. D. UPSON, By C. E. RIGHTOR The survey of the office of the budget commissioner was made through interviews with the budget commissioner and his two assistants, and with other pubHc officers, and by examination of the statutes affect- ing the office, and of the budgetary documents that have been prepared for the biennial periods since 1915. The correspondence received by the committee relative to budget procedure has been reviewed carefully. PURPOSE OF BUDGET In Ohio, the general assembly, as the direct representatives of the people, determine what functions shall be undertaken by the state ; how much these public services and improvements shall cost; and how that cost shall be financed. It is also their function to provide the funds for getting these things done. After the legislative body has acted in these respects, it is incumbent upon the executive and administrative depart- ments to carry into efifect the popular will as decreed by the general assembly. The budget may be deemed to be that instrument which will enable the offi- department of the state government for two years, and the document deserves his closest personal attention. CONFERENCE SHOULD BE HAD WITH HIS ADMINISTRATIVE OFFICERS. It is essential that assistants perform some phases of its preparation, and this is provided by statute. In its presentation to the general as- sembly, the governor should be prepared and be required to support his recommendations before the legislature. At the present time the budget carries no extensive comment by the governor, and it is not the custom of the legislature to call upon him in person to explain his budget plans. It is believed an adequate procedure should include such demands. Provision should also be made that the governor-elect shall be en- abled to participate in the formulation of the budget. With a two-year term of governor, the reasons for this recommendation are manifest. LEGISL.\TIVK CONSIDERATION The effectiveness of the budget procedure depends to no small degree upon the consideration given it by the general assembly. It seems to be the desire of the members of the legislature that the information relative to the state's undertakings be submitted in great detail, showing for each otifice, institution, etc., just what positions exist, each salar>', and the quantity and cost of each kind of supplies, etc., wanted. ON ADMINISTRATIVE REORGANIZATION 49 No legislative body, or committee of the general assembly, can con- sider and act intelligently upon public problems by such procedure. The time available to them is too brief, and they become lost in a mass of details, overlooking the broader phases of the state's affairs. The general assembly should concern themselves with policies, activities, public im- provements, and total costs, rather than with positions, unit quantities, and items of appropriation. They should consider the budget in terms of activities or services, — the necessity for their being undertaken, their extent, and the justifiable expense for them when compared with other jMDSsible uses of state funds. This approach, it will be appreciated, is different from that which attempts to determine for any office, department or institution how many people shall be employed and what the salary shall be, and how much of each kind of supplies, materials, or equipment, will be necessary dur- ing the next two years. One point of view considers the demands and desires of the people as to the services to be undertaken by the state; the other considers only how many jobs can be filled or contracts for supplies secured for friends. It is believed that the adoption by the general assembly of the activity or service as the unit for consideration, and even of appropriation, would strengthen the members in performing their duties as representatives of six million individuals. Complete and understandable summary tables should be presented in the front pages of the budget by the governor, — one showing, for each organization unit and activity, the requested appropriation for the two- year period ; another showing, in detail by sources of income, how it is proposed to finance these requests. These two sets of outstanding figures may then be grasped by the general assembly, and with executive ex- planation, that body can determine policies and appropriate funds for their execution. They may safely and judiciously leave to the governor the details as to the itemized requests for personal services and goods, as the chief executive is charged with carrying out their policies in the most eco- nomical, expedite and effective manner, and to do this must carefully pre- pare the items comprising his recommendation. It is not intended that the legislature shall surrender any of its rights by the recommended pro- cedure. For instance, it is contemplated that a salary schedule accompany the budget, setting forth each position in the state service and fixing a standard rate of compensation for each grade of service. UNIT OF APPROPRIATION The unit of appropriation in the procedure now followed is the object of expenditure detailed in accordance with the classification established by the budget commissioner. This classification is not identical with that followed by the auditor of state in his accounting records, 4 50 REPORT OF JOINT LEGISLATIVE COMMITTEE although it is beHeved that the auditor (director of finance under the proposed reorganization) should be empowered to establish uniform classifications, both of income and expenditures, for adoption and use by all state departments. Budget requests should be prepared by depart- ments in conformity with such classifications, detailed as necessary to support the requests. As has been suggested, the general assembly should consider activ- ities rather than items of the budget, so it is believed the legislative body should adopt the activity, — or specific service performed — as the unit of appropriation. Adoption of this suggestion would reduce the size of the budget and the appropriation bill, and require less detail to appro- priation accounting records. The basis of the recommendation has been stated under the preceding caption — that the general assembly cannot satisfactorily or even intelligently, in the short time allotted for this important task, determine upon the necessity of either the personal serv- ices, supplies and other items which may be required to get done the services they have authorized. These must remain details properly to be considered by the administrative officers. The soundness of these observ'ations is emphasized when it is reflected that the detailed sheets requesting personal services, materials, equipment, etc., are prepared by departments thirty or more months prior to the time the legislative pro- gram must be carried out. With fluctuating market conditions, the task imposed to determine unit quantities becomes almost guesswork in many cases. REQUESTS FOR EXPENDITURES A budget consists of two sections, — the requests for expenditures, and the estimated revenues to meet them. By statute, the requests are to be submitted on or before the 15th day of November, biennially in the even numbered years, severally by the departments, institutions, commissions and officers of the state, on blanks furnished them, the estimates being submitted in itemized form to the governor, stating the amount of money needed for their wants for the ensuing biennial period. The governor submits these departmental requests, together with his estimate of the current expenses of the state for the same period to the general assembly at the beginning of each regular session. These are the only provisions of the law relative to the requests for expenditures. It may be assumed that the present form of budget, as to nature of requests, and arrangement of the information, is that determined upon by the governor as best conforming to the letter and spirit of the law. In his decision he has undoubtedly had the counsel of the officers of the state, as well as being informed as to the wishes of the two houses of the general assembly with respect to the requests. It is recommended, in reference to the requests for expenditures, that the law provide: ON ADMINISTRATIVE REORGANIZATION 5 1 1 — That the governor shall furnish the request blanks. 2 — That there be one form for requests, which form shall be uniform and designate clearly the information desired, and 3 — That the governor be required to furnish blanks to the de- peurtments, officers, etc., on or before July 15 in the even numbered years. It is recommended further that the law provide that requests for ex- penditures shall g-ive a complete and itemized plan of all proposed ex- penditures for each year of the ensuing biennial period, for each state agency, classified by function, charter and object; that opposite each item of proposed expenditure the budget shall show in parallel columns the amounts appropriated for each of the last two preceding appropria- tion years, and the increase or decrease. It is suggested that the director of finance be required to prepare and furnish the information relating to past appropriations, this informa- tion to be entered on the blanks prior to their distribution to the several agencies. ESTIMATE OF REVENUES The present law makes no provision for an estimate of the revenues and borrowings for the ensuing biennial period. It is recommended with reference to estimates of revenues that the law provide: 1 — That the governor shall furnish blanks for estimates. 2 — That there be one form for estimates, which form shall be uniform and designate clearly the information desired. 3 — That the governor be required to furnish blanks to the agencies on or before July 15 in the even numbered years. It is recommended further that each state agency shall submit a complete and itemized estimate of its revenues and borrowings for each year of the ensuing biennial period ; that opposite each item of estimated revenues and borrowings the budget shall show in parallel columns the revenues for each of the last two preceding appropriation years, and the increase or decrease. It is suggested that the director of finance be re- quired to prepare and furnish the information relating to past revenues, this information to be entered on the blanks prior to their distribution to the several state agencies. LIMITING EXPENDITURES TO INCOME When these two sets of figures are received by the governor and tabulated by his budget assistants, it becomes his task to correlate the two — that is, to suggest the method of financing the requests, and to limit the requests to the possible income. This is one of the most diffi- 52 REPORT OF JOINT LEGISLATIVE COMMITTEE cult problems in the budget process, because it requires a deliberate con- sideration of all the proposed activities, and a careful weighing of each, in light of the program of service as a whole, to determine the necessity and popular demand for same and the minimum appropriation required (or each of the two ensuing years. This phase of the procedure may be best accomplished through con- ferences held by the governor with the department officials when pre- paring their requests, in order that he may question them as to their plans and inform them generally as to their relation to the entire problem of state administration and finances. This practice, in addition to its other advantages, should result in more care and thought being exercised by officers in compiling requests, and reduce the tendency to "pad" requests, made unduly high because a cut is anticipated. The resultant program should be given wide publicity throughout the state, and provision be made for pubHc hearings, in order that the largest possible number of taxpayers and various organizations of citi- zens may express themselves on the proposals both for current operation and public improvement projects. The govdrnor will then be able to compile his recommendations in the light not only of the interested de- partment heads, but also the trend of public opinion. CONTINUOUS INVESTIGATION BY GOVERNOR Section 5 of the Budget Act, in empowering the governor to employ assistants to examine the affairs of any department, contains commend- able provision for enabling the chief executive to keep informed at all times of the exact condition of every phase of state activity. Advantage should be taken by the governor of this section of the law, to the end that he employ the necessary staff to make such examinations and report to him. The budget commissioner and assistants should visit the de- partments, commissions, and institutions, studying their method of opera- tion, and investigating first hand and conferring with the proper officials relative to future plans for work, extension of service, and expenditure of funds. In pasti years, appropriations made to the budget commissioner for traveling expenses have been allowed to lapse, to large extent, and no record was obtainable in his office of visits made to departments, insti- tutions, etc., and what findings and recommendations resulted. It is the express intention of the present budget commissioner to take full advantage of his opportimity to visit and learn about each state activity, as occasionally as time will permit, and to confer with officials as to their plans, in order that he may advise the governor as to the bear- ing of such plans upon the state as a whole. Adoption of such steps should reduce to a mininnnu unnecessary and untimely requests and pre- vent the submission of incomplete and unsound projects. ON ADMINISTRATIVE REORGANIZATION 53 CONSOLIDATED APPROPRIATION BILL The next step is the preparation of a consoHdated appropriation bill, to accompany the governor's budget as submitted to the general assembly. No provision is made in the present law for such bill, but is proposed as a part of the constitutional amendment. A general bill is presented under the present procedure, and it is suggested that this practice be continued, but such bill should be all-inclusive. There is nothing to prevent members of the general assembly from introducing appropriation bills independently of the general bill, and either prior or subsequent to it. It is also the custom to introduce a "Sundry Claims Bill", amounting to many thousands of dollars, inde- pendently of the budget. Such practices only vitiate a sound budget pro- cedure, and in the interest of the best possible government for the state the legislature should demand the cessation of such loose procedure. INCREASES BY LEGISLATURE It is a moot question whether the legislature should be permitted to increase the requests as submitted by the governor. It is believed that the general assembly, as the policy determining body, and as direct repre- sentatives of the entire citizenship of the state, should have this right. However, should it be determined by them to extend any activity and appropriate an additional amount therefor, they should indicate the revenue which will be available to meet the cost. Of course, it is possible that up to a certain amount there will be unexpended balances available for these increases. REQUESTS FOR GENERAL ASSEMBLY AND JUDICIARY It is a question whether the requests of the general assembly and the judiciary should be included in the governor's budget, due to the fact that these are coordinate branches of the government. To overcome this difhculty, it is suggested that the itemized estimates of the financial needs of the general assembly should be certified by the presiding officer of each house, and of the judiciary should be certified by the director of finance, and shall be transmitted to the governor before the 15th day of January next succeeding for inclusion in the budget without revision by him, but with such recommendation as he may deem proper. SUNDRY CLAIMS As to the sundry claims bill, it is believed that all of the items con- tained therein should be handled in a regular manner, and be included in the governor's budget. The items woitld thus require the same considera- tion as other departmental requests, by a joint legislative committee on 54 REPORT OF JOINT LEGISLATIVE COMMITTEE appropriations. Exception could be made of such items as are really emergency, which could be presented in single appropriation bills with his recommendation on each. EMERGENCIES It is appreciated that in Ohio, having a biennial session of the legislature, it becomes a difficult problem for the governor to anticipate for thirty or more months the amounts which may be required to finance the wide range of activities undertaken by the state. The same difficulty exists in all those states having only a biennial session and requiring an adequate budget procedure. There naturally will result a necessity for handling many items of appropriation as emergencies. The law provides an emergency board, consisting of the governor, auditor, attorney general, and the chairman cf the two legislative finance committees, which is authorized to determine upon emergencies, requiring the expenditure of a greater amount than has been appropriated, and to authorize the ex- penditure of money not specifically provided for by law. This provision is deemed an adequate one, and the continuance of this board is recom- mended. Consideration should be given by the legislative body to the feasi- bility of preparing the budget more nearly currently, as possibly might be done through a committee of the two houses. TRANSFERS BETWEEN ITEMS OF APPROPRIATION Under the conditions imposed in preparing a budget for a two-year period, the question of authorizing transfers between items of appropria- tion becomes an important* one, and problems of financing activities for which adequate appropriation was not made must be met, without vitiating the control established by the general assembly. If the proposal that appropriation by activities be adopted and worked out, the problem of transfers becomes simple, as fewer requests for transfers will be found necessary. Rut even then, unforeseen circum- stances will aft'ect some phases of the service and require additional funds. It is believed that the authority for an additional allowance to any appropriation should be vested with the emergency board. The board of control would not need to be continued as it is in fact but an- other name for the emergency board. Transfers should be authorized to be made from a contingent fund, appropriated to that board, and which for Ohio should be a very considerable amount. Emergency items of the several departments, bureaus, etc., should not obtain. Under modern conditions it is asking too much for any officer to anticipate for thirty or more months his possible demands ujion the public treasun'. MONTHLY BUDGET OF EXPENDITURES It is recommended that sections 403-1, 242-1 and 2, and 243 of the General Code, be annulled. This act provides that each appointive oflFice ON ADMINISTRATIVE REORGANIZATION 55 shall monthly submit "a detailed itemized statement in duplicate of ex- penditures" to be made during the next month. This is reviewed by the budget commissioner, an allotment determined upon by him, and the auditor and department notified of the amount, and expenditures are sup- posed to be limited to these monthly allowances. Observation and in- quiry among several offices reveal that this report is useless "red tape", and only a needless waste of time and stationery. The reports are valueless for budgetary' control. SUMMARY OF RECOMMENDATIONS 1 — That, in the budget procedure of Ohio, attention be directed to applying accepted principles of budget making, both in its preparation by the governor and in its consideration by the general assembly, rather than to enacting legislation on the subject. Leadership founded on Ohio's general welfare is needed, more than legislation, to obtain a maximum of results in the budget system. This leadership must be genuine, intelligent, continuous and impersonal. 2 — That the activity be the unit of appropriation, as also of preparation of departmental requests and of the governor's recommendations. The present unit is the position or object of expenditure, except in cases of capital outlay when the addition, structure or improvement as a whole is used. As the object of the state is to serve the public, the expression of any plan for service should be in terms of the activities or specific services to be undertaken. The present procedure respecting permanent improvements should be continued. 3 — That the constitution be amended, to ensure to the people at all times in the future an adequate budget procedure. The Ohio constitution contains no provision at present relative to the budget. What are believed to be the funda- mental provisions of an adequate procedure are indicated in the body of the report. They are designed to afford the popular wiU protection against the whims of all political interests and elected officials. 4 — That the governor adopt a revised procedure in securing departmentad requests for expenditures amd estimates of The proposed revisions contemplate simplified reporting blanks ; adoption of definite classifications for requests and ex- 56 REPORT OF JOINT LEGISLATIVE COMMITTEE penditures; comparative statistics for study and guidance; con- ferences with administrative officers; and an ample time schedule for the steps in the compilation of the budget. 5 — That the governor submit to the general assembly a com- plete program of state activities and improvements, pro- posals for financing them, requests being coordinated with income, and the governor's recommendations concerning the entire program. A complete program of work and the financial plan are not now available; the budget does not contain recommenda- tions or comments by the governor; neither the governor nor his administrative officers appear in person before the general assembly or its committees to explain and support the budget. 6 — That summary tables, both of requests and estimated in- come, and of the governor's reconrunendations relative to these, be submitted. These data are not now complete and are not concisely and intelligibly set forth. The general assembly has not avail- able a statement of the state government as a whole, its activities, and method of financing them. 7 — That the governor- elect be invited to participate in the preparation of the budget. The present law and practice take no cognizance of the expiration of the term of governor just prior to the submission to the general assembly of a biennial budget. Under the pro- posed reorganization the need for remedying this condition will be emphasized. 8 — That public hearings be had on the tentative budget, both by the governor and by the proposed joint legislative com- mittee on budget. This is a neglected feature of the present procedure, al- though it is the only real and direct opportunity the public has of expressing its approval of or objections to the pro- posed services to be undertaken by the state during the next two years. The meaning of "public hearings" should be made clear through the custom of statewide announcement of same in ample time before they are held. 9 — That the governor accompany the budget -with one general appropriation bill containing requests for all the operation, maintenance, and improvement projects to be paid from state funds during the ensuing biennial period, except emergencies. ON ADMINISTRATIVE REORGANIZATION 57 10 — That special or emergency appropriation bills be for a single purpose or object stated therein, having the approval of the governor. 1 1 — That the "sundry claims bill," and appropriation bills intro- duced independently by any member of the general as- sembly, be eliminated by including same in the general ap- propriation bill. 12 — That all appropriation measures, and bills requiring ap- propriations to make them effective, be referred to a joint legislative committee on budget. 1 3 — That requests for expenditure for the general assembly, certified by the presiding officer of each house, and of the judiciary certified by the auditor (proposed director of finance), be submitted to the governor before the fifteenth day of January, for inclusion in the budget without re- vision, but with his recommendations. These budget requests are now received in the same man- ner as those of the executive departments. 14 — TTiat the general assembly have the right to increase the govemor*s requests, provided they indicate the revenue from which to finance the additional cost. 1 5 — That the governor employ an adequate budget staff to keep informed of actual operating conditions in the several offices, departments, institutions, etc. It is believed that the governor has never fully availed himself of the opportunity afforded him in the budget act in this respect. Continuous contact and study of departmental work and plans is believed essential for the chief executive. 16 — That the budget conunissioner keep an accurate record of his activities, investigations, conferences, and visits to offices, institutions, etc. Such record is not available for the work of former bud- get commissioners. 17 — That legislative control over expenditures by objects, as personal service, be maintained through the adoption of supplementary schedules as part of the budget, regulating positions and compensation, etc. These are now items of the budget. 18 — That transfers between appropriations be made only upon authority of the emergency board. eg REPORT OF JOINT LEGISLATIVE COMMITTEE 19 — That a sufficient amount for contingencies be appropriated to the emergency board This is the present practice, and it is behaved it should be continued. 20 — That the board of control be abolished, its duties being per- formed by the emergency board. 21 — ^That the claims board be abolished, claims being in- cluded in the generaJ appropriation bill and going before the joint legislative conmiittee on budget. 22 — That the act, requiring the submission by departments monthly of detailed itemized statements in duplicate of expenditures to be made during the month, be annulled. 23 — That the general assembly consider the feasibility of pre- paring the budget more nearly currently. THE CIVIL SERVICE COMMISSION Prepared Under Direction of DR. L. D. UPSON By HARRINGTON PLACE HISTORICAL The first successful attempt at civil service legislation in Ohio was put through in the Payne Bill of 1910 — a bill making the merit system effective in the cities of the state. In 191 2 the constitutional amendment making civil service effective throughout the state and in the counties thereof, as well as the cities, was carried in a ratio of three for to two against and the law formulating the organization and the procedure was passed the following year. At the time this law was passed, it was considered one of the best pieces of civil service legislation that had up to that time been enacted. After the passage of the civil service law of 1913, Governor Cox appointed as the civil service commission of Ohio, Samuel Hoskins of Wapakoneta, President, C. I. Brown of Findlay and C. H. Bryson of Athens. L. L. Faris of Lynchburg was chosen Secretary. During the first year the time of the commission was largely devoted to organiza- tion and the development of a policy. Records as to the exact amount of work accomplished are incomplete, but as is usual, there was an immense volume of work in examinations ' to^ get out of the way immediately the organization was perfected. During the first year, there were held 214 competitive examinations for original entrance into state and county service, besides numerous non- competitive examinations as provided for in the 191 3 law. In the ex- aminations about 20,000 candidates were examined. In late 1914 Mr. Faris resigned as Secretary, Mr. Bryson acting in that capacity until July 191 5, when all three commissioners resigned. Meanwhile the legislature had amended the 1913 law in several paragraphs, notably that one relative to the appointment and number of commissioners. Governor Willis appointed Messrs. Z. B. Campbell, President, C. C. German and S. D. Webb to serve out the unexpired terms and Mr. W. E. Kirshner acted as secretary for a time. On August 30, 191 5, the new commission appointed under the pro- visions of the 1915 law entered upon its duties. Dr. Z. . B. Campbell 59 Present Organization Civil Service Commission Secretary and Chief Eaaminer Publicity Division Record Division Examining Division Efficiency Division proposed Organization Civil Servic( Commission Admlnistrat ion Division Examining Division public Ity Bureau Record Bureau Examining Bureau Bureau of Classification ON ADMINISTRATIVE REORGANIZATION 6i was appointed president and Mr. S. 1). Webl) was appointed the other member of the commission. A competitive examination for secretary and chief examiner was held and Mr. K. McKinley, the present incnmbent, was appointed as that officer from the resuUing ehgible list. Early in 1917 Mr. Webb resigned, Mr. George Ewing of Lancaster being appointed by Governor Cox to succeed him. Mr. Randolph W. Walton was appointed on Jmie 15, 1917, to complete the term of Dr. Campbell, expiring August 30, 191 7. Messrs. Ewing, president, and Walton are the present members of the commission. OBJECT AND EXTENT OF STUDY In undertaking the study of the state civil service commission of Ohio, the first objective is to ascertain wherein the law, the rules and the practice of the commission are not in accord with the best civil service practice, and, as far as consistent, not in accord with the generally accepted principles of employment agencies in private business; and second, wherein the present organization is not properly functioning on a basis of existing laws, and to, make such recommendations as may possibly bring about a more efficient and business like administration of matters of personnel throughout the state service. THE ANALOGUE OF CIVIL SERVICE IN INDUSTRY By way of introduction, we must consider the analogue of civil service in industry, its objects, problems and methods as well as the real function of civil service. The original function of civil service was to oppose and destroy the abuses of the "spoils system", by a system of checks on entrance to the service, and retention of persons so checked at entrance during good behavior. Until within the last decade a reduction of the "turn- over" and a somewhat higher qualification for entrance were the only noticeable results. Latterly, efforts have been made by civil service commissions to develop a real efficiency in public service. Following slowly on the enormous industrial developments of the last two decades or twenty-five years, but developing substantially in the last decade, since employment and labor have been real problems, is the employment department in industry. This is endeavoring to do and accomplishing most that civil service has done for public employment, and much more. Instead of occupying a position comparable with that occupied by the civil service in public activities, the employment depart- ment of industry is a most important factor, and its chief is very little lower than the general manager. 62 REPORT OF JOINT LEGISLATIVE COMMITTEE The civil service is exactly comparable with the employment depart- ment, and both are likened to the purchasing department, the difference being that the two fomier purchase personal service and the latter, ma- terials, equipment, tools and other goods. PROBLEMS OF EMPLOYMENT In order to establish a background, it is desirable and necessary to have the problems of employment, whether industrial or in public service, firmly fixed in our minds. The differences that exist are largely those of imagination. Business outside of that known as public business is conducted for profit. In public business, which is everybody's, and is conducted for the public good, the rules of modern business do not seem so clearly applicable, but in the present days of high costs, the opportunity for greater efficiency will be given more attention than is usually the case. The great, outstanding, reducible factor of production cost is the labor "turnover", or in simple words, the hiring and firing of employes, indiscriminately. This is estimated variously by eastern employers (1916-17) as being from $40 to $200 per person discharged. A high official of one of the largest of the automobile factories was recently quoted as saying that unless an employe stayed a year or more in that plant, his services were unprofitable to the company. This is a strong statement and may be taken with a grain of salt, but it is indicative of the importance placed on continuous service. As the "turnover" in public service was and is the factor whose elimination has been sought by civil service, this cannot be emphasized too strongly. The retention of em- ployes in service has been so stressed by employment agencies in private concerns that, we feel, other matters are somewhat neglected or over- looked in the effort in this direction. Another development in private employment is the "service record", a fact history of individual performance, on which new rates of compen- sation are based. These records, developed in absolute fairness, come nearer to a solution of problems of industrial unrest than profit sharing and other forms that have been tried. Forming as they do the basis of financial advancement, they enable an individual to rise, without a maxi- mum limit, to the full extent of his individual strength, application and ability. The success of any employment agency is dependent directly on what it has to offer in exchange for personal service. In other words, to get as many men of the kind that are wanted, the service must be made a little more attractive than any other, and the factors that make for at- tractive service are : First — Salary at start. It must be adequate and the same for the same work. ON ADMINISTRATIVE REORGANIZATION 63 Second — Security in the job. Third — Opportunity for promotion. Fourth — Time for recreation and improvement. Fifth — Pensions and retirement funds. As the latter two items are matters belonging to the welfare bureau, which as yet has no position in public service, they will not be discussed. The first three factors apply to any service, however, and are funda- mental in salary standardization and in setting up a graded classification. The application must be obvious in the service of Ohio. The fact that salaries in the state service of Ohio are practically what they were prior to the entrance of the United States into the war makes the wonder grow how there is anyone left who has not been forced to other employ- ment. The criticisms and suggestions following are made with these es- sentials, mentioned above, in mind. CRITICISM OF LAW. The law is based on Article 15, Section lo, of the Ohio Consti- tution : "Appointments and promotions in the Civil Service of the state, the several counties and cities, shall be made according to merit and fitness, to be ascertained as far as practicable by com- petitive examinations. Laws shall be passed providing for the enforcement of this provision." Only those sections of the law relevant to the points enumerated heretofore or that are particularly noteworthy will be discussed. APPOINTMENT OF COMMISSIONERS. Sec. 486-3. The appointment of two commissioners is unusual but not criticised. The method of selecting the commissioners is open to criticism in that the law mentions no qualification of a commissioner save that both shall not be members of the same political party. Em- phasis is placed on politics — and its equalization in a body where politics should not be discussed. "Where patronage is lost to the 'ins' as well as the 'outs' there will be no partisan advantage". That many evils have resulted, no one will deny. One remedy that has been suggested is to place the civil service commissioners in the classified service. If the laws were more rigid and the function of rendering decisions were not so large a part of the work of the commissioner, the procedure might be administered by one man, chosen by competition because of his familiarity with the needs of the public service, because of his knowl- edge of employment methods and technique of examinations, because of his familiarity with service records and efficiency ratings, and also 64 REPORT OF JOINT LEGISLATIVE COMMITTEE because of his familiarity with the problems of departmental organiza- tions. The administration of examinations and records by one man is possible. The matter of holding hearings on appeal, etc., would present greater difficulty, but with the aid of a personnel board it could be made fully as eflFective as is the case at present where there are two, three, and even more commissioners. POWERS AND DUTIES Sec. 486-7 — First subsection: "prescribe, amend and enforce ad- ministrative rules for the purpose of carrying out and making effectual, the provisions of this act." The 1913 law gave the rules of the commission the force and effect of law. The present law does not, and while the commission has an elaborate set of rules, they have no means of enforcing them if there is, on occasion, a disposition to proceed counter to them. The effect of law should be given to the rules. CLASSIFIED AND UNCLASSIFIED DEFINED; EXEMPTIONS Study of the constitutional provision fails to develop any sugges- tion that exemptions to the operation of the competitive feature were to be general. The 1913 law made the mistake of making too many exemp- tions and the 191 5 law amplified them beyond reason. Elective officers are exempt, of course. There is nothing in civil service that contemplates the restriction of our democratic privileges. The exemption of the heads of departments who may be said to form the "cabinet" of the executive, — • i. e., those who assist in fonning policies for the administration, is logical. Otherwise there is no reason why a department head should be exempt, as far as the practicability of examination is concerned, and for reasons of economy and the good of the service there is every reason why a department head who is efficient should stay during good conduct and the continuation of efficient service. This applies particularly to department secretaries, who are the "works" of a department generally. There is nothing impracticable about holding examinations for em- ployes of the general assembly, and it is done in Wisconsin with (licidedl\- beneficial results. There is no reason for assuming the functions of boards of educa- tion in examining teachers. Librarians may be examined; they have been elsewhere. The reason for exemi)ting three secretaries, assistants or clerks and one personal stenograi>her for elective state offijcers is doubtless based on the "confidential" relations existing. Why there should be so much "confidential" matter in affairs of public interest is not entirely clear. The exemption of deputies to an officer is concemed in outlining a policy, ON ADMINISTRATIVE REORGANIZATION 65 in which work the deputy may be called, is reasonable, but the exemption of a deputy sim.ply because he has been called a deputy some time in the past is unwarranted, particularly in the discharge of purely routine business. In the legal service of the state, there are reasons why the attorney general should make his own appointments. Unless he is absolutely sure of his subordinate, there might be a leak of information that would result in defeating justice. Were all responsibility in connection with the determination of the "practicability" of an examination removed from the commission, the latter would be freed from the criticisms that will follow whatever action it may take. The more rigidly such determination is established by law, the freer from complication will be the administration of this law. As indicated previously, the 1913 law was weak in its section on exemptions. Too many were made then and the changes in 191 5 weak- ened it still more. The "confidential" and "fiduciary" relations have been made the basis of argument for exemption ever since civil service has existed. Persons have been very successfully examined for such positions for a decade or more in Chicago, New York and other places. It is possible that the examining procedure in Ohio has not covered a full and detailed investigation of the character of applicants for such positions. Had the commission an ample appropriation, it could be done in the case of every applicant as it should be, for the state has reason to expect 100% in- tegrity from every employe and should not restrict this requirement to exempt employes alone. Furthermore, being given such amplitude in exemptions, as is be- stowed in the 191 5 law, it is only human nature to ask for more and make every effort to get more exemptions, and often an enormous amount of time is wasted in discussing such matters when there should be no discussion or consideration given. From the standpoint of economy, the changes in the exempt posi- tions, with each change of administration, is one of the most expensive extravagances of the system. As these positions are generally those paying the best salaries, the "turnover" cannot be figured in the same low figures that express "labor turnover", as, too often, the appointee to an exempt position has to learn everything about his job, and may be able to perform those duties only indifferently after he has learned what they are. The effect on the ambition of subordinates damping as each exemp- tion removes an opportunity for advancement to a subordinate who m.ay have all of the qualifications therefor; so the more exemptions there are, the more expensive is the operation to the state in actual cash outlay per amount of work done, by reason of the "turnover" and also by reason of the killing of ambition, 5 66 REPORT OF JOINT LEGISLATIVE COMMITTEE The unskilled labor class should, theoretically, be regulated by civil service procedure, but at the present time any attempt at the procedure outlmed in the law is useless, as the present conditions have rendered it entirely unavailing. It is recommended that this clause be stricken out, at least until conditions are greatly changed. Notice of appointment of labor, to supply data for checking pay- rolls, is all that is necessary, and practically all that is now required. RULES AND CLASSIFICATION Sec. 486-9 — The classification of positions is one of the funda- mentals of civil service. The classification incorporating standard speci- fications and contemplating standard salary rates was begun in 1916 and adopted early in 191 7. The "standard specifications" are designed to set up a graded service based on functional lines, and offering a gradual advancement and pro- motion from the lowest and entrance grades to the higher positions of employment and are a basis for setting up examinations, both original and promotional, and of value in setting up standards of work for the several grades. The results contemplated are set up on pp. 10 and 11 of the specifications. To accomplish all of these things, or any of them, the needs of the service must be made the subject of a very thorough study and analysis under the direction of the commission. That this was not done seems evident from the great amount of resurvey work done by the efficiency division and from the fact that for some departments the civil service commission does not hold pro- motional examinations, but allows the head of department to make nomination therefor, after which the efficiency division makes an in- vestigation of the individual case. In connection with this matter, it is recommended that these speci- fications be revised, by a conference between the efficiency division and department heads or representatives, and that the requirements and duties be set up on the basis of the results of the conference in which the duties and responsibilities of positions, and not the peculiar qualifi- cations or temperament of the individual incumbent, are the matters discussed. No individual cases of imperfections arc in mind as the time allowed for the study did not permit the close analysis of any particular position in connection 'with the specifications. The definitions of duties and quali- fications must be worked out with great accuracy to insure the proper selection of incumbents for specific duties through the process of ex- amination. The same section authorizes the preparation of rules "for main- taining and keeping records of the efficiency of officers and employes", and Sec. 486-18 empowers the commission to make investigations for ON ADMINISTRATIVE REORGANIZATION 67 the determination of efficiency and to fix standards thereof, and also makes the compliance with the commission's requirements mandatory on officers and employes. Up to this time there have been no service records prepared and put mto general use, and the ratings in promotional work have been approximations at best. The preparation of service records is a matter that has never been solved entirely satisfactorily in public service, and there has been a natural hesitancy in inaugurating an incomplete or an unsatisfactory system of records. A start should be made in this work as the fact record of performance is the only proper basis of determining merit for advancement or promotion, and it will develop as work on it progresses. This work should be done and the records started before reorganization and other efficiency studies are contemplated. The classification or standard specifications lack all mention of standard salaries for the several services except the clerical and the engineering group of the professional service. The establishment of salaries is a legislative function — and one that should be attended to at once by the present legislature. The re- vision of all salaries and the determination of new rates and ranges of compensation for all groups and grades, should be based on the present cost of living, the market value of the same service in Ohio, and the value of the work. The present schedule of salaries is so low in Ohio that it is an astonishing fact that there have been any in the service who could afford to stay. That many have been unable to stand the economic pressure is indicated by the "turnover" records, notably in the highway depart- ment. EXAMINATIONS : EXEMPTIONS AS TO SOLDIERS AND SAILORS Sec. 486-10 — The constitution authorizes no general class exem.p- tion from the application of the competitive examination. The law of uable things to the men who defended democracy for us and we cannot assume that the bill was introduced with any but the most patriotic motives. The result on civil service will be essentially the same, however, 191 5 introduced the preference provision for veterans of the Civil War, requiring them to file a certificate of discharge merely, and without ex- amination they become eligible for appointment. As bad as this seems, the results have shown that the veterans of the War of the Rebellion are too old and infirm to undertake even public service, and they realize it. However, the Liggett Bill, senate bill number 3, 19 19, contemplates bringing veterans of the Spanish American War and the war with the central European powers, including all branches of service and nurses, under the same broad provision. No one can reasonably refuse land, bonds, pensions, or other val- uable things to the men who defended democracy for us and we cannot 68 RKI'OKT OF JOINT IJCGISLATIVE COMMITTEE assume that the bill was introduced with any but the most patriotic motives. The result on civil service will be essentially the same, however, as though it were deliberately intended to kill all competitive methods of selection for the service of Ohio. On its face it seems unconstitutional. The result, if the bill passes, wrill be that eligible lists will be filled with returned soldiers, whose fit- ness is questionable and v^hose appointments will be largely, if not en- tirely, determined by the pressure of one sort or another that may be brought to the appointing officer. The employment situation now is grave enough to be considered a national emergency. There is a general sentiment among non-com- batants that the returned soldiers themselves do not want such legisla- tion. This is evidenced by an editorial in a recent issue of the Saturday Evening Post: '.'We are not afraid that an army that fought for an ideal and thirty dollars per month will turn spoilsmen when faced with a national emergency". The committee is urged therefore to assist by every means in ascertaining that this bill express the sentiment of the organizations of returned soldiers, and whether there are not other ways of showing patriotic appreciation for this service. APPLICATIONS Sec. 486-11 — Concerning the application themselves, there is no comment. The charge fees of 50c and $1.00 for examinations for posi- tions paying below and above $1,000 respectively is unusual. The revenue derived is inconsiderable. If it was intended to keep out un- qualified candidates from the examination it may discourage a few, but a more efficacious method seems to be easily found in more rigid re- quirements. Otherwise the charge seems too small and picayunish to be made by the great state of Ohio. APPOINTMENTS Sec. 486-13 — Under the present wording of this section, an ap- pointing officer has unlimited time to make an appointment after the certification of names from an eligible list. An explicit statement that appointments shall be made within fifteen days from the date of the certification would have two results: first, the appointing officer will avoid the appearance of "jockeying" with eligible lists ; and second, the civil service commission must certify the names of persons who are not only eligible but available, which is often quite as important. TEMPORARY AND EXCEPTIONAL APPOINTMENTS Sec. 486-14 — Though temporary appointments are one of the com- monest means of evading the strict application of the law, the provision permitting them is absolutely necessary. The number of temporary ON ADMINISTRATIVE REORGANIZATION 69 or provisional appointments in force is a very good index of the activity and vigilance of the commission as is the length of time for which they are permitted to run. The wisdom of the requirement that successive appointments (temporary) to the same position be not allowed, is doubt- ful as there is a question whether it is better to incur added expense by changing the appointee, or permit an appointment with some political or personal preferences until the position can be filled by the regular pro- cedure. The retention of one appointee of the temporary character, while being open to abuse, is a more business-like procedure. PROMOTIONS Sec. 4S6-15 — The law makes the filling of vacancies by promotion dependent on the practicability of the promotional procedure. The good of the service may sometimes be augumented by the infusion of new blood, and sometimes there may be no one in a lower grade with pre- cisely the qualification necessary for the position vacant. For the purposes of real organization, there should be understudies in every office under constant training for higher responsibilities, and as one of the factors making employment attractive, the opportunity for ad- vancement should be presented as often as is possible for the determina- tion on the questions of merit and fitness. Except in unusual cases, there should be the possibility of promo- tion from lower grades, the good of the service being the only considera- tion worthy of exception. The factors mentioned in the law as controlling promotional tests are merit, conduct and capacity in office, and seniority. "Efficiency and seniority in service shall form a part of the maximum attainable in such examination." As promotional tests may form so vital a part of the machinery of the employment department, more time and space will be devoted to it here than may seem warranted. Promotion is defined as "advancement to a higher position, grade, class or rank — as to earn promotion by study or bravery". It contem- plates a change of duty, and the definition indicates that it should be earned. For the purposes of this discussion "conduct and capacity of office" or efficiency in a lower grade may be considered one factor, seniority is mentioned as another, but the value of seniority as indicative of any positive virtue is questionable. The fitness for or ability to per- form the duties of the higher position should be another factor. "Merit and fitness" should be the determining factor in promotion in the civil service if anywhere. SERVICE RECORDS It is in connection with the determination of merit that the service record is being adopted in private employment generally, sometimes even being made the one basis of wage increases. It is true that conditions 70 REPORT OF JOINT LEGISLATIVE COMMITTEE in private employment are such that it is much simpler to apply the serv- ice record to such uses, than those in public employment. The fact re- mains that to be productive of the desired results, promotions must be absolutely "on the square". The service record is a record of facts in connection with individual service. The problem in developing the records is to secure the proper information and give it its proper value. In private employment there are no such safeguards set up as are en- countered in public service, and the promotion or advancement is jxDssible as soon as the merit therefor is discovered. The best that can be done in the public service is to give "efficiency" a rating to be used when a vacancy above makes a promotion possible. As the promptness with which merit is rewarded is a vital element in its appreciation, it is good business to attend to such matters promptly, but the public service must do the best possible under the handicap. The service rating must be done with absolute impartiality and on factors whose value may be given a definite rating rather than expressed in vague terms. Sec. 486-18 — amplifies the matter of "efficiency" as a factor in pro- motions, and the failure of the commission to establish some system of rating it is the most serious omission disclosed in the study of its work. The general plan outlined in subsection 15 and 18 is admirable. It would be strengthened were written and oral tests specified and made mandatory as part of the promotional procedure as a surer means of ascertaining fitness or qualification for the duties of the higher position. As the promotional system has such close relation to the vital ele- ments of the whole matter of employment, the matters mentioned de- serve attention at an early date. TENURE OF OFFICE — REMOVALS Sec. 486-17-A — The tenure of office shall be "during good behavior and efficient service". The question of removal is the most debated of any in civil service administration. As a matter of efficient and modern employment procedure, the provisions of this section are quite in line. The breakdown in discipline in an office to which an employe has been reinstated may be obviated by the simple procedure of having the investigation made before axztion is taken. In modern private systems, the employe is not discharged by a department head or foreman. They make a report, the employment department investigates, and if a change is desirable a transfer is arranged if possible, or some readjustment is attempted. In this connection the employe should not feel that he cannot be removed, and as a matter of conservation, the department head should use every effort to readjust the employe in some way before asking for a discharge if there is any doubt as to the outcome of charges preferred. It is not the intent of the provisions of the law. and is not the wish ON ADMINISTRATIVE REORGANIZATION 7I of its administrators to keep incompetent and inefficient public servants in office. The inefficiency should be clearly demonstrated before any at- tempt at removal is made, and as suggested, the charge could be brought before definite action is taken and most of the objection to the present situation be removed by so doing. In private employment agencies the procedure is, briefly as follows : The foreman or head of the department in which the unsatisfactory employe works, sends a notice of the conditions existing to the employ- ment department, which at once institutes an investigation and if it is developed that conditions are as represented, an effort is made to trans- fer the employe to work at which he may be employed efficiently. Some- times the fault is located at the door of the foreman or department head, in which case the action is taken there. As previously indicated, the con- servation of man power is so important that the effort to save a dis- charge is not abandoned until there is no doubt that the service is better off with the man discharged. Some factories go so far as to make three readjustments of the individual before discharge is finally made. EFFICIENCY Sec. 18 — As indicated, a start has been made toward getting the necessary foundation for service records and efficiency ratings. The standard graduated classification is only a beginning and while it may seem that more might have been accomplished, the rating of efficiency is an exceedingly difficult matter until salaries are standardized so that all doing the same work are receiving the same recompense, for efficiency is a variable for a grade in which salary should be a constant, practically, but never will be until definite authoritative action to that end is taken. \Miether the efficiency studies comprehend those of reorganization is doubtful and the wisdom of undertaking such studies before the entire service has been won to the efficiency of the examination and other fundamental procedure, is questionable. OTHER SECTIONS OF LAW The remaining sections of the law have to do largely with municipal commissions and penalties for violations of the law. The section establishing civil service in the municipalities probably has gone too far in the requirement of civil service for all cities. The operation of the system in small cities is very unsatisfactory and probably unproductive of any real good. The failure to place any real supervisory functions in the hands of the state commission and to make the state commission a clearing agency for all sorts of civil service information is a disappointment. There should be some centralized control or superv^ision over the opera- tion of the law in the cities above say — 50,000 population y2 REPORT OF JOINT LEGISLATIVE COMMITTEE ORGANIZATION AND FUNCTIONS OF THE COMMISSION The functions of the commission, together with the organization of its personnel and the relations of the several units are graphically shown in the chart accompanying. The only modification of the present organization recommended at this time is to place the efficiency division under the direction of the chief examiner, as an adjunct of the examin- ing division. WORK OF THE COMMISSION In making the investigation, practically all work was done in the ofifices of the commission, going through its records and in conference with the commissioners, the secretary, the examiners and the clerks of the several divisions. The work done by the commission itself covers a wide range, as it includes the usual administrative functions, functions almost legislative in the formulation of rules, and in hearings and trials its functions are nearly, if not quite, judicial. LEGISLATIVE FUNCTIONS These are expressed in the rules. The criticism of the rules of the commission reflect onto the law itself, as the latter gives the commis- sion no means of enforcing the rules prepared by it. Whatever short- comings there may be in the rules, are inconsequential in comparison to other matters. JUDICIAL FUNCTIONS These functions are performed in hearings and trials, relative to appeals from rulings of department heads and for discharge after charges have been filed. There have been many of these. A number of cases were investigated in Columbus, in which dissatisfaction had been expressed by individuals having no interest except that of good citizen- ship. The records of the commission were scrutinized, the commissioners and officers of the commission were interrogated and in each instance the decision rendered was the only one that could have been made in the facts adduced in the testimony, and under the law. Since leaving Columbus, many allegations as to the unwarranted action of the civil service commission have been made and have reached the field agent. The latter holds no brief for the civil service commission, but does appreciate the unthinking manner of most disgruntled position seekers in making and giving publicity to criticisms on the methods of the civil service commission. If a small percentage of the reports were true, generally the mere removal from office would be no fit penalty. It is suggested that the committee on administrative reorganization ask the civil service commission to airfjear with records and make such ON ADMINISTRATIVE REORGANIZATION 73 Statements and answer such questions as the committee deem pertinent. Such charges are serious matters. If true, the state should know them and get its information straight; if untrue, the state should know it just the same, but the commissioners should be given the opportunity to be heard authoritatively in any event. The commission was expecting to be called before the committee as were other departments, at the time the study was made, but at the last advices, the commissioners had had no hearing. ADMINISTRATION These duties are divided pretty evenly between the record division and the examination division. The publicity division consists of one man only, and the efficiency division of two examiners and a stenographer. The administrative functions of' the civil service commission simply expressed are : First — To hold competitive (pialifying examinations for determin- ing eligibility for appointment. Second — To establish such eligible lists. Third — To make certincations from eligible lists to fill vacancies. Fourth — To see that appointments are made from such lists duly certitied. Fifth — If no list exists, to authorize a temporary appointment. Sixth — To keep records of service on all employes, to the end that efficiency may be promoted. Seventh — To control promotional procedure. Eighth — To check all payrolls — relative to the legality of the appointment of all persons included thereon. The record division is concerned with all of these functions except the first, sixth and seventh — although it does the actual compilation of the eligible list. The examination division has the first and second and the efficiency division has the sixth. RECORD DIVISION A detailed exposition of the minutiae of this and the other divisions, with exhibits of forms, blanks, and records has been prepared and dis- carded as being unnecessary to indicate the work done. However, a synopsis of the work of the record and other divisions will be useful in following the procedure and indicating its volume. PROCEDURE IN CALLING AND HOLDING EXAMINATIONS. In order to indicate clearly the procedure of examination work, it may be well to follow through the entire process of calling and holding an examination with some of the detail in connection therewith. The necessity of an examination is disclosed, possibly, by the receipt of a requisition for certification for appointment. In case there is no list of 74 REPORT OF JOINT LEGISLATIVE COMMITTEE eligibles the necessity for the examination is disclosed. This is made a matter of record in the record division, and in case the position is a new one it is referred to the efficiency division for a survey. In case the efficiency division reports adverse the commission takes action limited to proper classification. In case no eligible list exists a provisional appoint- ment IS authorized by letter signed by the secretary. When this appoint- ment comes in it is referred to the certification clerk, and then to the efficiency division for approval. The commission then approves _ or rejects and the department is notified. This completes the provisional appointment and the form is referred to the pay roll clerk for record. An attempt is always made to find an appropriate list from which an ap- pointment may be made and referred to the commission for action. The necessity for the examination, of course is now clear, provisional appointment having been made, and in the preparation of bulletins all provisional appointments made since the last issue of the bulletins are included for the next issue. These bulletins are set up by title and grade from provisional ap- pointments and expired lists, etc. This list goes to the efficiency division for specifications, after which it goes back to the record division and to the examination division for dates of examination, then back to the record division for the preparation of copy for the printer, after which the distribution is handled by the record division. OTHER PUBLICITY In addition to the bulletin, which is given the widest circulation possible through all the usual official channels of the state, the commis- sion has a publicity clerk whose position is unique in civil service work, as far as the writer has been able to ascertain. This individual is con- nected with one of the Columbus dailies and it is through this connection that he is able to present all matters relative to examinations or pro- cedure of the commission, and any other business relating to the work of the commission to the people of Ohio as news. Thei salary paid this publicity clerk aggregates $720.00 per annum and probably is the best money spent by the state for publicity. PROCEDURE AFTER THE ANNOUNCEMENT OF EXAMINATIONS IN BULLETINS The examinations have been announced in the official bulletin and through other channels, and applications are being received. These ap- plications come to the record division, are checked as to time received, and are sent to the examining division where the qualifications are checked and returned to the record division, if approved. Cards of ad- mission are sent out. If the applications are disapproved they are re- ferred to the civil service commission with the reasons for official action of the commission. ON ADMINISTRATIVE REORGANIZATION 75 One week prior to the examinations, the examination clerk prepares a report on appHcations received for the examinations to be held in each of the five cities of Columbus, Cleveland, Cincinnati, Dayton and Toledo, and ample provision is made for such examinations. After the examina- tion the papers are returned to the record division on the night of the ex- amination with the admission cards, which are checked with the applica- tions. Character questionnaires are sent to the persons named as refer- ences in the application. The examination clerk assembles the papers by subjects and makes up grading sheets for each subject and each ex- amination and sends to the examining division for rating. After the examining division finishes its work the papers are retul-ned to the record division and tabulation of cards are made by the examination clerk and the final ratings are established. All purely clerical work in this con- nection is done in the record division and all eligible lists are prepared here. These lists are then submitted to the examining division, then the civil service commission for approval, after which they are returned to the record division and cards of eligibility and failure are sent out to candidates; eligible cards are prepared for the file and typewritten lists are prepared. The report is then made on the eligible list showing the eligibles serving in provisional appointments anad requesting instruc- tions as to certification. Before the end of each month the record divi- sion reports on the eligible lists expiring the following month in order that action may be taken terminating or extending the list. ELIGIBLE LIST BEING AVAILABLE In case there is an eligible list available when a requisition is made the certification is made by the record division and sent to the secretary for his signature. Action on this certification is expected within fifteen days. Persons certified are notified with the reply. If no reply is re- ceived within six days a follow up certification is made. If a waiver is made another certification is made as soon as is possible in order to keep the fifteen day limit down. If there is no report received in fifteen days the record division reports to the civil service commission and action is then taken. The secretary writes a letter, a copy being sent to the record division and referred to the payroll clerk, and a report is made on the payroll, if, necessary. CERTIFICATION OF PAYROLLS Roster cards are made up from lists of appointments, also entered on eligible lists. The roster cards are filed by departments and also al- phabetically. When the pay rolls are sent to the ofifiice of the commission the roll is checked with cards on the roster and notations of the date of checking same is entered on the roster card. These cards are filed in "cardex" files for convenience. The payrolls and the cards themselves 76 REPORT OF JOINT LEGISLATIVE COMMITTEE are set up according to the appropriation or apportionment listing for convenience in checking. If the payrolls do not agree in detail with the information on the roster cards as to title, salary, legality of appoint- ment, date of appointment, etc., report is made by the payroll clerk to the chief clerk who checks back, and if the matter is found O. K., is approved. Any matter not approved by the chief clerk is sent to the commission for action and if it is not approved by the civil service com- mission it is so indicated and sent to the auditor of state for action. EXAMINATIONS The examination procedure of a commission is the feature of civil service work that will make it successful, or cause it to founder more easily than any other factor, save downright crookedness throughout its administration. The work of the examination division may be divided generally as follows : Preparation Conduct Rating All three factors require ability above the average and unquestioned probity. PREPARATION The specifications set up general duties and qualifications as a basis for examinational procedure. The problem of developing a schedule of subjects for an examination, wide enough in scope to disclose all of the vital questions concerning a -candidate's ability to perform certain duties, and selecting questions in each subject that will develop the detail with- out making the examination too long and arduous and at the same time disclosing all of the vital points is a difficult one. The oral examination is becoming more and more valuable in ex- amination work, since without it, the examination results much as does "buying a pig in a poke". The personahty, address and temperament of candidates are so important, particularly in the higher positions, that without the oral examination, for their determination and evaluation a good 50% of the examination is omitted. Stenographic reports of all oral examinations should be kept. The preparation of questions and the application of the weights must be done by men who know the work of the position for which the examination is held. Every precaution must be taken against the leakage cf information of any sort concerning the examination. CONDUCT OF EXAMINATIONS Examinations must be conducted by experienced men familiar with the advanced methods employed to secure unlawful information, men forceful enough to command attention and resjx^ct and courageous ON ADMINISTRATIVE REORGANIZATION T] enough to carry out to the letter all provisions covering fraud in ex- amination. The conditions of the examination should be made to conform as closely as possible to the usual office and laboratory conditions. RATING Probably there is no work that has been generally done in so slip- shod a manner as the rating of civil service examination papers. This applies with especial force to the rating of papers in "experience". Schedules of rates should be set up before the work is begun and the rating done in accordance therewith. All ratings should be checked, aiid verified. In questions in which there is a reasonable allowance for judgment or opinion, the ratings should be brought to within 20% of each other, if two are rating the same papers, and when a greater dif- ference exists, the ratings must be reconciled. In rating oral examinations the rating should be done before an- other candidate is examined. At least two and preferably three examin- ers should do the rating, when by the way, the facts adduced in the ex- amination are the least important part of the work unless the examina- tion is confined to the oral. In all of this work, as elsewhere in public service, 100% honesty is demanded and expected. The description of the examination procedure that follows will dis- close points of divergence, occasionally, with the standards of procedure ouili.ied above. EXAMINING DIVISION Ihe examining division, while theoretically under the direct super- vision of the chief examiner is practically under the supervision of the assistant chief examiner, Mr. Schlesinger. Mr. Schlesinger is an en- gineer of wide experience who, as indicated, has general charge of the examining division, subject, of course, to the approval of the chief ex- aminer. Mr. Schlesinger also has charge of the technical examinations. The other examiners are Mr. Bailey who has charge of the examinations for stenographers, typists, etc. ; Mr. Baker who has charge of the ex- aminations for social investigators and miscellaneous ; Mr. Brandt who has charge of the examinations for the clerical service, accountants, book- keepers, etc. In addition to these examiners the commission has recently employed Mr. Perrin, who was in the Psychological division of the medi- cal corps of the United States Army, who is giving examinations for the skilled trades, doing work in connection with medical examinations and is conducting psychological tests as checks on the regular examinations held by the commission*. In the skilled trades, the trade tests used in the army are being used with great success. The most that can be said now, possibly, in connection with the other psychological tests is that they 78 REPORT OF JOINT LEGISLATIVE COMMITTEE are a decidedly valuable adjunct, and that they promise to become a ver) important part of the work of examination in the near future. Mr. Schlesinger conducts the examinations held in Columbus. The other examiners have no regular assignment but report as assigned to Cleveland, Toledo, Columbus, Dayton, Cincinnati and occasionally in other cities and in county seats. The rating is always done by at least two examiners who check each other. One of these examiners being the individual who prepared the examination. Requests for rerating are re- ceived very seldom, there being possibly two requests per bulletin, that is, about two requests to twenty-five examinations. Since Mr. Schlesinger has been in charge of the examination work no ratings whatever have been changed. The oral examination, which is a very important feature of all modern examinations, has been growing in value, and is now included in all examinations. Outside of Columbus it is the regular examiner, and in those examinations held in Columbus special examiners are often employed in the examination. In lower grade positions, skilled and unskilled labor, guards, etc., the examination is practically entirely oral consisting essentially of trade questions throughout. No stenographic notes are kept as a rule, but it is done in some cases. In the unskilled trades examination the army tests are being used. In clerical examination the so-called concentration tests are being used with splendid results. A large number of examinations were scrutinized and studied for the purpose of ascertaining and weighing the scope covered by the ex- amination, and the weights assigned to the several subjects therein. The scope and weights, as a general rule, show very careful consideration of all of the factors from which these schedules must be set up, and no suggestions-of any moment are offered in connection with the preparation of these examinations and questions. The practical test in all of the ex- aminations investigated was shown to be thorough and based on the re- quirement of the position itself. The use of the army or concentration tests, and the so-called "nut" tests, together with the general use of the oral examination indicate a spirit of progress that is most commendable. Merely as an indicative of the quality of the examination assistance that is being employed by the Ohio state commission, it is desired to call at- tention to the following list of examiners secured for the examination for District Health Commissioners in Ohio : Ass't. Surgeon Allen J. McLoughlin, U. S. Public Health Service. Washington, D. C. Surgeon L. L. Lumsden, U. S. Public Health Service, Washington. D. C. Dr. Walter F. Rankin, Sec'y. of the State Board of Health. Raleigh. N. C. ON ADMINISTRATIVE REORGANIZATION 79 Mr. Sherman Kingsley, Sec'y. of the Welfare Federation, Qeve- land, O. Dr. Otto P. Geier, Cincinnati Milling Machine Co., Cincinnati, O. EFFICIENCY DIVISION The efficiency division consists of Mr. Davis and Mr. Rymer, as- sisted by Miss Shirner, all under the general supervision of the secretary of the commission. The functions of the efficiency division are roughly separated into two groups, those relating to inside office work and those outside of the office. The work inside of the office is confined to the preparation of bulletins, the preparation of standard entrance require- ments, analysis of duties, the preparation of new standards on new positions. In the case of promotions made without examination, the efficiency division is expected to investigate the work of the individual whose promotion is requested and report thereon. The efficiency divi- sion has prepared quite an elaborate list of factors for consideration in studying matters of service and efficiency and divided roughly into quality of performance, and quantity or volume of work, qualities of action, qualities of mentality, attitude toward work and physical fitness. This division is, of course, charged with the preparation of service records and efficiency ratings. Service records and efficiency ratings have not been developed by the efficiency division. As a matter of fact, there has been no system developed in public service that works with the same smoothness that may be expected in an industrial plant where the quan- tity and quality of the output, and its value consequently are easily measured. This fact should not act as a deterrent to the extent that nothing is done, however. It will be far better to install a system, admittedly filled with flaws, and make the attempt to apply it honestly through the service, than to wait for the development of a perfect system by some- one else. Should a system evolved elsewhere, be tried, it would in all probability have to be modified before it would meet all the requirements of the Ohio service. Nothing is gained by delaying and in the mean- time promotional procedure is becoming demoralized. Most of the time of this division is consumed in the work of re- surveys. Resurveys are requested first, when it is desired to make a change in the duties of an individual, and second when there is an in- crease in compensation sought. These are necessary by reason of the increasing volume of work and the increase in diversity of the functions of the several departments. The work of the efficiency division is of the sort that requires time, and the matters handled by it are evolved and not made outright. The changing conditions require resurveys, a function that enables the commission to garner much valuable information, and prepare more 8o REPORT OF JOINT LEGISLATIVE COMMITTEE intelligently for examinations. As is indicated throughout this report, it is felt that this division should confine itself to work in the revision of the specifications until it will be impossible for a person to qualify in examinations and "fall down on the job". The resurveys are made whenever requests for increase in salary are received on the recommendation of a department head. In present con- ditions it is hard to see how any request for increase could be refused, and few have been. The division has done much work in research that has not seen the light and as indicated above, ever)'thing in the work requires time for its development and acceptance. A county survey has been started and it should be completed. When it is realized that there are seven counties in the state whose service is approximately equal to that of the state, its importance may be realized. Two men cannot accomplish much in this work. A few young men, clerks of the right sort who could do accurate reporting and help out in the routine work, would be invaluable. A tabulation of the work of the commission, by years, since accurate records have been kept is presented below. •o Year en 4; i?, 1 TS "1 o a •s 1 c '5 ^v^ ?K o o. sjwi 3 'rt ? W w •z ^2 < a fc < 1915 164 220 185 257 154 174 163 255 4,519 3,771 3,427 2,804 4,205 3,582 3,127 2,487 27.3 20.6 19.2 9.7 2,527 2,428 2,025 1,597 1,000 1,012 1,104 774 349 1916 498 1917 433 1918 688 The falling off during the war is clearly indicated in the column average number examined per examination. The figures for the year 1918 show that the commission was un- usually active in holding examinations and that the results of such ac- tivity were far below the usual, and that the apjxjintments were more. This state of affairs indicates the result of war activities and prob- ably some restlessness, and thrit iherc were not the usual inducements to take examinations. Probably the war and the failure to increase salaries will account for |>ractically all of the diff'ercnccs noted. PROMOTIONS A large percentage of promotions are made without examinations. This is done at the request of the department head, who must give his reasons for making or suggesting the promotion to the civil service ON ADMINISTRATIVE REORGANIZATION 8l commission with as much supporting data as may be required by the commission. The commission then takes the matter of promotion under advisement and acts thereon. Until a detailed system of service records is developed and a logical and just method of rating these records for efficiency is worked out, the matter of promotions will never be satisfactorily handled. The most that can be said for many of the systems that have been devised and put into practice to accomplish these ends, is that they have caused heads of departments to thmk seriously about these matters and they probably resulted in the mere impersonal regard of the individual in connection with the position. The great thing in any system of this sort, however, is to have whatever standards are applied applied with fairness and justice throughout the range of their applicability. The looseness in the promotional methods is probably resultant larg-ely from the failure to install the service records and efficiency rat- ings, although in lieu of an almost entire neglect to take action on pro- motions, an examination that would test the comparative fitness and preparation of a candidate or preferably candidates for promotion could and should be held. The appointing officer should specify in what particulars his can- didate or candidates are particularly distinguished as to service, and such facts should be submitted and verified in addition to the examination. Without criticising appointments that have been made, the neglect to put the promotional system on a purely competitive basis, — in which "merit" and "fitness" are the determining factors, with "seniority" avail- able to settle tie markings, has been a mistake and is the one serious criticism of the examining activities of the commission. SUMMARY OF RECOMMENDATIONS L The general assembly should amend the law to: 1 . Reduce the number of exemptions. 2. Take the labor service from civil service jurisdiction. 3. Include a schedule of adequate salary standards and rates in the classification. 4. Eliminate the veteran preference clause from the present law and from future law. 5. Make investigations of charges leading to dismissal, prior to the act of discharge, rather than after. 6. Make the state civil service commission the clearing agency for civil service matters in the state. n. The commission is urged to: 1 . Revise the classification and specifications. 2. Develop a system of service records and ratings. 82 REPORT OF JOINT LEGISLATIVE COMMITTEE 3. Follow the promotional procedure as outlined and contem- plated, 4. Keep eligible lists cleared on the basis of availability for employment by the state or the counties. 5. Prepare a census of state and county employes under its jurisdiction. III. It is further recommended that the joint legislative committee on administration reorganization : 1 . Ask the civil service commission to appear with records, minutes, etc., and indicate to the committee the reason for actions considered by the committee to be questionable. 2. Consider a plan to give the civil service commission, as the personnel agency of the state, ample opportunity to be heard in the preparation of budgetary requests for personal service, before both the governor and joint legislative com- mittee on budget. Personal service represents about one- third of the state budget, and the civil service commission has more data relevant to personal service than any other state agency. STATE DEPARTMENT OF AGRICULTURE By DON C. SOWERS, SOURCES OF INFORMATION Conference with secretary of agriculture and heads of bureaus and divisions ; reading minutes of board and rules governing department ; data submitted by heads of departments to the committee; collected and studied all the forms used by the depaortment; study of annual and special reports. HISTORICAL The first board of agriculture was established in 1846. It consisted of 53 members but the number was reduced the following year to 10. The most important activity of the board during the first quarter of a century, was holding the annual state fair. The fair was held at various cities in the state from 1850 to 1874, when it was permanently located in Columbus. In 1880, the board began to collect and publish crop and stock statistics and later county auditors were required to compile agricultural statistics, returned by township assessors. The inspection, analysis and supervision over the sale of commercial fertilizers began in 1881 and the scope of these activities was subse- quently increased to include feed stuffs, lime, insecticides, fungicides and seeds. In 1886, the fish and game commission was created as a separate department. In 1902, two important developments took place ; the board of agriculture was constituted the state board of live stock commissioners, and a division of nursery and orchard inspection was created. A consolidation of the agricultural services was effected in 191 3 by the creation of the agricultural commission, composed of four members appointed by the governor at salaries of $5,000 each. This commission was given control over all the activities of the board of agriculture and in addition, the following departments or commissions were abolished and placed under this commission : Dairy and food commissioner. Fish and game commission. Board of control of the agricultural experiment station. Two years later the board of control was re-established as an inde- pendent department and the present department of agriculture was created. 83 84 REPORT OF JOINT LEGISLATIVE COMMITTEE PRESENT ORGANIZATION The board of agriculture at the present time consists of ten mem- bers appointed by the governor with the advice and consent of the Senate ; two for one year, two for two years, two for three years, two for four years, and two for five years. Not less than six members must be practical farmers. The members are unsalaried and receive actual ex- penses. The board elects a secretary, appoints heads of bureaus, assist- ants, and employees. Monthly meetings are held. An annual meeting is held in January with the presidents and delegates of county agricultural societies for the purpose of considering the wants, prospects and condi- tions of agriculture throughout the state. It is required to hold an annual state fair. The work of the department is at present organized under the fol- lowing bureaus : Bureau of fair administration. Bureau of live stock industry. Bureau of fish and game. Bureau of feeds and fertilizers. Bureau of dairy and food inspection. Bureau of horticulture, Bureau of markets. Bureau of agricultural statistics. The law provides also for the establishment of a state chemical and bacteriological laboratory, but up to the present time, this work has been handled by the laboratory of the state board of health. The total appropriation for the department for the year ending June 1920 was $704,695. BUREAU OF FAIR ADMINISTRATION The work of this bureau is the management of the state fair. Pro- vision is made in the budget for a chief of the bureau, a superintendent of fair grounds and stenographic service. An annual appropriation is made for the purposes of the state fair, which amounted to $110,000 plus $10,000 for repairs at the fair-grounds in 1919. The annual report for the year 1919 shows that the total receipts at the state fair amounted to $147,822 and the total expenditures to $121,405, making a net profit of $26,417. This report further states that there is need for more grounds and buildings, for housing patrons in a grand stand and assembly hall, for parking space for automobiles, for display space for machinery and implements, and barns and sheds for housing live stock. It is stated that a grand stand which will accom- modate 20,000 ])ersons is needed and that if built, there will be an in- crease in receipts from $17,000 to $35,000. ON ADMINISTRATIVE REORGANIZATION 85 During 1918, there were -]-] county and 16 independent fairs held within the state. The amount paid to these societies amounted to $58,571 or an average of $629.80. Four counties and a number of independent fairs received no aid because of faikire to conform to the laws relating to the organization of agricultural societies. BUREAU OF LIVE STOCK INDUSTRY The function of this bureau is the protection of the live stock of the state. It seeks to prevent the spread of infectious and contagious dis- eases among domestic animals. Horses are examined and tested for glanders, cattle for tuberculosis, swine for cholera and sheep for lip and leg disease, scab, foot rot and nodular diseases. The number and value of live stock in the slate in 191 9 was as follows : Number Value Horses 862,467 $74,884,011 Cattle ' 1,768,908 89,494,662 Mules '*.....'. 32,277 3,191,885 Sheep ••• 1,789,919 16,837,653 Hogs .....v.... 2,304,459 37,783,506 Total Value $222,195,717 The organization consists of a state veterinarian, assistant veterin- arian, 14 field veterinarians, and a small office and stenographic force. The department works in close co-operation with the Bureau of Animal Industry of the United States Department of Agriculture, which has about 12 veterinarians stationed in the state continuously. A serum plant is operated on a farm near Columbus, at which is employed a pathologist, assistant pathologist, bacteriologist and five or. more laborers. Tuberculin and hog cholera serum is manufactured here and shipped by parcel post over the state. Tuberculin is furnished free to the people of the state and hog cholera serum is sold at one cent per cubic centimeter. The proceeds from the sale of serum exceeds the cost of operating the serum plant and farm. A rotary fund has been suggested as a means of overcoming the handicap which the plant works under in not being able to secure a sufficient number of farm laborers due to the fact that the hourly compensation is fixed at too low a figure in the annual budget. The cost of operating this bureau could not be obtained without making an analysis of the expenditures of the department. The following items in the 1920 appropriation act could be identified as belonging to this bureau. Personal service about $45'00O> Pigs for serum plant $70,000, experimental work on diseases of animals $2,500, state share of pay due owners of tubercular cattle killed according to law $60,000, state 86 REPORT OF JOINT LEGISLATIVE COMMITTEE share of pay due owners of glandcred horses killed $18,000. Total $195,500. The state board of veterinar)' examiners consists of 3 members, ap- pointed by the governor, one each year for six year terms, together with the secretary of the board of agriculture and commissioner of health who are exofficio members. This board is required to meet during April and July for the purpose of examining and licensing veterinarians. The members receive $3.00 per day and necessary traveling expenses. A fee of $2.50 is charged those- who present diplomas from accredited veterin- ary schools and $5.00 those who must take an examination. The functions performed by this board are similar in character to those performed by other registration and licensing boards for other professions such as acountancy, dentistry, medicine, etc. In the interest of economy and efftciency, this work should be done by a single division of registration for all professions. It is therefore recommended that this board be abolished and the duties of the board be transferred to the division of registration. According to a ruling of this bureau, farmers cannot receive com- pensation for tubercular cattle slaughtered unless the cattle are ex- amined by veterinarians employed by the department. Furthermore, the veterinarians of the department will not make an examination of cattle if they have been previously examined by licensed veterinarians. The operation of this ruling results in grave injustice to those farmers who through ignorance or otherwise do not go at once to the department and secure a veterinarian to do the examining. The licensed veterinarians do not always inform the farmers of the ruling of the department. The result is that the farmer who goes directly to the department for a veterinarian secures compensation, whereas another farmer living across the road who goes to a licensed veterinarian for the examination, will receive no compensation. The evident intent of the law was the eradica- tion of tuberculous cattle and this was to be made possible without work- ing serious hardship upon the owners of cattle by allowing them compen- sation for cattle which had to be destroyed. It certainly was not the intent of the law to operate unjustly and it is therefore recommended that the ruling should be changed so to correct this injustice. If tlie department takes the stand that in order to receive compensation for tuberculous cattle slaughtered they must be examined by an emploj^ee of the department, then they should employ sufficient veterinarians to make all the examinations required and the previous examination by a licensed veterinarian should noi operate to prevent a rc-examination and compen- sation. DAIRY AND FOOD DIVISION The state dairy and food commissioner was originally an elective official, chosen for a two year term. The office was abolished and the duties transferred to the agricultural commission in 1913 and the state ON ADMINISTRATIVE REORGANIZATION 87 board of agriculture which supplanted this commission in 191 5 became vested with the duties of this office. The work is now carried on by a bureau of dairy and food inspection. The functions performed by this bureau are the enforcement of the food and drug laws of the state against fraud, adulteration, or impurities in food, drink and drugs, and unlawful labelling; making sanitary inspec- tions of groceries, meat markets, restaurants, confectioneries, milk plants, dairies, cream stations, creameries, condenseries, canneries, bottling plants and cheese factories. Enforcement of the narcotic drug law. Testing and adjusting the working standards of county and city sealers of weights and measures. The personnel of the bureau consists of 28 persons as follows : chief, 9 food inspectors, 5 dairy inspectors, 4 drug inspectors, 2 narcotic in- spectors, one cannery inspector, 2 inspectors of weights and measures, 2 clerks, a stenographer, messenger and janitor. The total appropriation for the bureau for 1920 was $63,215. During the year ending July, 1919, the 15 dairy and food inspectors made 11,365 inspections of stores, plants and food-handling establish- ments. The report does not state the number of orders issued and the number complied with. 1686 samples of milk and cream were analyzed and about 1000 samples of drugs and foods. The total number of articles analyzed in all the laboratories was 2,005. ^8 prosecutions were filed by the state inspectors and $7044 was collected in fines and fees. The districts into which the state is divided for dairy and food in- spection purposes are governed largely by the place where the inspectors happen to live. The bureau, according to a statement of its chief, does not possess authority to condemn unsaleable food articles; it can only prosecute. No license is required for any class of business except bot- tling plants; the effectiveness of inspection under such conditions should be at once apparent. Experience has shown that the only effective method of securing results in inspection work is to compel the taking out of licenses which may be revoked upon failure to comply with the orders of inspectors. The division should possess by all means the authority to condemn and destroy unsaleable food products. It must be apparent at once that such a small group ol inspectors cannot inspect all the groceries, restaurants, dairies, etc., in the state of Ohio. Any attempt to do this must result in spreading the efforts so thin as to be of little real value. Instead of attempting to make detailed in- spections, the division should devote its energies to supervising, assisting and developing the inspectional services of municipalities and counties. Standard rules and regulations can be promulgated. Technical assist- ance can be given local units and intensive work can be done in localities which are interested in improving insanitary conditions. The functions performed by this bureau are strictly executive and have to do with the enforcement of the food and drug laws and securing 88 REPORT OF JOINT LEGISLATIVE COMMITTEE sanitary conditions in places where food is held and sold. It has nothing whatever to do with the promotion and development of the dairy in- dustry of the state, and therefore its work is not closely related to that of the board of agriculture. A study of the present status of the dairy and food control work in the United States shows that the work is performed by various de- partments of state government : some of the dairy and food divisions are separate independent executive departments, as for example, several states have dairy and food commissioners, food and drug commissioners, etc.; some are divisions of departments of agriculture; some are divisions of departments of health; some are divisions of agriculture experiment stations and some are mixtures of several executive departments and educational institutions. Apparently very little attention has been given to the proper location of such agencies. Good work and poor work has been done under both types of organization and hence a conclusion as to which department should have authority over this work cannot be de- termined on the basis of the results accomplished in other states. The following facts point to the conclusion that the logical place for this department, in Ohio anyway, is under the department of health : 1. The inspection of food and drugs and the sanitary inspection of food-handling establishments and dairies is essentially a matter of public health. Health authorities must concern themselves with the prevention of the sale of unclean and impure milk and dangerously contaminated food whether specifically charged with the enforcement of the food laws or not. An examination of the milk supply is frequently necessary in checking the spread of certain contagious diseases, as for example, typhoid fever. The infant mortality of more than one city has been re- duced by improving the quality of the milk supply. 2. Local health authorities in the cities and towns of Ohio are charged with the control of the milk supply, food inspection and sanitary inspections, and it is desirable that the state health department should exercise control and supervision over their activities apd that they should turn to the state health department for advice and guidance in the solution of their local problems. 3. The analyses of food and drugs and milk samples which are col- lected by the dairy and food and drug inspectors are made by the labora- tory of the state board of health and it would be advantageous to place the supervision of all the work in the same department. 4. The work of this bureau as it is now functioning has nothing whatever to do with the promotion and development of the dairy in- dustry. It exists solely for the purpose of protecting the health of the consumer. Apparently no co-operation exists between this bureau and the bureau of animal industry by way of reporting herds suspected of containing tuberculous cattle. ON ADMINISTRATIVE REORGANIZATION 89 For these reasons, it is recommended that the inspectional work of the bureau of dairy and food inspection relating to food, drugs and sanitary inspections, be transferred to the board of heahh. The inspec- tion of weights and measures should either be transferred to the bureau of markets or to the bureau of standards, if it is decided to create such a bureau. BUREAU OF FEEDS AND FERTILIZERS The purpose of this bureau is to make available to farmers, garden- ers, and others, reliable information relative to the composition and value of fertilizers, agricultural lime and limestone, which are offered for sale. It performs the same function with respect to food stuffs, in- secticides, fungicides and seeds. The force consists of a chief inspector, 4 field inspectors, 2 stenog- raphers and clerk. The analysis of samples is done by the laboratory of the state board of health. Dealers are required to be licensed before offering these articles for sale and infoiTnation setting forth the ingre- dients of each brand is required to be affixed to each bulk or package. An analysis of each brand is required to be made once each year. The result of these analyses is published by the bureau for distribution. BUREAU OF FISH AND GAME The function of this bureau is the conserv^ation, protection and propagation of fish, game and wild life. The bureau operates seven fish hatcheries ; six. of these are for the purpose of re-stocking inland waters of the state with game fish and one of these, the Put-in-Bay hatchery on Lake Erie, produces commercial fish. It is stated that five hundred million fish eggs are hatched annually at this hatchery. A patrol boat, manned by a captain, engineer, fireman and deck hand, is employed in enforcing fish laws on Lake Erie. A fish car "Buckeye" is used in con- veying fish from the hatcheries to inland streams. A game farm comprising two hundred acres is owned and operated at Wellington in Lorain county for the purpose of rearing pheasants. Pheasant eggs are shipped to various sections of the state to be hatched by sportsmen and farmers and then liberated. Over fifty game refuges or sanctuaries have been established where the natural wild life may propagate itself unmolested. A purifying system has been perfected by the bureau for purifying the waters of streams which have become polluted by manufacturing wastes and therefore made uninhabitable for fish. The personnel of the department is as follows : one chief, one as- sistant chief, three clerks and three stenographers ; superintendent of pollution; supervisor of Lake Erie district; superintendent, engineer, fireman and two hatchery men at Put-in-Bay hatchery ; six superintend- ents of hatcheries and one or two laborers located at the following hatch- 9b REPORT OF JOINT LEGISLATIVE COMMITTEE eries: London, Chagrin Falls, St. Marys, Akron, Newton and one in Pike county; at the game farm there is a superintendent and game keeper, a farmer and several laborers ; a crew is in charge of the patrol boat, "Oliver H. Perry" and a man is assigned to the fish car. In ad- dition fifty salaried game wardens are employed throughout the year and twelve game wardens are employed for six months. Two himdred and fifty non-salaried wardens lend what assistance they can in enforcing the fish and game laws of the state. The revenue of the bureau for the year 1918 amounted to $201,480 divided as follows : hunters' license $165,975, license fees paid by fishing boats on Lake Erie $18,125, fines $16,185 and all other $1,194. The expenses of the bureau for the same year amounted to $162,282. Two plans have been suggested for increasing the revenue of this bureau. The bureau in its sportsmen's bulletin suggests an angler's license fee of fifty cents a year and the auditor of state in his annual report for 1918 suggests increasing the license fees paid by fishing boats on Lake Erie. BUREAU OF HORTICULTURE The function of this bureau is the protection of the orchards and nurseries of the state through the prevention and control of insect pests and plant diseases. In addition the bureau has charge of the inspection of apiaries, and the prevention and control of the disease known as the "American foul brood". The personnel of the bureau consists of the chief, six inspectors and a stenographer. The inspection of three hundred and twenty- four nurseries in the state is made annually and a charge is made for this service in accordance with the schedule of fees fixed by law. Dealers in nursery stock and their agents are required to take out licenses. Last year fifty-five dealers and two hundred and fifty- four agents were licensed. The nursery stock imported from foreign countries must be inspected and goods shipped out of the state must be fumigated and have a certificate affixed. The duties of this bureau with respect to orchard inspection consist in giving advice to fruit growers and in co-operating with the state uni- versity in pruning and spraying and demonstrative work. An annual state apple show is held in co-operation with the state horticultural society and the chief of this bureau acts as superintendent of the horti- cultural building during the state fair. Upon request inspectors visit apiaries, disinfect and destroy diseased bees and co-operate with bee keepers in the eradication of diseases which attack bees. The annual cost of tliis bureau is about $20,000 and the revenue about $2,500. ON ADMINISTRATIVE REORGANIZATION 9I BUREAU OF AGRICULTURAL STATISTICS The work of this bureau is performed in co-operation with the fed- eral bureau of crop estimates. The office personnel consists of a chief of the bureau and a clerk who are on the stafit" of the federal bureau of crop estimates and two collaborators employed by the department of agriculture. The field per- sonnel consists of sixteen hundred general crop correspondents who work without compensation other than free passes to the state fair. A special list of correspondents are secured for the purpose of collecting informa- tion on special subjects, The regular work consists in tabulating information received from the crop correspondents and disseminating this information. The in- fonnation on crops is mailed to all the papers in the state as well as to outside farm and trade papers. It is also published in the official bulletin and monthly Crop Reporter, a publication of the federal bureau of crop estimates and in the market news and exchange bulletin. The abstract of agricultural statistics compiled from returns made by town- ship assessors to county auditors is edited, checked and published by this bureau. From time to time special surveys are made, as for example, during the past year a survey was made of Ohio maple sugar products and of the live stock industry. BUREAU OF MARKETS A start has been made toward the development of a bureau of markets. A comprehensive law dealing with this subject has been passed but up to the present time funds have not been available for the development of the work. The personnel of the bureau consists of the chief, a deputy inspector and one or two stenographers. The plans of the bureau contemplate an enlargement along the fol- lowing lines. The following estimate of the cost of enlargement was made in a report submitted by Mr. Croxton and Dr. J. E. Haggerty to the governor and attorney general. 1. Division of Information and Market News Service. This bureau would collect and disseminate reliable marketing in- formation relative tO' supply, prices, commercial movement, commodities held in cold storage, etc., to both consumers and producers. It is thought that with such facts placed clearly before the people their co- operation could be secured in preventing unreasonable prices and in adopting better methods of distribution. The estimated cost of this service has been figured at $9,850. 2. Division of Co-operative Organization. The function of this division would be to develop co-operative groups of consumers and producers along the lines of the Rochdale societies in 92 REPORT OF JOINT LEGISLATIVE COMMITTEE England, and the development of commercial or motor truck lines for the distribution and marketing of farm products. For this service a budget of $8,350 has been suggested. 3. Division of Standards. The ftmction of this division would be the promulgation and en- forcement of reasonable trade standards and to conduct the educational and inspectional work necessary to lead producers to conform to these standards. For this work a budget of $14,750 has been suggested. 4. Division of Public Markets. The function of this division would be to encourage and assist local communities in establishing public retail markets suited to their needs ; it should also encourage and assist larger cities in establishing whole- sale markets. For this work a budget of $6,000 has been suggested. The total amount of the suggested budgets for the four divisions enumerated is $39,350. With the inception of the work indicated, the salaries of the director and his assistant would need to be increased and the added general expenses would bring the total budget of the bureau to approximately $43,000. The above outline has for its object not only assisting the producer in the marketing of his products but it also contemplates a service to consumers through the dissemination of information and the develop- ment of proper standards and grades for all products. There would seem to be no reason why this work might not successfully be undertaken by the bureau of markets as one of the divisions of the department of agriculture and it is therefore recommended that steps should be taken without delay to enlarging the activities of this bureau in accordance with the scheme outlined above. recommendations That the board of agriculture be abolished amd that the admin- istrative duties now performed by the board be treuisfenred to a director of agriculture who would be appointed by the governor. The present board of agriculture was created in 1915 and was given large administrative powers and duties. The next legislature which met in 191 7 amended the law governing this department so as to confer a large part of the administrative duties, which had formerly been per- formed by the board of agriculture, upon the secretary. The act was revised throughout by striking out "board of agriculture" and inserting the word "secretary". The time has now arrived for the linal strp. namely, placing all the purely administrative and executive tluties in the hands of a director of the department. The evident purpose of hav- ing a large board of ten members was to bring to bear iii>on the agri- ON ADMINISTRATIVE KRORGANIZATION 93 cultural problems of the state the advice and counsel of the leading agricultural and business men of the state. This fmiction has been inter- fered with to some extent by compelling these men to assume adminis- trative duties. Both the department, itself, and the state would benefit by relieving these men of routine executive duties and permitting them to devote all their time when in session to the consideration of the agri- cultural interests of the state. If flesired an advisory board might be created for this purpose. Experience has shown that an administrative board is of itself objectionable. Its very existence means delay since all important ques- tions must await the next meeting of the board. Responsibility for action is diffused among the board members and prompt action is seldom taken. If the board is active and interferes with the management of the depart- ment factions develop among board members and the work of the de- partment is obstructed. If the board is inactive and becomes merely a rubber stamp for executive action the public is lulled into a false sense of safety by the supposed protective board. An examination of the minutes of the board of agriculture shows that at each session the board has acted upon a large number of purely administrative matters such as the approval of appointments, promotions and dismissal of employes concerning which the board has little knowl- edge and little time or opportunity to investigate, consequently, it must rely almost wholly upon the decision of its secretary. Better results would be secured if all such purely administrative matters were left to the discretion of the executive ofhcer and the board confined itself to the task of furnishing advice, suggestion and guidance to the administra- tive officer. That the Inspectional work of the bureau of dairy and food in- spection be treuisferred to the board of health and the inspection of weights and measures be transferred to^ the bureau of standards in the department of trade and commerce or to the bureau of markets. The reasons for this are set forth in the text of this report. That the state board of veterinary examiners be abolished and the duties of this board be transferred to the division of registration in the department of education. That the bureau of markets be enlarged in accordance with the outline described in the text of this report. That an operation study be made of the department. Several of the departments issue licenses and collect fees. It is suggested that if all of this work were centralized in one office under the director of agriculture considerable saving might be eft'ected through the elimination of one or more positions. 94 REPORT OF JOINT LEGISLATIVE COMMITTEE That the budget of the department should be so arranged as to show at a glance the cost of each bureau. Both the secretary of the department and the budget commissioner are interested in knowing the actual cost of operating each bureau and by different re-arrangement of the budget items this information would be readily available without additional effort. The fees charged .by several of the bureaus are supposed to be sufftcient merely to cover the cost of operation 'and this should be an added incentive toward a better system of budget making. THE ORGANIZATION OF STATE FARMS UNDER THE CONTROL OF THE BOARD OF ADMINISTRATION Prepared Under the Direction of DON C. SOWERS, By PROF. J. FALCONER, Ohio Stat* University Of the 21 institutions under the control of the state board of admin- istration, i6 have tracts of land comprising over loo acres. Statistics of their forage, grain, vegetable and dairy production are given below. The grain and forage crop acreage relates to the crop year of 1918 since information for 1919 was not all available at the time of making this report. ON ADMINISTRATIVE REORGANIZATION 95 ssiov 'sd0J3 ppij Jamo Tf ^^ locoiocoo < 3J3V J3d ppiA 00 ©a coco (m' (m' (m" CO CO 00 co' S3J0V ^ gs SS2S'- g o G 3J3V aad pptA t> CO CO »C CQ t- 05 ,-1 (M l-( T-l rH S9J3V § g^^^SI^S g 1" aaoy J3d piajA .-1 1-1 00 lo cci lo t- ca' ."^ S3J0V 1C-* lO S"*g^S '^ ss 1 3J3V J3d ppiA «o coioioeOTj" S3JDV lO ^ElggS^ 3J0V jad ppiA 88 CO • 10 S3J3V s C-iO t- 05 (N -<:)< iO .52 12 S3J0V § s gg^5S^i58 ^1 rt > aaoy asd ppiA ^ CO _o -co CO CO lO CO cci ." CO rt c rt sajoy s g^2§^|Si2 1"^ 5 p9;U3-JJ S3iDV ii 1 paUMQ S3JDV 1 c < ,'c c E 'c c tE c c > 'c u c I 1 'c c "B c c ■£ c i c 'c fi. ."rt 'c c c 0. c t u L C 1. c E c ir .c IE C 1 -c c > c 1 'u -€ c ■"11 1 a, 12 > c rt 1 C a aj .2 C c o o a i^ Oi be 96 REPORT OF JOINT LEGISLATIVE COMMITTEE saiqB;333A j S3iqBJ333A lO lO • S30JBUI0X saoiBjoj SB3J • oa CO "-H ;o • C- CO CQ a.-o — .S go ffi-o ^K o > cffi o -^, U UP hJ ^ <-. H O ► ^?E' o o « E lu o o> ik; ° 0.0 E 3 o h-i ection of the books and records, files, and the routine procedure of the office. The work of the office is administrative in character, and for reasons discussed at length in the report on the department of finance, bureau of treasury, it is believed the organization of the state govern- ment would be improved by a constitutional amendment abolishing the state treasurer as an executive office of the state, and legislation trans- ferring the duties of the office to the proposed department of finance. The office of the state treasurer concerns itself with — 1. The collection and receipt of all moneys due the state; 2. The cashing of warrants drawn by the auditor of state; 3. The custody and record of the securities and several trust funds placed in his care ; 4. The billing of excise taxes ; 5. The keeping of the necessary records indicating the cash bal- ances at the various active and inactive depositories ; 6. Records analyzing the receipt and disbursement of the state funds. The work of the office appeared to be conducted in an efficient man- ner, as was evidenced by the fact that on the day of the detailed in- vestigation of the procedure, records, files, etc., the "daily work" was up to date. This condition is due in no small degree to the personal attention given the routine of the office by the treasurer. The provision that no money be paid into the treasury except upon an order of the auditor establishes a good control over revenue and cash receipts. The entire procedure and records, as outlined and ex- plained, appear to afford complete control and record of the transactions of the office. The state is to be complimented upon the high rates of interest it receives upon it several deposit accounts. Rates are obtained by com- petitive bids, and interest is collected quarterly on daily average bal- ances. As indicated by the treasurer, larger and more secure vault accom- modations should be furnished this office for the safe keeping of the 144 ON ADMINISTRATIVE REORGANIZATION 145 securities of the several trust funds placed in its care, as depository bonds, Miami Conservancy District funds. Industrial Commission se- curities, trust and savings bank deposits, insurance securities, etc. The records of these trusts are comprehensive and the procedure incidental to the filing and exchange of securities and clipping of coupons, and records of such steps, are adequate. The present prac- tice of prebilling excise taxes and the procedure for the control of the collections in this office and the office of auditor of state appear to be commendable. The cashing of the auditor's warrants by the treasurer's check is an acceptable procedure. Should the proposed reorganization of the state government become effective, it may prove advisable to simplify this procedure by eliminating the separate warrant. As is indicated in the auditor's annual report for 1918, a study should be made of positions in Jhe state service requiring bonds, so that adequate surety bonds may be had for all such employees of this office, the cost of which should be paid by the state. The records of cash balances, interest earnings and distribution of income and disbursements, indicate clearly the transactions of the office. The detailed analysis of income and disbursements does not appear to be a necessary duty of the office. The annual report of the treasurer should contain only such facts and figures as are informative of the trusts placed in his care. Because of the volume and nature of the securities deposited with the state treasurer, it is suggested that consideration be given to the possibility of filing a duplicate copy of the records of these securities in a safe place in some other building in the city so that in case of loss a duplicate record of these trusts would be available. It is believed that it would be a sound and commendable policy for the treasurer to establish an official record, annually, of the trusts held by him for the state by filing with the secretary of state a com- plete statement of the nature and value of all such trusts. TAX COMMISSION By DON C. SOWERS SOURCES OF INFORMATION Conferences with two of the tax commissioners, the third member having resigned ; with the secretary of the commission and heads of the divisions; study of office methods employed and forms used; and study of laws and annual reports. PRESENT ORGANIZATION The tax commission was created in 1910. It consists of three mem- bers appointed by the governor for a term of six years. The members receive a salary of $4,000 each. The principal duties of the commission are the following : 1 . Supervision over local tax officials in the assessment of real and personal property. 2. Assessment for taxation of all public utilities and of certain taxes on domestic and foreign corporations. 3. Supervision over the inheritance tax. For performing these duties four more or less well defined divisions have been created as follows: Division of .supervision of local officials. Division of public utilities assessment. Division of domestic and foreign corporations. Division of inheritance tax. The members of the tax commission exercise supervision over these divisions in the following manner ; one member devotes practically all of his time to the supervision of local officials; another supervises the work of public utilities assessment and taxation of domestic and foreign corporations and the third member with the assistance of stenographers handles all the business connected with the inheritance tax. Each mem- ber does a large amount of detailed work in connection with his depart- ment. The result is that each member becomes engrossed in the detailed matters connected with the operation of his particular department and de- votes little time or thought to the work of the other divisions or the work of the commission as a whole. Matters requiring the attention of the sommission are discussed and decided, for the most part, in informal conferences between commissioners. 146 - ON ADMINISTRATIVE REORGANIZATION 147 The members of the commission are deserving of commendation for their zeal and industry in performing the detail work of the commission but the economy of having them perform such duties is questionable and the efficiency of this commission form of organization is at least debate- able. Better results would probably be obtained by placing all the work of the commission under one administrative officer selected for his abilitv and experience in appraisal and taxation matters and then permit him to divide the work into suitable departments with competent persons placed in charge of each bureau. SUPERVISION OVER LOCAL TAXING OFFICIALS The duties of the tax commission with respect to the assessment of real property are as follows : it has power to order the initial assessment or a re-assessment of real estate in any taxing district or in an entire county where this procedure is found necessary, and it hears appeals from decisions of county boards or revision in cases where owners of property are not satisfied with re-assessments. -With respect to the as- sessment of personal property it prescribes for county auditors the blanks used by individuals in listing personal property and prescribes other forms used in the assesment and collection of taxes ; it receives and checks the tax rates as determined by the county budget commission; it issues in- structions to county auditors and boards of revision and assessors and gives information and advice to local officials with, respect to the opera- tion of the tax laws. It is supposed to equalize tax valuations in the various counties and to determine whether or not the law requiring valua- tion at full market value is complied with. The work done in thi^ regard amounts to little more than a compilation of the tax valuations in the various counties as few adjustments are made. HISTORICAL. The first tax machinery in the state was the board of equalization and assessment. This board consisted of the state auditor, ex-officio member, and one member from each state senatorial district. The first board contained fourteen members but by 1841 there were 37 members. In 1900 the number had fallen to 33 due to a rearrangement of districts. Re- valuations were made upon the order of the legislature in 1835, 1841, 1846, 1853, 1S60 and decennially thereafter to 1910 when the period was shortened to four years. Equalization under this type of organization resulted in decreasing valuations. The politicians on the board sought to protect the interests of their constituents by reducing tax values. This was carried to such an extent by means of flat sum reductions or per- centage reductions that in 1859 the legislature forbade the reduction of the aggregate by more than ten million dollars. Since 1910 no general re-appraisal of real estate has been made due to the frequent changes in 148 REPORT OF JOINT LEGISLATIVE COMMITTEE the tax administrative system. In 19 13 the Warncs law placed the as- sessment of real estate in the hands of centrally appointed county asses- sors to be known as deputy tax commissioners. In 191 5 the law was changed to make the county auditor the county assessor ex-officio with general authority over the assessment of real and personal property. As the law now stands the county auditor is in full charge of the assessment of real estate and the assessment of personal property is done by self assessment of the indvidual with provision for assessing those who fail to list by assessors. The resuhs of the efforts of the tax commission in its supervision of the local assessments are negligible. The state and all its local sub- divisions are in dire financial straits and yet there has been no general assessment of real estate since 1910. The commission today has no machinery for checking up on the assessment of real estate made by county officials to see if property is being assessed at its true value and it has accumulated little information on this subject from year to year which might be used as a means of compelling compliance with the law. In the absence of this basic information the equalization of the assess- ment as between counties has had to be performed in a perfunctory man- ner. While the whole state has been disturbed and exercised over the taxation problem, the tax commission has come forth with no construc- tive program and it has available but few facts which would throw light upon the problem. As good or better results might be expected from a single administrative official. The tax commission has jurisdiction on appeal from local taxing authorities. Formerly two or more members went to the counties heard the testimony and rendered a decision. More recently the practice has been for one member to go and hear the testimony, secure the facts and on returning to Columbus, consult with the other members and render a decision. In some cases the hearings were heard in Columbus. Tb.c number of appeal cases which are brought before the commission in a year are small and this constitutes a relatively unimportant part of the commission's activities. DETERMIN.\TI0N OF THE VALUE OF PUBLIC UTILITIES Public Utilities corporations submit detailed report on standard forms to the tax commission shoAving the value of their properties. These are checked and analyzed by the auditor and his staff and the value deter- mined for taxation purposes. Corporations are notified as to the value tentatively fixed and hearings are scheduled for the purpose of giving them rm opportunity to be heard. After these hearings the final value is determined. The decision of the commission in each case must rest upon the basis of facts as determined by its auditor and staff. In reaching a sound conclusion based upon facts, the judgment nf one man skilled ON ADMINISTRATIVE REORGANIZATION 149 and experienced in matters of valuation and taxation is as apt to be as trustworthy as the judgment cf a group of laymen who might be ap- pointed to such position for divers reasons. The corporations have re- course to the courts when they deem the decision unfair, which is ample protection for them. DETERMINATION OF GROSS EARNINGS AND AMOUNT OF CAPITAL STOCK OUT- STANDING OF DOMESTIC AND FOREIGN CORPORATIONS Reports submitted by corporations of their gross earnings and capital stock are the basis for the work of the tax commission in per- forming this activity. The problem is to determine by every means avail- able whether the statements made are accurate and this is purely a ques- tion of fact and not a question of policy. SUPERVISION OF THE INHERITANCE TAX The tax commission performs no judicial function with respect to the inheritance tax. The power to decide is placed with the county judges. The duties of the tax commission are purely supervisory and hence of an administrative nature. The work of the tax commission bears a close relationship to the work of the department of finance. The initial step in the process of securing state revenues is the determination of the valuation of property for taxation purposes. This is the chief function now performed by the lax commission ; it supervises the assessed value of real estate and per- sonal property and fixes the valuation placed upon public utilities and establishes the tax base for domestic and foreign corporations. It seems logical that all the activities which have to do with assessing, levying, col- lecting and disbursing state funds should be placed in one department. It is therefore recommended that the functions of the tax commis- sion be transferred to the bureau' of income and taxation in the depart- ment of finance. The work of this bureau would be performed under the supervision of a single individual appointed by the director of finance. This bureau could be expanded by the creation of another division to handle the additional work which w-ill arise in connection with the lev>nng and collecting of a state income tax and in this way all financial and fiscal affairs, of the state would be consolidated in a single department. Such a consolidation would be in the interest of efficiency and economy. For the purpose of equalizing assessments and performing other quasi-judicial duties or functions now performed by the tax commission a board of equalization would be created consisting of the director of finance, the attorney general and the director of trade and commerce. STATE PRINTING (Present Organization) £L£CTOE&.I£ SECRiSTABY OP STATE AUDITOR SUPKHVISOR OP PUBLIC PRINTING ATTORNEY GENERAL COMMISSIONERS OP PUBLIC PRINTING STATE BINDERY STATE PRINTING By GAYLORD C. CUMMIN The printing for the various state departments must by statute be secured through the supervisor of public printing with the consent and under the instructions of the commissioners of pubhc printing, except where the publication is specifically authorized and provided for by statute in which case the commissioners of public printing have no authority. COMMISSIONERS OF PUBLIC PRINTING. Po7vers and Duties. Sec. 745 General Code, provides that "By virtue of their offices the secretary of state, the auditor of state and attorney general shall be commissioners of public printing. They shall have the power to determine, except as otherwise spe- cifically provided by law, the number of volumes into which each publica- tion shall be divided, the manner of binding, quality of paper and kind of type to be used in all reports, publications, bulletins or pamphlets pub- lished at the public expense." CLASSES OF PRINTING. Sec. 754 General Code provides that all printing be divided into seven classes : 1. Legislative printing in bill form. 2. Legislative journals and documents forming part thereof. 3. Reports and documents in pamphlet form. 4. General and local laws and joint resolutions. 5. Blank circulars, etc., not including those in pamphlet form. 6. The bulletins of the agricultural commission, 7. Reports, etc., required to be bound not contained in the (2) (3) and (4) classes. Contracts. "Each class shall be let in separate contracts." "The printing for the (7) rlass may be let in one or more contracts as the com- missioners of public printing in their discretion may require." Biennial Lettings. Sec, 755 General Code provides that the con- tracts must be for two years, and provides the procedure under which the commissioners of public printing are to advertise and let same. Binding. Sec, 779 General Code provides that the commissioners of public printing are to provide for necessary binding according to their discretion. 151 [52 REPORT OF JOINT LEGISLATIVE COMMITTEE SUPERVISOR OF PRINTING. Appointment and Qualifications. Sec. 746 General Code provides that "The governor with the advice and consent of the Senate shall ap- point a supervisor of public printing who must be a practical printer and whose term of office shall be two years." Powers and Duties. Sec. 748 General Code provides that * * * "the supervisor of public printing shall examine and correct all proof sheets of the printing for the state, see that the work is executed in ac- cordance with the law and when necessary prepare indexes for public documents. The printing for the opinions of the attorney general, 'Ohio General Statistics' and all publications approved by the commissioners of public printing shall be ordered through him, and he shall see that the number of copies ordered is received from the printer and delivered to the proper department." Sec. 749 General Code provides that "The supervisor of public print- ing shall audit the accounts for printing and binding and keep a record of the cost thereof, the amount of paper used, and the expense of each document." STATE BINDERY. Sec. 750 General Code provides that "The supervisor of public print- ing shall have charge of the book-binding establishment at the school for the deaf, he shall provide the necessary materials, implements, machinery and fixtures therefor; he shall have supervision and control thereof and exclusive management of its practical operation." Paper furnished by the State. Sec. 764 General Code provides that "The paper for such printing shall be furnished by the state * * * and Sec. 752 General Code provides that the secretary of state shall de- liver the paper to the printer. The legal fact base was supplemented by interviews with the past and present supervisors of public printing, and department heads, by questionnaires sent to departments, by a study of stationery, forms, pam^phlets, bulletins, reports, etc., issued by the state. The appropriations for printing, paper and binding total $303,548 annually on the face of the appropriation bill for the present biennium, but this does not cover all the printing that may be" done under that bill. The printing for state universities is not under the control of the com- missioners of public printing nor is it ordered through the supervisor of printing. The cost of printing the lists of automobile registration num- bers by the division of automobiles is not included, and there are other minor exceptions. ON ADMINISTRATIVE REORGANIZATION 153 RECOMMENDATIONS. 1. That the commissioners of public printing be abolished. The commissioners of public printing are an ex-ofificio commission which common experience shows does not function, and Ohio's experience confirms this judgment. The officials concerned have troubles of their own, and have not the time or energy to pass upon the large amount of detail with which they are charged on this commission. There is also a constant tendency to be exceedingly liberal in passing upon what should be printed by the departments represented on the commission, and be- sides the commission is open to constant pressure from the various de- partments for authorization for printing which may easily be yielded to for reasons of "courtesy" or politics. Furthermore the mere fact that so much supervisory power is placed in the hands of the commission leaves the only full-time man concerned with a feeling that he has no authority and discourages him from action looking toward savings. The appropriation control suggested in recom- mendation No. 8 will be much more effective in curbing extravagance and ill-advised publications than the commission could possibly be. 2. That the office of supervisor of public printing be abolished and all printing purchased through the central purchasing agent. The purchase of printing is a purchasing function and should be handled in the same fashion as are other commodities and services. There is no need for a separate organization for such a purpose. (See C. E. Rightor's report on Department of Finance.) 3. That the present law governing the purchase of printing service be amended in the following respects: (a) That the classification of printing be abolished. (b) That contracts be let for single jobs or groups of jobs at the discretion of the purchasing agent. (c) That biennial contracts be aJlowed but be no longer manda- tory. (d) That the procedure necessary for letting contracts be short- ened and simplified. The contract provisions that each class of printing with the exception of the seventh class must be let as a whole and for a period of two years results in neither the best prices nor the best service. It is quite probable that fairly low prices have been had under this law, and tying up a long term contract at times may be very advantageous, but at other times may may be equally disadvantageous. A prospective bidder figuring on such a contract tries to predict what his costs are going to be during the two year period, adds a profit, quite probably less than he usually adds, and a certain amount for insurance to cover the chance for error in his cost estimate. When industrial conditions and prices are abnormal, as at 154 REPORT OF JOINT LEGISLATIVE COMMITTEE present, he must bid high to discount possible rises in cost ; if costs are lowering he discounts that perhaps to some extent in his bid. Any price bid now for a two year period would of necessity contain a large margin for possible increase in cost. Furthermore the fact that a bidder for any class must either drop some of his commercial business or especially equip to handle this large volume of state busine'ss gives him a great advantage over other con- tractors after he has once secured a contract and is properly equipped. He can bid slightly lower than others and still make a much greater mar- gin of profit. When the contract is once secured by a contractor it is nearly impossible for anyone to get it away from him in the future. Every print shop has certain times when its regular business is slack and at such times it is willing to take printing at practically cost in order to operate to capacity. By letting printing contracts by the job it should be possible to have a large proportion of state printing done during these slack periods which will result in average lower prices to say nothing of greatly improved service. It is recognized that certain kinds of printing must, as a practical matter, be let as a whole but this should be left to the discretion of the purchasing agent and he held responsible for results. Perhaps the most serious feature of the present contractual pro- cedure is its effect upon service. The delays on certain kinds of printing are out of all reason. Exact data as to printer's delays is difificult to get on account of delays in the bindery which will be later discussed, and lack of proper reporting system by which the supervisor of public print- ing is furnished with the necessary data. There is no question, however, that the delays are serious. Annual reports from time of furnishing copy to printer to delivery take periods of i8 months. i2i^+months, 6 months, 5 + months, 43^ -f- months, etc. the plus sign indicating that such documents are still in the hands of the printer, or printer and binder. Bulletins and pamphlets take from 210 days to 151 days, Q2 days, 70 days, 59 days on down. The average for one department with bulletins 12 pages and under being 40 days. Stationery, forms, etc., take from 107 days, 60 days, 30 days, 20 days on down, the average in one department on all orders for a year being 27 days. The session laws for 1919 have been in the hands of the printer since June and were delivered in Novem- ber to the state bindery. This delay seriously inconveniences judges, lawyers and officials charged with law enforcement and the public gen- erally. One especially striking case is the list of automobile registration numbers which are printed for the information of police departments, sheriffs, etc., and which should be issued promptly to be of service or use. Although over 500,000 numbers have been issued in the present year the last number in lists published to November ist was 312,000. This is a very expensive jniblication consisting of an edition of 200 in 24 volumes at a cost of approximately $900 per volume or a total of 6n administrative reorganization 155 $21,600, and nearly half will be absolutely useless when published. Com- plaint is also made concerning the delays in printing bills and resolutions of the legislature. Annual reports delayed from 4 to 18 months are of little use, and such delays as occur in other kinds of printing are certainly an intense annoyance to the departments concerned. This delay in printing arises largely out of the letting of contracts for all the printing in one or more classes to the same firm. The con- tractor, although he may be already overloaded with state printing is given additional work as it may be ordered by state departments, and this simply means that work deemed of lesser importance must wait. It is quite possible that quicker action could be secured by bringing pressure to bear upon the printing contractors, but this will not be nearly so ef- fective as the change in the manner of handling contracts here proposed. 4. That it be made permissive and not mandatory for the state to furnish the paper to the printing contractors. Under certain conditions it iitay be advantageous to have the state buy and furnish the paper for printing, but under other conditions it may be equally disadvantageous. When the cost of carrying a paper stock of an average value of $30,000, the cost of space for storage, cost of store- room operation, and rehandling of paper stock, is taken into consideration the economy of the present method is open to grave question especially under average market conditions. The power to buy and furnish such paper is valuable but it should not be mandatory. 5. That if paper is purchased by the state, it shall be upon standard specifications instead of by sample. The wisdom of this step is evident to those with a knowledge of the paper business. The federal government has worked out such specifica- tions in much detail and they are available for the asking. 6. That a study be made of what minimum grade of paper will be satisfactory for certain purposes, and departments be compelled to adhere to the standards decided upon. Numerous instances could be cited in support of this recommenda- tion but a few will suffice to make the point clear. Most of the stationery for state departments is on 24 lb. stock. Twenty pound stock is con- sidered heavy enough for business stationery and this small change would save the state on this item alone nearly $800 per year. Instances of bid- ding blanks on expensive bond paper, forms on ledger stock, etc., are numerous. This could easily be corrected by the exercise of a little care and would result in a saving of thousands of dollars annually with no damage to any one. The use of standard stationery for inter-depart- mental correspondence should be stopped and a cheaper grade used for that purpose. 156 REPORT OF JOINT LEGISLATIVE COMMITTEE 7. That standard specifications be formulated by the purchasing agent for different kinds of printing and all work be performed under such specification. This is a simple thing to do and will greatly shorten and simplify the procedure in letting contracts. 8. That appropriations for printing, paper included, and binding be made to the several departments as are appropriations for other services, and requests for such appropriations be accompanied by detailed estimates to prove necessity. With but few exceptions appropriations for printing service are not made directly to the departments as for all other services nor is the amount appropriated based upon departmental estimates Lump sum appropriations are made for printing to the supervisor of public printing, $23,968.83 for 6,694,400 separate pieces or more than one for each man, for paper to the commissioners of public printing and in a few cases directly to departments. The appropriation for binding is simply an appropriation for operating the state bindery. This gives a "pot" con- taining $249,518 from which all departments can draw for printing and binding providing they have the permission of the commissioners of pub- lic printing. This is an exceedingly vicious condition as there is every reason why each department should try to get as much of this money as possible, as it does not appear in their reports as expenditures of their departments, and they are not answerable to the appropriating powers for such expenditures. The legislature is not given the necessary information under this scheme to be able to judge of the adequacy or .inadequacy of the ap- propriation for such purposes. For instance, the total expenditures for "flat work" that is, stationery, forms, small circulars, etc., during the last fiscal year was $93,397.66. The legislature should certainly be allowed to argue the question as to whether it is necessary for the board of agri- culture to spend $11,754.53 for flat work in one year, the division of vital statistics $6,723.49 or more than twice the expenditure of $3091.44 by the state department of health. The industrial commission spent $23,968.83 for 6,694,400 separate pieces or more than one for each man, woman and child in the state. The inspector of building and loan associ- ations spends for this class of work $191.08, the inspector of banks and banking $1624.96. Does the 83rd General Assembly realize that it has spent $43,874.83 on printing and paper exclusive of journals, copies of acts and the session law? It is not claimed here that these amounts are not necessary, but the appropriating officials should be informed as to their necessity. Would the governor have recommended or the legisla- ture granted such appropriations as al)ovc had they been given the op- portunity r The same is true of other classes of printing of which a few in- stances will be cited. The last annual report of inspector of building ON ADMINISTRATIVE REORGANIZATION 157 and loan associations cost $3,281.81, banks and banking $1,931.89, auditor $910.87, secretary of state $3,481.82, public instruction $1,288.03, Ohio^ general statistics $8,750.20, all these figures being exclusive of binding. As there is no cost system in the state bindery and as all binding for the state is done there it is impossible to give such cost for these reports. The responsible officials should look over these reports and decide whether they are worth the money. With this change some incentive to economy will be given departments, and more attention paid to the ne- cessity for expensive forms, embossed stationery, etc. As such expendi- tures will be charged directly against the departments there will be less tendency to get out reports for general publicity purposes which have no connection with the work of the departments such as "Ohio Interroga- tion Points," "Ohio Live Stock". The instances cited being valuable as reports but certainly not even remotely related to the duties of the auditor of state. 9. That all reports, bulletins, etc. be edited by am official editor in the office of the governor appointed to both criticise and suggest. This recommendation brings up the entire matter of state reports. Although some progress has been made in cutting down the size and numbers of state reports there is still a great amount of labor, paper and ink wasted on voluminous reports that convey but little information and are of little interest or value to the governor, the legislature or the public at large. This is particularly regrettable because of the vast amount of interesting and valuable work being done by state depart- ments which the public should know about and in which they would be interested but which is not printed. Any officer who is preparing a report should ask himself two questions, namely : Have I anything to tell ? and Can I tell it so that people will read it ? Unless these questions can be answered satisfactorily he had better not write a report. The reports of the auditor of state would indicate that he satisfactorily answers these questions as most of his reports are interesting and readable. The tendency to print pages of meaningless statistics for the apparent reason that they have always been published should be curtailed. The consolidated report of the state "The Ohio General Statistics" needs a very thorough editing. The information of general public interest contained therein could be condensed into a small fraction of the space now occupied and to be of value the information should be in a form more easily and pleasantly digested by the average citizen. Graph- ical diagrams to convey statistical facts are far more illuminating to the lay mind than are tables of figures. A little careful study with a view to having this report convey to the public a picture of the results of an administration's stewardship would turn a book which is a burden on the hands of those charged with its distribution into a medium of real value. One quarter of the money spent on publication, expended upon a report 15^ REPORT OF JOINT LEGISLATIVE COMMITTEE of the character suggested above, would be of much more value to the state. As a means of discouraging intelligent interest in state government "The Ohio General Statistics" is a masterpiece. (Edition 12,000 copies.) There is still considerable duplication in matter reported in various state reports and a large saving can be made if intelligent study is con- centrated on the problem. This recommendation contemplates the appointment of an editor who knows a news story when he sees it, and he should be charged with allowing no unintelligible report to escape to the public. 10. That an up-to-date multigraph and mimeograph shop be installed in connection with the printing of stationery, forms, legis- lative bills, automobile registration lists, and psunphlets, and lists in small editions within the limit of the equipment. A large amount of printed matter needed by the state is in small editions of less than 1000 copies. No printing set-up can be economical for such purposes. Legislative bills are issued in editions of 600 copies, the "enrolling copies" in editions of six. The six "enrolling copies" of the acts passed by the present General Assembly up to their recess cost, in round figures, $5,000. This work can be done more cheaply and more quickly by means of multigraph than it can be printed. Stationery and many standard forms can also be printed on a multigraph with savings of from 40 to 60%. On "flat work" alone a properly equipped multi- graph shop would save from $20,000 to $30,000 annually with equal results and much greater expedition. The lists of automobile registra- tion numbers could be made promptly with such equipment at a saving of $12,000 annually. Such equipment would cost over $4,000. Certain lists, form letters, trial forms, etc., can be made with great economy on a mimeograph and the cost of such equipment would be a few hundred dollars. The state purchasing department of Wisconsin made such installation as suggested above and reports a saving of $97,000 the first four years, so it is believed that the figures of savings given above are conservative. 11. That a system of checking be installed so that the purchas- ing agent has the necessary information to check quantities and dates of delivery to bindery and departments. There is no such system now. The supervisor of public printing sends an order to the printing contractor. He hears no more about it until the bill is presented or a department complains about delivery. The bindery is not informed of the order to the printer and never knows what is on the way except by accident. When delivery is made to the bindery no report of quantity or condition is made to any one. No report is made by a department on final delivery. It is hard to conceive how the supervisor of public printing can intelligently audit bills under such conditions. One very simple form would correct at once this loose method of doing business. ON ADMINISTRATIVE REORGANIZATION 159 12. That the state bindery be either properly and decently housed or else be abandoned. The state bindery is housed in three floors and a small basement of a building in the rear of the Grand Theatre Building on State street next to the City Building, for which the state pays $4,000 per year. This building is entirely unfitted for the work to be performed, is a fire trap and insanitary. Its structural features are so bad that the machinery has to be placed where the floor will hold it and not where convenience dictates. The floors sag, the structural connections are lessons in how not to frame a building. The toilets are filthy, the women's rest room must be seen to be appreciated. A large part of the wiring is open cleat work, the transformers are in a chamber at the foot of the elevator shaft where they will cause the maximum amount of damage should electrical trouble occur. The only fire escape is beside the elevator where it stands the best chance of being useless in a fire. The state of Ohio has passed many forward looking laws concern- ing the conditions under which persons shali labor, and yet requires its employes to work under conditions for which its own inspectors would severly censure a private owner. Outside of these conditions it is not possible to arrange the ma- chinery to do the work of the state efficiently in the present quarters. The bindery is apparently doing better than might be expected under most discouraging physical handicaps. Serious delays now occur in getting work done, and if service is desired this department should be housed in a proper building and properly equipped for the work with which it is charged. 13. That a cost system be installed in the bindery and sufficient help given to operate same. The necessity for this is obvious. 14. That the appropriation for operation of the bindery be made in the form of a rotary fund, that the department be billed for the work done and the fund reimbursed in that manner. The result of the present inflexibile appropriation is shown in the inability to give service. It is perfectly evident that in a function of this /<:ind the funds for operating should depend upon the amount of work to be done. At present the bindery is snowed under, a number of depart- ments clamoring for deliveries, and the bindery cannot add an employee or work over time in order to give the service desired. The attention of the legislature is called to the fact that another biennial contract will be let in November, 1920, and the suggested statutory changes herein recommended should therefore be made before that time so that full advantage may be gained- therefrom. COMMISSIONER OF SECURITIES By GAYLORD C. CUMMIN Sec. 744-14 of the General Code provides: "The commissioner of securities shall execute all the laws enacted to regulate the sale of bonds, stocks and other securities and of real estate not located in Ohio and to prevent fraud in such sales, heretofore executed by the superintendent of banks ; and shall also execute all laws enacted to regulate the loaning of money without security on personal property * * * heretofore executed by the superintendent of banks." * * * "The 'Blue Sky' Law has two important functions : First — The licensing of all individuals, co-partnerships or corpora- tions dealing in securities (the law defining securities as stock, stock certificates, bonds, debentures, collateral trust certificates or other similar instruments evidencing title to, or interest in, property) or real estate located outside of Ohio. To secure a license, the applicant must be of good business repute and submit references and other information to the commissioner to establish this fact. The department also has au- thority at any time to examine the books and records of any hcensee to determine whether or not the business is being properly conducted. Second — Any securities, and real estate, located outside of the state, offered for sale, must be approved by the commissioner before being sold or even offered for sale within the state. However, the statute contains broad and varied exemptions as to securities, and these exemp- tions preclude any possibility of hampering stable commercial business. After approval, a certificate of corporate compliance is issued. To obtain this Certificate, very complete information must be filed with the department by the applicant, including copy of articles of incorpora- tion certified by the officers of the particular state or province granting same, rules, regulations and by-laws, method of operation, financial condition, complete description of all property, both tangible and in- tangible, salaries to be paid officers, amount of stock given for promotion, organization, patents, formulas, trademarks, etc., and the terms upon which the stock is to be sold, as well as certified copies of all contracts relative to carrying on the business." (Report of Commissioner of Securities, 1918) DIVISION OF CHATTLE LOANS. 'Iliis division administers the "Lloyd Act" regulating cliattle loans. Sec. 6346-1 of the General Code provides: "It shall be unlawful for any person, firm. i)artncrship. association or corporation to engage 160 ON ADMINISTRATIVE REORGANIZATION l6[ or continue in the business of making loans on plain, endorsed, or guaranteed notes or due bills or otherwise, or upon the mortgage or pledge of chattels or personal property of any kind, or of purchasing or making loans on salaries or wage earnings, or of furnishing guarantee or security in connection with any loan or purchase as aforesaid at a charge or rate of interest in excess of eight percentum per annum in- cluding all charges without first having obtained a license so to do from the commissioner of securities and otherwise complying with the pro- visions of this chapter. Sec. 6346-4 of the General Code provides that investigation shall be made of business of every licensee at least once a year to see whether said licensee is complying with this act. Sec. 6346-5 of the General Code fixes maximum interest and fee charges allowed. Interviews were had with the commissioner and various employees as well as citizens who had had business relations with the department either as complainants or petitioners ; reports etc. were consulted. The department seems to be making good progress toward giving the public protection and unquestionably has saved investors from con- siderable losses. The reports of inspections seem to be workman-like and as thorough as could be expected from the time that the inspector is able to give to one report. This department is one of the few of its kind that makes examinations of corporate property outside the state and it can easily be seen that the recent growth in the number of oil companies in Texas, Louisiana, Oklahoma, etc. adds greatly to the de- mands upon the time of the inspectors. One result of the small number of inspectors is that the commissioner himself does some inspection. This is regrettable as it prevents him giving full attention to deciding important matters and supervising the operation of the department. No fault is found with the amount of work he is doing. In fact he is trying to do what about three men should do. This is not fair to the man, the department or the public, and conditions that make it necessary should be corrected. RECOMMENDATIONS. 1. That the commissioner of securities be made part of the same department that issues papers of incorporation and that he be appointed for an indeterminate term by the di- rector of said department. This is not only logical but would be of mutual advantage, and give better service to the public. Persons desiring to in- corporate must now go to the secretary of state and after complying with the required formalities are issued a charter. They can sell no securities until given permission by the commissioner of securities, who is not even in the l62 KErOKT OF JOINT LEGISLATIVE COMMITTEE State house which fact leads to possible misunderstanding, loss of time and effort on the part of the citizen. 2. That the commissioner of securities be provided with suf- ficient inspectors to properly perform his function. This department is more than self-supporting and expects this year to net the state about $40,000.00, and yet has so few inspectors that they are now weeks behind. The inspec- tions, per inspector average five and one-half per week, which is more than can be made properly. At present everyone in the department who is capable of doing so, including the commissioner, is making inspections. The result is delay and an inferior quality of work from lack of time. This condition is apparently partly due to the commissioner not foreseeing the growth of the department when making his budget request. As the income of this department is proportional to the work coming to it, some form of a rotary fund would solve this problem. In any event relief should be promptly given. 3. That newspapers, etc., be required to submit to the depart- ment for approval copy of proposed advertisements of se- curities and real estate located outside the state. The department should have a close check on such advertising. It should have power to prevent not only mistatements of fact but misleading statements if it is to protect the public adequately. It should be noted that a statute giving such powers should be so drafted that exception is made of lots in adjoining states, to relieve newspapers in border cities of undue hardship. 4. That a special examiner be provided to cover illegsd adver- tising, circular letters, etc., and to check up the compliance of holders of certificates with conditions imposed by the department. Tliis has already been reconiniended by the department and is a necessity if such work is to be properly performed. 5. TTiat inspectors be provided to run down unauthorized per- sons selling securities not appi*^ ved by the department, espe- cially among the foreign population of the cities. This is a much needed phase of the protective work that should be done by this department, and is not being attempted because of lack of help. At present such sales are only called to the attention of the department after the damage is done. It is understood that considerable losses have ON ADMINISTRATIVE REORGANIZATION 163 occurred especially among the foreign speaking population of our cities. 6. That a study be made of the department to see whether forms cannot be devised that will shorten the present large amount of clerical work. It is believed that such a study might be productive of results but it should be made with care. The form habit is very dangerous and liable to become a burden to real work. This result should be avoided. 7. That the chattel loan division be placed in the department charged with control of corporations. This function has nothing to do with securities but properly belongs to the department dealing with corporations and with other financial inspectional services. 8. That the division of chattel loans be given statutory control over pawn shops and pawnbrokers. A function charged with control of chattel loans without con- trol over pawnshops is an anomaly. A proper statute con- trolling and regulating pawn shops would be of advantage to both public and owner. At present such regulation is by local ordinance. The pawn shops of Cleveland have come voluntarily under control of this department and it is understood that pawnshops in other cities are contemplating a similar step. 9. That the suggestions made in the 1918 report of this division be seriously considered and if possible covered by statute. These suggestions are as follows : 1 . Limit size of loan to one borrower. 2. Control of pawnshops and pawnbrokers (see No. 8 above). 3. Change in interest charges and inspection fees. 4. Give power to refuse license for cause. 5. Explicit definition of "office," of "place of business." 6. Reduction in percentage of salary and wage earnings to be assigned. 7. Provision for submission of advertisements and cir- culars to the division for approval. 8. Possible regulation of installment houses. The reasons given in the report are sufficient to justify serious consideration of the proposals. STATE INSURANCE DEPARTMENT Prepared Under the Direction of By DR. L. D. UPSON By C. E. RIGHTOR The survey of the insurance department was made through confer- ences, with the superintendent of insurance and his subordinates, review of the procedure of the office and report blanks, examination of the statutes affecting .the superintendent of insurance, and of the annual reports prepared by that official. ORGANIZATION. The department is under the direction of the superintendent of in- surance, who is apointed by the governor with the advice and consent of the senate, for a three-year term. The superintendent may appoint a deputy superintendent, with the same qualifications as his own, with power to perform the duties of the superintendent in case of his absence or disability. He shall also appoint a warden, and may employ, with the approval of the governor, an actuary and such clerks and examiners as the business requires. The superintendent, with the approval of the governor, fixes their compensation. The duties of the superintendent, by Section 617 et seq. of the General Code, are to "see that the laws relating to insurance are duly exercised and enforced". In event of violation, he shall cause the sus- pected person to be arrested, furnishing the proper prosecuting attorney with the information. He may examine the affairs of any insurance company doing business in the state, and have access to its papers, books and documents ; issue and revoke licenses to do insurance business ; re- quire deficient companies to discontinue business and defaulting com- panies to be dissolved, taking charge of the same if necessary; and evaluate policies of all life insurance companies annually. Every insur- ance company must furnish the department annually with sworn state- ments as to its assets, liabilities, profits, losses, etc., on forms prescribed by the superintendent ; and the superintendent shall prepare an annual rejiort as to the general conduct and condition of each compajiy. com- piling a separate report for life insurance companies, and another for companies other than life. i^»4 ON ADM (NISTKATLVK KI-:( >Kt ;A N J/.ATK UN 165 The superintendent has at jn-esent the following- organization : I deputy superintendent I chief examiner I actuary I statistician 1 hcense clerk 5 examiners 5 assistant examiners 4 assistant actuaries 2 assistant statisticians 3 stenographers 7 clerks (4, part time^ The examiners and assistant examiners constitute the field force, making examinations of companies and preparing reports on same, under the direction of the chief examiner. During two months of the year they examine the annual reports of companies, at the department offices The actuary does the work designated by his title, and the statistician compiles the figures from the annual reports, and other data required by the department; the bookkeeper keeps accounting records, — as to fees charged companies, collections of same, payrolls, requisitions, etc. He also keeps the accounts of securities of insurance companies, amount- mg to nearly $13,000,000 and pays the premium on his own surety bond of $10,000 in this connection. License clerks issue certificates of com- pliance to companies, and licenses to agents, solicitors and brokers. The deputy superintendent performs the legal work of the department, and makes preliminary examinations. EXPENSES OF THE DEPARTMENT. The expenses of the superintendent and assistants are paid from the general revenue fund of the state, as appropriated therefor. Expenses of examinations are paid by the state, except that if the examination is made upon application of an insurance company the expenses are paid by such company. The retaliatory provision prevails for companies of other states. The expenses of conducting the department for the year ending June 13, 1919, were approximately $52,000. INCOME FROM INSURANCE COMPANIES. The superintendent of insurance collects from each insurance com- pany doing busines in the state fees for filing a copy of its chartei. statements, and other papers ; for the issuance of licenses ; and from each life insurance company, for the annual valuation of its policies; the schedule of these fees is fixed by Section 657. Section 661 provides for the collection of a fee for each license and renewal issued. At the time l66 Klil'OUT OF JOINT I.licaSLATIVE COMMITTEE of filing each annual statement of gross premiums charged for msurancc placed (less return premiums), each company pays to the superintendent a tax of 5% of such net premiums (Sec. 664). A tax of 5% of gross premiums is colected by the superintendent on all unauthorized insurance written in the state. (Sec. 664-1). To maintain the department of state fire marshal, each fire insurance company doing business in the state pays a tax of one-half of one per cent on gross premium receipts, (after deducting return premiums and reinsurance), as provided by section 841, such income being placed to the credit of a special fund for the maintenance of that office. The superintendent computes a tax of 2><% of the net premiums (gross premiums less returns and reinsurances) of all insurance com- panies incorporated by the authority of another state or government, as shown by the annual statement of the company; this income is paid by the company to the treasurer of the state, and the amount credited to the general revenue fund of the state (Sec. 5433). The total income to the state from the foregoing fees and taxes for the year ending December 31, 1918, (the last figures available) was as follows : Fire marshal's tax, i of 1% (collected by state treasurer) $115,336 Taxes on foreign insurance companies, 2J% of net prem- iums (collected by state treasurer) 2 , 133 , 581 Fees of insurance companies for conducting business, fil- ing statements, charters, issuance of licenses, ex- aminations , etc 15^1 , 179 Tax of 5% on unauthorized insurance 10,071 Total $2,450,167 The insurance business is one of the largest sources of income to the state. EXTENT OF INSUR-^NCE BUSINESS. The department supervises the business of 696 insurance companies, of which 513 are other than life companies, and 183 are life, fraternal and assessment companies giving accident and sick benefit insurance. During the year 1918', the 183 life, fraternal, and accident companies had in force 4,203,000 policies, with an insurance value of $2,324,000,000. Net premiums paid these companies by policy holders during the year amounted to v$58,7 17,000, and losses paid to policy holders amounted to $30,786,000. Of other than life insurance, 199 stock fire and marine companies, 145 assessment fire and miscellaneous associations, 72 mutual fire, and 97 miscellaneous companies, wrote risks in Ohio during the year 1918 amounting to $3,905,859,000; policy holders paid $56,742,000, and re- ceived $26,617,000. The t()ta\ rif.ks in force at the close of the year ON ADMINISTRATIVE REORGANIZATION 167 1918, therefore, for all insurance companies, amounted to $6,880,000,000; policy holders paying to the companies $122,000,000 and receiving $57,000,000. These figures make apparent the extent of insurance, and emphasize the direct concern of every citizen in the proper regulation and conduct of this class of business. To show the relative importance of Ohio with several other states, in the extent of insurance and state regulation of same, the following figures were prepared by the superintendent of insurance : i68 KEl'OKT OF JOINT LEGISLATIVE COMMITTEE lUOJI 3UIOD g ^ f g g -uj o} sasuad -xg i.daj CO c^ -t< lo S:^' JO ?U3DJ3cl atuoDuj [Biox ^ fe^ ^ ^ 01 sasuad S ^ -xa i.daQ ci 00 ■rt< i?j JO ;U3DJ3d ! CO 00 1 •rf t- •;.d9a aDUBjnsuj JO o> t- co^ '^f* jlO 1 g g § ^ lo i sasuadxg l^joj^ 1 ■0 c Tf ^ > CO Ci ■^ 31UO0U1 IT^JOJ^ 5 'Sj ^" ^ i- CO ! S3XBX o-i 'So t-^ 10 lUOJJ 9UIO0UT §- § ^ ""^ ci oa <-, CM '^ snoauEi Se § s § 00 oc § i § 1 Uio'jJ 31UODUJ ^ ^ ^ ^-, o> c o> > g" s aDJOj ui "So sJisjH JO ani^A ^ g g § ■^ :z, Ci" lO t-" t>- (M c- (M «« c Vl,d3Q 3DUB OJ -jnsiq aqj Xq -^ ^ S So ^ apEiu SUOIJB "^ *^ -UIIUBX3 JO 'O^ snoauEi -posij^ '3Jia s ^ 01 2^ 00 'ajn 'saiuEd o t- Ci CO -IU03 JO ojsi tl ^ 'E V 3 rt -C ^ >-i t/) 'c c ON ADMINISTRATIVE REORGANIZATION 169 It will be apparent that a business of this magnitude and diversity requires close and continuous supervision by the state. The law provides (Sec. 625) that the superintendent may "examine the affairs of any in- surance company doing business in the state", and that he shall make •'each year an examination of the assets of every life insurance com- pany organized under the laws of this state". He may publish the result of such investigation, and may requisition any bank for information relative to the financial transactions of any insurance company. The department endeavors to examine Ohio fire insurance companies once every two years. There are eleven ordinary life, five assessment life, and nineteen fraternal life insurance companies organized under the Ohio laws, and requiring annual examination. There are also 25 mutual fire, 139 assessment fire, 9 stock fire, and 24 miscellaneous insurance companies other than life, organized under the Ohio laws, which may be examined at the discretion of the superintendent. For companies organized under other state laws, it is customary for the department to accept the examination of the home state department, except under un- usual conditions. It is found possible to make only the statutory examination of the larger life insurance companies of the state, due to the limited number of examiners and comprehensiveness of a thoroughgoing investigation; the examiners work in pairs throughout the state as required. During the year 1918 36 examinations were made, and for 1919 it was hoped at the time the survey was being made (November) to exceed this number somewhat. The department cannot make the necessary number of examinations, nor make them complete, because of insufficient staff. The interests of the public cannot be best ser^^ed under these conditions. Further, the com- panies are handicapped through the lack of examinations, as in some cases they cannot secure a certificate of authority from other states to transact business without being able to present a copy of the state super- intendent's examination bearing a recent date. It is also stated that in the issuance of licenses the department is from four to six months in arrears each year, due to the volume of this work and insufficient clerical assistance. While the qualifications for examiners as established by the civil service commission are sufficiently high, it is difficult to obtain an eligible list because of low compensation. Montgomery, in his "Auditing Theory and Practice" has written as follows: "The examinations made by the state insurance commis- sioners are similar in purpose to examinations of banking insti- tutions made by the national and state governments. The chief ends sought in these examinations are to ascertain whether or not the company is solvent and to prevent any violation of the insurance laws. lyO REPORT OF JOINT LEGISLATIVE COMMITTEE "As it is to be expected, the state examinations vary con- siderably as to the efficiency with which they are conducted. It is not to be wondered at if the staff of the department, whose members may have been recruited largely through the medium of political appointments, does not possess technical ability or experience of a very high order." The report fomis used by the department are the recently revised and standard forms adopted by the National Association of Insurance Commissioners, and make available to the department all pertinent in formation relative to the business and soundness of each insurance company. As with the department of banks and department of building and loan associations, one of the most important functions of the insurance department is the work done on behalf of the public as policyholders and stockholders, as well as for the benefit of the insurance business as a whole. An accurate knowledge of the condition of any company is re- vealed in the departmental examination and annual reports, together with the follow-up correspondence which this gives rise to, and as a result of the information thus obtained, the department gives special attention to the companies experiencing financial difficulties, or conduct- ing their affairs in a questionable manner. RECOMMENDATIONS. 1 — That the insurance department be transferred to the pro- posed department of trade and commerce. At present the department is an independent unit of the state government, the superintendent reporting directly to the governor. The function performed by the department is regulatory, and is coordinate with the work of the department of banks, department of building and loan associations, and other activities. It is believed that the best results in admin- istration of the state government as an entity may be obtained only by establishing organization units on a functional basis, and placing each department under the direction of a single responsible official appointed by the governor. The advantages which might accrue from such reorgan- ization, both in economy and in efficiency of administration, are discussed more fully in the report on "Department of Banks" under recommendation Number i. 2 — That, as a separate bureau of the department of trade and commerce, the internal organization remain substantially as at present. ON ADMINISTRATIVE REORGANIZATION I7I It is believed that the superintendent of insurance should be appointed by the director of the department of trade and commerce, subject to civil service regulations. Continuity of policy in administration of the affairs of the department would be more secure under such plans than at present, when the superintendent is liable to removal with each change in admin- istration (subject only to the expiration of his term of ap- pointment) . It is not contemplated that the staff doing insurance work would be combined with or absorbed by that of any other bureau of the department of trade and commerce, except pos- sibly as to certain clerical service. 3 — That the organization be established upon a basis which will better enable it to function in accord with the duties and responsibilities placed upon it. Additional appropriations are needed to employ requisite number of examiners and assistants. There is nothing in the law to indicate that the income accruing on account of fees, licenses, excise taxes or any other source of revenue charged or collected by the insurance department should be available for the purposes of operating the department. It is possible, however, that in fixing a schedule of fees to be paid by insurance companies it ,was the intention of the framers of the law to provide and insure ample funds to maintain the department. Under present con- ditions, the appropriations for the activity are less than one- third the amount of income from fees received from the com- panies. Comparative statistics indicate that the legislative al- lowance for this department has not kept pace with the ex- pansion of the insurance business done within the state. With funds being received directly from the insurance companies, there is every reason to afford the citizens of the state every reasonable protection in the vast business of in- surance, and likewise, to protect the companies themselves. 4 — That the annual report of the superintendent include a statement of the activities of the department. This report should show the extent of services being per- formed for the public by the department,! with particular em- phasis on the preventive work with companies. It should also include general recommendations by the superintendent, based upon his experience during the year. The value of such report to the governor for administra- tive purposes, to the general assembly in determining upon ap- propriations, and to the public for informative purposes, will be apparent. THE SUPERINTENDENT OF BANKS AND BANKING Prepared Under the Direction of DR. L. D. UPSON By C. E. RIGHTOR SOURCES The survey of this department was made through conferences with the Superintendent, Mr. PhiHp C. Berg, and Assistant Superintendent, Mr. Elmer J. Obendorfer, both since resigned; also by examination of the general procedure of the office, review of the statutes affecting the department, and of the annual reports of the superintendent. DUTIES AND EXPENSES OF OPERATION A new state banking code, which became effective July ii, 1919. regulates the activities of the department. This code is a recodification of the Ohio banking laws, and represents the efforts of a committee appointed by the Ohio Bankers Association which worked in conjunction with the ofificers of this department, and it embodies recommendations made by several former superintendents, as a result of their experience, as well as of bankers both within and outside the state. By section 710 of the General Code, the superintendent of banking is required to examine the aft'airs and accounts of each bank at least once each year; to order four reports each year from every bank; to submit to the governor annually a summary of the condition of each bank, as to its capital, debts, deposits, etc. ; to prevent unauthorized banking and the establishment of new private banks ; to liquidate insolvent banks ; and regulate the investments of banks. The work of the department is under the direction of the superin- tendent, who is appointed by the governor with the advice and consent of the senate, for a four-year term. The superintendent may employ assistants, clerks and examiners, and l\x their salaries. At present the staff is as follows: I assistant superintendent, I ittorney-examincr, I chief examiner, 10 examiners, 172 ON ADM INISIKATIXI': Ki -DKCAN IZATloN 173 3 assistant examiners, I secretary, I bookkeeper, I statistician, 3 stenographers. The phase of work done by each is indicated in the title of position. The examiners and assistant examiners constitute the field force, making examinations of banks and preparing reports on same. The assistant superintendent and chief examiner review these reports and conduct the necessary follow-up correspondence on them. The assistant super- intendent and attorney-examiner make preliminary investigations of proposed banks. The statistician compiles the several call statements and the annual reports of banks. The cost of operation of the department is borne by fees paid by the banks, at a rate fixed by statute. Expenses of preliminary and special examinations are additional assessments. The new code provides that the fund raised by assessment of banks shall be used only for the maintenance of the banking department, and not as a source of general revenue to the state. GENERAL COMMENT The new code is considered a modern and model law, and its en- forcement by the superintendent affords the citizens every reasonable protection in their relations with any kind of bank. Prospective banks must submit their plans, and receive the approval of the superintendent before beginning business, and his findings are subject to review by the governor^- attorney general and superintendent of banks. All banks must submit to periodic examinations, and every phase of their business is open to review by the department. The amount of capital, and the nature of loans and investments, are regulated by law, the responsibility of directors is covered, the forms of books and accounts may be pre- scribed, and other features not only safeguard the public but protect the banks in all legitimate matters. Commercial banks, savings banks, and trust companies are all under the control of the department, as are also unincorporated Sanks and dealers in foreign exchange. The examiner's report forms, for banks and for trust departments are unusually complete,, having been revised in the light of the best ex- perience in Ohio and other states, and make available to the department an ample knowledge of actual conditions in the bank at the time of examination. The field examiners apparenth" make every effort to have their reports complete. The report of the superintendent for the year ending June 30, 1919, discloses that there are 612 incorporated banks in Ohio, with re- sources of $1,158,000,000, and 169 unincorporated banks with $52,000,- 174 REPORT OF JOINT LF.GISLATIVE COMMITTEE GOO of resources. There are also 369 national banks, with total resources of slightly over $1,000,000,006, or less than that of the state banks. The department, during the year ending June 30, 1919, made 1,012 examinations, as follows : First 782 Second 125 Branch Banks 76 Special 14 Preliminary 15 Total 1 ,012 It will be appreciated that an important feature of the regulatory service of the department is the prevention of irregularities and the remedy of faulty conditions before losses are incurred by the depositors and stockholders. Extensive correspondence arises in this connection, and is followed when necessary with extra examinations, frequent re- ports, and personal conferences by the superintendent, the assistant superintendent or the chief examiner. Legal questions are referred to the attorney-examiner. The success of this phase of the work is measured in part by the number of failures and liquidations, altho in large measure its function is negative — the prevention of irregularities. Since 1910 there have been 13 l)ank failures, one of which occurred during the year ending June 30. Kjii;. ( )f this number 8 are now in process of li(|uidation, so that the exact loss to depositors is not ascertainable. It may be stated that the department cannot be held responsible for these failures, even though an examination of the institution is made at least once a year. In some cases, even the boards of directors and officers are not vigilant enough to detect such irregularities as forged signatures, etc., which it is be- yond the duty of the banking department to detect. Montgomery', in his "Auditing Theory and Practice", states : "Government examiners should not be too sharply criti- cized for their failure to detect such conditions (defalcations), as the time allowed for separate examinations, is limited, and it is physically impossible for them to make thorough audits with- in time available. Again, it must be remembered that the chief object of these examiners is to ascertain that the banks are solvent and are complying with the law. Some degree of pro- tection is afforded depositors by these examinations, but the ex- aminers do not represent the stockholders or directors, and the directors should not regard the work of the examiners as being done for their benefit. "Official examiners recognize this state of affairs and are making a determined effort to improve the unsatisfactory con- ditions which exist." ON ADMINISTRATIVE REORGANIZATION 1/5 RECOMMENDATIONS It is recommended — ■ 1 — That the department of banking be transferred to the proposed department of trade and commerce. It is believed that such reorganization would strengthen the general organization of the state government, and would interfere in no wise with the conduct of the service. The regulation of banks is but one of several regulatory activities being undertaken by the state, and it is believed that all of these services should be placed under the direction of a single administrative officer, to be appointed by the governor. The consolidation into one administrative office of the several regulatory services now located in different buildings in Columbus would be of advantage economically. Certain overhead costs should be reduced, — as rent, use of office space and equipment, telephones, libraries, and works of refer- ence, etc. Possible reduction of office staff might be effected, and at least it would be possible to provide for their employ- ment on the work of the several bureaus, dependent upon seasonal or orher fluctuation of the work. The several officials of regulatory activities now refer matters only occasionally to the governor, except by an annual report. They operate largely as independent units, without regard or concern for other services. There is even the pos- sibility of their contact with the state becoming so occasional that the tendency is to feel themselves employed by their par- ticular class of business, instead of the state. With one offi- cial in charge of all such services, it is beheved the state's interest would be best maintained under all conditions. 2 — That as a separate bureau of the department of trade and conunerce, the same organization be continued as at pres- ent. The hne of authority within the department at present is satisfactory. The superintendent of banks should be named by the director of trade and commerce, subject to civil service regulations. With the present short term of the chief execu- tive, and the consequent probability of frequent change with administrations of appointive department heads, the advantages of placing this important position upon a certain degree of permanency of tenure will be obvious. 3 — That the income from fees levied by the department be placed in the general fund. It is believed that it is no longer necessary in state gov- ernment to attempt to set up for each department or special Ij6 RF.i'OKT OF JOINT LEGISLATINE COMMJTTEE service a -eijarate fund. It would apiKVir that there cannoi possibly be any objection to the money received from fees going into the general or current operating fund of the state, and disbursements for the service being made from the gen- eral fund, provided only that a separate accounting be had of such income and disbursements for the specific service. It is contemplated that the director of finance will establish the necessary system of accounts for this and every other office of the government. Once the general assembly recognizes the necessity for the state to undertake the regulation of banks, it is of little con- sequence whether the fees levied result in a surplus or deficit during any year. There is no reason for prohibiting the use of any excess in conducting other state work; neither is it mandatory on the department to be self-supporting. The ex- tent and quality of the service properly to be performed, and its cost, should govern appropriations. Present conditions indicate that there is not sufficient appropriation, and salaries are inadequate, to permit the department to function on the best basis, i^r the year ending June 30, 1919, the income of the department was $95,000, and expenses were $72,000. Additional appropriation would enable the superintendent to exercise his judgment more fully in making examinations. It is possible that two examinations of bank's should be made annually in a great many cases. The resignations of eleven employes during the past few months, out of an entire staiY of twenty-three, indicates that the compensation is not sufficient for the kind of work required to be done. While public office is commonly considered as a training field for citizens who may desire to go into private business later, compensation and working conditions should be on a scale that the service is not impaired through wholesale and continued change of personnel. Readjustment of these matters would result in the in- come of the department l)eing more nearly exhausted each year in operating the de]crniit sufficient examining and follow-up, due to ex- ON ADMINISTRATIVE REORGANIZATION lol pansion of associations, while the increase in staff has not kept pace. 4 — That the inspector include in his annual report a concise statement of the preventive work done. As with the supervision of banks, (q. v.) one of the most important features of the activity of the department is the failures and losses it prevents, through aggressive action taken when reports indicate a weakened condition in any association. This activity is of such importance to the public, and requires so much time and intelligent effort on the part of the inspector and his assistants, a record of it should be made. Thus the governor, and ultimately the public, would be better apprised of the nature and value of the sei-vice. Such information also . would be of value to the legislative body, aiding them to de- termine upon adequate appropriation for the service. 5 — That the feasibility of combining the staff of examiners for banks and building and loan associations be considered by the proper administrative officials under the proposed re- organization. While it is agreed that the two classes of financial insti- tutions are different, it is believed the examination is so similar in nature that the same examiner could, ordinarily, qualify for either kind of examination. Fxonomy in traveling and other expenses should result under this plan, allow greater shifting of men when necessary, and yet not impair the quality of work done. ORGANIZATION Inspector of Bidldiny and Loan Associations Charged by law (G. C. 674, et seq.) with duty of enforcing the laws regulating the operations of building and loan associations, (G. C. 9643, et seq.) Has general supervision over all work in connection therewith. Chief Clerk Supervises the detailed work of the office, handles general cor- respondence, checks and analyzes reports of examination submitted by examiners, issues to the association examined letter of directions or any instructions, which, after approval and signature of the inspector, is transmitted to the association for adjustment. Checks replies to such letters to ascertain that compliance has been had. Examines constitutions and by-laws submitted by newly incorporated associations, making any necessary suggestions required to place same in proper shape; maintain- detailed records of assignment of examiners and examinations made, in- l82 REPORT OF JOINT LEGISLATIVE COMMITTEE corporations, miscellaneous data, etc., and handles various matters which arise from time to time. Accountant (Auditor) (Grade II) Most important function is auditing of annual reports as filed by the different associations throughout the year, checking same against reports previously filed to determine correctness of report last submitted, and pointing out any existing discrepancies necessary to be adjusted in order to place report in proper balance, (which must be done before report is accepted and filed.) Receives fees paid thereon (G. C. 691), keeps record of filing of reports and fees paid, depositing same with treasurer of state when report is ready for acceptance, and handles financial matters, pay- roll, requisitions, vouchers, etc., subject to approval. Maintains record of expenditures in prescribed form. Statistician Makes abstract of financial statement of annual report of each as- sociation filed during the year, assembles statistical tables for record and publication, and performs duties of mailing clerk and such others as are from time to time assigned. Correspondence Clerk Handles telephones, makes typewritten copies of examination reports (approximately 700 per annum,) performs duties of file clerk, and such others as may from time to time be required. Does stenographic work. Deputy Inspector, Assistant Deputy, Examiners These constitute the field force, and are engaged throughout the year in making examinations of the building and loan associations in the state. Following the examination, in each instance where the result of same indicates such procedure proper, holds meetings with the association's board of directors for puri)ose of presenting such matters as he deems necessary, and submits detailed report of examination and action taken in connection therewith. In addition to the foregoing outline, additional work is performed from time to time as deemed necessary or advisable. This includes as- sisting in getting out annual report, reading proof thereof, and. in brief, in doing those things which tend to make the work of supervision and regulation ]>rocced expeditiously and effectively. Co]>y of building and liKiii laws, copy of blank annual report, a.-; re(|uircd to be filed with department by building and loan associations. and copy of examination blank report, as used by examiners in reporting to department, herewith submitted. STATE DEPARTMENT OF HEALTH AND STATE SANITORIUM FOR TUBERCULOSIS By WILLIAM H. ALLEN STATE DEPARTMENT OF HEALTH The same legislature which created the Joint Legislative Comniittee for Administrative Reorganization passed an act for the reorganization of the health service. This new act, called the Hughes Act, provides for joint support and joint control of county or special district health service which should place Ohio second to no other state in its provisions for health work. From the standpoint of organization this new plan should be thoroughly tried out before Ohio embarks upon a new venture or forces upon the department the organization of new services. The present health commissioner understands health needs. He is securing the co- operation of professional men of the state and should be unhampered and unqualifiedly supported during the organization of this new state-wide service and supervision. For the commissioner's own suggestions see his letter to. your committee, page 8. Four exceptions are suggested for the double reason of relieving other departments of services which do not belong to them and will not be properly attended to by them, and of giving to the health department duties that are already being discharged elsewhere but belong properly to it and that will easily fit at once into the new health law. It is recommended that four services be transferred to the department of health as follows : 1 — The bureau of vital statistics from the secretary of state. 2 — Inspection of hotels from the fire marshal. 3 — Food and dairy division from the department of agriculture. See separate report. 4 — Responsibility for printing from the printing commission, re- garding which your committee has already issued a special report by G. C. Cummin of our office. Among the needs which must soon be recognized in the formal or- ganization of Ohio's health work nineteen deserve special mention here. I — All state and municipally supported institutions should be visited at least once a year, many of them oftener, by 183 184 REPORT OF JOINT LEGISLATIVE COMMITTEE the State health department and their sanitary practices and health teaching rigidly inspected and frankly described. Where standards are not adequate to protect inmates or public, the state department of health should be given authority and put under obligation to require compliance with the standard. This suggestion applies to the industrial schools, reforma- tories, penitentiary, prison farm, schools for the blind and deaf, soldiers' orphans, county children's homes, county and state normal schools, Wilberforce normal and industrial de- partment, the three universities, state sanatorium, hospitals for the insane and other state and county institutions. It should also extend to the sanitary conditions of the State House and state offices. For such inspectional work, financial provision should be made in the department's budget to the small extent that this will be necessary after the various health districts are thoroughly organized under proper full tnv.2 health officers and state department supervisors. In making these inspections the state department should be permitted to accept as its own the inspection of qualified agents working for other state depart- ments — such as the director of welfare administration, board of charities, university research bureaus, etc. — with respect to any institutions not subject to the jurisdiction of the co-oper- ating department. 2 — A chance to review the questions plsmned for the various health examinations — medicine, and special practices like osteopathy, chiropractic, dentistry, nursing, embalming — should be given to the department to msure adequate recog- nition of preventive hygiene. This will be easy if, as sug- gested elsewhere, the state department of public instruction is held responsible for these examinations. If the present boards are not abolished, the law should require that all examinations be viseed. Furthermore the department of health should be expected to comment after the examinations are over upon the progress shown or not shown by the questions in the exam- inations, the answers to them and the improvements in teach- ing which they reflect. 3 — A training school for health officers will be needed. Ever}- effort should be made to have the Ohio State University or- ganize and develop such a school. Columbus city health work affords ample clinical material when supplemented by the state department's control records and laboratory service. The in- itial co-operative course of 1919 set a good pace and helped train several men for new health-officerships. It was under the college of medicine with the help of the state department of health. It has been urged that an affiliated course not under ON ADMINISTRATIVE REORGANIZATION T-^S the college of medicine would be better. It may be that at first a separate course would be better. But much larger results should be possible if the state insists upon proper execution by the college that is training physicians and should be more and more emphasizing preventive hygiene. In addition to trainmg at Ohio state university, it will be advisable to orgamze sec- tional field classes, preferably under the educational authorities acting in co-operation with the department of health. I such co-operation is not forthcoming, the state department of health itself should arrange such extension work. Practitioners would be reluctant even if they had the time to go away for a semester They will be willing to attend institutes through which they can be brought up-to-date in preventive hygiene. 4- An aggressive interest in the character of hygiene instruc- tion in the public schools should be taken by the health department. It cannot force reforms. It can impel them. In Michigan no hygiene or physiology text may be taugh unless one-eighth of the text is given to character, cost and prevention of dangerous communicable diseases and unless such portion has been approved by the health commissioner. c_ Regional and state conferences in the interest of health promotion should be a regular feature of the state depart- mentis work. 6 -The state department of health should be an analyzing and truth-telling agency through whose publicity the public will be protected from ignorance with respect to health- menacing beverages and drugs. What they contain and how much of every deleterious element should be told, and over and over again, by the department's publicity. 7 -While as later stated the state sanatorium for tubercular patients should remain under the direction of -'elffje a^- . ministration the state department of health shou d take a special interest in the program and result of this in- stitution, tell the truth about its methods, make helphal suggestions to it and do all in its power to keep it a teach- ing agency and to prevent it from becommg a mere tem- porary hospital. 8 -Social hygiene, the need for it and pubHc appreciation of it since and because of the war calls for an aggressive educational and clinical policy by the state board of health. Q_An industrial hygiene service which wiU be educational, informative, experimental, stimulating, should be in the department's plan. It should have special emphasis l86 REPORT OF JOINT LEGISLATIVE COMMITTEE and not be merely a side-line. Laborers and employers alike will welcome this kind of assistance. In New York City after a trial of only about a year labor organizations were so con- vinced of the helpfulness of an industrial hygiene bureau to their welfare that delegates appeared in support of an enlarged budget. They told specifically of one field after another why the public should study unhealthy employment and discover correctives. I o — The inspection of all persons who have to handle food will become a practical service in all parts of the state after the new health service is thoroughly organized; for its rigid and equal enforcement the state department will be held re- sponsible. I I — Garbage disposal, sanitary engineering, safe sanitation in isolated districts, water departments, school hygiene, all call for expert knowledge and aggressive educational work at state health headquarters. The department should know whatever is known anywhere about best practices. 1 2 — Local health surveys should be promoted by the state de- partment through printed instructions, through written ad- vice, through answers to questions, through standardized ex- actions from the county and district health officers and through itinerant surveyors from state headquarters. The actual field survey work can be put on a self-supporting basis so far as the state is concerned, that is, the localities can be required to pay for the special service given to them rather than to the whole state. The licensing of mid-wives, the state survey nec- essary to locate them and the state educational campaign nec- essary to use them safely, can now be organized under the new health law with the state department setting the standards and enforcing complete registration. 13 — The laboratory division will inevitably expand. Health work is becoming more and more a matter of exact knowledge of the presence of deleterious substances in foods or disease germs in the air. There is no investment which pays bigger dividends than prompt examination by the state of samples of sputum, throat swabs, suspected milk, suspected water, sus- pected cases of venereal diseases, etc. Regional laboratories will become necessary and practical as districts are organized. It is to be regretted that the co-operation with the Ohio state university which was lUKlcrtakcn on both sides in the hope that classroom instruction and state health work would both be vitalized and helped by this association has at first disap- pointed both parties and been discontinued. As the need de- ON ADMINISTRATIVE REORGANIZATION 187 velops for additional laboratory examinations and for other facilities for training health ofiicers, it will doubtless again seem practical and highly desirable to have the health offices out on the University campus. 14 — Several inspectional services needing expansion now be- come easy for the first time and should be started and supervised by the state department, namely, inspection ot hotels, summer hotels, railroad stations, excursion boats, sum- mer resorts, public grounds and meeting places, including pub- licly managed buildings like court houses, city halls, jails, re- pair shops, etc. 15 — Health publicity needs considerable development. The syndicated health lessons that are now appearing in many Ohio papers offering information and advice should be signed not by the U. S. Public Health Service but by the state health de- partment, or at least Ohio readers should be referred to Ohio's own state department. 16 — Plans for all public buildings should be reviewed for con- formity to sanitary requirements by county and district health officers for county and local buildings and by the state officers for state buildings. The state commissioner could hardly have approved the erection of the juvenile research dormitory now nearing completion with only two showers for bathing 100 children. In working out this inspection service the department should be authorized to establish in the health code requirements which will shift responsibility for detailed analysis of plans to the building department, but which will also establish penalties for failing to comply with these require- ments. 17 — A round robin of high spot health facts should be circu- lated among health ofiiicers and newspapers oftener than is possible through a monthly bulletin. Special articles should be prepared such as have been prepared and in addition short health nuggets for the many daily, weekly and monthly papers and journals including trade journals which will wel- come such material if specially prepared for them. 18 — Annual reporting by county and city officers and by the state department calls for easily made but important ad- ditions. The state department is in position to demand adequate and meaning-full reporting from its various branches and all independent health boards. It should flash back to each community the significance of that community's reports when read against a background of state reports. It should igS, KKl-OKT t)F JOINT I.I'.CISLATIVE COMMITl^EE rank every city with respect to each of the important tests of heahh progress, the proportion of school children examined and re-examined, the proportion whose physical defects are corrected, the frequency of milk shop inspections, the paucity of transmissable disease, the number and proportion of deaths, the use made of the state laboratories for examining samples of foods, throat swabs, sputum and other smears ; the high or low scoring of dairy farms, restaurants, food shops, etc. 19 — The monthly bulletin can easily be made far more help- ful at no increase in cost. Shorter articles, more live testi- mony and high spots, more questions and answers will na- turally take their pages after the enlarged program has found full swing. The present commissioner showed by his work in Virginia before coming to Ohio that he is adept in using the best methods of giving the public little by little and always a little more usable health information. In forecasting the development of state health activities effort has been made to feature the auditing 'and educational functions of a state health department. Getting done is its purpose. The actual doing or actual managing is the responsibility of other agencies. Nothing should be given to a state health department which will divert its attention from rigid inspection and unmitigated truth- telling about the gaps between what is done and what should be done for the promotion of public health, including particularly the education of the whole public in the science and art of personal and public hygiene. LETTER FROM COMMISSIONER OF STATE DEPARTMENT OF HEALTH Under date of October nth, 1919, Dr. A. W. Freeman, commissioner of the state department of health, addressed the following communication to the secretary of the joint legislative committee on administrative re- organization : "I have received and carefully considered your very kind letter of September 30th, and wish to assure you that we desire to co-operate with you in every possible way in your work. The matter has been submitted to the public health council and I have been directed to answer the questions propounded in your letter as follows: "i. We do not think it at all wise or expedient to bring the various examining boards under the jurisdiction of this department. "2. The changes made by the last legislature in the health laws of the state were so extensive ihal it will take at least two years for the ON /VDMINlSTkAllNI'. KI^OKC.A N IZATION ]8i) organization now under way to be completed and, placed in efficient op- eration. We are, therefore, of opinion that no further radical changes should be made in the health laws until this has been accomplished. Our plans for future development include, among other things, the develop- ment of a complete and efficient S3'stem of physical supervision of school children and a program of child welfare of state-wide application. We are also preparing a plan for the more efficient supervision of the en- vironment and physical condition of the very large body of industrial workers of the state. For these additional functions, the Hughes bill was the necessary preliminary step. "3. The additions made by the present assembly to the staiT of this department will enable us within the near future to undertake a com- plete, and, we thmk, adequate sanitary supervision of all charitable, correctional and educational institutions under the control of the state. The local organizations under the Hughes bill should be able to under- take the supervision of institutions other than those of the state. "4. The work of coordinating this department with other state institutions in physical examination of employes and physical education of students will require the addition of a personnel for this purpose to our stafif. This is a matter of appropriation rather than of legislation. "5. We are of opinion that there are imperative reasons why the department has to be separate and apart from any other department of the state government and shall be glad to present evidence in support of this opinion at such a time as the committee sees tit. "In addition to these specific answers to your questions, we will call the attention of your committee to several matters in which we believe efficiency may be promoted by a rearrangement of the present distri- bution of function in the state government: "i. The bureau of vital statistics, which collects, records and studies births and deaths in the state of Ohio, is at present in the department of the secretary of state. The work of this bureau has no connection whatever with that of the remainder of the secretary of state's office, but has a vital and important connection with all work carried on in this department. In addition, the present arrangement necessitates the main- tenance of two statistical staffs, since we are compelled to maintain a statistical department for the recording and study of cases of com- municable diseases. We believe that public welfare would be promoted by a transfer of the bureau of vital statistics to this department. "2. This department has, for a number of years, maintained a division of industrial hygiene which has carried on valuable research work in the problems of industrial diseases. The industrial commission, however, through its bureau of workshops and factories, is charged with tl'ie enforcement of all laws regulating the health of workers, and is provided with a corps of inspectors for that purpose. The industrial 190 REPORT OF JOINT LKGISLATIVE COMMITTEE commission, however, is without a technical staff. It would seem that the state's duty to protect the health of industrial workers, both through the control of environment and through the actual physical supervision of the workers themselves, is too vital a matter to be operated as a minor branch of a department concerned primarily with the prevention of in- dustrial accidents. Accident prevention might presumably be one of the functions of an activity designed primarily to promote the health of in- dustrial workers. Such an activity should be under technical supervision, and in our opinion might well be under the jurisdiction of this depart- ment. "3. The blind commission, in addition to its duty of educating and caring for those already blind, has for several years maintained a corps of nurses for the prevention of blindness. This work runs exactly parallel with the prevention of blindness work maintained by this depart- ment and results in a waste of effort, which is not in accordance with the principles of good government. Here again we think the whole work of blindness prevention should be centered in one administrative juris- diction. "4. The fish and game commission of the state board of agriculture has within recent years entered largely into the question of stream pollu- tion as affecting fish. This department's division of engineering has for many years been charged with'the enforcement of laws regarding stream pollution for the prevention of nuisances and the protection of health. The two problems are precisely the same, and control should be in a single department. "5. The activities of the dairy and food division of the state board of agriculture are concerned almost altogether with questions affecting health. This department already carries on all laboratory work for the division, and with its force of district supervisors, working in co-opera- tion with the local health officers, under the new organization, could probably carry on the work as efficiently as at present at a considerable saving in expense. "6. The last session of the legislature created a division of hotel inspection in the department of the state fire marshal. The duties of this division, while including certain matters of fire protection, are in a very large measure concerned with sanitation and health protection. Here again it would seem that efficiency and economy would dictate that the sanitary matters be delegated to that part of the state government maintaining a technical personnel qualifietl to carry on the work effi- ciently. Inspection of hotels for fire risk is properly tlic work of the fire marshal's office. Inspectio-^. for ])uri>o?es of hvalth protcctitni can best be carried on tln'ough the district suiicrvisors of the state department of health, working in co-ooj)eratiiin with the new local health organiza- tion. ON ADMINISTRATIVE REORGANIZATION I9I "These are the outstanding matters affecting this department which, we think, should receive attention at the hands of your committee in addition to such studies as the committee may desire to make as a part of its general plans." THE STATE SANATORIUM FOR TUBERCULOSIS At present little is known by the public of the state sanatorium at Mt. Vernon. In a general way, people know that Ohio has such an institution. The auditor's report last pubHshed states that on June 30, 1918, it had 164 patients, an average of 172 patients the year before and had spent $104,000, or $605.00 per capita. The Ohio general statistics for the same year shows that the in- stitution had 160 at the beginning of the year, besides 1 1 on temporary leave, and received 430 patients, handling thus 601 men and women dur- ing the year. It discharged 432 ; 61 with the disease arrested or apparently arrested, 97 with the disease checked, 104 improved, 164 unimproved, six as non-tuberculous; one died. The Ohio board of administration, which administers this san- atorium, reports that the hospital has been running since 1909 ; that it is on the cottage plan, has 355 acres, is valued at $768,000, produced $25,000 on the farm in 1918, with 172 patients and 62 employees. While it says that only cases in the incipient stage are admitted, it also reports that but 84 of 433 admissions were incipient cases that year, 196 moder- ately advanced, 147 advanced, including 84 so far advanced active cases that they were discharged as unimproved within one month. Accounting for 168 remaining July ist, 1918, the board shows that 46 of 88 counties had no patients; 18 others had one patient; five had 2; four had 3; four had 10 or more. Summit 'ii, Mahoning 13, Hamilton 22, and Cuyahoga 27. During the previous year 29 counties had sent to or received from the sanatorium no patients. In other words, the sanatorium is not state in its constituency. What it is able to do with 400 patients a year, out of a total of 35,000 believed to have tuberculosis in one of its stages, is but a drop in the bucket. As a curative institution it cannot justify the money and energy spent upon it. As an educational institution it might be of tremendous value to the state. For example, it is worth a great deal to locate the physicians who send 343 moderately advanced and advanced cases to a place that re- ceives only incipient cases. It is also important to know the six phy- sicians who sent six non-tuberculous patients to a hospital for treating 192 REPORT OF JOINT LEGISLATIVE COMMITTEE tuberculosis. Again, it is of inestimable value to be teaching even 400 representatives of even 39 counties that tuberculosis is curable and that there is a way of living that will put a tuberculous patient back on his feet without menacing the families or friends with whom he lives. As at present conducted. hoAvever. there is little militant educational work emanating from the sanatorium. It is simply another state insti- tution. That it is an abused institution, or at least unimaginatively used, is shown from the fact that fewer than (.nc-fifth of its patients are of the class for whom it is intended. So important is it to have aggressive educational work done by this school-sanatorium, that there are those who believe it should be trans- ferred from the board of administration or director of welfare adminis- tration to the state department of health whose business it is to educate and re-educate. And it is held that if the state commissioner of health were responsible for such a sanatorium, he would have the motive for making educational use of its experience. He would not only find out who the physicians are who do not know how to diagnose or what time to get advance cases into a hospital for incipient cases only and would do educational work with them. He would print folders descriptive of the cures completed at the institution and the larger number of cases sent back to their homes improved in spite of the advanced stage of the dis- ease at time of admission. At first such would undoubtedly be the result of a transfer. The mere fact that it was a new obligation would key up the state commisioner of health and council of health to a big program. The danger of such a transfer lies in the fact that it violates a prin- ciple which we have repeatedly urged, that the officers or agencies whose business it is to criticize and educate should not be required also to manage. This theory admits the danger that persons who live in glass houses will not wish to thrown stones and that health officers conscious of hampering conditions and inefficiencies in their own management will be reluctant to insist npOn cis high standards and as frank publicity of defects in other institutions as when free to give their whole thought to holding up standards and advertising needs. This argument with one or two supplementary arguments was effectively stated in a letter to your committee by Mr. Robert G. Paterson, formerly executive secretary of the Ohio state anti-tuberculosis society, as follows: "It has seemed to me that the state should have in the state de- partment of health a tuberculosis man. who will devote his time to the task of endeavoring to standardize so far as possible the work being done by the hospitals already established ;and secondly, to keep consistently on the problem of the further establishment of new hospitals in unorgan- ized territory. "The fundamental weakness, as you arc undoubtedly aware, in our state work is the slighting of the fundamental ground work of public ON ADMINISTRATIVE REORGANIZATION 193 health work ; the unwillingness to expend a sufficient amount of money on statistics and records and their interpretation as a basis for the develop- ment of a state program. This one thing seems to me to be the most needed development in our whole public health field in Ohio. "Answering your specific questions I do feel that the state sanator- ium, at Mt. Vernon, should be under the Ohio board of administration rather than under the state commissioner of health. While it is true that the state sanatorium is possibly the only health institution operated by the state, nevertheless it seems to me it is an institution for curative purposes and lends itself to the same routine of control management as do the other institutions in the state. "The state department of health should devote its efforts to the preventive and educational sides of public health work rather than to deal with individual cases. "The main disadvantage that I see is that if the legislature should place the state sanatorium under the control of the state department of health, then naturally the budget of the state department of health would be divided into two parts, one for the department proper, and the other for the operation and maintenance of the state sanatorium. The total amount of money appropriated to the state department of health then would be very large indeed. There would be the tendency to con- fuse the issue on the part of the people and we would not be able to secure the needed additional appropriation for preventive work. "Furthermore, institutions are much more prone to receive criti- cisms, justly or unjustly, than are the other departments of the state government. An attack on the institution, if it were under the control of the state department of health, might hinder the other work which the department might be doing. "My own opinion is that the preventive work which the state depart- ment of health is doing is much more important ultimately than the curative work which the state sanatorium is doing and that the two phases of public health work should not be confused if it can be avoided." While leaving the state sanatorium where it will have the benefit of skilled institutional management, three steps in internal organization are needed in order that the sanatorium shall do what it was intended to do. T — The state commissioner of health should be required to report to the whole state in what respects if at all the san- atorium is not being properly conducted as a hospital; is not receiving the patients for whom it was erected ; is not learning and spreading broadcast the lessons from its own ex- perience within the institution and with the districts which furnish patients. 13 194 RETORT OF JOINT LEGISLATIVE COMMITTEE 2 — The director of welfare institutions should have one or more officers always studying tuberculosis in sdl institutions and in the sanatorium and flashing back to the state the best practices in each institution, the needs of the whole state as reflected in the institutions, and lessons learned by them. 3 — The sanatorium itself should be organized as primarily a training school for patients, their home friends and em- ployees and the public mind. From superintendent to nurse and humblest employee in such a sanatorium the attitude of teacher should be required. The reports should be educa- tional, including the announcements of what the sanatorium oflFers. The atmosphere should be of the confidence and hopefulness that modern knowledge about the causes and cures of tubercu- losis justifies. BUREAU OF VITAL STATISTICS By WILLIAM H. ALLEN It is recommemled that the bureau of vital statistics which is now in the office of the secretary of state be transferred to the state depart- ment of health. The purpose of recording births and deaths is not to satisfy an antiquarian interest or even to help settle personal or family problems. One reason for such records is to settle questions about parentage, owner- ship of property, liability to military service and compulsory school at- tendance, right to vote, etc. For such ends very simple records are re- quired. In emphasizing heie the health reasons for vital statistics it is not intended to minimize any or all of the following twelve reasons given by the U. S. Public Health Service for a complete registering of births : 1 — To establish identity. 2 — To prove nationality. 3 — To prove legitimacy. 4 — To show when the child has the right to enter school. 5 — To show when the child has the right to seek employment under the child labor law. 6 — To establish the right of inheritance to property. 7 — To establish liability to military duty, as well as exempttion therefrom. 8 — To establish Ihe right to vote. g — To qualify to hold title to, and to buy or sell real estate. 10 — To establish the right to hold public office. 11 — To prove the age at which the marriage contract may be -entered into. 12 — To make posihle statistical studies of health conditions. The only purpose which justifies the great expense of time and money involved in keeping a complete modern file of birth and deaths — with all the other information called for on certificates as to names of parents, residents, race, occupation, etc. — is to help the state (i) study its health problems, (2) learn whether forces are at work which menace the health and life of its citizens, and (3) enable its health engineers and other social engineers to take steps for increasing human vitality. 195 196 REPORT OF JOINT LEGISLATIVE COMMITTEE None of these purposes can be adequately served so long as Ohio continues to entrust the duty of collecting vital statistics to an elective cflticer, the secretary of state, who has no administrative use for this in- formation. According to section 198 of the General Code the secretary of state is now charged with prescribing methods, forms and blanks for securing registration of births and deaths. Section 199 requires him to appoint a registered physician and a competent statistician, but in no way prescribes the elements of trainiiii^ and experience which constitute competence in a vital statistician. The vital statistician and the vital statistics belong in the health de- partment where there is constant need for hem. It is further recommended that all payments received from the United States census bureau for sending to it vital statistics from Ohio be paid to the state department of health and not to the vital statistician or to any other employee and be then sent to the state treasurer or retained as a rotary fund or experimental fund to be budgeted and acocunted for by the state department of health. For the last five years these fees paid to state employees have ag- gregated $20,000. For the last fiscal year they totalled $5,800 or 3 cents each for 1 16,225 births and 3 cents each for 76,285 deaths. The purpose of the federal government in making such payment is to insure completest possible registration for guidance of the whole country. The payment, however, should be made to the state of Ohio and not to any employee. No human being should have a personal pecuniary interest in reporting a large number of deaths. It is contrary to the policy of the state of Ohio to leave fees in the hands of any official or employee, or to have salaries depend upon fees. It is not necessary to restate the reasons for paying service what it deserves and taking to the state what its own growth in business brings it as revenue. For the federal bureau of census the chief statistician for vital statistics has written to vour committee justifying the payment to an individual ratlier than to a state department as follows: "There should be some one indivi'lual responsible to the Census Bureau. To get the best results it is best to authorize, so far as possible, the registrar or his assistant who is in closest touch or in control of these certificates in the state or local office, for he knows the most about them and is bound to send in as accurate data as i)ossiblc. In some cases authorized transcribers are able either through overtime work themselves or by em- ploying members of their families, to suiiplement all too meagre .salaries received from the states. The policy of the P.ureau of the Census, however, is to authorize the individual recom- mended by the executive head of the state board of health, (or in Ohio, the 'secretary of state).'' The argument is not convincing. Ohio, not an irresponsible en> ployee, should guarantee the accuracy and ])roniptness of records. ON ADMINISTRATIVE REORGANIZATION 197 To effect the two sugi^ested changes no constitutional amendment is necessary. The legislature may by statute pass the law necessary to transfer this service form a department which is not ecjuipped to make public use of this information, the secretary of state, to the department v.hich needs the information every day. the state department of health. STATE HIGHWAY DEPARTMENT By GAYLORD C. CUMMIN The statutes of Ohio make provisions summarized in thirteen ex- cerpts from the General Code as follows : I. There shall be a state highway department for the purpose of affording instruction, assistance and cooperation in the con- struction, improvement, maintenance and repair of the public roads and bridges of the state * * * jhg .governor with the advice and consent of the senate shall appoint a state highway commissioner who shall serve for a term of four years unless sooner removed by the governor (G. C. §1178.) J£^/ecfo?"ai^e~ ^i/er/207: O,. C/er^A:. The small circles indicate the surveyors in different counties of the state who have cliarRC, under the state highway commissioner, of the local work on roads. 198 ON ADMINISTRATIVE REORGANIZATION 199 (xo7/err20-r 1 2)/recl^ar afpuM'cJ1^4. and Cor??/e/i(^en/^cf^i/Mc^rk<5. 213 DEPARTMENT OF PUBLIC WORKS By GA^LORD C. CUMMIN The Constitution of Ohio and the General Code make the following provisions relative to this department : 1 . "So long as the state shall have public works which require superintendence, a superintendent of public works shall be ap- pointed by the governor for the term of one year, with the powers and duties now exercised by the board of public works until otherwise provided by law and with such other powers as may be provided by law." (Constitution, Article 8, §12). 2. "The board of public works shall have the care and control of the public works of the state, and shall protect, maintain and keep them in repair. It shall have the power to remove obstruc- tion's therein or thereto, and shall make such alterations or amendments thereof and construct such feeders, dikes, reser- voirs, dams, locks or other works, devices or improvements as the board deems proper. It may purchase on behalf of the state such real and personal property rights or privileges as it deems necessary to accomplish such purposes." (G. C. §412). 3. "The board of public works may lease surplus water power on any of the public works under such rules and regul?tions as it prescribes * * *" (G. C. §431). 4. "When a public exigency exists the board of public works * * * may take possession of and use lands, materials and other property necessary for the maintenance, protection or repair of the public works. * * *" (G. C. §436). 5. "In addition to the powers and duties herein conferred upon the superintendent of public works, said superintendent shall exercise all powers and duties heretofore conferred by law upon the Ohio Canal commission and the board of public works with respect to the lease and sale of other canal or other state lands, the location, ascertainment, perfections and recording of title to all swamp, marsh and overflow lands and all other lands wiihin the state to which the state has or should have title. "■*=** l)ut no land lease or sale of canal or state lands shall be made except upon written ai)proval of the governor and attorney general." ((j. C. § 464) 6. "That the superintendent may with the approval of the governor and the attorney general lease swamps, marsh and overflow lands to the hsh and game cohimission for the preservation and 214 . ON ADMINISTRATIVE REORGANIZATION 215 propagation of birds, animals and fisli same to be used as State parks and pleasure resorts." ( G. C. §13916-3). 7. "All lakes, reservoirs and state lands heretofore or that may hereafter be dedicated or set apart for the use of the public for- park or pleasure resort purposes shall be under the control and management of the board of public works * * *." (G. C. §472). 8. Power is given to the superintendent of public works to pre- scribe and enforce regulations concerning the state parks. (G. C. §474). This department has control of the remains of the old Ohio canals, the leasing and sale of state lands, surplus water power etc., control of state parks and licensing of motor boats etc. therein, supervising control over inter-county drainage, and over swamp, marsh and overflow lands. The necessary fact base was furnished by interviews with the super- intendent of public works and citizens, answers to questionaires, letters, study of records, and personal knowledge by the writer of certain phases of the department's duties extending over a number of years. RECOMMENDATIONS. 1. That Section 12, Art. 8 of the constitution be repealed. This provision provides for the appointment of a superintendent of public works by the governor for a term of one year. Provision for administrative officers should be made by statute and should not be in the constitution. 2. That a department of public works and conservation be es- 4j tablished by statute combining under one administrative officer to be appointed by the governor for an indeterminate term, the functions of the present department of public works, the state highway department, the superintendent of lands amd buildings, the state geologist and the control now exercised by the auditor of state over school and min- isterial lands. The state highway department, superintendent of lands and buildings and state geologists are placed in this consolida- tion for reasons discussed in the reports made on those departments- Attention is called to the organization chart attached- The control of school and ministerial lands should be placed with the control of the state lands, so that the handling of funds connected shall be subject to control by the auditor, • and he no longer placed in the position of checking his 2l6 REPORT OF JOINT LEGISLATIVE COMMITTEE own work. The control of these lands is an administrative function and lias no place in the office of the auditor. 3. That a definite policy in regard to canal lands be adopted, and either useless portions of all the canals abandoned as recom- mended by the superintendent of public works and sold or leased to the best advantage. The total valuation placed upon the canal lands of the state is $18,063,054 of which $10,550,600 represents the value of state parks, and on $2,903,356 of which 6% is being earned from leases on land and water rights yielding an annual income of $174,191.36. This leaves canal lands of a value of $4,609,098 upon which nothing is being earned. If the canals were abandoned definitely so that this land could be either sold outright, or leased for long terms if time were taken, pretty close to this value should be secured. The lack of definite policy is resulting in an investment of more than $5,500,000 bringing the state no return direct or indirect. The perennial discussion of the barge canal question, which is largely to blame for the lack of a definite policy is therefore costing the state an- nually the interest on this sum or over $250,000. Is the discussion worth that amount of money? The canals became useless nearly twenty years ago. If they had been sold at that time the interest on the sum received would much more than equal the original sum and the state would have enough money to buy the right of way for a barge canal should such a structure be decided upon. The question of a definite policy on canal lands shoulc^not be longer delayed- 4. That the matter of proceeding with the reclamation projects at the state parks as proposed by the department be seriously considered, and steps taken to construct such as are shown to be good investments. The department has reccjmmended investigation of j^roposed reclamation of overflowed land at St. Mary's T.ake. Indian Lake and Loraine Reservoir- The reasons given in reports of the department for the making of such studies seem to show that the proposed improvements would be of financial benefit to the state without any damage but rather with benefit to the state's interest. It would seem a matter of .some importance to turn these lands, now worse than useless, into revenue producing property. ON ADMINISTRATIVE REORGANIZATION 217 That an adequate appropriation be made for carrying out the provisions of Sec. 464 and allied sections of the General Code jn reference to swamp, marsh and overflowed land so that the act can be effective. There are. important areas of such lands in the state including one tract along Lake Erie of about 20,000 acres. The pro- visions of this law promise profitable results to the state. Unless financial provision is to be made it is better to repeal the law. That the revenue from state parks be employed only in im- provements therein as provided in the statutes. (G. C. §474 ) The revenues from the state parks should either be used as provided by law or the law shoud be changed. Many im- provements are needed at these parks to make them of the greatest value to the people of the state, and such revenues could be profitably used as contemplated in the statutes. SUPERINTENDENT OF BUILDINGS By GAYLORD C. CUMMIN Section 146 of the General Code provides: "* * * The adjutant general shall be superintendent of the state house. He shall have the supervision and. control of the statis house and the heating plant therein, the fixing and placing of all offices, commissions, departments and bureaus of the state therein, and full control and supervision of fixing and placing all offices, commissions, departments and bureaus of the state in offices, buildings and rooms outside the state house when same cannot be placed therein, materials and persons employed in and about the state house, the grounds and appurtenances thereof and all work or materials required in or about them. He shall rent all offices, buildings and rooms for all officers, commissions, departments and bureaus of the state located outside the state house, and execute all leases in writing for the same on behalf of the state subject to the approval of the governor * * *." Interviews were had with the adjutant general, employes of the department, other state officials and persons familiar with both history and present operation. A complete personal examination was made of the state house and annex in company with representatives of the division of workshops and factories, the state fire marshal and the state depart- ment of health, whose respective reports of such examination are at- tached herewith as appendices. The Wyandotte building and other buildings "housing state offices and departments were also visited. RECOMMENDATIONS : 1. That this function be removed from the control of the adjutant general and placed in the proposed department of public works and conservation. 2. That a full time, competent superintendent of state buildings and grounds be provided. The reasons for these two recommendations are so closely allied that they will be discussed together. This department under its present control simply does not function. The state house and annex are both dirty and dingy. Marble floors uncleaned for weeks, are as of "no man's land", cleaned by neither building nor department janitors. Filthy and ill-kept storc- r(>r)ms, flirt V walls, window^, ccMlings and skvlights are the ON ADMIN ISTRATIVK REORGANIZATION 21C) regular thing. Lack of supervision accounts for such things as — smoking parties of janitors with three or four present at 10:45 A. M., 3:15 P. M.; janitor asleep in reclining chair at 2:15 P. M.; three janitors leaning on a railing watching a fourth clean a marble coping. This marble coping in the annex was kept under observation and was cleaned once in six weeks ; stair landings not cleaned at all in that time ; "high water marks" on the marble pillars showing how far the janitors could conveniently reach are still to be seen; dirt and rubbish swept under radiators, down ventilating radiators, behind desks ; — surely a disgraceful condition for the official building of the state of Ohio. The walls of the rotunda were last renovated twenty-one years ago and look it. Flags hang in the panels, so covered with grime that the original color in the folds must be imagined. Electric wiring, done in a fashion that a ten-year-old boy would be ashamed of and in violation of even the most primary electrical code ; insanitary toilets that would be a disgrace to a tank town railroad station ; interior toilets with little or no ventilation and with fixtures of unapproved types; janitors' sinks in filthy condi- tion with an odor all their own ; pine boxes stored in the stairwell of the annex where they would cause the most damage in case of fire ; a main electrical switchboard made as nearly fireproof as possible because of the fire hazard, and the space behind it stored with articles packed in excelsior waiting for a spark ; storerooms full of miscellaneous junk, loose papers, etc. ; papers lying over steam pipes, mops behind steam radiators ; an elevator shaft leading to the state library with a wooden door at its foot and wooden partitions around it in the library ; tons of books and papers on extra floors supported on 2x4 joists, strained to the breaking point and held up only by bookcases on the floor below; string and wires tied about the large stone columns at the entrances to the old state house with loose ends fluttering in the breeze; old insulators hanging from trees in the state house grounds ; rags and tatters of liberty loan posters on the sandstone gate posts; — such are some of the more obvious evidences of carelessness, neglect and disorder on every hand. A little energy on the part of the eleven laborers employed by this department and the other janitors employed by separate departments would at least make the building and grounds reasonably neat and clean. A "clean up and paint up" cam- paign is far more necessary with the state house than in many a city. The redecorating, painting, wiring and struct- ural changes necessary need first a program and then an 20 REPORT OF JOINT LEGISLATIVE COMMITTEE appropriation, but much of the dirt, the accumulations of junk, the fire hazards due to boxes, etc., can and should be removed at once. The chief cause for the conditions is lack of interest and super- vision. The adjutant general is ex-ofificio the custodian of buildings and grounds, but the active heads are a foreman of laborers and an engineer. Other states employ an active custodian for their state house at salaries ranging from $2,000 for Kentucky to $5,000 for New York. There is plenty of work for one in Ohio. The state is apparently trying to get something for nothing and is having the usual experience of getting nothing. It is recommended that this function be placed with the department of public works and conservation for the reason that it is a function many of whose factors , are of an engineering nature, and as this department handles the leasing of all lands owned by the state it is the natural place to make leases of land for the state. The importance of divorcing all but military duties from the adjutant general is covered in the report on his office. 3 That all laborers and janitors be placed under the control of the superintendent of buildings. At present there are eleven janitors in the state house and annex under the superintendent of buildings and the equivalent of eight belonging to various departments, the latter apparently being in some cases reasonably efficient. If the state house is to be kept reasonably clean one man must have complete charge. In this way "no man's land" will not occur. 4. That one or more competent electricians be employed on full time. 3. That all electric wiring be reconstructed in conformity with the underwriter's code. The details of the conditions of the electric wiring are set forth in the report of the state fire marshal attached to this report as appendix "B." The condition is almo.st unbelievably bad. There is hardly any wiring installed that would pass inspec- tion and some of the conditions are serious fire and accident hazards. Light cord has been taped to the lower part of the iron railing in the senate chamber and sockets for the vacuum cleaner are also fastened on with tape. This is a condition encouraging a short circuit and a charged iron rail. The "cage" in the office of the treasurer is in like danger of becoming "live." Wires through doors and windows with the same closing thereon were noted in a number of instances, ON ADMINISTRATIVE REORGANIZATION 221 long loops of light cord hung on nails, and with the lam]) resting against wood, fuses "jumped" hecause "they hlew out so often," poor specimens of knob and cleat wiring, wires resting on pipes, metal beams, etc., fixtures overloaded, l^ad connections and in fact violations of nearly every rule of proper and safe construction were noted. A complete re-wir- ing is imperatively necessary or the state faces a good chance of having a serious fire due to its persistent violation of primary rules made for the safety of life and property. The state now employs an electrician at $900 a year. Any knowl- edge of what must be paid for such service elsewhere would lead to a belief that it is impossible to obtain a competent man for that price. The wiring done confirms the suspicion. This is a poor way to economize. 6. That structural fixtures be made to conform with the rules en- forced by this state for the safety of lives and property in buildings. The details of present conditions will be found in appendix "A" herewith attached. Attention is especially called to the dan- gerous condition in the state library which is dangerous to life, and to the exceedingly valuable collection of books and documents therein. This condition should be corrected at once or the responsible oflficials may have to answer for a catastrophe that will shock the state, the more so in that had the state's own requirements for buildings owned by private persons been met, the danger would not exist. 7. That fire hazards be eliminated at once. Such fire hazards as occur in the stair-well of the annex, the elevator to the library, the excelsior behind switchboard, the piles of junk and papers in storerooms, the most dangerous features of the wiring, etc., could be remedied at small expense coupled with a minimum of brains and effort. There is no excuse for their existence. 8. That fire extinguishers and fire fighting apparatus be installed as required by the rules of state departments charged with the safety of the public and employees in buildings. The entire fire fighting apparatus now present in the state house and annex as developed by the examination made, consists of one empty hose reel. Further comment is unnecessary. 9. That risks to life and limb from fire and panic be at once elim- inated. The doors to both state house and annex open immrd. A number of girls were working in the old relic room with but one 222 REPORT OF JOINT LEGISLATIVE COMMITTEE means of exit and that through several compartments divided by wooden partitions, with about the most dangerous piece of wiring in the building lying on both partitions and floor. The gallery in the house is not in conformity with state law and is acutely dangerous. . The document rooms of the library should be provided with a second exit, probably the old stairway into the office of the supervisor of public print- ing. All the materials are at hand for loss of life because of violation of the laws of this state. Those responsible for these conditions should consider thoughtfull\- the possibilities. I o. That all toilets be placed in sanitary condition and kept that way. 1 1 . That all interior toilets be dismantled and closed. 12. That all plumbing fixtures and their installation be in conformity to the rules of the state department of health. For details of present condition see appendix "C" hereto attached. • Fixtures of inadequate and obsolete type, some without vents, kept in a filthy condition are characteristic. Inside toilets with no artificial light and with little and in one case no ventilation were found. Can a state afford to ignore its own sanitary code in the official home of its government? 13. That provision be made for adequate, sanitary equipment for state records in storerooms; that storerooms be kept clean and clear of junk and rubbish. -Important original documents are now dumped in boxes or stored on wooden shelves, exposed to dust and dirt. Some store- rooms are clean and. neat, others are full of miscellaneous junk and rubbish and no apparent attention has been paid to arranging or taking care of documents therein. If the documents have no value they should be removed but from what was seen it is believed that valuable records of the civil war are in the storeroom of the adjutant general, and valuable executive documents in the storeroom of the governor. If this supposition is correct the care that the documents are receiving is a crime and immediate -^d-p^ should be taken to classify and properly protect them. 14. That sufficient appropriations be made to keep state buildings in repair. 15. That a plan of repair and renovation be made and carried out systematically. The present api)r(iprialion for repairs to state house and annex is $5,000 per year or about one-fourth of one per cent. It costs about two per cent to keep a modern business building in ON ADMINISTRATIVE REORGANIZATION 22^ repair. The result is that what could be repaired today for $50 is deferred for lack of funds and allowed to go on until it must be repaired and then cost $1,500, the building in the meantime looking like a neglected, down-at-the-heels wreck. Poor skylights which could be replaced for a few thousand dollars allow water to destroy plaster and decorations costing much more to replace, and then appropriations are made for new decorations, but nothing to correct the cause of the damage. This policy may be many things but it is certainly not economy. A well conceived program of repair, cleaning and paint will improve appearance and save money in the end. It is hard to believe that the people of Ohio wish their state capitol to be in a continual state of dingy dilapidation and disrepair. 16. That a lighting study be made in all offices in state house and annex ztnd the lighting fixtures changed to give adequate illumination. Some details of the present situation are to be found in appendix "A" hereto attached. Manifestly the state should not ask its employees to work under the poor lighting conditions found. Proper fixtures and proper "placing of lights as the result of a study will quite possibly lead to more satisfactory lighting conditions and a smaller consumption of current. The light- ing of corridors and the rotunda is also very bad. The "tin" spot lights in the rotunda are certainly out of keeping with their surroundings. 17. That the lighting of the "dome" of the state house be done by means of "flood lights" instead of by the present wasteful and inefficient system. The present lighting is by means of about 1,200 25-watt tungsten lamps, and with lamp replacements must cost not less than $1,600 per year to operate. Burned-out lamps and occasional circuit trouble results in many different patterns of lights and gives the impression that an attempt is being made to signal to the surrounding country by means of a code. Modern flood lighting would be more effective, less subject to trouble, and more economical. 1 8. The heating and ventilating system, especially of the state house, should be modernized. The present condition is detailed in appendix "A" hereto attached. It is self-evident that the present system is not only unsatis- factory but is unnecessary costly to operate. 224 REPORT OF JOINT LEGISLATIVE COMMITTEE U). That a statute be passed specifically giving state agencies charged with enforcing laws and rules and regulations concerning the safety and convenience of employees and the public in buildings, the same authority over buildings owned by the state as those owned by private persons, and that pro- vision be made for periodic inspections and reports by such agencies. These laws, rules and regulations are made because they are deemed necessary for protection of employees and the public. The employees of the state and persons visiting state build- ings are as much entitled to protection as are other persons. The state of Ohio should be a step ahead of others and not twenty steps behind, in obeying its own laws. It is true that the state cannot be fined or sued, but ]:)0wer can be given to condemn and close up buildings or parts of buildings in a dangerous condition, action being authorized against the in- dividual officer who refuses to obey an order for the safety of employees and the public. 20. That modem directory boards with movable letters be installed at selected places in the state house and annex aided per- haps with floor diagrams, and the rooms be numbered. The reason for this is ol)\i()US. 21. That one or two messengers be installed at a central office subject to call by any department, and the present depart- ment "messengers" be either reclassified if they are doing clerical or other work or be dismissed. There is apparently about $6,200 worth of messenger service in the state house and annex, one-half the salary of a "messenger and janitor" being counted toward this sum. If this really is messenger service it is entirely too high and can be much reduced bv use of a central messenger service. 22. That the feasibility and possible economy of a central telephone exchange be determined. This should not only resuU in consi(leral)le economy, but better service to the public, and the service to the departments would be just as good as at present if a sufficient number of "trunks" were installed. Certainly no big business establishment woukl attempt to operate without its own telephone exchange. 23. That the stairway and elevator shaft in the Wyandotte building be enclosed in a fireproof shaft. This is required for safety, would not be expensive, and would add the equivalent of one office per floor, a total of about 7,000 square feet. ON ADM1NISTKATIVI-: KI:()K(;AN IZATIOX 225 24. That immediate steps be taken to design and construct a state office building to house all state departments. The loss due to the fact that state departments are scattered over a large area in a number of different buildings, is difficult to estimate but is undoubtedly of importance. The inconven- ience to the pubHc and the departments is great. The cost for the quarters occupied is high, and the quarters are in most cases poor and unfitted for the purpose for which they are used. They are probably the best available, especially as the state can lease only for two-year periods, which does not enable the state either to lease the best buildings or get the lowest prices. The result is that the state is put to loss of efficiencv and inconvenience, has valuable records stored in buildings that are not fireproof, and is paying for the privi- lege. A state office building must be built some time. It will take some years to make the proper study of space needed, to select a site and make the plans. The longer it is delayed the greater the eventual cost and the continuing loss. Such a building should be designed on a unit plan so that provision can be made for the expansion of state departments in the future without present expenditure. It must be done "eventually"; why not now ? 25. That owners of buildings leased by the state be required to keep such buildings in a safe and sanitary condition, and the dlepartments housed therein be required to do their part toward safety and sanitation. There is room for improvement in this regard at present. NOTE. The Joint Legislative Committee on Administrative Reorganization wish to state that steps have already been taken to carry out some of the suggestions contained in this report. APPENDIX "A". THE INDUSTRIAL COMMISSION OF OHIO. Department of Inspection. columbus. December 4th, 1919. Mr. G. C. Cummin, Legislative Committee on Administrative Reorganication, State House, Columbus, O. Dear Sir: — Through an inspection of recent date made of the Ohio State Capitol (main building and annex), by First Assistant, John Q. Adams, 226 REPORT OF JOINT LEGISLATIVE COMMITTEE Architect, he has prepared the following report and I submit same for your consideration. It having been requested to exercise brevity in arranging this report, we are including in condensed form as much abstract information and advice as space would allow on the subjects considered the most important, having attempted to project our survey into detail as much as our time permitted. (i) The construction of this building is of the fireproof type, inasmuch as all the materials used are of an incombustible nature, which insures this building against danger to structural features by fire, except that certain floor beams may have their strength impaired by the burning of storage or furnishings, as the lower flange of these beams, particularly in the basement, would be exposed to the heat. The metal members of roof trusses and construction are also with- out fireproof covering and would be dangerously afifected by heat from fire that may reach the attic For this reason, storage of a combustible nature should not be permitted in the attic or in any part of the building having direct connection with attic and not provided with automatic fire shutters or standard fireproof construction separating such rooms from the attic. The structural walls are in first class condition and in all cases were of thicknesses in excess of that warranted by loads imposed but which were sized requisite to architectural embellishment. A very dangerous overloaded floor condition exists in certain rooms in connection with the library. For the purpose of providing more floor space, from time to time, for the accommodation of book storage, decks have been placed in high story rooms, which are of construction that is not only undersized, but have not been substantially connected to wall supports. In determining the live loads imposed on these floors, allowing fifty pounds per cubic foot for general book and paper weights, you will find that the floors are greatly overloaded, and in many instances loaded near to the safety factor limit, to point of rupture. It is not necessary herein to define the dangers of this overloaded condition to the life of the people employed in, or occupying, these parts of the building and to the rare l^ooks and magazines stored therein. In this report we have recommended that the library be removed from the State Capitol Building, but request that immediate corrections be made requisite to the temporary protection of life and property in the state library department. Main egress doors throughout both buildings should be hinged to swing outward in favor of egress ; this will also include main exit doors from the Senate and House chambers. All egress doors should be equipped with standard emergency hardware of such nature that doors may be opened from within whether locked or unlocked with the least efifort. ON ADMINISTRATIVE REORGANIZATION 22^ Under State Building Laws exits from balconies shall be provided so that all parts of the balconies will have at least two means of egress. This is provided by arranging the exists as far apart as possible in order that no person will be compelled to pass one in order to reach the other, whereby a fire in one would shut egress from both. The balconies of the House chamber are' not provided with egress to meet with this requirement and we advise that stairs, at least forty-two inches wide, of comfortable rise and tread and with hand-rails, be provided connecting the dead ends of the balconies to the main floor. (2) The sanitary condition of the main building is very poor, due to changes made in the building and additions constructed in the light courts, which appear to have been made without competent advice and which obstruct daylight from many of the rooms and interfere with the natural ventilation; also due to unlimited liberties enjoyed by janitors in placing mops, scrub buckets, cuspidors, etc., in rooms used as utility closets, which are not maintained in a proper sanitary condition. The course of fresh air travel between outside intake and blower fans in reheater plenum chambers, also possibly in main warm air trunk ducts, also the hot eur register boxes have been allowed to collect dirt and filth which greatly depreciates the value of the small amount of ventilation that the steam fan blast system is capable of supplying. All parts exposed to the fresh' air travel should be maintained in a near dustless condition and should be washed with lime or receive some other treatment having a purifying effect on the air. Toilet rooms and utility closets, not having daylight or positive means of ventilation, should be abandoned. Most of these places we found to have been constructed at a later date than the building proper and apparently without regard to sanitation. (3) Fire hazards, extinguishrnent and prevention are but briefly treated in this report as it has been understood that the Department of the State Fire Marshal would elaborate on this subject. The most hazardous condition, in our estimation, existing in these buildings is the very bad condition of electric lighting wires which come in direct contact with the woodwork and in some places metal parts of cases, etc., without any form of insulation, except for that of the wire covering. This condition could be the cause for fire at any time and which would be more likely to happen in the absence of the people occupying the rooms. Fires of the worst kind might be caused in the basement where a great amount of paper, books and other combustible materials are stored, by a carelessly placed match or lighted cigar, or by defective wiring or by light bulbs. Rooms in the basement, available for storage, should be isolated or separated from the other parts of the basement by placing standard fire 228 REPORT OK JOINT LKGISLATIVE COMMITTEE doors or rolling steel shutters over the openings and equipping same with fusible links which should automatically close the opening in case of excess heat coming in contact with the link. Shelves should be provided in storage rooms in order that the con- tents may be properly placed and the rooms maintained in an orderly condition. In these rooms signs worded "NO SMOKING PER- MITTED" should be placed as a warning of the fire hazard created by such practice in rooms containing storage of a combustible nature. Attention should be given, also, to other rooms in different i)arts of the building used for storage purposes and proi)er fire prevention provided. The very important provision for extinguishment of fire has been entirely neglected in these buildings and should be provided by the installation of fire hose of sufficient lengths, so located as to reach all occupied parts of the basement, and with underwriters approved hand fire extinguishers placed in approved locations throughout the buildings. The value of books and papers stored in the library can hardly be expressed in the terms of money and yet this invaluable collection is endangered from fire that might be caused by the extremely bad wiring conditions and for which there has not even been any form of fire extinguishment provided. (4) The lighting condition in these buildings, in most places, is very poor insomuch as the equi])ment is undersized, poorly placed and very poorly maintained. Perhaps the worst general condition is in the annex building where the fixtures are of an antiquated type, hang at a low point within the ordinary line of vision and have exposed bulbs of the tungsten filament which are very bright, injurious to the eye and create a very uncomfortable lighting condition in the rooms. The fact that the fixtures with exposed lights are placed within the line of vision magnifies the apparent underlighted condition inasmuch as the light placed in front of the eye diminishes detail in the background. The color of the walls in most cases, which if not of a dark color decoration, is usually found to be very dirty and produces a greater contrast between the light and the background and adds to the uncom- fortal)le lighting arrangement. In some cases the bras-co-lite type fixture was found, but was located without proper direction and was usually found to be too high above the working plane to i)roduce the best results. The most of these fixtures were found to be very dirty and in one instance the efficiency cjf the fixture was increased 100'/ by the application of a little soap and water ap])lied by the janitor. The fixture referred to in this case should be lowered at least four feet and sufficient size lamps used to su|)pl\ the foot candle intensity required under good ])ractice, which is for ofticcs, a mininnnn of ciglit foot candle ranging to twelve. The reading in the room just referred to was i '{. f. c. before the fixture was wasliecl and 3 L c. after fixture was washed. ON ADMINISTRATIVE REORGANIZATION 22() The Senate and House Chambers are under hghted as llie following lunieter readings indicate. In the House in the center of the room, directly beneath the largest ceiling fixture the reading was 3J,^ f. c. intermediate location in rear seat 2)4 f. c. and at the clerk's desk i->4 f. c. We are informed by the custodian, at the time the readings were taken, that a'.l globes had recently been cleaned. In the Senate we found uniformly an increase of one-half to three- fourth foot candles over the reading in the House which was possibly due to the greater exposure to sky brightness. These rooms should be lighted so that at least 6 f. c. would be pro- vided for all desk^. The draperies over the windows, being of a very dark color, intensifies the brightness of the sky, and by changing these draperies to a light color it will reduce the contrast and will render far more agreeable the window openings which the occupants of these rooms are forced to face when seated. The pedestal lights placed at each side of the speaker's desks in both the Senate and House are in locations entirely contrary to rules of good lighting inasmuch as the entire audience is compelxd to face these lights when working or when viewing the speaker's end of the rooms. We would advise that these lights be removed or opaque globes be placed above the bulbs. With the exception of insufficient foot candle intensity, we found in the office of the bureau of inspection of public offices, department of auditor, a model lighting arrangement which had the semi-indirect fixture placed at the proper height above the floor and in locations to give the best distribution of light over the entire room. These fixtures were also connected with swatches that provided exceptionally good control. The lighting efficiency of these fixtures may be increased, however, by washing from time to time, and w^e would also recommend, in addition to washing, that the reflecting surfaces be re-enameled. On the center table of this room we found an intensity of 6 f. c. and S f. c. on the tables placed near the outer sides of the room. In the Senate reception room, where one of the worst lighting con- ditions prevails, we found but i f. c. produced by the artificial light and but I ^ f . c. by the artificial and natural light together. In the Lieutenant Governor's Office, which is a very small room, we found seventeen 40 watt bulbs which equals 680 watts, all of which were burning when the room was entered and which produced but 2 f. c. in- tensity on the Governor's desk. By placing a semi-direct fixture near the ceiling, equipped with one 100 watt lamp, the lighting condition in this room would be improved 400% and the stenographer in this room would not need her individual desk light. We refer to these individual cases which appear to be the most extreme, in order that you may form 230 REPORT OF JOINT LEGISLATIVE COMMITTEE a general opinion of the bad lighting conditions throughout these build ings. As the elements entering into the problems of good lighting have become so complex, we earnestly recommend that this subject receive the attention of a qualified illuminating engineer, and since the decoration and the interior colors form a part of the better lighting program, we recommend that the decorator and the illuminating engineer work to- gether in order that the best results may be accomplished in developing a better system of lighting in these buildings. (5) The heating and ventilating system has not been tested to any great extent as only anomometer readings, for determining air volume, were taken on one blower fan and at one heat register outlet. The system of heating the main building is that which is commonly known as a "fan blast system" which has four different blower fans taking the air from the outside through intakes and tempering steam coils and forcing the air through main trunk ducts and through laterals to different reheater plenum chambers in which are installed reheaters of steam pii)e coils, hence through flues to rooms throughout the various parts of the building. In connection with this forced air system there is a single fan exhaust system which draws the vitiated air from the various rooms and exhausts same through flues above roof of building. A reading taken in the south-east blower fan, while same was running full speed, indicated this fan to be capable of delivering 15,000 cu. ft. of air per minute. This particular fan supplies air to the Treasury quarter of the building, which includes the House chamber, one-fourth of the corridors and rotunda. A reading taken at heat inlet to general ofiice of Treasury department indicated a delivery of 400 cu. ft. per minute, this number times 60 minutes equals 24,000 cu. ft. in one hour ; 24,000 divided by the cu. ft. contents of the room (which was not determined) will equal the number of air changes for this room in one hour which we think you will find to be approximately one and one-half changes. In moderate weather the heat is supplied at times by gravity without operating the fans; this not being a very positive control certain occu- pants will request additional heat, which, if supplied, will necessitate running the fan, which in turn will .supply additional heat for all other parts supi)lie(l by the same, including the large Senate or House, which will not likely be occupied through the heating season. The point we want to emphasize in the above paragraph is the ne- cessity of having a separate heating apparatus and ventilating system for each Senate and House chamber If this is provided it will permit de- creasing speed of two present fans which may be accomplished by changing the size of pulleys, reducing speed or will permit two of the present fans to be replaced by much smaller ones. ON ADMINISTRATIVE REORGANIZATION 23 1 In connection with the individual fresh air supply system for the larger chambers, we would advise sufficient direct radiation placed in these rooms to warm same to temperatures at least above freezing point in order to avoid operating the fan system when these chambers are unoccupied These separate ventilating systems should be of sizes and capacities to supply at least six fresh air changes per hour, which is necessary for proper ventilating in these assembly rooms. As space does not permit us to furnish more detailed advice on this system, we will gladly elaborate on same upon request or will furnish any additional infomation that we may obtain that will be of any benefit to you. We notice, in connection with the fan installations, dangerously ex- posed belts and pulleys in such locations that it makes it necessary to enter through the belt in order to care for the fans. We require that safeguards be placed over these belts and pulleys which shall be of metal and firmly constructed in place. We also advise that the cooling efifect on the boilers, caused by opening the boiler room doors, be corrected. The annex building is heated throughout with direct radiation, and we do not believe mechanical ventilation is necessary for any part of this building. (6) It will be very impractical to attempt to provide, by alterations, work rooms or offices of any kind in the basement, as the basement should be used only for utility purposes, i. e., main water, steam and sewerage pipe lines, air ducts, etc., and allowing ample room for the mechanics to make repairs and perform their duties in these places. We have heard of criticisms on the basement of this building, which we think are undue, regarding lighting, ventilation, dark spaces, etc. We believe, and we think it a logical deduction, that it was not the intention originally to provide a basement that was to be occupied as work rooms and the like, but was found the most economical, when the excavation was made, to do the excavating with scrapers and remove all the earth instead of excavating just for the footings and foundations, the earth from which would have had to be removed by pick and shovel. Neither does our State Capitol present any possibilities for the en- largement or addition to same, either in plan or architecturally in eleva- tion even to the extent of failing to connect harmoniously with the annex building which was constructed at a later date, as this building should have the beautiful, spacious surroundings that were originally intended when the building was planned. This building, of such magnificent architecture, pleasingly fossilated and beautified by age, should not be marred by further additions, but should be relieved of many of the additions placed in it and restored to its original plan, housing perhaps only the elective officers as was originally intended, and by being relieved of the extra and present con- 232 KKrOKT OF JOINT LEGISLATI\E COMMITTEE gestion, will express, to the fullest extent, the grandeur and dignity of the State and be preserved to exist in its original glory ; Therefore, we believe that no delay should be allowed in purchasing a location and erecting buildings commensurate to the present require- ments for properly housing State Offices, and providing, at the same time, that additions may be added as future exi)ansion may necessitate. This will permit the rearrangement of the occupancy in the State Capitol building, and in this jiroposed program we advise that arrangements be made for removing the State Library from the old building into proper ([uarters jjrovided for same in the proposed group. Yours very respectfully, Thomas P. Kearns, Chief Deputy. APPENDIX "B" state OF OHIO DEPARTMENT OF STATE FIRE MARSHAL columbus December 6, 1919. Mr. (JAVLORD C". Cvs\y\\K. Field Agent, Committee on Administrative Reorganizatio)}. State House. Re: Inspection of State Mouse. Mv Dear Mr. Cummin: — I beg leave to report that recently representatives of this department made inspection of the State House, in company with representatives of the workshop and factory division of the industrial commission, the state health department and the cit\- fire department. They made an inspection of the general condition and of the electrical installation. I beg to respectfully submit the following re])ort. The general condition of the State House was found to be as follows: "In the attic, we found waste paper, old cotton mops, electric wires lying on iron" braces and in contact with metal. This place needs a thorough cleaning ujr. Elevator from basement, wooden door at the bottom, wooden jiar- titions at the top. The library: We found this room in over-loaded condition. There are two decks that are built of \ery flimsy material. The wood used in this construction is 2x4 material and there are not \ery many of them to hold up the over-loaded shelving. In my opinion the load that these decks are carrying is liable to break through at any time. The basement annex, agricultur;il : In the store room 1 tound rags, waste ])ai)er, broken boxes, old furniturr and rubbish ol all kinds. Tliis room is in a lilthv and dirtv conditiim and a great I'lre hazard. ON ADMINISTRATIVE RKORGAN IZATION 233 Basement, adjutant general's room: I found waste paper, rags, broken boxes, old furniture. This room is in very bad condition. Basement, auditor's store room: Waste paper and old lumber of every description. Basement, workshop and factory room : r)ld lumber and waste paper. This store room is in very bad condition. Basement, fish and game store room : Old furniture, old fish nets, waste paper and old lumber. This room is in very bad condition. THE ANNEX In the attic of this building I found oily waste and greasy conditions around the motors. Store room on the top floor : Considerable rubbish and unused artic'es Wooden door at elevator. This condition is very bad. The dififerent rooms of the State House, especially the basement, were found to contain serious fire hazards. The electrical installation was found to be an obsolete system of wiring, which would in no way meet the requirements set forth in the national electrical code, which is the standard for all electrical work. The entire installation is in dilapidated and dangerous condition. The inspector considered it useless to attempt to overhaul the present wiring, and he makes the recommendation that the entire electrical in- stallation for lighting and power Ipe immediately removed, and new con- duit system installed. Some of the defective conditions that e.xist in the present wiring are : 1. B. X. Cable — loose and poorly supported; no connection or bushed fittings used in the installation of same. 2. Greenfield Flexible conduit, poorly supported, hanging over gas pipes, steam pipes ; no connection or bushed fitting used in the installa- tion of same. 3. Metal moulding installed without fittings ; poorly supported. 4. Wires run from under canopies without any insulation whatever : these wires being lamp cord and of an unapproved type. 5. Main feed wires leading to main switch board are in a matted, twisted and uninsulated condition at rear of same. 6. An accumulation of rubbish found stored in back of main switch board. 7. Cases of lamp cord store'd in rear of main switch board. 8. Conduit in rear of main switch board without condulets. 9. Conduits throughout building in many locations without con- dulets — bushings — boxes — and in no location was a ground to be found. 10. Cabinets placed on the floor of the attic with covers standing open ; boxes full of dirt. 11. Wooden distribution boards. 234 REPORT OF JOINT LEGISLATIVE COMMITTEE 12. Fuses in cabinets jumped with solder, etc., in many cases fused beyond their connected load. 13. Branch circuits fused with 30 Amp. plugs throughout. 14. Sizes of wire changed without the use of a cutout. 15. Open construction in attic loose and sagging, poorly supported and in no way properly insulated ; material lying over wires and cutouts. 16. Cutouts and cabinets in no way accessible in attic. 17. Wires leading to cutouts and distributing locations, twisted, matted and poorly insulated. 18. Electric heaters connected direct on to lighting circuits. 19. Lamp cord of an unapproved type used in many locations throughout for extending circuits ; connections are found in this type of wiring, also found placed under carpet and insulation worn off (caused from walking over same). This cord is also tacked around on wood- work ; hung over nails, hooks and other metal ; insulation off in many places ; on iron railing in senate. 20. Wires are found run through doorways, and in closing the doors and windows it is necessary to close same on wire crushing the insulation. 21. This lamp cord construction is a very dangerous one and is found in every location in the building. 22. Joints poorly made and very poorly taped and no joints were soldered. 23. Phone wires used for extending circuits and tacked around with iron staples. 24. Wires for extension are found connected direct on to circuits. 25. Wood cleats used for supporting wires. 26. Wood moulding improperly installed ; connection made in same without the aid of a moulding taplet. 2"]. Sockets off cords and bare ends hanging loose. 28. Unapproved old type sockets used in many locations. 29. Badly worn and dilapidated cords used for extensions. 30. Oily and greasy condition found around fan motors in attic. 31. Socket caps without bushings. T^2. Duplex wire used in exposed wiring at fans and other loca- tions. T^T^. Obstruction found in front of door loading to transformer vault. T hope that this rc])ort will meet with your approval and beg to rcmani ^'ours very truly. Wm. J. Leonard, State Fire Marshal. ON ADMINISTRATIVE REORGANIZATION 235 APPENDIX "C" Columbus, Ohio, Dec. i, 19 19. Dr. a. W. Freeman, Commissioner of Health. Dear Doctor : The following is the report of a survey made of the plumbing, drainage and sanitary facilities used in the Capitol Building. number of rooms. The main building contains approximately yy rooms, some of which were constructed by dividing larger rooms. The state house annex con- tains 57 rooms, making a total of 134. occupants. The regular employes consist of about 300 men and 100 women. When the legislature is in session about 50 additional women and 200 additional men are located in the building. plumbing. Two 10" soil pipe stacks serve 34 water closets, 35 lavatories, 19 urinals. 4 slop sinks, i janitor's sink and i sink for the engineer. The sewage from these fixtures leaves the building through two 10" extra heavy cast iron house drains and empties into the city sewer. The above fixtures are located as follows : senate toilet room, 5 water closets, 4 urinals and 4 lavatories. The general toilet room for men located ofif the south corridor, and the one off the north corridor are each provided with three water closets, one urinal and one lavatory. The only toilet room for women in the main building is now nearing completion and contains 6 water closets and 3 lavatories. A rest room is provided in connection with this toilet room, and both are constructed and equipped in accordance with the recommendations made to the adjutant general under date of June 27, 1918. A toilet room for men is located in the interior light court off the north corridor. This contains 2 water closets and i urinal. No lavatory is provided. Three general toilet rooms are located in the annex, two for men and one for women. FIXTURES. Several of the closet bowls are crazed, others are defective and some are of a prohibited pattern. Urinals with few exceptions are of the wall hung type and the floors beneath these fixtures were in an unsanitary condition at the time of inspection. 236 KICI'OKT OF JOINT LK(iISLATl\E COMMITTKK Part of the C(|uipment was evidently installed at the time the. building was creeled about 1S50. Most of the plumbing was installed in 1901. Where water closets are set on wood floors, the wood is saturated a consid'jrah'.e distance around the bowl, causing an insanitary condition. LIGHT AND VENTILATION. InsulTicient ventilation is noticeable in several toilet rooms ancl janitors' .-lop sink rooms. These are without natural light and no n;echan:cal means is used to change the air. WATER SUPPLY. Most of the offices are supplied with bottled water for drinking. Some drinking cups are used in common, other employes use individual cups. Two drinking fountains are placed in the main building, one in the north corridor and one in the south. A triple system of water supi)ly is used to supply fixtures, hose, faucets and boilers : First ; rain water is taken directly from the roof and stored in two large wrought iron tanks placed directly over the east and west entrances to the building. Second ; well water is also pumped to the storage tanks and distrib- uted through the soft water system. Third; city water enters the building through a two-inch line, con- nected to a three inch service pipe. These three systems are cross connected by means of by-passes and valves. This causes a possibility of contamination, by having rain water or well water from the tanks forced into the city water service lines. KECOMMENDATIONS. Water proof floors should be substituted fur wood floors in toilet rooms. All wall hung urinals should be abandoned, and fixtures with floor openings be substituted. All prohibited types of closet bowls and defective bowls should be replaced with fixtures of approved pattern. The distribution of bottled water should be discontinued and drink- ing f(;rntaMis with approxfd type of bubbler installed. .An .-uixiliai\- \entilating system should be installed to provide pos- itive ventilatii n for all interior toilet rooms, slop sink rooms, and other ro(>n-'s where the present system is inoi)erative. The two large storage tanks should be abandoned, and all roof water conrlucted dircctlv to the stf)rm sewer. ON ADMINISTRATIVE RliORGAN IZATION 237 The city water service pipe should be increased to adequate size and all fixtures in both buildings supplied with city water. The well water supply should be discontinued, or used for sprinkling only, through an entirely separate system without cross connections. All alterations, extensions and additions should be made in accord- ance with a definite and comprehensive plan. Proper and efficient maintenance should be provided of all sanitary equipment in the building. Respectfully submitted, W. F. Duffy, Deputy State Inspector of Plumbing. STATE BUILDING COMMISSION By GAYLORD C. CUMMIN The General Code makes the following provisions relative to the state building commission : 1 . "Whenever any building or structure for the use of the state or any institution supported in whole or in part by the state or in or upon the public works of the state that are administered by the superintendent of public works, is to be erected or con- structed, or whenever additions and alterations, structural or other improvements are to be made, or heating, cooling or venti- lating plants or other equipment to be installed for the use of the state, or in or upon such public works or in or for an insti- tution supported in whole or in part by the state, or for the supply of material therefor, the aggregate cost of which exceeds three thousand dollars, each ofifice * * * shall make or cause to be made by an architect or engineer, whose contract of employment shall be prepared and approved by the attorney general and filed with the auditor of state * * * full and accurate plans * * * ; and details to scale and full sized * * * ; accurate bills showing the exact quantity of * * * ma t e r i a 1 * * * ; definite and complete specifications * * * to carry them out and to afford bidders all needful information; a full and accurate estimate for each item of expense and of the aggregate cost * * * and such further data as may be required by the governor, secretary of state, and auditor of state acting as * * * the state building commis- sion. (G. C- §2314). 2. Plans are to be submitted to the state building commission for approval. (G. C. §2315). 3. Provision is made for advertising and letting contracts. (G. C. § 2315, 2317, 2318 and 2319). 4. Any change in plans must have the approval of the building commission. (G. C. §2321). 5. A method of procedure is prescribed in case of forfeited con- tract. (G. C. §2329). Interviews were had with those having dealings with the building commission. • 238 ON ADMINISTRATIVE REORGANIZATION 239 RECOMMENDATIONS. That the building commission be abolished. This is an ex-officio commission which is objectionable in itself. It will hardly ever be composed of men with any special knowledge of the factors involved in performing the duties with which it is charged. It weakens the sense of re- sponsibility in the departments with which it deals. It allows the possibility of interference with the mandates of the general assembly and the desires of the governor by persons responsible to neither- The proper control over such expenditures is that of the general assembly in making appropriations, the governor holding the department head responsible for proper plans and specifications, and a stat- utory procedure for advertising and letting contracts. . The approval of the attorney general of a contract as to form, the certificate of the auditor of state that there are funds available under proper authority and perhaps the signature of the governor as the representative of the state, would give a perfectly safe procedure. This commission is an administrative excrescence which should be removed. OFFICE OF STATE GEOLOGI T By GAYLORD C. CUMMIN ORGANIZATION. ' The State Geologist is appointed by the governor for a term of three years, the present incumbent being the professor of inorganic geology at Ohio State University. By staute the state geologist is charged w^ith the investigation of the geological structure and resources of the state. "He shall determine as nearly as possible the number and extent of the geological formations and shall from time to time represent them upon maps and diagrams. He shall study the occurrence and distribu- tion of such formations, determine their chemical composition and struc- ture, investigate the soils and water supply of the state, and give atten- tion to the discoveries of coal, building stone, natural cement, petroleum, gas and other natural substance of use and value. He may also collect and describe the fossils of the geological formations of the state, but no expenditure shall be incurred therein unless authorized by the general assembly." Interviews were had with the state geologist, with various citizens, bulletins of the department were consulted, and the writer drew upon his personal knowledge, acquired while using the information in possession of this department for important engineering work upon which he was engaged in the state some years ago. Ohio is rich in mineral deposits. It is the foremost state in the manufacture of clay products, stands high in the production of coal, petroleum, natural gas and has valuable deposits of building stone, port- land cement materials, gypsum, salt, sand, gravel, etc. A large part of the credit for the development of such resources can be traced to the studies of the distinguished scientists who have held the position of state geologist. The public is inclined to view the determination and position of the geologic strata as only of academic interest, but many times such infor- mation has acted as a guidepost to deposits of great economic value. Many materials occuring in the state may be of no economic worth today, but may suddenly become valuable due to improvements or discoveries in the arts and industries. The use of helium gas as a non-inflammable gas for balloons during the war developed a sudden demand for informa- tion as to its occurrence in natural gas, and some curious but apparently worthless data as to the constituents of natural gas in the Kansas-Okla- homa field suddenly became of great practical value. 240 ON ADMINISTKATI\E RKOKC.ANIZATION 24I RECOMMENDATIONS. That this function be placed under the proposed department of public works and conservation. As explained in the writer's report on the department of pubHc works, the trend of legislation has been to place conserva- tion functions under that department. As this is a con- servation function there is logical reason for this recom- mendation. The added fact that the services of the state geologist should be of great value in solving problems of water supply, utility of canals, sources of road materials etc. is another reason for the proposed transfer. ' That the term of office be made indeterminate. This is a purely technical position and there appears to be no reason why the incumbent should not hold office until re- moved for cause. In line with good organization practice he should be appointed by the director of public w^orks and conservation. That a bulletin be prepared on the physiography of the state for use in the grade schools in connection with nature study, in physical geography, and in teacher training en this subject. Such a bulletin should be written in non-technical language, should describe specific natural features in as many parts of the state as practicable and should be abundantly illus- trated by photographs, maps and diagrams. Such a volume would also be of much interest and value to the general public. Attention is called to a bulletin of the Wisconsin Natural History and Geological Survey entitled "The Physi- ography of Wisconsin" as a type of the kind of publication recommended. 10 INDUSTRIAL COMMISSION Prepared Under Direction of DR. L. D. UPSON By ARCH MANDEL INTRODUCTORY STATEMENT This report is based upon the survey of the organization of the industrial commission and purposes to be a statement of findings and recommended changes in the organization based upon these findings. The operation of the various bureaus of the industrial commission was studied only to the extent to which it reflected upon the organization, and the recommendations made to change methods of operation are included in so far as it seems essential to a more effective organization. In the survey of the commission every bureau head was interviewed, the procedure, records and reports of each bureau were reviewed, con- ferences were held with the secretary and chairman of the commis- sion and the hearings of the commission were attended and observed. Former heads of the claims and auditing divisions were also inter- viewed. The state insurance fund itself, its solvency and the manner and bases for its ratings, was the object of an independent study by Mr. S. H. Wolfe, upon which a separate report was submitted. Every recommendation made in this report, except the one relating to fund manager, which was not discussed, received the favorable com- ment and practically the approval of both the secretary and chairman of the commission, with whom they were taken up individually. One recommendation, namely, the appointment of a superintendent of insurance or manager of the fund was not taken up with them, but was discussed with the assistant actuary, the actuary himself being away from Columbus at the time. The findings which were taken up either with the secretary or the chairman of the commission, and most of them were taken up with both officials, were declared by them to be correct and the citicisms fair. During the whole survey the relations between the examiner and the officers of the industrial commission were cordial, information was freely given and there was exhibited on the part of the chairman and secretary a liberal spirit of recognizing and admiiling whatever short- comings were pointed out. It is desired to express appreciation of the reception of the examiner. 242 ON ADMINISTRATIVE REORGANIZATION 243 It cannot be emphasized too strongly, nor repeated too often, that the governor, budget commissioner, and the general assembly must con- sider the industrial commission, particularly those departments adminis- tering the state insurance fund, in an impartial and disinterested man- ner. In this instance there is a definite service to be performed, and a definite contract to be fulfilled. The state is the trustee of a fund in which 20,800 employers are directly interested, and upon v^hich de- pends the welfare of 1,500,000 employes and their dependents. This fund had assets on March i, 1919, of over $19,000,000. In other words, this is a vast insurance corporation, which requires for its proper con- duct at all times the application of sound business principles. POWERS AND DUTIES The industrial commission is composed of three members appointed by the governor, and is vested with all the powers and duties conferred and imposed by tlie law upon the former state liability board of awards, the commissioner of labor statistics, chief inspector of mines, chief inspector of workshops and factories, chief examiners of steam engineers, the board of water works, the chief inspector of steam boilers and the state board of arbitration and conciliation. These duties are to: 1. Administer the state insurance fund for the benefit of injured and dependents of killed employes. 2. Enforce laws relative to the protection of life, health and safety of persons employed in industrial and commercial es- tablishments, frequenters of pubhc buildings and occupants of tenement and apartment houses and institutions. Prescribe hours, labor safety devices and safeguards. Promote voluntary arbitration, mediation and conciliation of disputes between employers and employes. Establish free public employment agencies, and supervise pri- vate employment agencies. Collect and publish statistical information relating to em- ployers, employes, employments and places of employment. Examine and license steam engineers and inspectors of steam boilers. Censor moving picture films. ORGANIZATION The industrial commission of Ohio is administered by a board of three appointed by the governor with the consent of the senate, to serve at his pleasure. 244 KEl'ORT OF JOINT LEGISLATIVE COMMITTEE The commission consists of the following departments : 1 . Executive 2. Department of workmen's compensation Division of claims Division of medical inspection Division of auditing Division of rating — (acturial) 3. Department of inspection Division of workshops and factories Division of boiler inspection Division of steam engineers Division of mines 4. Department of investigation and statistics Division of investigation and statistics Division of employment offices Division of mediation and arbitration 5. Department of film censorship The number of persons employed by the commission is 406, and the cost of personal service for the fiscal year ending June 30, 1919, was $482,797.31, cost of maintenance $163,562.19, total cost $646,359.50. While the organization of the commission nominally consists of five de- partments, actually it consists of ten coordinate divisions, the head of each being directly responsible to the industrial commission. INDUSTRIAL HYGIENE Industrial hygiene is at present a function of the state health de- partment. While this may be properly a function of the industrial com- mission, it is suggested that the -prosecution of the work in this field remain where it is, for the time being at least. It is recommended that the general assembly consider the extension of state insurance to occupational diseases. 1. GENERAL ADMINISTRATION THE COMMISSION The commission of three administrators, through the departments- enumerated in the foregoing chapter, administer all of the functions in- cluded in the Industrial Commission .\ct. Because of its interesting features, and its importance, ihe workmen's comi>ensation department receives at least ninety percent of the attention of all the members of the commission. This leaves the other branches of the industrial com- mission practically free, except as the heads of these departments take ON ADMINISTRATIVE HKORGAN IZATIOX 245 up with the commission points upon which they need guidance or action by the commission. Meetings are held almost daily, at which matters of more or less import are passed upon. A review of the minutes of these meetings for a period of a year showed that the greater part of the business trans- acted at these meetings dealt with executive and administrative matters, rightly belonging to a chief executive or administrator. The chief reason for having a commission of three instead of a single commissioner ad- minister the Industrial Commission Act is the fact that the act gives its administrators the power of making rules and enforcing them. Were it otherwise, a single commissioner could, with greater advantage, ad- minister the aflfairs of the whole department. It is recommended, there- fore, that the commission confine itself to its policy determining, rule making, and judicial functions, delegating all administrative and ex- ecutive duties to a chief administrator. It is impossible for the three commissioners to perform effectively all the duties prescribed for them under the industrial commission act if they undertake not only to outline policies and to see that they are enforced, but also to attempt to direct the carrying out of those policies. The welfare of all the employes in Ohio with which the commission is charged requires detached thinking and comprehensive planning, and this can be done only if attention is diverted from supervising the opera- tion of the machinery. HEARINGS The commissioners alternate weekly in holding hearings. As a rule awards are made upon a statement of facts of the director of claims, but in disputed cases hearings are actual, at which interested parties appear, or in the event no one appears the commission may make its award upon the documentary evidence. In cases of denial of award by the hearing commissioner, a claim is acted upon at a later session of the whole commission. The investigator attended hearings during the course of a whole week, and found that the attitude of the commission was fair and just and even liberal to the claimant. At the same time the integrity of the fund was safeguarded. EMPLOYMENT OF ASSISTANTS Section 871-14 of the Industrial Commission Law authorizes and empowers the commission to employ, promote, and remove its assistants ; to fix their compensation, and to assign their duties, "such employment and compensation to be first approved by the governor." It is recommended that this section be amended by eliminating the requirement that the governor approve the employment or compensation of any of the employes of the commission. All employes are now in the classified service, placing their employment under regulations of the 246 REPORT OF JOINT LEGISLATIVE COMMITTEE civil service commission. Since the governor appoints the civil service commission, and also appoints the members of the industrial commis- sion, the additional check of having the governor approve appointments and compensation of employes of the industrial commission is super- fluous and may hamper the operation of the affairs of the commission. It is further recommended that all employes, from the secretary down, be placed in the classified, competitive service ; that all promo- tions be made through competitive examination. The latter is not being now done, and there seems to be no practical or obvious reason why it should not be done. THE SECRETARY The secretary appointed by the commission is in direct charge of the executive department, which employs 33 persons. To a limited de- gree he is the executive head of the industrial commission, through whom the orders of the commission are carried out and also through whom the heads of the various branches report to the commission. The actual secretarial duties of the commission, such as keeping the minutes of the meetings, are performed by a minute clerk under the direction of the secretary. It is recommended that the position of secretary of the commission be replaced by a chief administrator, responsible for the actual opera- tion of the machinery of the industrial comm.ission, and the carrying out of all the policies and rules of the commission ; that, subject to the rules and regulations of the civil service commission, he be delegated the power to employ, promote and discharge the employes of the com- mission ; that the chief administrator be placed in the classified, com- petitive service. This recommendation takes for granted that the com- mission is the court of last resort. EDUCATIONAL PUBLICITY It is believed that the commission could render more satisfactory service if every employe in the state knew what are his rights under the workmen's compensation law. and what he. or his dependents, must do when an injury is sustained or death occurs. To inform every employe it is necessary that the commission carry on a continual educational campaign in all industrial and mercantile establishments in the state, interpreting the workmen's compensation law to employes by word of mouth, by posters, circulars, etc., in words of one syllable, and explaining to them the steps to be taken in order that compensation or aid may be obtained from the state insurance fund. Aiany of the larger industrial plants employ persons for the specific and sole purpose of handling injured employes' claims, from the moment the injury is sustained until the settlement is made. In such establish- ments the ignorance of the employe does not militate against his re- ceiving com]:)en.sation or aid. The existence of such departments in ON ADMINISTRATIVE REORGANIZATION 247 factories indicates that there is need for educating employes in the pro- visions of the workmen's compensation law and in the rules of the industrial commission. 2. WORKMEN'S COA'IPENSATION DEPARTMENT. This department consists of four coordinate divisions, — claims, med- ical, auditing, actuarial — each operating under the direction of its own chief, responsible directly to the commission. This department operates the state insurance fund, which has 22,000 employers as state insurance subscribers and 800 employers as self- insurance subscribers. Through these employers 1,500,000 employes are insured. All employers having in their employ five or more persons come under the provisions of the workmen's compensation law. They must either contribute to the state insurance fund or if they so desire, they may pay compensation and furnish medical and surgical care, etc., di- rectly to their injured or their dependents, by making application to the industrial commission and establishing the fact that they possess financial ability to render certain payments of compensation, etc. All claims against self insured employers are handled by the employers themselves but their awards are reviewed by the claims division of the industrial commission. Employes of the self-insurers may appeal to the commis- sion if dissatisfied with the award. In all cases of continuing disability, the self-insurers render to the industrial commission monthly reports of their payments. Claims against employers insured by the state are handled from beginning to end by the claims division of the industrial commission. In this report the auditing and actuarial divisions will not be dis- cussed as they were made the object of a special study and report by Mr. S. H. Wolfe. (See report on State Insurance Fund by S. II. Wolfe). It is, however, desired to make mention here of one point in con- nection with the actuarial division. The accident laboratory organized by the actuary in his department is worthy of commendation. It has modern mechanical facilities for recording and tabulating statistics, but it is lacking in sufficient personnel to develop and analyze these statistics. If the recommendation that all statistics, including accident, be trans- ferred to an independent statistical division is not adopted, it is urged that enough help be allowed the accident laboratory to carry its statistical work to a point where it can be used. If constructive work for reduc- tion or elimination of accidents is to be done, it is absolutely essential that the data being gathered currently in the accident laboratory be put in usable form, and furnished currently to the various inspection branches of the commission. Until this is done the work of inspection will be indirected, haphazard and negligibly effective. 248 RKl'OKT OF JOINT LKC.ISLATINK' COM M ITTKE SUrERINTENDENT OF INSURANCE OR FUND MANAGER As Stated above, the compensation department as at present con- stituted is made up of four coordinate divisions, each under the direc- tion of a chief, responsible immediately to the commission. The ultimate aim of all four divisions is the same, and the fulfillment of this aim de- pends upon properly articulated action among these divisions. To secure this, a single head with authority to enforce coordination is essential. Voluntary cooperation, however perfect, cannot take the place of mandatory executive authority in achieving results. The commission itself is too far removed from the actual operation of the insurance fund to meet the need. It is, therefore, recommended that a fund manager, or superintendent of insurance, be appointed, subject to civil service regulations. The benefits to be derived from the presence of an executive solely devoted to the administration of the compensation department are obvious and need not be reviewed. FIELD FORCE The field force consists of about 40 men. and includes claim in- vestigators and payroll auditors. These men work under the im- mediate direction of the assistant secretary, i. e., he receives the assignments from the auditor and director of claims and he re-assigns them among the field agents. This centralization of field forces under one person, together with the plan of having the field workers do general ^vork — investigate claims and audit payrolls, has proven successful from an efficiency as well as economic standpoint. As stated above, more field workers are necessary, and higher sal- aries are needed in order to secure men of higher qualifications. "table a" Total Claims Handled During the Year Ending June 30. 1919 Total Total Dis- Total Month pii^j loosed of Pending 1918 j„ly 16,267 17.433 14,243 y^ugust 16.615 16,828 14.030 September 13.738 15.702 12.066 October 15.897 14.681 13,282 November 11.703 13,528 11.457 December 12,513 13.629 10.341 1919 January 12.445 12.8.57 9.5)29 February 10.181 12.069 8.041 March 11.928 11.323 8.646 April 10.634 11.405 7.875 May 8,730 9.878 6.718 June ll.^>20 12.836 5,502 on administrative re0k(;amzat10n 249 Division of Claims organization This division, under the direct supervision of the director of claims, employs eighty-two persons. The forty-six office employes are classified as follow^s: I chief clerk, assistant to the director of claims. I stenographer to the auditor, who also handles the "Section 27" cases, those in which claims are presented against defaulting employers. I superv'isor, 3 clerks and 2 stenographers, who handle all the "Section 22" cases — self insurers to the number of 800. II claim examiners, 12 stenographers, 7 typists, 8 clerks — filing, record, index, docket, etc., who handle all the cases of the 22,000 state insurance subscribers. PROCEDURE All claims against state subscribers come to this office, where they are prepared for hearing by the commission, so that payment may be made. The following steps are followed in the preparation of the claims for hearing: 1 . Upon receipt in the claim division, claims are sent to the audit- ing division to see whether the claim is active — whether the subscriber has met his obligations. Returned to claim division. 2. Sent to actuarial division for classification, and sometimes for verification as to whether the claim is active. Returned to claim division. 3. Recorded in the claim division and given a claim number. 4. Sent to the medical division to check the attending physician's estimate of the period of disability. Returned to claim divi- sion. 5. Placed in the hearing files and are made ready for a hearing by the claim examiners who go over the claims to ascertain that all the information is regular and adequate for a settlement to be made. 6. Hearing docket is made up by the chief claim examiner. Should the claim as presented appear regular, offering no disputed points, it is approved and recommended for payment. But should the proof presented appear questionable, placing in dispute the payment of the claim, it is turned over to a claim reviewer who seeks to obtain more adequate proof, and makes his recommendations for payment or non- payment by the commission, based upon the documentary evidence sub- mitted. As a rule the commission follows these recommendations. 250 REPORT OF JOINT LEGISLATIVE COMMITTEE In instances where appeal is made from these decisions or when it is found more advisable to hold oral hearings with the claimants, the claims are referred to one of the three referees who hold their hearings and make their recommendations to the commission. The plan of send- ing referees to hold oral hearings in the cities where the claimants are employed is a good one, as it relieves the claimant, employer and witness from coming to Columbus at considerable expense and inconvenience, while one referee hears many cases in one city and in one locality, while out on a trip. An idea of the work of the referees is given in the following statement: ''table i" Summary of Oral Hearings Held by the Three Claims Referees of the In- dustrial Commission OF Ohio From January 1, 1919, to November 25, 1919, Inclusive. Place Columbus Number 3 Place Elyria Blaine Cambridge Tiffin Number 3 Mansfield Mt. Vernon 15 1 30 1 Akron Portsmouth 26 Fostoria ] 2 Cleveland 4 Delaware 3 Van Wert Conneaut Toledo Cedarville 1 Barnesville 8 Orrville 1 Canton Bucyrus Urbana Athens 1 1 Rutland Steubenville Hocking New Straitsville 1 2 Washington C H. . . . Ironton . . . 1 Hamilton Marietta Logan Kelley's Island 2 1 2 Zanesville Findlay New Lexington 1 Springfield Bellaire 1 1 1 New Philadelphia 1 1 Bellefontaine McKeesport, Pa 1 79 Total 152 Miscellaneous Matters • 26 73 Under this head are included investigations, legal opinions, statement of facts, and review of documentary proof filed in claims. The claim reviewers and referees are responsible directly to the com- mission. It may be stated in passing that the recommendations of the ON ADMINISTRATIVE REORGANIZATION 2^1 reviewers and the referees in those cases observed appeared to the ex- aminer indicative of the appHcation of just and able consideration. DELAY IN PAYMENT OF CLAIMS While the commission in making claim settlements treats claimants fairly and even liberally, giving them the benefit of every reasonable doubt, and waiving hairsplitting technicalities, it is recognized that this is not sufficient. It is also necessary to pay claims promptly so that hard- ships attendant upon delay in making payments may be avoided. It is agreed by all who have given the matter thought, and not least by the commission itself, that the period between the sustaining of the injury and the granting of the initial payment is unduly long. This delay may be due to : I . Inadequate personnel — in number or efficiency. ■ 2. Procedure followed in putting thru claims for a hearing. PROCEDURE FOLLOW^ED The following statement, furnished by the Secretary of the Com- mission, presents a clue as to what is probably the principal cause of delay : OHIO I,000 CASES (Ave.) 1916 1917 1918 Total Interval between date of accident and date accident was filed (days) d4 16 12 14 Interval between filing of first notice and filing of ap- plication (days) 21 25 28 25 Interval between filing of application and date of hear- ing (days) 6 8 8 7 Interval between filing of first notice and date of hear- ing (days) 25 37 36 34 Interval between date of accident and date of hear- ing (days) 46 49 56 5:3 (weeks) 6 4/7 7 8 7 4/7 It is desired to call attention particularly to the first two figures in the "average" column. The total time elapsing between the date of the accident and the date upon which the application is filed is 39. In other words, it took 39 days before all the data was in the office required to begin to'put the claim through for a hearing. This data includes the appli- cation of the injured man, a statement from the employer and a certificate from the attending physician. This information was transmitted sep- arately by the three persons mentioned, the first notice coming from the injured person, merely stating that an injury had been sustained. An interpretation of these figures brings up two points, first, that the injtired person either through ignorance or carelessness does not file his notice of 2^2 KKI'ORT OF JOINT LEGISLATIVE COMMITTEE injury until fourteen days have elapsed; and second, that after this first notice of accident has been filed, the claims division waits until the sup- plementary information is submitted by the attending physician and em- ployer. In November, 1919, the practice of having all the necessary in- formation required of the injured persons, employer and attending physician submitted on one blank was adopted. This may reduce the delay but when it is realized that the 39 days delay is caused by the failure of the interested persons to send in the required information, and that the new plan, altho eliminating one step in the procedure, still contemplates waiting for the information to be sent in, it becomes mani- fest that more effective measures must be taken to reduce delay in making initial payments. Nothing, of course, can be done by the industrial commission until it is informed of the occurrence of the accident. This the employer is required by law to do within seven days. Mr. Downey in his report on the "Actuarial — Audit of the Ohio State Insurance Fund" recommends that this report of the employer be taken as prima facie evidence of a compensatable injury and that a "proper system of supplementary reports will establish the continuance or termination of disability." This rec- ommendation is confirmed. Whether or not the above recommendation .is adopted the industrial commission, through its claims division, must take the initiative in secur- ing the data required to establish a claim, as soon as the employer's notice of the accident has been received. At present the industrial commission is absolutely passive, shifting the whole burden to the employer, who may be indifferent to the injured person who may be and probably is, ignorant of exactly what steps to take, and to the attending physician who is usually lax in supplying the needed information. To take the initiative the claims division must do the following: 1. Receive the employe's report (or a copy of it) of the occur- rence of the accident. 2. Follow up the accident by writing to the claimant or his de- pendents, requesting the supplementary information, or by em- ploying the services of field agents through the district office. This follow-up through correspondence or through field agents to be continued until the information is secured. Form letters and printed instructions in simple language outlining the'steps to be taken can be sent the claimant. This follow-up would neces- sitate the maintenance of the tickler file in the claims division of all cases in which supplementary information is lacking. The most obvious remedy for sjx'cding up initial payments would be to accept the enipk)yer's notice as ])rinia facie evidence of a com- ON ADMINISTRATIVE RKORGANIZATION 253 pensatable accident, but to prevent a lapse in subsequent payments of a temporary disability some aggressive follow-up system as suggested above would still be required. It is not intended to work out in this report the details of operating an effective follow-up. It is merely desired to point out and to empha- size the fact that the lack of initiative in following up accidents, either through correspondence or through field agents, is considered by the ex- aminer to be one of the principal causes of delay in making settlements This finding was corroborated by the secretary of the commission and by the former director of the claims division. The lapse in the continuity of payments in cases of permanent dis- ability because of pending re-examination by the medical examiner has been corrected by allowing all awards in such cases to run until further order of the commission. ADEQUACY OF PERSONNEL There is no doubt that additional referees, and field agents or in- vestigators, medical examiners, would not only expedite the disposition of claims, but would also improve the service generally. To carry out a proper follow-up of claims, either for the purpose of hastening initial payments or confirming continuous and subsequent payments, it is necessary to have a sufficient force in the field. As to the sufficiency of help in the office, the statement was made by the members of the commission and the secretary that no larger office force is needed, but that a higher grade of employe than the salaries paid enable the commission to obtain, is essential, and even ventured the belief that fewer and more highly qualified employes could produce more effective results. How much the seven days required to put a claim through the office procedure can be reduced, and undoubtedly it can, may be determined with almost mathematical precision by the director of the claims division. Being assured, first, that the routine followed in preparing claims is re- duced to the simplest form, the number of claims that can be handled daily by the claim examiners and the medical examiners can be ascer- tained, and knowing approximately how many claims come in daily, the number of persons required to turn them out currently should not be a difficult matter to determine. It is possible that the need for referring claims to the auditing divi- sion can be avoided if the claims division maintains currently a visible index of active subscribers to the fund. This is merely a suggestion. It was asserted that the civil service specifications as applied to the positions in the claims and other divisions precluded the employment of competent help. It would not be surprising to find this true, because the specifications were made up rather hurriedly some years ago. The 254 REPORT OF JOINT LEGISLATIVE COMMITTEE industrial commission has been able to remedy this defect to some extent by being granted the permission to make its own promotions without ex- amination by the civil service commission. In any event, a resurvey of the positions and duties by the civil service commissions is recommended, with the suggestion that the administrative and executive officers of the commission be freely and fully consulted. BRANCH OFFICES In considering the question of expeditious settlement of claims, the suggestion arises that the organizing of the district offices into complete units, i. e. agencies for settling claims, regular ones at least, in their re- spective districts, would solve the problem of delay. Decentralization of the work now performed in the Columbus office should, so it seems, accomplish this object, but on the other hand, it would also tend to com- plicate the operation of the compensation department and to produce a new species of evils. The secretary of the commission, in this con- nection, stated that the Columbus office could handle all claims expediti- ously if a qualified personnel could be employed. It is recommended that the present centralized system of handling claims be continued until such time as its failure to operate efficiently under favorable conditions is demonstrated. It is urged, however, that more investigators be at- tached to the district offices in accordance with foregoing recommenda- tions. PROPOSED REORGANIZATION OF CLAIMS DIVISION Manifestly the big task of the compensation department so far as the general public is concerned is to settle claims and to settle them promptly. This makes the claims division a primary branch of the service and the position of the director of claims a most responsible one. Neither the salary attached to this position, and this is true throughout the service generally, nor the authority given the incumbent, are in pro- portion to the duties and responsibilities of the position. The work of the referees, claim reviewers and medical examiners deals primarily with the settlement of claims, and therefore, it seems logical that these employes should be placed under the direction and supervision of the director of claims, and that the latter be given full authority as well as the full responsibility for the expeditious and proper- preparation of all claims for hearings. At the present time the duties as carried out seem to be merely those of a chief clerk whose job is to grind out routine matter throus^h an accepted procedure. To summarize — delay in paying claims can be reduced by initiative on the part of the claims division in securing all information necessary to establish the validity of a claim. This will undoubtedly require more field investigators and a revision of office methods. Whether it will re- quire an addition to the office force or merely more effective work by ON ADMINISTRATIVE REORGANIZATION 255 the same number cannot be stated here. There has been considerable mention of operation studies. Everybody connected with the commis- sion admitted that undue delay existed and that something ought to be done. It seems to be, therefore, a question of somebody actually doing something. It is up to the director of claims to begin the doing and planning. Operation studies are an integral part of the responsibility of an executive particularly when he knows something is wrong. On the other hand, the general assembly and the budget commissioner must do their part so as to avoid furnishing excuses for deficiencies in functioning — if work programs are adequately presented. CASES DISPOSED OF IN COURT During 1919 thirty-one state cases were disposed of in tlie common pleas court as follows : Judgments rendered in favor of claimant 15 Judgments rendered in favor of commission 2 Dismissed at plaintifif's cost 14 Total 31 Attention is called, in the following table of judgments rendered in favor of claimant, to the attorney fees awarded by the court : Compensation Attorney Awarded Fees $1,200 00 $400 00 1,152 00 500 00 200 00 500 00 100 00 1,700 00 1,000 00 1,050 00 650 00 958 00 50 00 2,000 00 300 00 3,744 00 350 00 150 00 150 00 3,744 00 600 00 2 00 150 00 2,220 80 350 00 720 00 100 00 4 00 2,808 00 3,750 00 600 00 2,184 00 300 00 5,000 00 400 00 It is reported that attorneys when trying these cases in court will invariably introduce evidence not presented at the hearings before the 256 KEI'ORT OF JOINT LEGISLATrVE COMMITTEE commission, which, if introduced at that time, would probably have caused the commission to meet the demands of the claimant, avoiding necessity for court action. Should attorneys' fees in such cases be regulated by statute? Division of Medical Inspection organization This division is composed of a chief medical examiner, a chief as- sistant and six assistant medical examiners, one medical clerk and four stenographers, three full and one part time. DUTIES The duties of the medical division divide themselves into two phases, the work in the office and that in the field. OFFICE WORK Every claim involving medical expense or compensation is reviewed by a medical examiner as to the period of disability stated or estimated in the claim as to whether the claim is a compensatable one and also as to the judiciousness of the attending physician's charges. Examina- tions of injured persons are made in the office at Columbus. FIELD WORK Three medical examiners working in the field all the time make an effort to examine every case of permanent partial disability not spe- cifically outlined in the act; all cases of permanent total disability; most cases of temporary partial disability and of continued temporary total disability. The plan of medical examination carried on by the medical division is of benefit to the individual and to the fund. Examinations reduce the periods of compensation in many instances and in other cases examina- tions result in proper medical attention being secured by the injured person. An increase in the medical force should be granted in order that cases may be examined ])romi)tly and frequently. This would hasten the settlement of claims held up because of medical questions being in dispute. It is suggested that consideration be given to locating medical in- spectors at the district offices from which a definite territory could easily be covered at all times. CUTTING OF FEES The report is current that physicians thronghout the state refuse to attend "compensation" cases because the bills they submit for their services are cut bv the industrial commission. The metlical inspector ON ADMINISTRATIVE REORGANIZATION 257 reviewing the fees charged does reduce the amount of the bill if the charge is above that allowed by the schedule established by the commis- sion, or if in the opinion of the medical examiner more visits than the disability warrants were made by the attending physician. How prevalent this discontent is could not be learned. From August 15, 1919, to November 25, 1919, the total reduction in medical fees amounted to $22,255.95. The total amount of fees paid to physicians amounted to $277,602.95. During this period 921 different individuals suffered reductions in accounts and it is estimated that between 1500 and 2000 physicians did business with the commission. Whether the same physicians repeatedly had their fees cut was not learned. The chief medical inspector began to keep a record of the reduc- tions made, reason for reduction and the name of the physician whose fees were cut. An examination of the record, very recently installed, showed that certain physicians repeatedly had their fees reduced either bcause of more visits than were warranted, or because the fee was above the standard allowed. To the examiner the schedule of fees allowed for various services seemed fair, but it is possible that with the general increase in the cost of services and commodities, the standard set should be revised upward. Incidentally, this applies to the salaries paid the medical examiners. Good service cannot be expected for the salaries paid, nor does it increase respect for the medical opinions rendered by the industrial commission, if such opinions emanate from physicians receiving from $2,000 to $3,500 per year. The only way to avoid discontent among the medical profession is to adopt the policy of approving all bills, if the amount is based upon the schedule rate set by the commission. In other words, discretion as to the need for the number of calls made is to be left entirely to the attending physician. Otherwise there is nothing to do but to allow the medical inspectors to use their best judgment in auditing the medical bills. 3. DEPARTMENT OF INSPECTION. The inspection department of the industrial commission is com- posed of four coordinate divisions, each under the direct supervision and control of a chief deputy. They are, Division of workshops and factories Division of boiler inspection Division of steam engineers Division of mines Division of Workshops and Factories powers and duties This is the largest of the inspection divisions, and its functions cover the safeguarding of life and health of all persons employed in factories, 17 258 REPORT OF JOINT LEGISLATIVE COMMITTEE workshops and mercantile establishments; and of all frequenters of schools, and public buildings of all kinds. It is the duty of this division to examine and approve plans of all public buildings and through the inspection of all factories, workshops, and mercantile establishments, to make certain a. That the heating, lighting, ventilating, and general sanitary con- ditions are conducive to good health. b. That all machinery is properly safeguarded. c. That the structure is safe and can house safely the persons and contents occupying the building. d. That proper protection is afforded in case of fire, and that no conditions exist dangerous to life because of undue fire hazards. e. That the labor laws — female, child, and eight-hour — are ob- served. f. That occupational diseases are brought to the attention of the state department of health, g. That the mattress law is being observed. The division of workshops and factories, through the power granted the industrial commission, has the right to make such inspections at any time, and to enforce the orders it issues to remedy defects found. ORGANIZATION The chief deputy, the executive of the division, has had practical ex- perience in the building line. The first assistant deputy is an architect and engineer, whose main duties are to examine ail plans of public buildings submitted to the division. The second assistant, who has had practical experience in building, also examines plans. When the need arises the first and second assistants go out into the field to inspect buildings that are being constructed. The nineteen men anrl eight women district deputies do the general factory inspection. The state is divided into nineteen districts, in each of which a woman is placed. As a rule the men and women inspectors do not conflict in their duties, the latter concentrating their efforts to those establishments where women and children are employed in large numbers. The six safety engineers were chosen because of their more intimate knowledge of the safeguarding of machinery. The state is divided into six districts, each in charge of one engineer, who is assigned to the larger factories in each district — those containing more intricate machinery. These engineers not only inspect the factories in reference to safety of machinery, but make a general inspection of those factories under their supervision. In this wise duplication of inspection by the general factory inspector is avoided. The safety engineers' work in- cludes also the organization in each factory of a safety council, made up of employes of the factory, thus bujlding up in each plant a continuous ON ADMINISTRATIVE REORGANIZATION 259 supervisory and inspectional service for the elimination of accidents. The three district deputies assigned to bake shops spend all of their time in the inspection of bake shops, and in the enforcement of the labor law in bake shops. Since August 1919, two inspectors, known as high power piping inspectors, have been employed. They inspect all refrigerating and hydraulic piping and all high power piping from the first valve of a boiler outward. The explosives inspector, as the title indicates, inspects all storage of explosive material. Under the new explosives act of 19 19 every place — about 12,000 — where explosives are stored is being inspected and if approved, licensed. The income from these licenses will be about $20,000 annually. The safety director is directly responsible to the chief inspector, and is the safety propagandist for this division. It is his duty to help or- ganize safety organizations in factories, to arrange meetings where safety talks are given, to arrange safety exhibits and to spread the gospel of safety in any manner he may deem effective. STATE BUILDING CODE At present the department is working under a number of miscel- laneous codes, promulgated by it to cover the different phases of in- spection work to be done. A tentative building code incorporating all these individual codes has been prepared and it is hoped will be made a law at the next regular session of the legislature. Enforcement of this building code under the present laws devolve upon the division of work- shops and factories, except for that part of the code covering plumbing installation. It is recommended that the plumbing department of the state, which is now part of the state health department, be transferred to the division of workshops and factories, thus centralizing and unify- ing all building inspection. Plans for all public buildings — schools, churches, theaters, etc. — must be submitted to the division of workshops and factories for ap- proval before the building can be constructed. There is no inspection of the actual structures themselves, because there are not enough inspectors to permit it. Occasionally an inspector, while in the field, may visit such buildings in the course of construction and report upon it. Whether or not the division of workshops and factories shall adopt, as a mat- ter of regular policy, the inspection of all public buildings during the course of construction, is open to question. In those cities where local building departments are maintained, adequate protection is given the public by the inspection of all buildings in the course of construction. It would entail considerable expense and the employment of a consider- able force of men to enforce the state building code in those places where there are no facilities for inspection. In fact, a proper enforce- 26o REPORT OF JOINT LEGISLATIVE COMMITTEE ment of the building code by inspectors, sent out from Columbus seems problematic, because inspections could not be made with sufficient fre- quency. It seems, therefore, that the architects should be made respon- sible for carrying out the provisions of the building code and for erect- ing a structure in conformance with the plans and specifications sub- mitted. In this connection, consideration should be given to the licensing of architects and engineers so that all buildings being constructed would be erected under capable and responsible supervision. OFFICE PROCEDURE The office is in charge of a chief clerk, who is responsible for the issuance of all orders for the correction of bad conditions in factories. The orders sent in by inspectors are edited and transmitted to their proper destination, and copies for follow-up kept in the office. The work seems to be well taken care of and kept in hand. There is, how- ever, one recommendation that seems pertinent, namely, to install the same recording and follow-up system on factories in general, as was installed by the chief clerk in the inspection of explosives. This system serves as an excellent means of checking up the number and frequency of inspections. PROPOSED ORGANIZATION The organization and operation of the division of workshops and factories has two fundamental weaknesses. They are, 1. Lack of qualified help. 2. Lack of definite direction in inspection service. Safety engineering has become in late years a specialized profession, or at least there are persons employed in various plants and factories, whose sole business it is to introduce safety measures into the operation and to prevent injuries through accident as far as possible. Safety in its broader sense and the one to be considered by the industrial com- mission means the presence of all those factors contributing to the com- fort and well-being of the employe and the elimination of those factors detrimental to his well-being. This makes the field a broad one, and in- volves the employment of various types of abilities and experiences. The larger factories have safety engineering departments, where highly qualified men are employed. If the industrial commission wants to accomplish results in safety work it must provide employes who can speak with authority and whose judgments will be respected by em- ployers throughout the state. There is no desire to disparage the quali- fications of the present employes of the division of workshops and fac- tories; they are doing what they were employed to do, and are doubt- less earning the money paid them. In speaking of the lack of qualified help, reference is not made to the inspectors now employed. Reference is made to technically trained men of high ability, whFch the division ON ADMINISTRATIVE REORGANIZATION 261 of workshops and factories does not now employ in its inspection work, and which it should. The chief of this division should have a staff of specialists, who can pass authoritatively upon problems brought in by the inspectors in the field. The inspectors can continue to be employed • in their present capacity, but to solve problems which they are not qualified to handle this staft of specialists will be used. In connection with the employment of this staff, it is recommended that the distinction between the safety engineers and the factory in- spectors be abolished, and that the state be divided into districts, each under a factory inspector, who would cover every establishment in his territory. All inspectors can be trained to discover defects and to report them and even, if of a minor nature, to suggest the remedy. If of a complicated nature, the help of the specialists would be called in. The big factor in all safety work is education, and for this purpose the safety engineers seem no better qualified than do the general factory ■ inspectors. The organization of safety committees and the preaching of safety require qualifications that the ordinary mechanic does not possess, and the safety engineers were picked for their places merely because they had a better knowledge of machinery than the ordinary factory inspector. Women inspectors, under any form of organization and irrespective of how the state is divided for factory inspection purposes, will be needed to cover those establishments where women and children are employed in large numbers. There is an apparent need for more women in- spectors. It is recommended that the function of examining plans be placed in a plan examining bureau of the division of workshops and factories. Bake shop inspection is a function properly belonging to the depart- ment of health and should be transferred to that department. Lack of direction and of definite planning is inevitable because the inspectors have no definite basis for their inspections. The inspectors go from factory to factory looking for defects and ordering correction, visiting some factories every year and others once in a number of years. If the division of workshops and factories had an unlimited number of inspectors the present method might be effective, but with a too limited corps of inspectors all waste motion is particularly costly. It is urged, therefore, that the accident statistics be furnished the division of work- shops and factories currently, and that this data be used as the basis for planning the work of the inspectors. Then and then only will the in- spection department know specifically what its problems are, and where they are, and so be able to direct the efforts of the inspectors to the maximum advantage. The present hit or miss plan should be abolished at once. It is recommended that the inspection division — workshops and fac- tories, boiler inspection, mines — be consolidated into one inspection 262 REPORT OF JOINT LEGISLATIVE COMMITTEE division under the direction of one chief. In the last analysis all inspec- tions have the same end in view and the principle and philosophy govern- ing them is a common one. It is recognized that mine inspection requires the services of specialized inspection, and that for practical reasons, boiler inspection may have to be continued as at present, but the con- centration of supervision in one head will bring together all of the forces in the industrial commission to work on the problem of reducing acci- dents and promoting the safety and welfare of all employes. This con- solidation within the industrial commission, to which it is recommended be added the functions of the fire marshal's department, will serve more than any other one measure, to make the promotion of the welfare and the safeguarding of the lives of employes and frequenters of public buildings, the serious business it really is, requiring the earnest and con- tinuous application of high ability. The economy effected will be in in- creasing the returns for the money expended. At least the same will be true by consolidating all ofifice work under one chief clerk, although reduc- tions in the force to do the same work now being done in the individual offices, can probably be made. It is further recommended that the work of this inspection division be co-ordinated and correlated more intimately with the rate making branch of the compensation division. It seems that the position and duties of the "director of safety" are taken too lightly. The duties of this position are basic and can, if fully carried out, increase the value of the inspection division ioo%. This position requires a good propagandist who should be furnished adequate funds and facilities for impressing and keeping impressed employers and employes with the gospel accident prevention. Division of Boiler Inspection The function of this division is to inspect all boilers used in the state of Ohio, to examine applicants for the position of boiler inspectors, to formulate rules governing the operation of boilers and to give permits to manufacturers to make the Ohio standard boiler. organization The division consists of the chief inspector, an assistant chief in- spector, eight general inspectors and the office force, consisting of a chief clerk, typists and bookkeeper. In addition to the eight inspectors employed by the boiler division, the chief inspector has responsible to him 250 inspectors who are paid and employed by the boiler insurance companies. The work done by these 250 inspectors is 'the same as that of the eight state inspectors and the control of these inspectors by the chief inspector is as close and as rigid as the control of his own inspectors. I ON ADMINISTRATIVE REORGANIZATION 263 The State inspectors inspect all boilers not covered by the insurance companies. OPERATION Each inspector inspects from 400 to 450 boilers twice each year, once internally and once externally, altogether 20,000 boilers being in- spected twice annually. The state receives $5.00 for each internal and $2.00 for each ex- ternal inspection made by its inspectors. In addition to this a fee of $1.00 is charged for a certificate. For the survey of this office, it was found that the work is very well in hand and that every boiler, except the small non-dangerous type, is inspected. A card record of each boiler in the state is kept and every lapse of inspection is easily followed up. Each inspector has a card record in his office of all boilers that he must inspect and regularly twice a year these inspections are made. Should the inspector fail to make an in- spection when it is due, he is reminded by the central office that the inspection has been overlooked. All the work is routed from the Co- lumbus office. Inspectors send in weekly reports of the number of boilers inspected and their itinerary for the following week. This itinerary must be followed closely because boiler operators, upon notice from inspectors, prepare for inspection at the specified time. As soon as a boiler is shipped into the state, a certificate describing the boiler is sent from the factory to the Columbus office, and the boiler is not to operate until an inspector examines it to see that it comes up to specifications. This special inspection costs the owner of the boiler $5.00, and when the inspection is made a serial number is given as an identification for future inspections. If the statement of the chief inspector, that a small low pressure boiler is non-dangerous and does not need inspection is taken for granted, it may be stated that the work of the division of boiler inspection is done efficiently and at all times kept well in hand. The division con- trols every boiler that comes into the state, notes when it is shipped in, examines it before it is put into operation and in future, by its system of follow-up, keeps a close check on the condition of the boiler. BOARD OF BOILER RULES The board of boiler rules consists of five members, a manufacturer of boilers, a boiler owner, a stationary engineer, a representative of the insurance companies, and the chief inspector of the boiler division who is chairman. It meets every three months to examine applicants for positions of boiler inspector, to formulate rules governing operation of boilers, and to prepare specifications for the Ohio standard boiler. Should the chief inspector withdraw from any manufacturer the 264 REPORT OF JOINT LEGISLATIVE COMMITTEE permit for the manufacturing of the Ohio standard boiler, the latter has the right to appeal to the board of boiler rules for reinstatements. There are a number of exemptions to the inspection of the high pressure boilers, notably those used in farm machinery. The law should . be amended to eliminate the exemptions. This may mean adding in- spectors, but would be worth while. PROPOSED ORGANIZATION It is recommended that the division of boiler inspection be made an integral part of the division of workshops and factories and public build- ing inspection, in accordance with the recommendations in the forego- ing chapter. DIVISION OF MINES The inspection of mines, with respect to safety and the welfare of the men, is carried on by the division of mines. ORGANIZATION AND OPERATION The organization consists of a chief deputy, twelve district deputies, one oil and gas well inspector, one mine recue car attendant and the office force, consisting of a chief clerk and four other clerks. Each mine is inspected at least once a year and reinspections as the occasion demands. Every year operators must send in to the division of mines a map showing the exact condition of the mine as of a par- ticular date. In 1917 about 1,000 mines were in operation in Ohio and in 1918 there were 1,600 in operation. In addition to the inspection of mines, it is the duty of this division to insure the sealing up of all oil wells in the coal producing district. The one oil and gas well inspector gets a record of all oil wells drilled in a county and this record is checked up in the office to see whether or not permits had been obtained to drill these wells. It would be desirable to visit all oil wells to see that they had been properly plugged, but it is impossible to cover the territory with this one man. Occasionally, where it is important, an inspector is sent to see that the oil wells are properly plugged. The chief inspector states that one other gas and oil well inspector would permit of inspecting the sealing of all oil and gas wells. The inspection of the records of this division showed that the work was effectively followed up and the mines regularly inspected. The work of inspection is well directed. It is recommended that an additional oil and gas well inspector be granted. In accordance with the recom- mendations in the foregoing chapters, it is recommended that the division of mines be made an integral part of the division of workshops, factories and public buildings. ON ADMINISTRATIVE REORGANIZATION 265 DIVISION OF STEAM ENGINEERS The functions of the examiner of engineers is to examine all ap- plicants who wish to act as steam engineers, to make inspections, to see that all operators of steam engines are properly licensed. ORGANIZATION AND OPERATION The organization consists of the chief deputy, the assistant chief deputy, ten district deputies and the office force of two clerks. In order to qualify for an examiner of engineers, an employe must have had seven years' practical experience as a steam. engineer. The ten district deputies are each assigned a district where, usually in the district office of the industrial commission, they examine, every Monday morning, applicants for steam engineer's license. These ex- aminations are written, unless the applicant cannot write, when an oral examination is given; and if the applicant cannot understand English, an oral examination through an interpreter, at the expense of the ex- aminee, is given. A fee for the examination is $2.00, and an annual fee of $2.00 is paid by each licensed engineer for renewal of the license. The examination papers are sent into the main office and filed. The system in the office is good, permitting of an effective follow-up. While the examining phase of the examining engineer's work is necessary, there is no reason for making inspections to find engineers operating without a license. Every boiler is inspected by the division of boiler inspection, which means that every boiler, which has an operator, is visited twice a year. This boiler inspector can very easily and without any loss of time ascertain whether or not the engineer is licensed. For the purpose of examining applicants two or three examining engineers, who would devote all their time to this work, could be em- ployed. Two men working six days a week could do the work of ten men examining but one day a week. It is, therefore, recommended that the division of steam engineers be abolished and that the examining of applicants be delegated to two engineers employed solely for this purpose. Further, that the examining engineer be transferred to the division of workshops and factories. 4. DEPARTMENT OF INVESTIGATION AND STATISTICS. Frequently names convey no meanyig. This is one of those in- stances. The department of investigation and statistics is composed of three divisions : 1. Division of investigation and statistics 2. Division of employment offices 3. Division of mediation and arbitration 266 REPORT OF JOINT LEGISLATIVE COMMITTEE The head of this department is called the chief statistician, who, with the aid of an assistant statistician, directs the work of the first two named divisions. The division of mediation and arbitration exists merely in name. The term chief and assistant statistician do not describe the qualifications of the incumbents of these positions. The chief statistician is the state mediator in labor disputes, the state director of employment offices, and the chief of the statistical division. Division of Investigation and Statistics This division makes investigations and surveys of employments and conditions of employment^ collects and publishes labor statistics and publishes reports of its surveys and investigations. It has a regular mailing list of 1,750, and special mailing lists for sending information of particular interest to certain individuals, trades, industries, etc. It serves as a general information bureau for the state on labor conditions. Fourteen persons are employed, including two special investigators, who are in the field gathering data, making special investigations, etc. Accident statistics formerly compiled in this division are now being collected by the accident laboratory of the actuarial division. The industrial commission needs a well organized statistical division, to be directed by a qualified statistician. Its work cannot be carried on effectively unless it has historical facts upon which to base its program. In the last analysis, the function of the commission is to promote the health and safety of all employes in Ohio, and to approach and carry out this function it must plan a constructive program. This can be done only when the commission knows definitely and accurately what is wrong and why it is wrong. In connection with this compilation and analysis of statistics, the commission should have a limited staff of investigators, who can be used at any and at all times to study special problems in connection with employment and labor. It is recommended that the division of statistics and investigation be organized as a separate division under the direction of a qualified stat- istician, responsible directly to the chief administrator; that this division be considered the official and only statistical agency for the industrial commission and that all statistics, including accident, be compiled and analyzed here. It must be recognized, however, that unless used the compilation of statistics is a waste of time and money. It is unfortunate that the valuable data collected in the "accident laboratory" cannot, because of lack of help, be made usable by the inspection branches of the industrial commission. ON ADMINISTRATIVE REORGANIZATION 267 Division of Employment Offices On a cooperative basis with seven cities, the state of Ohio operates free pubHc employment bureaus, the state furnishing 35 employes and the cities 2^. In all instances the superintendent is a state employe. state-city employment bureaus Staik. City Q{ty Employes Employes Akron 3 2 Cincinnati '^ Cleveland I ^^ Columbus ^ Dayton • 3 6 Youngstown ^ ^ Toledo 5 2 The employment division also inspects, supervises and licenses private labor exchanges, of which there are 49 in the state. Continuation and extension of the public employment service is recommended, but only upon the condition that the individual employment bureaus become active factors in the employment situation in their respective localities, and that the employment division do likewise in the state as a whole. The employment bureau in Dayton is an example of initiative and activity of positive efforts being made to bring the job and the jobless one together, of being a clearing house for all kinds of labor and to a more limited extent of office help in the city. This bureau would be missed if discontinued. Practically the reverse is true of the Akron em- ployment bureau, due in large measure to the industrial situation. These were the only state employment bureaus visited. A unified system of state employment bureaus is recommended be- cause the whole state can be used as a unit in finding employment for the unemployed and employes for vacant jobs. In this manner not only are both employers and employes benefited, but exploitation of both, particularly of the latter, is eliminated. Looking ahead, it is believed that the state employment service should become the vocational adviser to the institutions where technical vocational training is carried on, and to the people generally. The re- habilitation of those disabled in industry and of the physically handi- capped seems to be the logical field for the public employment service. Only as a positive, constructive force has it a call for support from public funds; as a passive agent locally between job and jobless, the public employment bureau hardly merits public support. All this will take more money and a stafif of more highly qualified employes, but nothing worth while can be obtained for nothing. Ac an immediate step in reorganization it is recommended that the division of employment be made a distinct and separate division under 268 REPORT OF JOINT LEGISLATIVE COMMITTEE the direction of the present chief statistician, whose title should be changed to that of director of the employment division, or director of the state employment service. Division of Mediation and Arbitration This division as such does not exist. It happens that the chief stat- istician is used as chief mediator in mediation and arbitration of labor disputes, and occasionally one of the investigators of the division of statistics and investigation may be used. For the year ending June 30, 1919, this "division" acted as mediator in 20 labor disputes, involving 19,000 employes. Mediation effected satisfactory settlements in 13 of the disputes. Section 871-22, paragraph 8, of the General Code provides that the industrial commission shall have full power, jurisdiction and authority "to do all in its power to promote the voluntary arbitration, mediation and conciliation of disputes between employers and employes" .... "It may appoint temporary boards of arbitration" .... "The com- mission shall designate a deputy to be known as chief mediator . . . .". To carry out the provisions of the section of the law quoted above, it is not necessary to have a permanent division of mediation. The commission can designate any one of its deputies as chief mediator, and because of his success in this work it probably would be advisable to continue the present chief statistician or director of the employment division in this capacity, if the recommendation of this report is carried out. It is recommended, however, that the "division of mediation and arbitration" be abolished. This would merely be abolishing a name. 5. DEPARTMENT OF FILM CENSORSHIP. ORGANIZATION The department of film censorship is composed of three members appointed by the governor. This is for a term of two years. The total personnel of the department is twelve. It expended $19,000 during the last fiscal year, and had an income from licenses of $25,000. POWERS AND DUTIES The board of film censorship, as the name signifies, are charged with the duty of reviewing all moving picture films before exhibited in Ohio, and are empowered to reject for public exhibition in Ohio any moving picture they may for any reason deem unfit for exhibition. They may recall approval for any film should it be deemed advisable to do so. The board reviews films individually. If approved, the individual recommendation is final. If rejected, it is reviewed by the whole board, whereupon a vote of two is necessary for rejection. A vote of two is also necessary for the recall of a film. ON ADMINISTRATIVE REORGANIZATION 269 For the year ending June 30, 1919, 23,319 films were approved, 123 were rejected, and in 2,791 eliminations were made. Granting that the philosophy and principle of this plan of film censorship is sound, the board of film censors, when the survey was made, seemed to be working efifectively. If the attitude of the chairman of the board is reflected in all of its work, 'it may be assumed that the interests of the public are preserved without destroying or discouraging the legitimate pursuits of a great industry. Logically, this department should not be a subdivision of the in- dustrial commission. There is no natural relationship to the functions and activities of the other branches of the commission, and there is practically no administrative relationship. The investigator cannot dis- cover any natural relationship between the board of film censors and any of the other existing state departments,' unless it is a department of education. However, its inclusion in that department is not to be recommended. It is therefore recommended that the department of film censorship be operated as a separate department, directly responsible to to the governor. SUMMARY OF RECOMMENDATIONS. ADMINISTRATION 1 — That the three members of the industrial commission devote their time and attention to the formulation of policies, and to the tribunal functions in connection with the hearing of claims, leaving the carrying out of the policies and the administration of the machinery of the commission to a chief administrator. 2 — That the duties ascribed to the position of secretary of the commission be such as to make the incumbent of that position the chief administrator. 3 — That Section 871-14 of the General Statutes be amended so as to eliminate the necessity or the requirement of the governor's approval of the employment smd compensation of the employees of the industrieJ commission. 4 — That all employes of the industrial commission, from and including the chief administrator down, be placed under the classified, competitive service. 5 — That the industrial commission carry on an aggressive, educational campaign, interpreting to aU employes in the state the provisions of the workmen's compensation law, and informing them as to what steps must be taken to receive compensation or aid when injury is sustainecL 270 REPORT OF JOINT LEGISLATIVE COMMITTEE workmen's COMPENSATION DEPARTMENT I — That the position of superintendent of insurance, or fund manager, be created, the incumbent of this position to superintend the various divisions of the workmen's com- pensation department to the end that they may be operated as a coordinated unit. IITDUSTRIAL COMMISSIOH (Proposed Organization) £L£CXO£AI£ GOVERJIOE COMMISSION THREE MEMBKRS CHIEF ADMINISTRATOR WORKMEN'S COMPENSATION DEPARTMENT DEPARTMENT OP INSPECTION SUPERINTENDENT OP INSURANCE OR PUND MANAaER DIVISION OP EMPLOraENT DIVISION OP WORKSHOPS FACTORIES PUBLIC BLDGS DIVISION OP MINES DIVISION OP CLAIMS ACTUARIAL DIVISION DIVISION OP STATISTICS INVESTIGATION DIVISION OP MEDICAL INSPECTION DIVISION AUDITING ACCOUNTING 2 — That the division of claims take the initiative in securing from claimants information necessary to put claims through for settlement. 3 — That the claim reviewers, referees, and the division of medi- cal inspection, be placed under the immediate supervision of the director of clainis. ON ADMINISTRATIVE REORGANIZATION 2/1 4 — That the field force be increased to enable the division of claims to secure from cladmants necessary data in order that the payment of claims may be expedited. MEDICAL INSPECTION I — That the medical inspection force be increased in order that prompt and frequent visits to the injured may be made, to result not only in expediting the payment of claims, but also in discontinuing compensation at the earliest possible time. DEPARTMENT OF INSPECTION 1 — That the division of steam engineers be abolished, but that two or three deputies be retained to devote all their time to examining applicants for engineers' licenses. 2 — That the remaining inspection divisions — wrorkshops and factories, boiler inspection, mines — be consolidated into one inspection department, and be under the direction of a chief inspector. 3 — That the chief inspector of the department of inspection be furnished a staff of qualified, technical assistants, so that the work of this department may be carried on more ef- fectively. 4 — That correlation be established between the inspection de- partment and the division which collects amd analyzes sta- tistics on accidents and injuries. 5 — That bake shop inspection be transferred by legislative action to the state department of health. 6 — That more aggressive euid extensive educational publicity in reference to prevention of accidents be carried on. This means increasing the facilities of the "safety director*' who is charged with this duty. DEPARTMENT OF INVESTIGATION AND STATISTICS 1 — That this department be divided into two independent di- visions, — division of employment, smd division of statis- tics and investigation, — each under a separate officer. 2 — That the division of mediation be abolished. This means merely the elimination of a name. 3 — That the division of employment be made a more positive factor in the employment activities of the state. 4 — That the division of statistics and investigation, under the direction of a qualified statistician, be made the statistical 272 REPORT OF JOINT LEGISLATIVE COMMITTEE division for all the divisions of the industrial commission, and that it include in its v^rork the collection and analysis of accident statistics. 5 — That the division of statistics and investigation employ a staff which can be called upon to make investigations of amy kind deemed necessary by the industrial commission. 1 — That the general assembly consider the extension of state insurance to occupational diseases. 2 — That the scale of compensation to all employes of the com- mission be increased, in order that more qualified help can be secured. 3 — That the department of film censorship be operated as a separate department, directly responsible to the governor. In March, 1919, an actuarial audit of the Ohio state insurance fund was made by Mr. E. H. Downey. In December, 1919, Mr. S. H. Wolfe made a study of the state insurance for the joint legislative committee on administrative reorganization. The report here presented is based upon a study made independently of the two mentioned above. If any conclusions arrived at in this study coincide with those reached and presented in either of the two former reports, it is because they are based upon similar findings revealed by the investigations. OHIO STATE INSURANCE FUND By S. H. WOLFE The most important question to determine at the outset is the sol- vency of the fund. IS THE FUND SOLVENT? In determining the solvency of any organization recourse must be had to the books of account which contain the entries necessary for the determination of its financial condition. A properly prepared system of accounts consists of subsidiary records containing the details of the transactions and a system of controlling accounts which enable those in charge to learn its financial condition and to determine whether the sub- sidiary records are being kept in an accurate manner. Your attention is invited to the fact that the Ohio state insurance fund maintains no proper accounting system. It has no ledger containing a summary of its transactions from which a trial balance can be taken, the only ledger in the office being a policy-holders' record, which shows the amounts charged against each risk and the subsequent adjustments. It has no books of record from which can be readily determined the fac- tors necessary for a determination of its financial condition. The audit- ing department — which would seem to be the most logical place for the lodgment of such books of record — is unable to furnish any information and it was stated that the actuarial department handled such matters. In the actuary's department certain information is punched on cards in order that the cards may afterwards be sorted by machines and the totals tabulated. No permanent books of account are kept here and the only way to obtain information dealing with losses, additional premiums and the various other items necessary for the financial exhibit, is to sort thousands of cards and obtain the information from the tabulating ma- chine. No control records are kept and the danger of relying exclusively upon cards and loose sheets containing totals is too manifest to require extended comment. While for the reasons stated above it is impossible to prepare a financial statement based upon the records of the company with the con- fidence of correctness which would result from a statement drawn from a properly kept system of accounts, I have prepared a balance sheet which I believe represents the condition of the fund as I have been able to determine it and I submit it with the foregoing reservations : 18 273 274 REPORT OF JOINT LEGISLATIVE COMMITTEE BALANCE SHEET OF FEBRUARY 28, I9I9- Bonds owned $10,891,601 Time deposits in banks v 5.087,000 Cheque deposits in banks 871 ,646 Premiums in course of collection — Private insured employers 2,256,550 Self insured employers 191,746 State and counties 226,902 Accrued interest (estimated) 100,000 $19,625,445 Reserved for unpaid claims — Private insured employers $12,183,011 State and counties .' 307,521 Outstanding claim zvarrants 255,182 Unearned premiums — Private insured employers 2,616, 143 Balance in state and counties fund 335 , 937 Statutory surplus fxmd ' 2,783,965 General surplus available for contingencies and distribution 1,143,683 $19,625,445 To answer yv'ir question categorically, therefore, I am of the opin- ion that at the time stated the fund was solvent and in possession of a substantial surplus, but these statements are made with the reservation that the absence of a proper accounting system causes this to be an opin- ion and not a finding of fact. Compariso)! zvith Dr. Dozvney's report. You have submitted to me the report of an Actuarial-Audit of the fund as of March ist made by Dr. E. H. Downey for the Industrial Commission of Ohio and I will point out the principal items wherein my balance sheet dififers from that submitted by Dr. Downey. At the outset it should be noted that the surplus as shown in my exhibit is about $250,000 more than the surplus claimed by Dr. Downey, but I do not find myself in agreement with him as to its division between the statutory surplus fund and the general surplus available for contingencies anr^ distribution, as will be noted from the following: Ur. DoTi'ney's Bal. sheet Item report attached Statutory surplus fund $1,052,700 $2,783,9«i General surplus available for contini^cncies and distribution 2,620,771 l,143,6?j« $3,682,471 $3,927,648 ON ADMINISTRATIVE REORGANIZATION 275 As this is an important matter — afifecting as it does the advisability of the proposed distribution of $1,000,000 to subscribers — I shall discuss the manner in which I have prepared the statutory surplus. Sections 1465-54, paragraph 2 of the' Ohio Laws, provides that 10% of the money that had been paid into the State Insurance Fund up to a certain time and 10% of all that was paid in. thereafter was to be set aside for the creation of a surplus until such surplus equaled $100,000, after which time 5% of all the money paid into the state insurance fund was to be credited to the surplus fund (subsequent amendments provided that the percentage might be decreased when in the opinion of the Com- mission such a course was advisable and as will be pointed out hereafter the commission has availed itself of that privilege, having reduced the percentage from 5 to 4). Section 1465-69 requires self insured employers to contribute to the state insurance fund such amounts as are required to be credited to the surplus as-'set forth in the preceding paragraph. In all of the computa- tions of the commission these contributions by self insured employers are carried to the statutory surplus fund. The intent of the legislature when it created this statutory surplus fund is clear and if any doubt existed as to the logic of the situation that doubt is removed by the language of the amendment to paragraph 2, section 1465-54. This surplus fund was to be set aside for the purpose of maintaining a solvent state insurance fund and for no other purpose. If after setting this aside; the earned premiums are more than sufficient to meet all of the losses! and more than sufficient to safeguard the sol- vency of the fund, the commission may return such excess surplus to the subscriber, as set forth in section 1465-55. Nowhere, however, have I been able to find any intention of the legislature to permit this statutory surplus fund to be used for the purpose of paying current losses, although a recent amendment (passed since the date of the examination) provides that if an employee of a self insured ernployer "who has suffered the loss of a hand, arm, foot, leg or eye, prior to the injury for which compensation is to be paid and there- after suffers the loss of any other of said members as the result of an injury sustained in the course of and arising out of his employment, the compensation to be paid by such employer shall be limited to the disability suffered in the subsequent injury, additional compensation, if any, to be paid by the industrial commission of Ohio out of the surplus created by section 1465- 54 of the General Code." Of course if the time should come when the solvency of the fund rfMiJfi nr>t hft nreserved imless i+s losses were oaid from the statutory surplus fund, that method of distribution would be consonant with the 276 REPORT OF JOINT LEGISLATIVE COMMITTEE intent of the legislature. It is pertinent to note that nowhere in the sections quoted is this fund referred to as a "catastrophe' fund and I have been informed that the state insurance fund has never had to pay for a catastrophe as that term is understood by compensation under- writers. (In a drowning accident seven employees were killed, but as their dependents lived in enemy alien countries no compesation has been paid to them.) I am of the opinion, therefore, that if the commission at any time feels that the statutory surplus fund is larger than is necessary, the proper remedy is either a reduction in the percentage of the premium which is to be set aside or a complete stoppage in further contributions to the surplus fund. Whatever refunds are to be made to the subscribers to the fund are to be made from the surplus of the earned premiums, which remain after the statutory surplus has been set aside and losses pro- vided for. As far as I have been able to determine the resolutions of the indus- trial commission relative to the accumulation of the statutory surplus fund are as follows : "copy of THE RECORD OF PROCEEDINGS OF THE INDUSTRIAL COMMISSSION OF OHIO. "Mr. Yaple offered the following resolution and moved its adoption : Resolution. "Resolved, That the surplus fund provided for in section 7 of the Compensation Law, shall consist of ten per cent of all the premiums paid into the state insurance fund prior to De- cember 30, 1913, and five per cent of the net premiums paid into said fund by subscribers thereto since said date; also contribu- tions to the state insurance fund made by employers carrying their own risks under the provisions of Section 22 of the Act; also all interest collected by the treasurer of state from the deposit of the state insurance fund under the State Deposi- tory Act and all interest collected from investments in municipal or other securities made by the commission. Adopted August 18, 1914. (Signed) Wallace D. Yaple. Attest : Sec. "The foregoing resolution is hereby approved Aug. 18, 1914 (Signed) Lloyd D. Teeters, Ass't Sec. (Signed) James M. Cox, Governor of Ohio. ON ADMINISTRATIVE REORGANIZATION 277. *The motion was seconded by Mr. Hammond and adopted by the following vote: Mr. Hammond, aye. Mr. Yaple, aye." "Resolution of July 25th, 1919, reducing the statutory charge as provide for by Section 1465-54, paragraph 2, G. C, from five percent to four percent. "Whereas, The statutory surplus fund, as provided for by Section 1465-54, paragraph 2, G. C., has now reached the amount of $1,052,700.00; and "Whereas, In the judgment of the commission, the five percent charge heretofore made, can safely be reduced and yet amply safeguard the Ohio state insurance fund. "Be it resolved, That the five percent charge heretofore made be reduced to four percent, the same to bei effective con- . current with the date as of which the July i, 1919, rate com- putations were made. "Adopted July 25th, 19 19. (S) T. J. Duffy, Chairman. Attest : (S) Robert S. Hayes, Secretary." It will be noted in the resolution of August i8th, 1914, that all inter- est receipts are to be credited to this statutory surplus fund. I have been informed that this has not been repealed, but I do not find that the inter- est receipts have ever been set aside for the statutory surplus fund and I seriously question whether it was the intention of the legislature to have the interest receipts so treated. As far as I have been able to deter- mine neither the actuary of the fund nor Dr. Downey has so used the interest receipts and I am in agreement with them as to this omission. In view of the foregoing I am of the opinion that at the close of business February 28th, 1919, the statutory surplus ^und was constituted as follows: Premiums collected from self-insurers.. $813,290 Premiums in course of collection from self-insurers... 191,746 Designated percentage (either 10% or 5%) of premiums paid by subscribers 1,786,825 $2,791,861 Less refund to self-insurers 7,896 Statutory surplus fund $2,783,965 278 REPORT OF JOINT LEGISLATIVE COMMITTEE This figure is to be compared with the statutory surplus fund of 1,052700 set aside by Dr. Downey before the general surplus available for distribution and contingencies is determined. It would appear that Dr. Downey arrived at his figure as follows : Premiums collected from self-insurers $813,290 Premiums in course of collection from self-insurers... 191,746 Designated percentage (either 10% or 5%) of premiums paid by subscribers 1,786,825 $2,791,861 From which he has deducted : Losses paid $328,229 Unpaid losses 1,309,358 Unearned premiums on self-insurers 101,574 1,739,161 Statutory surplus $1 ,052,700 What are the losses for which Dr. Downey takes credit in the above calculation in arriving at the statutory surplus? In the rules of the in- dustrial commission of Ohio governing merit rating system effective July I, 1918, the following two rules appear: "Rule of Merit Rating Controlling the Employe Hazing But One Eye, One Hand, Etc. "Should any employe having but one hand, arm, eye, foot or leg, thereafter lose any one of the foregoing members in an industrial accident, the same shall be merit-rated, not as a per- manent total disability, but as a permanent partial disability, based upon the loss of the last member only, The remaining cost shall be charged against the statutory surplus fund." RULE XIII. "A Catastrophe Accident Defined. "A catastrophe accident is hereby defined as follows : Rate Zone. A Catastrophe Equals from $0.01 to $2.00.. two or more deaths* from 2.01 to 4.00.. three or more deaths* from 4.01 to 6.00.. four or jnore deaths* irom o.oi and over.. five or more deaths* * Occurring in any single accident. ON ADMINISTRATIVE REORGANIZATION 279 "Any permanent total disability accident involving an ex- pectancy cost of $i2,ooo,t or more, is hereby defined as a catas- trophe." Attention is invited to the fact that these rules pertain only to the merit rating system and do not attempt to regulate the disbursements of the commission. Even though it had been attempted to provide for the use of the statutory surplus fund in the manner above indicated I am of. the opinion that such rule would not supersede the clear statutory require- ment that certain amounts shall be set aside to guarantee the solvency of the fnud. It is manifest that the logical purpose of' the Legislature would be frustrated and completely nullified if the commission should pay current losses out of the statutory surplus fund. The application of the rule yields ridiculous results, as will be noted from the fact that claims 41581 and 41582 have not been charged to current losses, but have been charged to the statutory surplus fund, merely because two deaths resulted from one accident but the total amount paid on the two cases was $298 because neither of the deceased workmen had any dependents. It will be seen, therefore, that the payment of $298 has been considered as a "catastrophe" and the statutory surplus reduced by that amount. It will be noted that in the balance sheet the balance in state and counties fund amounting to $335,937 is carried as a liability. In Dr. Downey's report the only liability for this fund other than claim reserves is $145425- It is my understanding that the state, county iand municipal units have paid 1% of their pay-roll into the fund; payments for injuries have been paid from that fund upon the awards of the industrial com- mission and when the fund of any county has been exhausted another contribution of 1% has been paid in. As far as the state insurance fund is concerned this is not insurance, but the fund is merely acting as a distributing agency. The contributions ar^ not in the nature of insur- ance premiums, but have been 1% for all classes of risks whether clerical or of the most hazardous kind (the law has now been changed so that teachers contribute a smaller amount) and in my opinion whatever bal- ance remains in the fund must be held for the payment of losses of the contributing units and cannot be used for any other purpose. In the circumstances it is incorrect in my opinion to consider that any part of the fund belongs to the general surplus. I have therefore charged the entire balance as a liability, made up as follows : State and counties premiums received $896 , 961 State and counties premiums uncollected 226,902 Interest allotted 32,825 $1,156,688 t Based upon the Danish Survivorship Annuitants' Table of Mortality." 280 REPORT OF JOINT LEGISLATIVE COMMITTEE Claims paid $513 , 227 Claims unpaid 307,524 820,751 Balance in fund $335,937 I am of the opinion, therefore, that at the close of business February 28, 1919, the statutory surplus fund amounted to $2,783,965 and that the amount of surplus available for contingencies and for disiribution amounted to $1,143,683. In the general surplus I have included all of the interest earnings amounting to $1,262,529 plus an estimate of $100,000 for accrued interest on bonds and less $110,523 accrued interest on bonds purchased. The foregoing is important in view of the decision of the commis- sion to declare a 10% dividend on the past year's business which the actuary states will amount to a dividend of approximately $1,000,000. The use of $1,000,000 for the purpose stated will reduce the general sur- plus fund to a very small figure, without taking into account the expe- rience of the fund between March ist and the present date, it being impossible to learn the experience for that period, the records being in such shape as to require many weeks for that purpose. Dr. Downey has pointed out that the premium rates were somewhat deficient from May 15, 1914, to May 15, 1916, and were barely adequate for the year ended May 15, 1917, and states that most of the present surplus of the fund has accrued since the spring of 1917. From 191 7 to the present time we have been passing through an era of abnormal indus- trial expansion. This has affected the surplus of the Ohio state insur- ance fund in several ways. In the first place wages have increased abnormally and up to the time of the report of the Actuarial-Audit (February 28, 1919) there had been no increase in the scale of compensation. If before the war a workman who was receiving $20 per week had been totally disabled, his compensa- tion benefits would be $12 per week ; if during the war the same workman received $30 per week and was injured his compensation would be ex- actly the same — $12 per week. In other words although the premium paid by the employer would be increased by 50%, the benefits paid would remain the same. Dr. Downey estimates that the "combined effect of low maximum compensation and abnor- mally high wages have pulled down the rate of compensation costs to pay-rolls by as much as 20 to 25%." I am of the opinion that the percentage is considerably larger. Another effect of the abnormal industrial situation was that so great was the demand for labor of all kinds that even those whose earning powers were impaired as a result of injury or age became enabled to earn substantial wages and the number of cases which ceased to ON ADMINISTRATIVE REORGANIZATION 281 claim compensation benefits as a result of partial disability was con- siderable. The true significance of the facts set forth in the two preceding paragraphs is that when we return to a normal industrial condition tihe premiums received from employers will be materially reduced and the compensation benefits payable will be considerably increased. While these facts would permit of considerable elaboration, ref- erence to them is made merely to point out the inadvisability of dis- tributing too much of surplus, most of which has been accrued as a result of abnormal industrial conditions which it is believed must soon cease, if the change has not already taken place. Has the classification of risks been properly madef The classification of risks is a difficult matter and one which is largely dependent upon the classifier's underwriting viewpoint; it is largely a matter of personal opinion and the only way to find out whether there has been an equitable classification and a proper cal- culation of the rates is to see whether the various classes have paid a proper amount to meet the losses incurred within those classes. In all fairness to the actuary of the Ohio state fund, however, it should be pointed out that the workmen's compensation laws in this country have not been in operation for a sufficient number of years to permit of classification and rate making with that scientific accuracy which is to be expected in the making of rates for other insurance contin- gencies — life insurance for example. I am not prepared to say that anybody could have guessed (for after all the developments in the administration of compensation laws and the varying industrial con- ditions during the past three years has introduced many varying elements) more accurately. Have the rates been properly fixed according to classes? Theoretically the risks in each class should pay a sufficient amount to meet its losses. The Ohio state insurance fund is very properly considered as a unit and all of the contributions of subscribers can be used for the payment of the losses, irrespective of the class in which they may have occurred. In a large .organization, such as your fund is, with a large exposure, it is not unreasonable to expect that the rates shall be so adjusted as to cause each class to be self-supporting. In order that we may determine whether each class is self-supporting I have prepared the following table from the distribution sheets used by the actuary in his latest rate revision. The figures cover the period from the beginning of the fund to March i, 1919; the premiums earned by each class have been increased by its proportional share of the in- terest receipts and decreased by the amount required for the statutory 282 REPORT OF JOINT LEGISLATIVE COMMITTEE surplus; the total payments to claimants have been decreased by the amounts which have been charged to the statutory surplus fund. As pointed out in the preceding pages I am of the opinion that the charging of these losses to the statutory surplus account was unjustifiable. The actuary's sheets show that during the period mentioned the total earned premium of the fund amounted to $31,777,051, that some of the classes yielded a profit of $2,750,476, while others showed a loss of $385,942, the net surplus from all classes, therefore, being $2,364,534. In column (4) of the following table is shown the amount of surplus which each class would have earned if the rates had been absolutely equitable, while in column (5) and (6) are shown the actual surplus or deficiencies according to the Actuary's calculations. / (1) (2) Class Schedule 1 Bakers, confectioners, etc. 2 Chemical, paint and drug. 3 Coach, carriage and wagon 4 Coal mining 5-a Contractors 5-b Contractors 5-c Contractors 6 Electric 7 Leather and shoe 8 Lumber 9 Meat packing and stock yards 10-a Metal 10-b Metal 10-c Metal . .' 11 Mining 12 Mining (except coal) 13-a Miscellaneous 13-b Miscellaneous 13-c Miscellaneous 13-d Miscellaneous 13-e Miscellaneous 13-f Miscellaneous 14 Oil, etc 15 Ore reduction and concen- tration 16-a Paper IG-b Paper 17-a Pottery and glass 17-b Pottery and glass 18 Printing (3) (4) (5) (6) Earned Surplus zvhich Actual Actual Premiums zvould have Surplus Deficiency bi ■;en earned if rates had been I equitably ap- portioned $280,685 $20,808 $83,806 144,837 10,877- 8,357 555,666 41,379 64,092 4,067,822 302,660 530,428 1,102,829 82,049 83,002 2,026,006 150,857 307,532 1,656,009 123,192 6,484 392,192 29,084 51,703 194,975 14,424 17,108 794,734 59,113 36,133 220,828 16,552 11,992 361,889 26,956 97,694 3,611,545 268,848 218,751 6,794,081 505,537 471,447 154.774 11,586 14,432 89,622 6,621 16.565 465,482 34,759 70,005 515.380 38,305 29,941 ■428,288 31,921 15,770 57,930 4,256 13,578 378,701 28,138 13,045 251,079 18,680 47,929 349,375 26,010 1,085 832,615 61.951 236.382 51,618 3.783 3.627 479,385 35,704 11,073 250.879 18,680 38,450 662.061 49,182 23,143 240.326 17,970 1,591 ON ADMINISTRATIVE REORGANIZATION 283 (1) (2) (3) (4) (5) (6) Class Schedule Earned Surplus which Actual Actual Premiums would have Surplus Deficiency been earned if rates had been equitably ap- * portioned 19 Rubber and composition 905,329 67,389 123,822 28 609 20 Stevedore 153,910 159,739 11 350 21-a Stone 11,823 4,755 21-b Stone 399,445 29,557 48,953 22 Textile 254,112 18,016 34,669 23 Tobacco 36,091 2,602 5,100 24 Vessel 43.219 3,310 19,064 25-a Warehouse and store 1,296,367 96,473 236,808 25-b Warehouse and store 543,157 40,434 62,118 26 Wood 574,039 42,798 47,375 Total Net profits $31,777,051 $2,364,534 $2,750,476 $385,942 . 385,942 $2, 364-, 534 From the above it will be seen that class i, for example, would have contributed $20,808 to the surplus of the fund under an equitable system of rate making, but instead of earning any surplus the class showed a deficit of $83,806; class 4 should have shown a surplus of $302,660, while in reality it yielded a surplus of $530,428. Class 5-a, contractors, should have, shown a surplus of $82,049, while in reality its actual surplus earned was $83,002, thus showing an equitable charging of rates. It is believed that part of the inequality shown in the table above may be traced to the use of the payroll as a basis for charging, for as pointed out in the previous pages of this report an increase in wages which does not carry with it a corresponding increase in the benefits is a disturbing factor. Docs the system of merit rating encourage accident prevention? The system of merit rating in use in your fund is criticised by Dr. Downey and I find myself in agreement in such criticism. Merit rating should serve two purposes — first, to base the employer's rates upon the condition and experience of his plant, and second, to encourage the installation of safety devices in order that the employees may not be exposed to undue hazard. I consider the second the more important. In the Ohio plan no account is taken of the physical condition of the employer's plant. The initial rate is the same whether the plant is equipped with every known safety device for the benefit of the work- 284 REPORT OF JOINT LEGISLATIVE COMMITTEE men or whether it is a death trap of unguarded machinery, improperly lighted rooms and every unfavorable condition to the health and safety of the workmen. Subsequent rates are adjusted on the actual accident experience of each employer, but no matter how bad the experience has been the premium cannot be increased by more than 30%. One of the most valuable adjuncts to workmen's compensation acts has been the system of merit rating which encourages the employer to install safety devices to prevent accidental injuries ; this is in marked contrast to the method used in your fund which waits until the accident has occurred before penalizing the employer, which frequently results in unjustly penalizing the careful employer for accidents which originate from causes not due to the condition of the plant. The accident laboratory started by your actuary to analyze the causes of accidents with the idea of preventing them in the future is an excellent one, which might well be copied in every state. At the present time, however, practically no use is made of these reports and your attention is invited to the great good which could result if the factory inspection department of the industrial commission used them more extensively. I have been advised that bui few of these reports have been received in the inspection department. Are injured workmen receiving fJieir compensation benefits promptly f The true test of the success or failure of a workmen's compensation act is the promptness with which injured employees and their dependents receive the benefits provided in the law. Rates may be equitably charged, investments may consist of prime securities, records may be in first class shape and the statistics may be properly compiled, but unless the injured workmen receive their benefits promptly the plan is a failure. In the report made for your fund by Dr. Downey he criticises very severely the delay in paying claims. When it was announced in the Ohio newspapers that I had been retained by your committee to make this investigation the statement was made to me that no opportunity had ever been given to hear complaints from those who thought the fund was not functioning properly and in order to give everj'body an opportunity to be heard I told my informant that I would receive visits or communications from anyone who was able to shed any light on this important phase of the question ; as a result of these interviews I ad- dressed the following communication to your chairman: "Columbus, Ohio, Dec. 8, 1919. "Hon. F. E. Whittemore. Chairman, The Joint Legislative Committee on Administrative Reor- ganization, Cohunhus, Ohio. "My Dear Senator — Asa result of the statement in the newspapers of my pending investigation for your committee ON ADMINISTRATIVE REORGANIZATION 285 of the state insurance fund, I was visited on Saturday by an agent of one of the insurance companies, who stated that if the investigation were to be a thoro one he would Hke to pre- sent certain facts in regard to the operations of the fund. I told him that I would be very glad to receive any facts from anybody in regard to any of the phases of the fund. "It seems to me advisable and I would . respectfully recom- "mend to you that a public hearing be held, at which employers who have any grievances against the administration of the fund, may be heard, and it seems to me that publicity ought to be given to this hearing in order that those employers and em- ployees, who have had favorable experience with the fund, should also be heard. "Very respectfully, " (Signed) S. H. Wolfe/' The hearings were held, but no employer appeared to express any dissatisfaction with the way in which the fund had operated. In order to carry out the idea which your chairman impressed upon me at the outset, viz. : particular attention should be paid to make the suggestions which would have for the object the prompt payment of claims, an investigation, by assistants selected by your secretary, of the awards made by the commission on November 24th, 25th, 26th, 28th, and December ist, 19 19, was started under my direction, with two objects in view: (a) To determine whether the time elapsing between the date of accident and the date of award was justifiable; (b) Whether the time elapsing between the filing of the pre- liminary application and the date of award was justifiable. The inquiry was divided in this way for if tabulation (a) indicated unusual delay, the results of tabulation (b) would enable us to deter- mine whether the fault was due to the difficulty experienced by the claimant in having his proof papers properly prepared or whether the delay could be traced to a failure in the office of the commission to promptly act upon the completed papers when they had been received. The result of the tabulation verified the conclusions of Dr. Downey, viz : that the procedure was cumbersome and that the method of estab- lishing a claim was too complicated to permit of an award being made within a reasonable time. The results of tabulation (b) showed that too many days elapsed between the date when the preliminary application was received by the commission and the date when the award was made to the claimant. Several cases were discussed with the industrial commission in the pres- 286 REPORT OF JOINT LEGISLATIVE COMMITTEE ence of a sub-committee appointed by your chairman and no adequate reason appeared for the delays. The removal of the delay requires two remedies — first, the simpli- fication of the procedure whereby an award will be made to the claimant, and second, a reduction in the number of days which elapse between the receipt of the completed papers and the action by the commission. A study of the operations of the office must be made to determine just what changes in procedure are necessary; it is but just to the members of the commission, however, to say that they complained of the inability to obtain and keep competent office assistants owing to the low wages which they are authorized to pay. In the interests of the injured workmen of your state it is necessary that a sufficient number of properly paid em- ployees should be furnished to the state industrial commission to carry on its work. Whether the operation study previously advised will suggest changes in office management which will enable the work to be advantage- ously handled by the present force is a matter which cannot be determined at this time. From the facts developed by my investigation I am of the opinion that the interests of the injured workmen of your state require that cer- tain changes be made and in order that you may have them before you concretely I submit the following recommendations : RECOMMENDATIONS. I . To install a proper system of records and accounts. The Ohio state fund is a very large insurance organization which differs in no way from a private corporation, except that it employs no soliciting force, its subscribers pay their premiums direct to the state treasurer and it is not conducted for private gain. An organization transacting the volume of business which your fund does should have an adequate system of accounts which would permit of prompt and care- ful audit; the intimate connection between the operations of the fund and the necessities of the great body of injured workmen and their dependents is an additional reason for the keeping of its records in the most careful and accurate way. About three years ago Mr. John A. Bliss, an assistant in the office of the auditor of state of Ohio, made a very excellent report on the system in the office of the state industrial commission. In that report, which was submitted to the auditor in 1916, he criticises very harshly the failure to maintain proper records in the state insurance fund and in explaining the reason for some of his recommendations he states: "Our reason for this recommendation is that, under the present system, there is no adequate check in receipts and as a result of such conditions these funds might be misappropriated, with but remote chance of detection." ON ADMINISTRATIVE REORGANIZATION 287 I have been informed that at the time Mr. Bliss made his report the premiums were paid by the subscribers to the fund, but this system has been changed and payments are made direct to the state treasurer; this would remove much of the danger in reference to receipts, but the necessity for a better system of records and accounts still exists. I have been informed that at the present time the auditor of the state has no authority to, examine the fund and that no other state officer has any power of visitation or supervision. It would appear to me that ' in the interests of efficient management some form of state supervision should be established. This is being done in other states. 2. The statutory surplus fund should be restored. As pointed out in the text of this report the statutory surplus fund on March ist should have been $2,783,965, instead of $1,052,700 as shown by the sheets in the actuarial department. It is imperative in my opinion that the integrity of the fund should be preserved in order that in the event of a catastrophe the solvency of the fund may be assured and the future payments to injured workmen and their dependents guaranteed. The effect of the present method of charging current losses to the statu- tory surplus fund is in violation of law, is fraught with the greatest danger and should be immediately corrected. By charging current losses to this fund the general surplus from which dividends are paid to the employers has been made to appear much larger than it is in reality. The primary function of a state insurance fund is to pay claims to injured workmen and not to pay dividends to employers. This is funda- mental and is not an actuarial question. The necessity for having a large statutory surplus fund is evident for the state insurance fund has no capital stock, has not the power of levying assessments and is not supported by any state guarantee of solvency. In addition it must be remembered that the fund is insuring the most hazardous of employments, risks which are subject to the catas- trophe hazard ; in the case of private insurers this hazard is covered by reinsurance, a form of relief which is not open to your fund, and the necessity for a large statutory surplus fund is therefore indicated. 3. The delay in paying injured claimants and their dependents should be reduced. Too great a time elapses between the date of injury and the date when the claimant receives his payment. Up to this time separate blanks have been filled out by the injured workman, his employer and the doctor; it is now proposed to have the three notices in one blank. I seriously question whether this change will accomplish the purpose, and I think the remedy must go deeper than the change in the method of filling out blanks. This may require the establishment of branch offices containing inspectors or supervisors who will perform the same work which agents 288 REPORT OF JOINT LEGISLATIVE COMMITTEE of private companies do in other localities, viz. : assist in getting the papers in such shape as to permit of immediate payment. This is one of the first subjects with which the study referred to in the next recom- mendation should concern itself, for the test of the success of a work- men's compensation act is the speed with which payments are made to injured claimants and their dependents. 4. An operation study should be made. A thorough study of the office of the state insurance fund should be made for the purpose of (a) Reducing the delay referred to in the preceding recom- mendation, (b) Devising a method for using the other departments of the state industrial commission to reduce the number of acci- dents and to encourage the use of safety devices. (c) To determine whether there is any duplication of work in the office, whether any unnecessary records are being kept and whether greater efficiency could result if the scale of compensation to employees was changed. 5. A change should be made in the system of merit rating. A modification in the present plan should be introduced in order to give due weight to the physical condition of the plant. This would serve to reduce the number and severity of accidents more effectively than the present plan. If the installation of such a system requires a force of inspectors and merit raters, their employment should be authorized and the necessary appropriation made. 6. A state insurance fund manager should be appointed. At the present time there is no officer charged solely with the duty of managing the state insurance fund. The members of the state indus- trial commission administer the free employment offices, exercise super- vision over the censorship of the movies, the inspection of steam boilers, the licensing of engineers, supervise the workmen's compensation act and the enforcement of numerous laws relating to the employment of women and children in factories and workshops, together with other duties In the circumstances it is not surprising that there has been a failure to co-ordinate all of the departments of the state insurance fund and to secure the most efficient results. In my opinion this can be accomplished by the appointment of a manager for the state insurance fund who would devote his attention solely to that organization, who would be charged with the duty of securing efficient results and who would be clothed with the necessary authority to accomplish that purpose. ON ADMINISTRATIVE REORGANIZATION 289 In the foregoing recommendations I have not referred to the method of charging for compensation benefits to state and county employees, for it would require an amendment to the law to make the change which I think necessary in the interests of justice. It is manifestly improper to charge the same rate of premium for clerical assistants and for those engaged in more hazardous employment, such as highway work, electric light linemen, etc. If a county is to insure its employees for compensa- tion benefits I can see no reason why it should not pay the same rates as other employers do, rates based upon the hazard of the occupation. This, however, is merely called to your attention for such use as you may see fit. 19 SHALL THE STATE INSURANCE FUND PAY THE COST OF IIS ADMINISTRATION? By C. B. GALBREATH When the state is called upon to conduct business in behalf of any enterprise, not educational or benevolent in character, the interest con- cerned is usually expected to pay the cost of administration. Thus it is that many of our governmental agencies are self-supporting. This is true of most of the inspectional service of the state. The state fire marshal, the commissioner of insurance, the commissioner of securities and the superintendent of banks and banking are examples of a few of the offices that are self-supporting. Is the same true of the administration of the workmen's compensa- tion fund? If not, whence comes the revenue for the conduct of this department ? Examination promptly reveals the fact that all the expenses of administering this fund are paid from the general revenue fund of the state. The Ohio law makes a certain class of employes beneficiaries of the workmen's compensation fund. This fund is created and maintained by premiums paid by those employing not less than five persons. It does not apply to smaller groups of employes or to those laboring on their own* account. If the village blacksmith sustains injury while "swinging his heavy sledge" or the farmer wdiile following the plow, no money or special favor is forthcoming to him for injuries received. While he gets no insurance he makes contribution to the treasury of the state to pay for injuries sustained by others. Manufacturers and other employers of labor pay in premiums a sum sufficient to meet all losses of employes and their dependents from injury, disability or death but they do not pay all the costs of operating the work- men's compensation department. That expense at present is paid by the taxpayers of the entire state. That the state should pay the o])erating expenses of the workmen's compensation law at the outset until supporting revenues were provided and a working system finally establisherl is readily recognized. Such has been the policy of other states. But when premiums are ample to pay all awards, to provide the required reserve and a surplus sufficient to more than pay expenses of operation, there appears to be ground for the claim that the premiums should pay such expenses. The citizens 290 ON ADMINISTRATIVE REORGANIZATION 29I who insure their hves or property in private companies pay in premiums sufficient to meet all expenses including administrative charges. Recently the industrial commission of Ohio announced a surplus of over one million dollars above all necessary legal reserve, which is reported to have been distributed to those who paid the premiums — the concerns employ- ing labor in the state — while the taxpayers continue to pay charges of administration amounting to about $300,000 annually. Pennsylvania and New York passed workmen's compensation laws and paid expenses of operation for a time, but soon enacted amendments to make their compensation funds self-supporting. The provision of the Pennsylvania law on this subject reads as fol- lows : "The money paid in premiums by subscribers is hereby made avail- able for the expenses of administering the fund. The board shall keep an accurate account of the money paid in premiums by the subscribers and the disbursements on account of injuries to the employes thereof, and on account of administering the fund ; and if, at the expiration of any year, there shall be a balance remaining after deducting such disburse- ments, the unearned premiums on undetermined risks and the percentage of premiums paid or payable to create or maintain the surplus provided in section nine of this act, and after setting aside an adequate reserve, so much of the balance as the Board may determine to be safely distributable shall be distributed among the. subscribers in proportion to the premiums paid by them ; and the proportionate share of such subscribers as shall re- main subscribers to the fund shall be credited to the installment of premi- ums next due by them, and the proportionate share of such subscribers as shall have ceased to be subscribers in the fund shall be refunded to them out of the fund in the manner hereinafter provided." Chapter 395, Sec. II. The provision of the New York law, which is similar in effect, is em- braced in Senate Bill No. 220, which was introduced by Senator Whitte- more at the adjourned session of the 83rd General Assembly. The bill in full is as follows : "A BILL "To amend section 1465-54 and supplement section 1465-102 of the General Code by the enactment of section I465-I02a, relative to providing for the payment of expenses incurred in administering the state insurance fund. "Be it enacted by the General Assembly of the State of Ohio' "Sfxtion I. That section 1465-54 be amended and section 1465-102 be supplemented by the enactment of section 1465- 102a, all to read as follows : "Sec. 1465-54. It shall be the duty of the industrial commission of Ohio, in tbe exercise of the powers and discretion conferred upon it in the preceding section, ultimately to fix and maintain, for each class of occupation, or industry, the lowest possible r^tes of premium consistent with the maintenance of a solvent state insurance fund and the creation 292 REPORT OF JOINT LEGISLATIVE COMMITTEE and maintenance of a reasonable surplus, after the payment of legitimate claims for injury and death that it may authorize to be paid from the state insurance fund for the benefit of injured and the d,ependents of killed employes and after the reimbursement of the state treasury for the expenses of ' administering said fund; and, in order that said object may be accomplished, said commission shall observe the following require- ments in classifying occupations or industries and fixing the rates of premium for the risks of the same: "i. It shall keep an accurate account of the money paid in premi- ums by each of the several classes of occupations or industries, and the losses on account of injuries and death to employes thereof, and it shall also keep an account of the money received from each individual em- ployer, and the amount of losses incurred against the state insurance fund on account of injuries and death of the employes of such em- ployer. . "2. Ten per cent, of the money that has heretofore been paid mto the state insurance fund and ten per cent, of all that may hereafter be paid into such fund shall be set aside for the creation of a surplus until such surplus shall amount to the sum of one hundred thousand dollars ($100,000.00) after which time the sum of five per cent, of all the money paid into the state insurance fund shall be credited to such surplus fund, until such time as, in the judgment of said commission, such sur- plus shall be sufficiently large to guarantee a solvent state insurance fund. "3. On the first day of July, 1917, and annually thereafter, a re- vision of rates shall be made in accordance with the experience of said commission in the administration of the law as shown by the accounts kept as provided herein ; and said commission shall adopt rules governing said rate revisions, the object of which shall be to make an equitable distribution of losses among the several classes of occupation or industry, which rules shall be general in their application, and provide for reim- bursing the state treasury for expenses of administering the state in- surance fund. "Sec. 1465- 102a. The state insurance fund shall be available for reimbursement of the state treasury for expenses incurred in the ad- ministration of said fund. In the month of July, nineteen hundred and twenty, and annually thereafter in such month, the industrial commission of Ohio shall ascertain the just amount incurred by said commission during the preceding fiscal year, in the administration of the state insur- ance fund, and shall refund such amount to the state treasury. If there be employes of the commission other than the commissioners themselves and the secretary whose time is devoted to the general work of the commission and partly to the work of the state insurance fund, and in case there is other expense which is incurred jointly on behalf of the general work of the commission and the state insurance fund, an equitable apportionment of the expense shall be made for such purpose and the part thereof which is applicable to the state insurance fund shall be chargeable thereto. "Section 2. That original section 1465-54 of the General Code be, and the same is hereby repealed." The bill did not reach a vote in the senate. Its enactment into law would have stopped a drain upon the general revenue fund of the state to the extent of $300,000 Annually. The opportunity presented in this bill is still open to the general assembly whenever it chooses to act. STATE FIRE MARSHAL Prepared Under Direction of DR. L. D. UrSON By ARCH MANDEL SOURCE OF INFORMATION Interviews with the Fire Marshal, Mr. T. Alfred Fleming, the chief clerk; study of publications issued and survey of the system of records kept in the office. FUNCTIONS OF THE FIRE MARSHAL^S OFFICE Under the statute, the state fire marshal is charged with the respon- sibility of, 1 — Investigating or enforcing by local officers the investigation of all fires occurring within the state. 2 — Arresting and prosecuting all persons suspected of arson or a similar crime. 3 — Inspecting buildings and ordering corrections of all defects rendering the structure dangerous from the standpoint of fire, or ordering demolition of structures. 4 — Inspecting all hotels and restaurants as to sanitary conditions and issuing licenses if approved. 5 — Inspecting and licensing all dry cleaning establishments. 6 — Keeping a record of all fires in the state, origin, losses and other statistics relating to the fire. ORGANIZATION The fire marshal is appointed by the governor for a period of two years. All deputies and assistants are appointed by the fire marshal and removable by him for cause. Expenses of the fire marshal's office are met from the fund paid into the state treasury by the fire insurance companies, and shall not exceed for any year, the amount paid in by the insurance companies. The law requires all fire insurance companies to pay annually one-half of one percent on the gross amount of premiums received by them from policies covering risks within the state during the preceding calendar year; this to be paid in addition to regular taxes. For purposes of operation the state is divided into districts, each in charge of an assistant inspector. The water supply engineer and the electrical inspector work in all parts of the state, wherever needed. 293 294 REPORT OF JOINT LEGISLATIVE COMMITTEE ACTIVITIES OF THE FIRE MARSHAL'S OFFICE All the numerous activities of the fire marshal reduce themselves to three general classes — 1 — Investigation of origin of fires and prosecution of persons suspected of arson. 2 — Inspection of buildings and correction of defects ; inspection and licensing of hotels and restaurants. 3 — Educational propaganda throughout the state looking towards the prevention of fires. Ordinarily, investigation of the origin of fires is made by local officers, but in cases where the origin is unknown and further investiga- tion seems necessary, the fire marshal's stafif takes up the matter. The last printed report — 1918 — shows that 590 investigations were made by the fire marshal's office, resulting in 95 convictions. In addition to investigating origin of fires, each assistant inspects buildings in his district for purposes of eliminating all conditions render- ing a structure a fire hazard. This may mean repairs and alterations or the condemnation of the entire building. In 1918 the fire marshal's de- partment made 11,971 "tear down and repair" inspections. In those cities where the inspection service by the local department is adequate, the assistant fire marshal merely co-operates when he is called upon — to enforce orders issued by the local authorities' or to assist in the investigation of fires. At the 1919 session of the legislature, the fire marshal's office was saddled with the duty of licensing and regulating hotels and restaurants in all their phases — sanitary conditions, manner of handling and prepar- ing food, health of employees and enforcement of laws against vice. This regulation and licensing of hotels and restaurants entails an inspec- tion of all these establishments in Ohio. The greatest permanent factor in the reduction of fires is education of the public, and this phase of the work has been developed to a high degree by the fire marshal in office at the time the field work of this survey was done. Through the press, through special bulletins, through talks before women's clubs, school children, etc., by means of fire pre- vention campaigns, direct education of factory owners, the fire marshal's office has carried on a vigorous campaign of education against careless- ness and for watchfulness against those factors contributing to fires. It was found that the fire marshal's department was operated ag- gressively and efficiently and that the system of records and reports fur- nished an efTective control of the work. ON ADMINISTRATIVE REORGANIZATION 295 RECOMMENDATIONS 1 — That the licensing and regulation of hotels and restaurants be transferred to the state health department. It is obvious that the matter of the proper handling 01 food- sajiitarv conditions of hotels and restaurants, tne ircc- dom of food handlers from communicable diseases are func- tions belonging properly to that department responsible for the prevention and control of disease. Furthermore, the in- spection necessary before Hcenses are granted to hotels and restaurants duplicates the work of the health department in the cities, and when the work of the county health organizations is perfected, there will be further duplication of inspections out- side of the larger cities. 2 — That the inspection of buildings throughout the state for the purposes of eliminating fire hazeurds, now being carried on by the assistant fire marshals, be delegated to the in- spectors of the division of workshops and factories of the industrial commission. The line of demarkation between the responsibilities of the inspectors of the division of workshops and factories, and that of the assistant fire marshals, is rather fine and sometimes difficult to distinguish. The division of workshops and fac- tories seeks to eliminate those conditions which are dangerous to life and limb, in case of fire and other catastrophes. The fire marshal's office seeks to eliminate those conditions which in themselves make the building a fire hazard. For instance, the manner in which doors open is a matter for the division of workshops and, factories, while the number and kind of exits is a matter for the fire marshal's office. However, in their inspections, the inspectors of the division of workshops and factories, cover the whole building and select for their reports and orders, those conditions with which they are concerned. It would be a comparatively simple matter for these inspectors to include, at the same time, all conditions which make the structure dangerous to life, or make it a fire hazard. In fact the distinction in many instances is almost impossible to make. For an inspector to visit a building, inspect it thoroughly and to refrain from ordering corrections to obvious defects, because such orders "belong" to another department, not only results in a waste of time but may result in a serious loss because necessary corrections may wait until the "proper" de- partment becomes cognizant of them. This is the situation under the present organization of the departments. On the 296 REPORT OF JOINT LEGISLATIVE COMMITTEE Other hand, it is not inconceivable to have two recommendations made for the correction of a single defect — one by the fire marshal's offke and another by the division of workshops and factories. Another point to be borne in mind in connection with this cumbniaiion of functions, is that the division of workshops and factories is charged with the enforcement of the existing building code and will also enforce the new building code which has been tentatively prepared. By increasing the personnel of the division of workshops and factories, a thing possible because of the special fund contributed by fire insurance companies, it is felt that the safety of persons working in factories and mercantile establishments, and of school children and others occupying public buildings, will be greatly enhanced, because of the possibility of more intensive inspection and the consequent elimination of fire hazards. It is desired to emphasize the point that there is a distinct duplication of work, without any special benefits ac- cruing from this double inspection. 3 — That for purposes of investigating fires and prosecuting persons suspected of arson and similar crimes, a staJf of three or more men delegated to this wrork solely, be em- ployed by the division of workshops and factories. Under the law, all fires are investigated by local author- ities and only in those instances where the origin of the fire is unknown or suspicious, does the fire marshal's ofiice make an investigation. In such cases, it is desirable that particularly qualified persons make the investigation because of the delicacy and intricacy of the work. The employment of a special staff for this purpose would, it is believed, result in more effective investigation. 4 — That the educational work in connection with fire pre- vention be carried on by a safety director of the division of workshops and factories. The division of workshops and factories employs a safety director whose sole duty it is to educate factory owners and the people in Ohio, generally, in taking precautions against accidents. The education for fire prevention is along the same line and can be done efi"ectively by the same organization. 5 — That the office of fire marshal, as such, be abolished. It is apparent that should the foregoing recommendations be carried out. all of the functions of the fire marshal's office ON ADMINISTRATIVE REORGANIZATION 297 will be taken over by the division of workshops and factories and the department of health. Should recommendation No. 5 not be adopted, it is recommended, 6 — That all deputies, inspectors and assistant inspectors be placed in classified service and be employed on the basis of merit rather than upon the basis of political afiiliation. Considerable money is wasted by the state government because it must train, practically every two years, a new staff in the fire marshal's office. It takes at least six months before the men become proficient in their inspections and investiga- tions. Furthermore, there is doubtless considerable loss to the citizens of Ohio generally, because of the employment of novices with the change of every administration. STATE OIL INSPECTOR Prepared Under the Direction of DR. L. D. UPSON By ARCH MANDEL POWERS AND DUTIES Sec. 846 General Code provides that "It shall be the duty of the State inspector of oils to inspect all illuminating oils, offered for sale within the State, for consumption therein, as hereinafter provided in this act * * * * ." ORGANIZATION The governor, with the advice and consent of the senate, appoints a state inspector of oils for a term of two years, and until his successor is appointed and qualified. The state inspector of oils appoints and may remove at pleasure, the number of deputies he deems necessary to make the inspection of oils. At the present time the department consists of the oil inspector and forty-two deputies who operate in thirty-eight districts. In the office is employed one clerk. Upon notification by a refiner or distributor of oil the deputy makes an inspection, stamping the container "approved" if the test shows a flashing point at 120 degrees fahrenheit, or if it shows a flash- ing point below 120 degrees, the container is stamped "rejected for il- luminating purposes." All oil sold for illuminating purposes must con- tain the stamp "approved" or a certificate showing that it had been in- spected and approved if in a tank car. Section 865 General Code provides that "Gasoline, petroleum-ether or similar or like substances, under whatever name called, whether manu- factured within the state or not, having a lower flash test than provided in this chapter for illuminating oils, shall be inspected by the state in- spector of oils. Upon inspection the state inspector shall affix by stamp or stencil to the package containing such substance a printed inscription containing its commercial name, the word "dangerous", date of inspection and the name and oflicial designation of the officer making the inspection. " INSPECTIONS MADE Barrels Barrels lUuminatiiuj Oils Gasoline 1917 804,673 3,835.676 1918 £^34,154 3,440,882 1010 837,549 2,787,172 2Q8 ON ADMINISTRATIVE REORGANIZATION 299 FEES "The charges paid by owners of oil for inspection are — For a single barrel, package or cask, twenty-five cents ; when the lot inspected does not exceed ten barrels of fifty gallons each in the aggregate, for each barrel, fifty cents; when the lot inspected does not exceed fifty barrels of fifty gallons each in the aggregate, for each barrel, ten cents; when the lot inspected exceeds fifty barrels of fifty gallons each in the aggregate, for each barrel, three cents." Collections and expenses of the office for the past three years are as follows : Collections Expenditures 1917 $109,340 73 $63,054 33 1918 13.1,745 83 65,419 31 1919 141,332 42 68,043 05 I* While the oil inspection insures that no illuminating oil, showing a flashing point 120 fahrenheit be sold, there apparently is no limit on the flashing point above 120 degrees fahrenheit. In other words, the quality of the oil is not insured by the inspection. As far as inspection of gasoline is concerned, there is absolutely no benefit accruing to anyone, aside from the fact that the mark "dangerous" is applied. No standard of quality is set up and even if there were, inspectors at present are not qualified or equipped to make an efit'ective inspection of gasoline. The state inspector of oils states that occasionally one of his deputies will apply the hydrometer test to gasoline. As at present carried on, a deputy might just as well send by mail the tags marked "dangerous" to be applied by the oil vendors. It is interesting to note that the so-called inspection of gasoline, which to all practical purposes might be discontinued, repre- sents by far the largest product inspected. Oil inspection can and should be made to provide benefits to the consumer as well as to the incumbents of the positions created by the law. The benefits accruing to oil producers and vendors is now of doubtful value, although inspection resulting in approval, relieves the vendor from all responsibility in case of accident. RECOM M ENDATIONS 1 — That the department of oil inspection as now constituted be abolished. 2 — That the inspection of oils be carried on by the bureau of standards, recommended as a subdivision of a department of trade and commerce. 3 — That the minimum stsmdards regulating the quality of illu- minating oils and gasoline sold in Ohio, be set up and en- forced by the bureau of standards. 300 REPORT OF JOINT LEGISLATIVE COMMITTEE The benefits accruing to the consumer of oils in Ohio if this should be done are obvious. An adequately equipped laboratory would be provided to which samples could be sent where real tests could be made. At the present time the oil inspection department is not equipped to make effective tests of gasoline. PUBLIC UTILITIES COMMISSION By GAYLORD C. CUMMIN The organization, powers and duties of this commission are pre- scribed in the General Code in part as follows : 1 . "The public utilities commission shall consist of three members, who shall be appointed by the governor with the advice and consent of the senate." They shall have overlapping terms of six years. (G. C. §487). 2. The chapter of the General Code providing for the organization, powers and duties of the commission "shall not apply to street or electric railroads engaged solely in the transportattion of pas- sengers within the limits of cities" (G. C. § 503). 3. Telegraph, telephone, electric light and power, artificial gas, natural gas, pipe line, water works, heating or cooling, messenger, sig- nalling and railroad companies are specified as public utilities. (G. C. § 614-2). 4. Municipalities are given power to fix rates within their corporate limits. (G. C. § 614-44). 5. The laws under which the commission acts "shall not apply to any rate, fare or regulation now or hereafter prescribed by any municipal corporation granting a right, permission, authority or franchise." (G. C. § 614-47). 6. "A sum not to exceed $75,000 each year shall be apportioned among and assessed upon the railroads and public utilities within the state by the commission", for the purpose of maintaining the department. (G. C. § 606). 7. The public utilities commission is given power: (a) Over transportation powers and duties of public utilities as to passengers and property between points within the state. (G. C. § 503)- (b) Over railway tracks and crossing (G. C. § 585). (c) To order gates, bells, etc. at railway crossings. G. C. § 588). (d) To supervise and regulate public utilities and railroads. (G. C § 614-3). (e) To examine and keep informed as to general conditions, capitalization, franchises and manner in which properties are leased, operated, managed and conducted. (G. C. § 614-4). 301 302 REPORT OF JOINT LEGISLATIVE COMMITTEE ■ II, (f) To require a uniform system of accounts. (G. C. § 614-10), (g) To fix reasonable rates. (G. C. § 614-23). (h) To determine value of public utilities. (G. C. § 614-24). (i) To fix standards of service and measurements. (G. C. § 614-36). (j) To authorize public utilities to issue securities. (G. C. § 614-53)- (k) To authorize dividends. (G. C. § 614-58). (1) At the request of. council of any municipality to investigate and ascertain the value of any public utility used and use- ful for the service and convenience of the public where the whole or major portion of such utility is situated in such municipality. (G. C. § 499-8). The public utilities commission is not of the greatest possible benefit to the state for reasons entirely beyond its control. The fact that at present the rate making power for utilities in municipalities is vested in their respective legislative bodies and that franchises given by municipali- ties can not be modified, changed or controlled by the commission takes away much of its chance to give a maximum of service. A short discussion of the regulation of public utilities might not be out of place in this report to point out that the real interest of the public is best served by control of all utilities by some impartial tribunal. The public is primarily interested in getting adequate service from the utilities by which it is served. It should get this service at the lowest price at which the service desired may be secured. It is quite evident that if not enough is paid for service the service will deteriorate, and if too much is paid the public is being exploited. Most franchises specify fixed rates during the life of the franchise. Each party to this form of con- tract is making a wager. The public bets that the rate specified is the lowest for which adequate service can be secured ; the utility bets that the rate specified will earn them their costs plus a profit. The interesting thing about this wager is that whichever party apparently wins the public invariably loses either in too high rates or failure to get adequate service. It is also perfectly clear that costs of service can not remain constant through a long period of years, and this fact has been strongly emphasized by the happenings of the last few years. The cost of service is a matter of fact not theory. It is true that the exact valuation and the exact depreciation can not be secured, but close approximations are possible, and will give a rate base fair to both public and utility. The utility is entitled to a fair rate of return on the capital actually and prudently invested, and unless it gets such return it is financially unable to give desired extensions and service. The public has ON ADMINISTRATIVE REORGANIZATION 303 never made anything by driving a utility into bankruptcy and never will. A square deal to both public and utility is to the public's best interest. It would appear that the fairest form of franchise would be one in which fluctuating costs were considered so that the element of chance would be eliminated as far as possible and the public would continually get service at as low a price as was consistent with the service given. This leads naturally to the so-called service-at-cost plans such as the well known "Tayler Plan" used for street railroads in Cleveland and other cities. This plan still has a fundamental weakness in that no incentive is given the utility to cut its costs but this can easily be corrected by allow- ing the utility a slightly greater return when rates are lowered. This is a form of franchise where neither side can win without the other side doing the same. Regulatory bodies are often looked upon by the public as being placed in office as the advocates of the public only, but the entire theory of regulation falls to the ground unless the regulatory body preserves a judicial attitude and protects the interests of both public and utility. As is indicated above, the basic interest of the public is best conserved by this attitude. A state public utility commission generally builds up a technical staff of engineers, accountants and statisticians who become particularly skilled in the intricacies of determining fair rates. Are not the people in the municipalities best served by having rates controlled by such a body on the basis of cost of service rather than by hit or miss francises? Again when a utility serves several ad}acent municipalities is it possible for the several legislative bodies to secure fair rates and good service for their respective communities without reference to the utility as a whole? The public generally would have their interests better conserved by having all utilities under the control of a state public utilities commission, even to the extent of abrogating the rate and service standards contained in existing franchises. A less radical readjustment would provide that all new franchises must be passed upon by the state commission perhaps providing that nothing but modified service at cost of franchises be allowed, that the elements entering into cost be finally determined, and that proper control be provided by the public utility commission.. The public's interest would still be amply protected even in case of a poor commission as the courts would still be available to prevent injustice. No positive recommendations along this line are made because it in- volves matters of public policy which must be decided by the people of the state. There is a bill now before the general assembly aimed to correct a weak spot in the present law which left the commission without power to suspend a rate schedule filed by certain utilities pending investigation as to the rates being reasonable. This correction should be made. 304 REPORT OF JOINT LEGISLATIVE COMMITTEE This department is further charged with power to investigate acci- dents, to make and enforce service requirements of all kinds as well as to regulate rates, etc. RECOMMENDATIONS. 1. That the public utility commission constitute a separate depart- ment with three commissioners as at present. A public utility commission exercises both semijudicial and adminis- trative functions, and a several-headed control is justified. It is believed that such a commission should not be under the con- trol of any department. 2. TTiat if it becomes necessary in any case for the commission to make a valuation of a utility, the cost thereof shall be shared equally by the utility and the political subdivision involved. 3. That should any political subdivision or any utility request the commission to make a valuation of a utility, the entire cost shall be paid by the petitioner. There is good reason for the state paying the expense of its semi- judicial and regulatory functions, even though reimbursed by a special tax on the utilities, as this is a service for the public at large in carrying out a public policy. A valuation of a utility is distinctly a service of special benefit to the parties involved and should be paid for by the recipients. There is sometimes a tendency for cities to ask the commission for a valuation chiefly because it is the only way to get it done for nothing, and is therefore a safe line of attack for a public utility baiter with his eye on political preferment. The remedy suggested above will discourage useless valuations. The commission has ap- parently prevented any abuse of this privilege by municipalities by refusing to make valuations, but the danger is there and a statute as suggested will relieve the commission of possible trouble. The state now appropriates annually for this service $68,000 which might be saved. 4. That the statutes upon wrhich the commission is based be re- written and codified into a public utility code. The basic statutes have been amended and added to from time to time and it is believed that they may be both shortened and sim- plified if entirely rewritten. EDUCATION By DR. WILLIAM H. ALLEN STATE LEADERSHIP IN OHIO EDUCATION The' beautiful building shown on page 306 houses a state department of public instruction with its state library and travelling libraries. The state is not Ohio. This report opens with a neighboring state's attitude toward its state department of public instruction as a means of emphasiz- ing certain next steps that Ohio should take at once. Even though housed in cramped, unbeautiful and unsatisfactory quarters such as are now allotted to Ohio's state department of public instruction in the basement of the state house annex, a state department can have vision and can efficiently lead in school work. The rural school code distributed from a dingy basement room has revolutionized rural schools in Ohio and perhaps done more for them than has been done for the rural schools of New York from a beautiful Grecian palace. Ohio school high spots such as State Superintendent Pearson printed in the March issue of the Ohio Educational Bulletin and the appeals of earlier Teachers' Week bulletins tell their encouraging and stimulating story as plainly as if they had been issued from a beautiful education building. Nevertheless, there is an important significance in the contrast be- tween New York and Ohio in the housing of a state department of edu- cation. That contrast goes beyond office space, window views, and architec- ture to the attitude of the people who have the children and pay the bills. The people of New York state care no more for education than the peo- ple of Ohio. It is simply that New Yorkers have insisted upon advertis- ing their interest in education and their provision for state leadership in education as the people of Ohio have not yet done. Additional office space will be needed if the state department of public instruction is reorganized to meet next year's requirements as suggested in this report. It is recommended that instead of securing additional basement space or loft space the legislature ask the state de- partment of public instruction to report a plan for an educational build- ing adequate to house the Ohio board of education, the circulating library, all examining services, a state art commission, if one is created, and 20 305 3o6 REPORT OF JOINT LEGISLATIVE COMMITTEE ON ADMINISTRATIVE REORGANIZATION 307 educational exhibits by the archaeological and historical society, state universities, normal schools and unofficial agencies engaged in promoting public education. Offices of Ohio's Department of Education. In the basement of the Judiciary Building, or "Annex" as it is generally called are the offices of the superintendent of instruction and his staff. These offices are lighted by the two dark basement windows shown above. If space remains for other activities such a building would be an appropriate home for the state board of charities. If for. reasons of economy and architectural fitness it should finally prove advisable to house the education department with a number of other state departments it is suggested that the imporance of education be definitely recognized either by naming the structure the Ohio Education Building or by giving preferential advantages of location and space to the state department of public instruction. OHIO'S STATE SUPPORTED EDUCATION Under the school revenue act of 1920 half of public taxes in Ohio will soon be going to free education. For discharging its responsibility for a many-sided educational program the state of Ohio now uses the following organizations : I — A state department of pubHc instruction (over one million pupils) at the head of which is a state superintendent of public instruction, a constitutional officer appointed by the governor without the approval of the senate for a term of four years. So far as supervision is given to free public schools it is through this officer and department. 3o8 REPORT OF JOINT LEGISLATIVE COMMITTEE X o O r g 2Z < O < z: o <: o LU to UJ O a 2 r 3| c h c $ >^ 3'i n 5-^ n^ u O 1 ^ I I J >^ >■ ^ ^ P "^ 1^ cS^OCQ^k^ ^^ Q i 3 ^ N "V ,, ^Sx k >^ ^ ^ «k ^ ^ k ^ ^ ? u ON ADMINISTRATIVE REORGANIZATION 3O9 2 — A state board of education for the administration of federal vocational aid (Smith-Hughes) appointed by the governor with the advice and consent of the senate. 3 — Three universities — Miami (1033), Ohio (1023), and Ohio state (6608) — each separate from the others, each having its own board of trustees appointed by the governor with the advice and consent of the senate. By present law the Ohio state university is not allowed to maintain a normal school which as interpreted means a school for training elementary school teachers, and Miami and Ohio universities are pro- hibited from maintaining graduate schools. 4 — An agricultural experiment station is maintained at Wooster under a separate board of trustees named by the governor with the advice and consent of the senate. 5 — Two normal colleges are maintained at Bowling Green (240) and Kent (209), known in the law as normal schools but in practice by the self-assumed name normal colleges which give four-year courses, with separate boards of trustees named by the governor with the advice and consent of the senate. In addition there are normal colleges known in the law as normal schools at Miami and Ohio universities under separate deans but responsible to the same presidents and trustees as other collegiate departments of these universities. Furthermore, each of these four normal schools maintains its own extension service primarily for teachers already at work in schools. These extension courses are tied up with the all-year courses and summer courses and serve both as feeders to the normal schools and trainers of teachers in service. 6 — Thirty-five county normal schools (600 students) are main- tained by joint state and county each under the supervision of the county superintendent of schools and department of public instruction working through a normal school director. 7 — Combined normal and industrial department of Wilberforce University (194 Ohio students, 575 total), free school for negroes with free room rent under a board of nine trustees, five named by the governor by and with the consent of the senate, three chosen by the trustees of Wilberforce university, and the ninth the president of that university ex-officio. 8 — The soldiers' and sailors' orplians' home at Xenia (650) under a board of trustees named by the governor with the con- sent and advice of the senate. 9 — Six school departments in the girls' industrial school at Dela- ware (450), boys' industrial school at Lancaster (1200), women's reformatory at Marysville (140), men's reformatory 3IO REPORT OF JOINT LEGISLATIVE COMMITTEE at Mansfield (1400), the penitentiary at Columbus (2000) and the new prison farm at London (200), each of these being under executive officers responsible to four members of the board of administration appointed by the governor w^ith the advice and consent of the senate. 10 — Two state schools for the blind (180) and for the deaf (470) both at Columbus and both under the board of administration appointed by the governor with the advice and consent of the senate. 11 — The state library service with its extension work, traveling libraries, library information service and its state library be- longs in this category of state supported educational work. No central control or leadership now exists for these separate serv- ices. No organization for team work or conference or mutual under- standing and helpfulness exists. The three universities and two normal schools have a delegate council that was created to bring about cooper- ation and is capable of effecting a spirit and method of team work. The relations are still, however, quite rudimentary and do not reach far beyond team work in securing increased salaries and other appropri- ations from the legislature. Between this council and other educational forces there is no cooperation. The state department of public instruc- tion while enjoying friendly relations is isolated and insolated so far as the programs, methods, problems and results of all state educational agencies except the schools immediately under its jurisdiction are con- cerned. In the autumn of 1919 inspections were made of the girls' and boys' industrial schools at the request of the board of administration with results which indicate the need for frequent and responsible visits and reports by it upon educational standards in correctional institutions and all other state supported educational institutions. This lack of organization and co-ordination seems so contrary to modern standards of competent management tliat many Ohio educators have demanded a single central executive who shall be responsible for the state's part in managing and directing education from the isolated child in rural districts to graduate research work at Ohio state uni- versity. Three methods of reorganization have been considered : I — Place all state educational service under one single board with a single executive who shall be responsible for naming the heads of all separate services like the presidents of the three universities and the two normal schools, the superin- tendent of the combined normal and industrial department of Wilbcrforce, the principals of the schools for the blind and the deaf, the educational heads in correctional institutions, etc. ON ADMINISTRATIVE REORGANIZATION 3II 2 — Place the universities and nonnal schools under a single board and all other educational services under a state board of education with one executive officer. 3 — Combine facts about educational services before adminis- trators are combined and to that end leave the management of institutions in the main as it is now but give to a re- organized state department of public instruction responsi- bility for studying lOO'^^^ of Ohio's school needs and school work and for reporting facts about all school activities and needs to the governor, legislature and public. The third procedure is proposed for the following reasons : Until more information is available a single board for administration of all universities, normal schools, industrial schools and public schools must work largely in the dark and without the means of counteracting criticisms arid opposition that would certainly develop from alumni of state institutions and from partisans of the present system. Centralization without information equally shared by all parties to it almost inevitably becomes autocracy that levels down and punishes initia- tive. To give one executive administrative responsibility for school work in rural districts, cities, industrial schools, county and state normal schools and three universities would under present conditions mean that one or several phases of Ohio education would be neglected. While it would be serious enough to have higher education neglected or teacher training there is danger that such centralization would result in the neg- lect of the basic educational work for elementary and secondary schools. On paper such centralization would look business-like. In practice in a state as large as Ohio, where so much needs to be done for each branch of education, it would be unbusiness-like and reactionary. The proposal to combine the three universities under a central board with the two normal schools is more feasible. If everyone, a great majority or an aggressive organized minority in Ohio wanted it done, it would be an interesting experiment to put over these higher institutions a chancellor with responsibility for naming the presidents, for raising standards and for effecting team work. The fact is, however, that there is not a small active minority organized to support such a proposal. Many leading educators have seriously urged it. The time may come when it will be desirable. There is a way of working such an organization which would enable Ohio's normal schools and universities to do vastly larger and better work for a time. The step is not suggested for 192 1 because opposition to it has already been organized and entrenched. Miami and Ohio universities have alumni throughout the state who prefer to look at educational problems through Miami and Ohio glasses. The numerous alumni of Ohio State Universitv would want a merger with other univer- 31^ REPORT OF JOINT LEGISLATIVE COMMITTEE sities only on condition that Ohio state university dominate the combi- nation. Nowhere is there a body of information which shows the simi- larity of purpose and of service in a way that makes a merging seem an obvious need. The utmost that is considered practicable in the way of next steps for Ohio is to postpone the remobilizing and concentrating of individual officers with two or three significant exceptions and to organize for securing and publishing information respecting ioo% of Ohio's educa- tional needs and services. The following next steps are recommended as immediately practical and, when taken together, as far reaching in their promise of new educa- tional statesmanship and engineering: 1 — That an Ohio board of education be created as head of the state's educationeJ system with preferably five members, certainly not more than seven, to be appointed by the gov- ernor with the consent of the senate. 2 — That the powers and duties now vested in the state board of education (for vocational education), the state library com- mission, director of Americanization, state board of school examiners and the several examining boards for medicine, osteopathy, nursing, etc., be transferred to this new single central Ohio board of education. 3 — That the executive work of this central board be discharged through a director of education to be named by the board at a salary fixed by it and to have responsibility for appoint- ing with the board's approval all subordinates except the pres- ent constitutional officer, the superintendent of public instruc- tion. 4 — That the powers smd duties of the present superintendent of public instruction be transferred to the central board of education with provision that the assignment of this of- ficer, whose present salary, S4000, must continue for four years subject only to constitutional amendment, be by the director of education. 5 — That the law creating a central Ohio board of education specify the services which will be expected from it — super- vision of rural, elementary and secondary schools; surveys; visiting of all state educational institutions and of private teacher training colleges whose certificates are validated by the state department; free information and employment serv- ice; review of educational budgets against a background of public school needs; group and regional conferences and other services as later herein listed and elaborated — but without ON ADMINISTRATIVE REORGANIZATION S^S limiting by statute the organization necessary for discharging these services. Continued growth will be more certain if the board and executive are held responsible for fitting organiza- tion to new needs than if the law sets up machinery. 6 — That the Ohio board of education be required through its executive to study all Ohio educational activities, their re- ports, catalogues and other publicity, to report upon them against a background of public school needs and to report a consolidated educational budget with recommendations as to those steps most needed by the whole state. 7 — That the cost of maintaining a state department of public instruction be provided for out of the general school fund and be definitely recognized as a minimum essential of pub- lic school work. 8 — That the separate boards for three universities and two normal schools be continued for the present. To place all teacher training schools under one board is impractical so long as Ohio and Miami universities have normal schools withm their organization and so long as Ohio state university has a college of education. To place one board over the two sepa- rate normal colleges could accomplish little unless it could start anew without commitments to presidents and faculties. A co-ordination of teacher training effort must follow more aggressive leadership and comprehensive study and publicity by a central board of education. 9 — That the combined normal and industrial department of Wilberforce university be completely divorced from Wil- berforce university as outlined in a separate section of this report, and, if continued, be called Ohio normal and industrial institute. I o — That the Ohio soldiers' and sailors' orphans' home at Xenia be placed under the director of welfare administration. II _ That each of the three universities and two separate normal colleges be required to organize a division of administrative research and reference for the current study of its own problems methods and product. 12 — That the Ohio state university be authorized and expected to organize extension work through both field classes and correspondence in subjects and in territory that cannot practically be covered by the extension courses of Miami and Ohio universities and by Bowling Green and Kent normal colleges; and that it offer late afternoon, evening and Saturday classes in Columbus for teachers and others who are employed. 314 REPORT OF JOINT LEGISLATIVE COMMITTEE 13 — That the normal colleges be authorized and expected to continue their extension work for teachers as an important means of recruiting young men and young women for teach- ing and of helping them grow professionally and personally after they begin teaching. 14 — That research work at Ohio state university — by laculty members for promotion of science and for self-develop- ment, by students under faculty direction for training and research and for assistance to the state — be not only en- couraged by state appropriations but be required by state budget makers. 15 — That non-resident students, excepting possibly those on scholarships from foreign countries, be required to pay tuition at all state supported institutions for the double purpose of putting the burden where it belongs while re- lieving Ohio taxpayers and of emphasizing Ohio's obligation to Ohio students. (See separate section.) 16 — That rotary funds or investment funds be appropriated to educational institutions to be used for building up depart- ments, not for new undertakings or operation expenses. For example, the college of agriculture cannot possibly develop a strong herd of best milkers and breeders if it is unable to trade or to sell and buy without paying receipts into the state treas- ury and receiving new budgetary authority for makmg pur- chases. Similarly profits from a boarding department should be available for raising the standard of board or for increasing the facilities of boarding halls, and the working capital of supplies in a laboratory should always be available without running to the State House for permission to buy some new chemicals or new mechanical devices. 17 — That investment in student dormitories be made for all of the state supported institutions and extensive investment for the Ohio state university on the understanding that these investments shall pay interest and carrying charges. Ohio taxpayers will more readily appropriate money as a per- manent interest-earning investment than as a gift to the fa- vored few who are able to maintain themselves without earn- ing while attending the university. Similarly extension of dormitory facilities is indispensable at the two separate normal schools if the state is to recruit the necessary number of teachers. t8 — That all state supported institutions list clearly in their annual euid biennial statements their principal needs so that ON ADMINISTRATIVE REORGANIZATION 315 taxpayers and possible private donors alike will see oppor- tunities for productive and patriotic investment. 19 — That Ohio adopt as a state policy the development of junior colleges, that is, colleges to be maintained by state aid, by cities, groups of cities or counties for the first two years of college; and that state institutions, particularly Ohio state university, assume leadership in adjusting courses of study and recognition of instruction given by cities and private col- leges which will secure the widest possible instruction in ele- mentary subjects near or at student residences and shall leave Ohio state university free to do strictly university or advanced work including research and experimentation. 20 — That the aggressive state wide effort to recruit the ablest, strongest amd very elect of Ohio's young people into teach- ing which started with Teachers Week, 1920, be continued by the state department of public instruction aided by far more comprehensive publicity programs by the normal colleges and particularly by Ohio state university's college of educa- tion. 21 — That a representative state educational council be created as a means of enlisting unofficial citizen attention to Ohio's educational problems and to the efficiency of Ohio's educational organization and machinery. 22 — That in addition to the supervision and audit here suggest- ed by the state department of public instruction for all edu- cational activities, the auditor of state and the budget com- missioner be encouraged and expected by legislative finance committees to audit operation results and publicity meth- ods of these educational agencies. OHIO'S STATE DEPARTMENT OF PUBLIC INSTRUCTION Ohio wants not only schools and enough schools, but enough schools of the best kind. Seldom has such emphatic action been taken by any public through its elected representatives as the action of the Ohio legislature last week in unanimously voting in both houses of the general assembly additional revenues and power to vote revenues for public schools that exceed all present plans for spending. To take full advantage of the additional possible revenues and to comply with the state-wide demand for better work by schools, Ohio needs to furnish through its state department of public instruction more dififerent kinds of help than it is now furnishing to rural and village 3l6 REPORT OF JOINT LEGISLATIVE COMMITTEE schools, to its city school and to its county normal schools. The state's organization for serving individual schools should be sufficiently varied and specialized that it will be able to fit each local need. It should have the most complete information and the most expert advisers and helpers with respect to kindergarten work ; elementary work, in reading, history, geography, current events, manual training, etc.; home projects and other out of school projects in learning by doing; best purpose and method in individual high school subjects; methods of studying and organizing committees, locating schools, and planning school buildings and programs to fit community needs ; changes needed in school curricula and in length of the school course; methods of using so-called standard scales and measurements so as to locate pupils and teachers who need special help. It needs an up-to-date employment bureau for bringing together schools that needs teachers and teachers that want schools. It should be equipped to make surveys of local and county systems and continuous high spot studies, always acting as searchlight for analyzing school experiences and as distributor of knowledge about most helpful practices inside and out- side Ohio. See the three printed lists of high spots in the country's teacher training schools, and state departments of education and in Ohio county and city schools collected for your committee's educational studies by joint request of the state superintendent of public instruction and heads of Ohio teacher training schools, president of the State Teachers' Association, and your agent. Moreover, this helpfulness should henceforth go several steps farther in two directions: i, the state department should supervise the educa- tional work in the state's two industrial schools, two reformatories and penitentiary ; 2, it should gather, receive and publish significant facts about the three universities, two state normal schools and all privately supported colleges that are training teachers for public schools under state certification and about the relation of these institutions of higher learning to other publicly supported education. The initial proposals that follow do not involve any protracted debate. Issues which are known to be in serious controversy or even in reasonable doubt are taken up later. Only such action is first proposed as has clearly been called for by Ohio educators who have written or spoken to the joint legislative committee on administrative reorganization, by reiterated and obvious needs of Ohio's schools and by experience in Ohio counties and cities and in other states. With almost complete unanimity several hundred individual superin- tendents and faculty members have voiced the same request as the state board of education by resolution and the legislative and executive com- mittees of the Ohio State Teachers Association by resolution ; and the editors of the two Ohio school journals that speak to and for Ohio's teachers have urged the steps that are here suggested. During the National Educational Association Convention in Cleveland on February ON ADMINISTRATIVE REORGANIZATION 317 26, 150 Ohio educators after hearing the proposed reorganization out- lined, and after questions and answers regarding it, offered assistance in securing state-wide understanding and support of it. This is the proposal in brief : 1 — Create the Ohio board of education; of preferably five but not more than seven members; to be selected and appointed by the governor without reference to party affiliations; one term to expire each year ; the board to meet monthly or oftener from September through June ; to forfeit membership if absent from two consecutive meetings without a recorded and accepted excuse. 2 — Provide that the expenses of the Ohio board of education be borne by the common school fund for the purpose of emphasizing the fact that this central service exists only for the purpose of promoting the common schools and to prevent the crippling of this service for reasons having to do with other state activities not provided for in mandatory taxes. 3 — Give the board all the powers now held by the state board of education for administering the Smith-Hughes law, which merger the state board of education by resolution of January 19th asked the joint legislative committee on admin- istrative reorganization to recommend; and abolish the present state board of education. 4 — Give it all powers now possessed by the state superintend- ent of public instruction i. e. use the authority vested in the legislature by article 6, section 4 of the Constitution, which says that the superintendent of public instruction shall possess "the powers and duties now (September, 1912) exercised by the state commissioner of common schools until otherwise provided by law and with such other powers as may be provided by law." 5 — Give this central board power to name a director of educa- tion, naming if it wishes the state superintendent of instruc- tion, or if the latter is not named as director to assign him to duties under the director. 6 — Give it power to reject or confirm the director's nomination for subordinate positions in the department but require it after it has once named a director and accepted and ap- proved his appointments to work through the director, leaving to him all administrative and executive relations with his subordinates. 7 — Give the central board power to fix all salaries in the state department of public instruction and to create or abolish 3l8 REPORT OF JOINT LEGISLATIVE COMMITTEE positions within budgetary provision made by the legislature. The constitution, article ii, section 20, forbids changing the compensation of an officer during his existing term unless the office be abolished. The superintendency being a constitutional office cannot be abolished except by amendment of the con- stitution, and the only time that its salary can be changed is prior to a new incumbency. The power to fix the future ^ salary should rest with the state board. 8 — Give the central board the duty to inspect or to have in- spected and to report annually to the governor and to the public upon the educational work of the girls industrial school, boys industrial school, Ohio state reformatory for men, Ohio reformatory for women, penitentiary, school for the deaf, school for the blind, Ohio's soldiers zmd sailors orphans' home at Xenia, and the archaeological and his- torical society. 9 — Give it the duty to report annually (1) upon the needs of the five state colleges for teacher training at Bowling Green, Kent, Oxford, Athens and Columbus, the Wilber- force combined normal and industrial department, and all county normal schools and private colleges that train teach- ers for state certification, and (2) upon the state's need for students in training for teachers, for teacher training work and for continued training of teachers eifter they begin teaching. 10 — Give to the central board the duty to visit and to have visited the three state universities and to report upon their services to the state, upon the state's need for services not yet rendered or not adequately rendered by the universi- ties, and upon the universities' needs if they are to do for the state what it should have done. 1 1 — Give to the board's director of education the right in per- son or by delegation to a voice without a vote at the board meetings of all state-supported educational institutions and require that all formal and interim reports that are sent to the trustees of these various institutions shall be sent to the director of education. 12 — Require the Ohio board of education to report biennially upon all educational activities in Ohio, and upon tlie needs of all pul^licly supported education with recommendations as to next steps which the state and its divisions — district, county, city — should take. 13 — Require it to report to the governor, to the legislature, and to the public at the first legislative session after its crea- ON ADMINISTRATIVE REORGANIZATION 319 tion a pleui of internal reorganization for the department, so far as legislation may be needed. 14 — Charge the new board with responsibility for sending the following to the governor when a vacancy is about to oc- cur in the constitutional position of superintendent of public instruction : (a) A definition of the duties of the post in the board's organization. (b) A list of qualifications of training and experience neces- sary to fill such position satisfactorily. (c) The names of three persons known to the board to possess such qualifications, with a statement of the board's reasons for including each name. While it is true that the governor is free to disregard such informa- tion when exercising his constitutional power to name a superintendent, it is also true that few governors would entirely disregard such mforma- tion or would name a person not on the list who did not possess equal or superior qualifications. The reason for suggesting early action toward the creation of an Ohio board of education, is that a new term for the state superintendent of public instruction begins in 1920. If the governor makes a new ap- pointment to the superintendency that inspires state-wide confidence, it will add greatly to the department's efifectiveness to have a continuing non-partisan board back of that appointee. If the governor should name one that does not command state-wide confidence, a board possessing powers over policy with the right to reject unqualified assistants and to fix salaries, and if need be to name a director of education other than the state superintendent of public instruction, would inspire confidence and would assure the people of the state that there need be no delay in taking the steps which they see should be taken by the state department of public instruction. One board of education is needed in any case in order to obtain federal Smith-Hughes money for teaching domestic science, agriculture and vocations. If nothing were to be accompHshed by the action pro- posed but the mere stopping of a dual school system, vast good would result. The same minds that are apportioning federal aid for teaching domestic science, agriculture and industrial subjects and directing these kinds of work, should be responsible minds in directing the development of the entire school system. Even the present state board which would be abolished favors this action. A board with legislative powers, working through a single executive responsible for educational results, has produced and is producing ever improving results in Ohio counties and cities. The state is ready for a similar type of organization for the direction of its state education. 320 REPORT OF JOINT LEGISLATIVE COMMITTEE It is true that an able executive without a board can also accomplish vast results for education. This has been repeatedly proved by Ohio commissioners and superintendents. For such an executive there are certain ad\ antages in being responsible to no one but the governor. To secure such advantages in the case of several other state services, includ- ing the management of the hospitals and penal institutions, we have recommended to your committee that a board give way to a single execu- tive. 1 he board should give way to single heads at every point where the work involved calls for decision and execution. Boards, however, may properly be employed where debatable policies must be worked out. In the organization here proposed for the state department of public instruction, it is suggested that the board be confined to matters requiring conferences, discussions, determination of policies and legislation, and review or test of results. Once having fixed its policy, the board should be required to work through the executive officer whom it has selected without the slightest interference with him in the direction of his sub- ordinates or in the execution of policies which the board has voted. This method retains the advantages of a single head which Ohio has enjoyed for many years, with the advantage of a board which Ohio has successfully employed for city and county schools. It has the further and final advantage that it will not only make it easy to take the department of public instruction "out of politics" but will make it seem easy and will make the public believe that politics will be eliminated. Heretofore, until the constitutional amendment of 1912. the state department was in politics to the extent that canditiates on political platforms were nominated by different political parties and com- peted for the commissionership of education. Under the present consti- tution, two superintendents have been named, a democratic superintendent by a democratic governor, a republican superintendent by a republican governor. The present governor says he will welcome the establishment of a board because he deprecates the tendency which he states is by no means limited to so-called "party politicians" to try to play politics with the state department of public instruction whenever a new vacancy is to be filled. [November. 1920 — A second democratic superintendent has been named by a democratic governor, — formerly his rejiuhlican predecessor's deputy.] The creation of a board whether named by the governor as sug- gested or otherwise, will not entirely eradicate the possibility of political interference so long as the governor has the naming of even a super- intendent of public instruction subject to the board's assignment. With respect to all other divisions of the work politics can be removed and an atmosphere created which will render it vastly easier for future governors to choose superintendents without regard to political considerations. ON ADMINISTRATIVE REORGANIZATION 321 Once a central board is created for a big service and with power to assign the superintendent, governors will welcome opportunity to name a superintendent capable of fitting into a big service program. In conclusion, immediate legislation is proposed within the present constitutional limitation as to the appointment of a state superintendent by the governor, because this is a difficult time to secure either public or legislative attention to constitutional amendments, and because with- out changing the constitution notable progress can be made even between now and the earliest possible date for voting on any proposed amendment. Using its present powers the general assembly can secure a reorganiza- tion that by the end of the school year 1920- 192 1 can easily have a program Under way which will enable Ohio to take a place iccond to none in helpful state supervision of education. INCREASE THE SALARY OF OHIO'S STATE SUPERINTEND- ENT OF PUBLIC INSTRUCTION Reasons for Eakiy Consideration By the Legislature. submitted january 22, i92o, to the joint legislative committee on administrative reorganization. On February 15th, the present term of the state superintendent of public instruction will expire. On that date, the governor may, without confirmation by the senate, begin a new term of four years for a re-appointment or newly appointed, superintendent. This new term will run for four years, no matter what action the legislature may later take with respect to the reorganization of the state department of public instruction, unless after action by the legislature the people should vote a constitutional amendment changing the term. In seeking persons eligible to lead and direct Ohio state's many sided interest in education, which now costs state and municipal funds annually $68,000,000, and will soon take half of all taxation, the exec- utive is unavoidably influenced by the salary he can offer. For $4,000, the present statutory salary, he can find persons whom other positions are seeking at about $4,000. There is a possibility that persons with private income, and possessing qualifications for the office and capac- ities which competitive positions would offer more than $4,000, would be attracted by the opportunities for service which the state superin- tendency offers ; it is however unsound public policy to fix official sal- aries upon the gambling chance that men of private income will accept a state salary for posts like this at a great financial sacrifice. For the present sabry, $4,000, the governor can reasonably expect to find only the type of person who before the recent shrinkage of a 21 322 KKl^OKT OF [OINT LEGISLATIVE COMMITTEE dollar's purchasing power, could be interested in positions paying about $2,000. To attract in 1920 the same caliber of educator which was contem- plated when the salary was fixed at $4,000, it would be necessary to offer from $8,000 to $10,000. The state which has most recently named a superintendent, Pennsylvania, is paying $12,000, fixed by the governor himself at $2,000 above his own salary. This problem is raised with the joint legislative committee on admin istrative reorganization in :i(l\;incc of our final report on educational reorganization, because it does not seem fair to the million children and students in Ohio's publicly supported schools, teacher-training schools and universities, to continue for four years more a limitation upon the state's ability to promote its education. Instead of taking a step backward at this time, the people of Ohio, as hundreds of letters to your committee have shown, want to take many steps and long steps forward, and are more conscious than ever before of wanting aggressive and constructive leadership by the state supermtendent of public instruction. Although the state superintendent, even with the present too limited powers and program, is the nominal head of Ohio's public school sys- tem, his salary is less than or the same as that of thirteen different county superintendents ; $8,000 less than Cleveland's pre-war salary for city superintendent, and $6,000 less than Cleveland wall pay when it advances a present assistant superintendent ; $6,000 less than Cincin- nati's pre-war salary; $2,150 less than Dayton's pre-war salary; $6,000 and house less than Ohio state university pays its president; $2,000 less than Ohio university pays its president; $1000 plus house less than Miami pays its president; $500 less than either of the two normal schools, having present regular enrollments of but slightly over 200 each, are paying their presidents ; $800 less than the dean of agriculture and $1,000 less than the business manager is paid at Ohio state uni- versity; the same as seven deans at the Ohio state university respon- sible for from 102 to 2,318 students; only $500 more for superintending work for one million Ohio students than the dean of the college of homeopathic medicine receives for superintending 21 ; but a fourth more than the superintendent of Wilberforce combined normal and industrial school; less in purchasing power than the superintendent of the Ohio reformatory for women and her husband receive ($2,800 plus living) for caring for 150 women; less than the superintendent of the girls' industrial school and her husband receive ($2,800 and living) ; the same, without living for self and family, as the superintendent of the Slate hospital f:M- the ciiniinal iiisaiu' receives; $3.5fKT less than the director f)f the bureau of iiivcnilr research. The disparagement <.t thr state superintendciKv of public instruc- tif)n. and tlie too small rniu-e]itinn of the \\ork it should df> for the ON ADMINISTRATIVE REORGANIZATION 323 state, are. further emphasized when we renieinl)er that with one excep- tion these contrasting salaries are at pre-war rates, and that the need for fixing this salary at a higher level is not dependent upon recent increases in cost of living and decreases in the purchasing power of thi* salary now paid that office. Had there heen no increase in cost of living, there would still have remained the necessity and expediency of placing this salary at a much higher level. Unless the salary of the state superintendent is changed and made compatible with the opportunities and duties of that office, the state cannot reasonably expect the executive to secure an educator who is at one time both willing to accept the post and equal to its responsibilities Furthermore, if this salary is not increased in time to influence the appointment, the legislature will find itself confronted by conditions which may easily jeopardize the prospect of forward steps which are universally conceded to be necessary in the state's educational work. It will naturally hesitate to give larger power and expanded organiza- tion to a superintendent willing to accept the position under the present salary disparagement. Yet it will have no other alternative if it leaves the superintendent the acting head of the state's public school system, except to continue such limitation of capacity for four years, or else to propose an amendment to the constitution, which if conhrmed 1)V popular vote, might end the term within a year. Evidence has literally poured in upon the joint legislative committee on administrative reorganization that the people of Ohio want early action without waiting for a constitutional amendment ; that (Jhio wishes from its state department of public instruction an educational leadership and helpfulness second to none in the land; that it wants the head of its educational system to deserve a salary and to rank in salary second to no other public educational leader in the state ; that it does not wish educational progress blocked because of salary rates fixed for other heads of departments and elective officers in earlier years w'hen a dollar would purchase twice as much as it will purchase today; and that it wants this question settled solely on the basis of the state's educational needs without respect to the way in which the legis- lature may deal with any other salary questions. Therefore, it is suggested that the joint legislative committee on administrative reorganization consider recommending to the general assembly that on and after July i, 1920, the salary of the superin- tendent of pubhc instruction be fixed at not to exceed $10,000. Tf this figure seems high, it should be remembered that we are speaking of the foremost educational post in the state of Ohio and of an officer who should be held responsible for leading in state, county, city and district work that will spend $300,000,000 in the next four years ; and that there is probably no way in which the state itself can spend the difiference between more moderate alternative increased salaries like 324 REPORT OF JOINT LEGISLATIVE COMMITTEE $6,500 or $8,000 and $t 0,000 in the interest of education, which will accomplish as much for Ohio as can he accomplished by letting a qual- ified superintendent spend it as he would spend it on promoting the state's educational work. After the foregoing reasons for increasing the salary of the state superintendent of public instruction were considered by the joint legisla- tive committee on administrative reorganization, the chairman of that committee introduced in the senate a bill to change the salary from $4,000 to $7,500. The bill passed the senate and was messaged to the house, where by motion of another member of the same committee action upon it was deferred. That kills the prospect of any increase for the position of state superintendent of public instruction until the next legislature of 192 1, unless by chance the present general assembly should be reconvened by call of the Governor for reasons that would include consideration of this salary. Such a contingency is too remote to be counted upon. If before the next legislature meets the new superintendent is appointed, no change can be made in his salary until the end of his term, except by amendment of the constitution. Should the next legis- lature submit to the people a proposal to amend the constitution so thai the position of superintendent is abolished, then by the end of the year 192 1 favorable action at the polls might make it possible to pay a newly created office with enlarged functions the necessary salary. To wait until the end of 1921 for action would mean practically losing two more full school years before giving the schools the leadership they need. One final resort is open to the legislature of 192 1. It may use the power given to it by article 6, section 4, of the constitution, and accom- plish by indirection what the constitution says it may not directly accomplish. This section now reads: A superintendent of public instruction to replace the state commissioner of common schools, shall be included as one of the officers of the executive department to be ap- pointed by the governor, for the term of four years, with the powers and duties now exercised by the state C(Muniis- sioner of common schools until otherwise provided by law, and with such other powers as may be provided by law. This wording clearly leaves it to the legislature to decide what the powers and duties of the state superintendent of public schools shall be. It may "otherwise provide by law" by giving the duties of the state superintendent of public instruction to some other officer, say to an Ohio board of education. Instead of vesting the superintendent "with such other powers as may be provided by law." it may vest elsewhere as in a director of education these additional powers and they should be many. ON ADMINISTRATIVE REORGANIZATION 325 The two alternatives then are (i) to continue the leadership that means either giving less help than should be given to Ohio's schools or accepting a sacrifice from some public-spirited educator whose abilities entitle him to more than the present $4,000 limit, or (2) to do by indi- rection what the schools need to have done. The second course is recommended, namely, that the legislature create, as it has the power to do without waiting for an amendment to the constitution, an Ohio board of education which shall be given the powers and duties possessed by the state commissioner of education prior to the constitutional amendment of 1912, plus all powers and duties added to the state superintendent since that time, plus the fur- ther power of assigning the state superintendent of public instruction to such duties as his abilities and the board's program for the state's education best equip' him to discharge. In taking such steps, the legislature will act in accordance with the judgment of city and county superintendents in Ohio, the executive and legislative committees of the Ohio State Teachers' Association, the faculties of Ohio's universities and normal colleges, numerous individual citizens of Ohio who have urged this committee to make such recom- mendations and out-of-state authorities on educational leadership who answered your committee's request for information and suggestion. Finally, the present state board of education, which was created to administer the federal appropriations for vocational education under the Smith-Hug'hes law, has by resolution asked this committee to constitute one central board in which should be merged its own present powers and duties. The urgent need for such a central board and a brief summary of the organization and powers which it should have follow in the report entitled Ohio's state department of public instruction. POSTSCRIPT The legislature of 1921 will find a newly appointed state superin- tendent of public instruction, the deputy for the preceding four year period. Any change now made in the salary for this post cannot become effective until a new incumbent takes office. TAX ASSESSMENTS FOR SCHOOL REVENUES When the legislature was working on its revenue alternatives. County Superintendent ]\Iaysillis said to your field agent : "If Ohio will insure a correct and fair appraisal of property there will be plenty of money for education, including appropriate salaries for teaching." Whatever else is done by way of equalizing taxation and increas- ing revenues for school purposes, it is respectfully urg-ed that in 326 KEFOKT OF JOINT I.EGISLATIVK COMMITTKK fairness to the young people who are being educated in Ohio's pubhc schools, and in fairness to the state's program of education, the legis- lature should provide for currently correct and fair assessments of property. It is a travesty on patriotism that prompts a state-wide program of Americanization while that same state trains school patrons throughout its counties to undervalue for lax purposes or to condotie such undervaluation by assessors. It is unfair to young Ohio to be teaching them al)out ethics, citizen- ship, and patriotism, when right around their school buildings is property worth $208 an acre that is on the payrolls for school and other taxation purposes at $30 or $50 or $70 an acre. It makes no difference what por- tion of taxation should be borne by real estate, or whether there should be classification or no classification of taxes. Only harm can result from a state-wide policy and practice of falsifying and of being party to f-ilsifying property values by saying through tax assessments that a farm known to be worth $10,000 is only worth v$t.500 or $2,000. In the interest of schools "an appeal is included here for a revalu- ation and proper valuation of taxable realty, including farm lands in poorest counties, because those very same forces of tradition, mis- understanding, parasitism, and mental crosseyedness with respect to the patriotism of paying one's full share of taxes also stand in the way of developing school policies, paying proper salaries to school teachers and supervisors, requiring proper sui:)ervision, providing ade- quate school sites, insuring livable homes for teachers, substituting central for one-room schools, furnishing transportation and forcing compulsory attendance, modernizing the course of study, and vitalizing methods of instruction. STATE BOARD OF SCHOOL EXAMINERS It is suggested that the state board of school examiners be abolished and its powers and duties transferred to the state board of education without attempt to specify in the law the details of the way in which the state board shall through the director of education organize for render- ing this service. At present this board consists of live members appointed by the superintendent of public instruction. Continuing memory and continuing policy are presumably secured by having one term expire each year. As this separate board plan actually works out, the detailed responsibility is borne by the department of public instruction. Members of the examin- ing board can give but little attention. In the very nature of their ap- pointment and their relation to the superintendent it is difficult, if not impossible, for the department of public instruction to have a policy, to express a judgment, or lo inspect and supervise their work. ON ADMINISTRATIVE REORGANIZATION 327" The responsibility for fixing standards of examination for school certificates should rest squarely and undodgably upon the state depart- ment of public instruction and its executive officer. When responsibility is placed there it will be natural for the executive of this department to use tiie experience and judgment of its supervisors in shaping particular questions and in formulating state policies. The question of certification needs immediate and continuous study such as only an administrative department can be expected to give. Men whose main business is running city and county school systems cannot reasonably be expected to challenge the methods they are employing on the few occasions when they meet together. A new board of education and a director of education should feel free and duty bound to deal radically with examination anl certification. The per diem of $5.00 now paid to five board members would accomplish much more if spent upon the study of county and state certification and on standards of private colleges whose credentials for prospective teachers are accepted by the state. THE STATE LIBRARY SERVICE The present state library commission of three is responsible for a public general reference and document library maintained in the state house; for the organization of new libraries; for traveling libraries; and for the legislative reference library which is in position to render in- estimable service to legislature and public. If the library commission in Ohio were active, in the midst of a great program, going full speed with efficient machinery, it would be doubtful whether its functions should be merged with that of a state board of education. Among library leaders of the country there is a strong feeling that librar)'-- service should be distinct and should be a strong suporter and competitor of the department of education. Wher- ever it is a strong competitor, wherever as in some states it is far more progressive than the educational system, it might be a mistake just for reasons of theoretical soundness and economy to rob it of its independ- ence. To your committee Director Bostwick of the St. Louis Public Library recommended an independent library system not under a de- partment of education with a commission of three and an expert sec- retary. Director Anderson of the New Ycjrk Public Library urged a "non-political, non-partisan commission composed of citizens who have shown special and intelligent interest in libraries, said commission to choose state librarian. The secret of success depends on getting and keeping library system out of politics." He also recommended a special niillage, 328 REPORT OF JOINT LEGISLATIVE COMMITTEE In Ohio, however, library services call for a greatly enlarged pro- gram by the state and for greatly improved internal organization. It will be far easier to secure local co-operation for one well-led, big program, than for two separately organized programs, even if they are big and well-led. At present, the library service is not only at a standstill but has for some time been losing ground. Such is the emphatic and public testimony of the Ohio Library Association which is in better position than anyone else to know library needs. While that association would prefer a strong library commission, a newly organized department and an enlarged, independent program, several of its leaders have expressed to your committee the belief that it would be a long forward step for Ohio if the present board could be abolished and a state department of public instruction held responsible for developing library service throug- out the state. "Take it out of politics," is the first demand of librarians when speaking of library service. It is surprising that in 1920 in a great state like Ohio it should be necessary to urge that state library service be taken out of politics. Yet, it is necessary and insiders and outsiders alike admit that no part of Ohio's public work is more in politics than the state library. The governor told your committee's agent that he realized that the library service is disorganized. The organization of new libraries has practically ceased at a time when such helpfulness is more needed than ever before. At no point except in the legislative reference division is the present organization for rendering service at all adequate. It is not even organized to know about the volume of work that it does, or the multiple needs that it is neglecting. A great asset in Americanization work has been woefully neglected. So demoral- ized is the service that patriotism and decency have, with almost no public protest, been defied by the library commission in abetting its ex- ecutive's refusal either to reemploy a returned soldier whose position had been held for him, or to give reason for refusing him or to admit the facts in the case to public or legislature. If all this library work is transferred to a newly organized state department of education, there can be created a special library division with an able librarian at its head, who will be free from all (.■ntanglenicnts and accduntahilitics in the school field except as he re- ceives direction from llie slate department of education. What he learns about libraries will be available to the schools, as it should be. What the school supervisors learn about library needs will he made available to the library director, as it should be, currently and promptly and not merely once a year. When a cit} like lUicyrus organizes its high school librarv as a jniblic librav)- until a scparati' imblic library is (Stablished, l)ntli the soIkuiI suncrxixdrs and llie lihraiy supervisors will have intcrT'Sl in ni;ikiii,i; it Ismiwii In nlhiT cities siniilarK' situated that ON ADMINISTRATIVE REORGANIZATION 329 such a practice works well and greatly increases the use of books by adults and by children. When later Bucyrus organizes a public library, if it does, that fact and the method will be promptly circulated. When, as in several cities, the public library puts branches in public schools in orderto reach school children and their parents, that fact will readily be made use of by both schools and library divisions, as it would tardily be used if at all under the double system. Library work is educational work. It should be recognized as such. When Ohio gets the educational building which it should soon have, the library service will appropriately be housed in that building. In the country district and the small city, the educational forces should be united and not divided in their demand for libraries. County super- intendents could press a case more strongly, local teachers and trustees would feel responsibility more keenly, if the state recognized Hbrary extension as an integral part of its public school program. Where now library service is exempted from competitive exami- nations by the general code, there should be substituted a provision that the posts in library service should go only to proved capacity and experience. There should be no temptation left with any state officer to pick a library director or a reading room librarian, accession clerk or library stenographer, for any other reason than ability to do library service better than other available applicants. A REPRESENTATIVE STATE EDUCATIONAL COUNCIL In addition to having an educational leader of first rank as director with competent division heads, each of first rank in his or her field, the state board of education should be charged with responsi- bility for seeking unofficial, voluntary suggestion, information, criti- cism and proposals with respect to Ohio's educational needs. For this purpose, it is suggested that the legislature create a representative state educational council which shall be called in con- ference not less than once a year, and perhaps semi-annually, quar- terly or for special occasions deemed by the board to warrant such call. The term "representative" is added to educational council for the purpose of emphasizing the importance of establishing some direct and official contact between the state department of education and the various civic interests which are or ought to be consciously working for better educational policies in their localities, counties and the state. While the formal appointment should rest with the state board of education and certification should begin with the representative body 330 REPORT OF JOINT LEGISLATIVE COMMITTEE which seeks a share in this co-opeialixe work. P'or example, the As- sociated Ohio daihes would be entitled to a delegate to the representative educational council, as would similarly the State Federation of Women's Qubs, State Federation of Labor, the State Grange, Ohio College Asso- ciation or other organizations of agricultural interests, the state Chamber of Commerce, the state Rotarians, the state Kiwanis, the State Hardware Association, the State Council of Social Agencies, the state Social Wel- fare Conference, parent teachers' associations, and societies of private colleges, engineers, accountants, dentists, physicians, ministers, etc. In addition to private agencies, there should be represented on this educa- tional council official state agencies like the board of charities, auditor, budget commissioner, archseological and historical society, council of health, universities, normal schools, the director of welfare administration acting for the different problems in state institutions, and teachers' asso- ciations. Nor is there reason for excluding political parties from repre- sentation on the proposed educational council. On the contrary, there is every reason for hoping that they will wish to be represented by active, socially minded students of education. No salary should attach to membership in this council. It is doubtful if it is necessary ur expedient to have the state pay the ex- penses. All of these agencies have a vital interest in education. They pay the expenses of delegates to other conferences or secure delegates who will attend. It might strengthen the voluntary character of this serv- ice if the state bears no part of the expenses except the formal arranging of the program, issuing the call, printing programs, publishing facts presented, questions asked and suggestions made. If results are to be obtained, if prestige is to be attached to membership in this council and if serious work is reasonably to be expected, it is necessary to make it a delegate body and not a free- for-all membership. Being a delegate body, the numbers will be small. The tendency to make long stilted speeches will be checked. It will be easier to have serious work programs. The greatest gain, how- ever, will come from the responsibility which will be assumed by the various bodies which send deputies. 'These delegates will often come under instruction ; their reports back to their constituencies may be easily made to lead to constructive action throughout the year. The solidarity of the state's interest in education may thus be con- tinually and progressively emphasized among these unofficial agencies as it will be in the official state department that is held responsible for advertising Ohio's educational needs and activities. ON ADMINISTRATIVE REORGANIZATION 331 OHIO'S STATE ARCHAEOLOGICAL AND HISTORICAL SOCIETY For the work of this private society the legislature has appropriated $54, 546.00 for the biennium 1919-1921. This state appropriation meets only part of the entire cost of the society's work, the membership provid- ing the remainder of the funds. The legislative appropriation is made on the ground that the society is rendering an important public service. The justification for continuing it as a private agency receiving state funds rather than incorporating its work under the state university is that the work of a state archaeological and historical society calls for wide co-operation of individual citizens in ways that would be discouraged if the state were to assume full control and full responsibility for expenses. The work of the society consists of maintaining a nmseum and library m a new building i^n the campus of the Ohio state university. It publishes a quarterly dealing with Ohio archaeology and history, and is making and describing the results of explorations of Ohio's mounds, vil- lages and sites of prehistoric times. It also acts as custodian of the fol- lowing properties: The Serpent Mound; Fort Ancient; Big Bottom Park; Logan Elm Park; site of Fort Laurens; Spiegel Grove Park, former home of President R. B. Hayes where the state has erected a library and museum building; and the Campus Martins at Marietta. The museum contains a valuable collection of prehistoric remains and relics, together with the contents of the former relic room at the State House, some miscellaneous collections, and a library of over ten thousand volumes on Ohio archaeology and history. In the museum are models of mounds, graves, caches, etc., as well as progressive exhibits showing the methods used in making flint knives, stone pipes, bone fish hooks, etc. A small stock of lantern slides has already been loaned to schools and preparations are being made to greatly extend this service. One issue of the quarterly devoted to the Indian in Ohio is the only effort which we could discover to reach the public at large. The demand for this issue has proven the value of publishing archaeological and his- torical facts for the average citizen. The technical reports on the results of excavations are of value to the scientist, but unless especially worked over for the general reader would not interest him. The archaeological atlas published should be in every school house because of the information on local remains which it contains. The museum is already overcrowded and much valuable material is not on exhibition due to lack of space. Fortunately there is room for S3^ REPORT OF JOINT LEGISLATIVE COMMITTEE extension of this building in case the interest of the society's membership should justify considerable extension of the museum's space. While on paper it might seem desirable to reorganize this society so that the state should have complete responsibility for it and place its control under the state university, there are exceptional reasons why the continuance of it as a private membership society should be recommended. There are also reasons, however, for exacting an audit of its expenditures and results by the state auditing department and for annual and biennial reports of its contributions by the state department of public instruction. It is recommended : 1 — That the state department of public instruction be charged with responsibility for studying the work of this society with a view to the use of its results by public schools, teacher training schools and universities, and that the results of such inspection and analysis of its budget estimates be submitted biennially to the governor, legislature and public. 2 — That the society be encouraged and urged to establish a con- sistent and systematic method of enlisting citizen member- ships by way of public information concerning local history, mounds and relics of the various counties with popular appeal. 3 - — That special pamphlets and handbooks be prepared for use in the schools with special reference to local history, mounds and relics of the various counties. 4 — That the society be especially encouraged to continue the col lection of war data which it has begun and to use in that service local schools for the double purpose of building up in each locality a war cabinet and of furnishing to the state a complete as possible history of each locality's participation in the World War and the reconstruction work following it. 5 — That both the society and the Ohio state university be urged to make far greater use of the society's research problems for the training of students in research methods and of the society's j)ublications and exhibits for iiiteresting and informing students and visitors during their stay at the university and during their study of Ohio archaeology and history. 6 — That so far as distance permits the society make of vital use- fulness to Miami and Ohio universities and to the normal schools of the state its exhibits, its publication? and its out- line of studies in the making. 7 — That the society be asked to extend its loans of materials to schools not only in Columbus but throughout the state. 8 — That the state house be used again for museum purposes as is entirely practical in the corridors; and that the society be ON ADMINISTRATIVE REORGANIZATION 333 asked to arrange for trained attendants who can explain to the thousands of people who visit the state house each month and the many thousands more who would visit it Saturday afternoons and Sundays if its present portraits and flags were explained entertainingly and were supplemented by loans from the archaeological museum; and to that end employ modern publicity methods of popularizing its messages, advenising its needs for funds as opportunities for pubhc-spirited citizens, following up interest once awakened by interested and inter- esting correspondence, and guiding local historical societies, teachers of history and individual students in search for and enjoyment of important facts about Ohio's archseology and history. c,_That Sunday exhibits at the museum itself be featured not only for university students but for residents of and visitors to Columbus. 10 — That the society become aggressive and militant and employ the methods which have made a great power for entertainment and education of the National Geographic Society and the Ameri- can Museum of Natural History. 11 — That as part of its archaeological museum it collect and exhibit graphic descriptions of progress in teaching history with a view to hastening the abandonment of methods in Ohio's schools or colleges that chill and crush the natural interest in the study of history which it is so important for a democracy to develop. AN ART COMMISSION FOR OHIO Among the suggestions made to your committee by faculty members were two looking toward a state art commission : 1 _ A state art commission is needed, a body of professional men to pass on the artistic merits of public buildings and to develop public good taste. 2 — There is need for greater appreciation of all things organized and beautiful about the farm, home, rural school, churches, roads, parks. It is recommended that the work usually done by an art commission be organized under the proposed Ohio board of education. The work of an art commission may fittingly be located with state education and in the new education building that is needed. It is not the kind of problem that calls for continuous attention of professional men. It is believed that much better results can be accomplished if as ,^34 REPORT OF JOINT LliGISLATlVE COMMITfEE each new public building or project is under construction the particular professional men are called in who have most to contribute. A board appointed for a long term would come to have a perfunctory interest and might even find itself in the embarrassing position of trying to protect itself from criticism for previous judgment unsatisfactory to the public. Finally, the most important work of an art commission is its promotion of public taste through popular education and for such work no other agency can possibly equal the agency that is in constant contact with the teaching force of the state. The following incident of a day spent with Dr. Richard C. Cabot of Boston will help show why it is believed that Ohio needs provision for constant attention to the art side of life. About ten years Ago after a day in Boston with Dr. Cabot charting the activities of a church which was then much under discussion for its proposed alliance of medicine with religion, Dr. Cabot said he would like to spend another day charting a modern city's interest. We had the day and we charted a city. Seek- ing an expression which would compass all the different activities of a city, I wrote in my big master circle "community needs"; Dr. Cabot wrote in his "creative human aspiration." He suggested research; I protested that the term "research" would hardly belong to the untutored mind or less tutored mind, although the impulse referred to was shared by all. "Truth seeking" went into that circle. When Dr. Cabot wrote "art" in the last circle, I voiced another doubt and said : "You are an artist; you sing; you play the violin and piano; you write plays; you act; you paint. I can do none of those things yet there is something in that circle which belongs to me." "Beauty making" was written in that last circle. The kind of art commission which Ohio needs is not so much one which will insist upon conventional "artistic merit" in public buildings, but which will keep alive throughout the state an interest in beauty making. It is a vastly bigger ideal to have the public keenly interested in beauty making — in the country, around farms, on school grounds, within school rooms, in front yards, in approaches to towns, through railroad stations and in public buildings — than to have a uniform and acceptable type of architecture at the university. Typical of work which an organized art interest in instructional service under the Ohio board of education could do these are cited : In Wooster every school has organized the beautification of school ground under the direction of a landscape architect. In Alliance, the slogan is "Alliance Beautiful." Lakewood has an Art League to promote art and music appreciation, with a branch in each building, each room a chapter named for an artist; great paintings and operas are studied. The state's art service could tell such facts as these over and over again until all cities and schools have a similar interest. In the state of New Jersey the commissioner of education has issued plans for beautifying school ON ADMINISTRATIVE REORGANIZATION ^ 335 grounds with instructions to children about drawing plans, writing to commercial houses for suggestions and prices. A few years ago in Illinois an illustrated circular was issued by a university department entitled "The Farm Beautiful" and was. offered free to anyone who would promise during the year to take one step toward beautifying one home or pubHc plot. Such work can and should be done through a state art service. When Ohio builds a new education building, as it should, or adds an extension to the library at O. S. U., or the historical society's building, or even makes changes at the state fair grounds, all the people in Ohio should be organized to see that these additions are beautiful. It is cheating the public and clearly cheating the public's children who pass by or study in state buildings if these state buildings are not beautiful, inside and outside. It would have been worth a great deal to Ohio if there had been an art commission such as is here proposed from the beginning of the Ohio State University so that all of the build- ings might have been as beautiful as some of the later buildings are. It is true that Ohio is more fortunate than many of its sister states, which means perhaps that it is better prepared today to demand public art and public beauty making and to foster public appreciation of beauty. A striking case in a sister state is reported by its governor as follows: "When we saw those hideous buildings which violate every canon of art and which swear at one another, the dean said, with a wave of his arm, 'And we have never employed an architect.' I answered, 'Yes, I can see that at a glance.' " Those Ohioans who are confronted by the affront to art sense in so many moving picture films will see that perhaps the most effective way to secure higher aesthetic standards in public entertainment will be to promote statewide development of the aesthetic sense which includes love of beauty and a share in beauty making. If this suggestion is adopted it will work out somewhat as follows : 1 — The Ohio board of education would be held responsible for having reviewed from the standpoint of beauty euid con- formity to art standards and art requirements all plans for state buildings and state parks. 2 — It is also desirable to give this same power of review with respect to structures facing state buildings or state grounds as is the case in New York where the municipal art commission has added millions upon millions tO the value of both public and private property by giving timely assistance and an occa- sional veto. 3 — Continuity of study and attention will be given through a subordinate of the director of education. 336 REPORT OF JOINT LEGISLATIVE COMMITTEE 4 — As new plans are submitted the board of education would name a commission or jury of specialists best equipped to review the particular problems at issue. After the report had been made by this voluntary group and acted upon officially by the board of education, the voluntary commission would cease to be a commission. 5 — The power should be given to the Ohio board of education by the legislature not only to review the plans but to pre- vent the erection of buildings or the modification of grounds belonging to the state or facing upon state pr<^- erty which clearly violate the standards of beauty. In most cases, fortunately, architects and builders are grate- ful for the advice given by an art commission and will gladly substitute improved for unacceptable plans. 6 — The art service of the state under the board of education could use steps similar to those recommended for the Archaeological and Historical Society to utilize the interest of localities and of state agencies. This cooperation would especially include the interest of boards of managers at state supported institutions. 7 — A progressive educational campaign will be made through the schools and normal schools to interest teachers and local school boards in making the schools living examples as well as preceptors in promoting community art. 8 — Assistance will be offered to local conunittees which in the next few years will be erecting many memorial monuments and buildings. It costs no more to erect beautiful memo- rials than hideous ones. No one wants to dot Ohio with inartistic memorials to soldiers and sailors in the World War. Everyone will welcome state leadership at this time when so many communities are trying to decide the form to give monu- ments or other memorials. 9 — Handbook material will be issued showing in how many ways beauty making is a money making asset for a state which attracts visitors and attracts laborers. 10 — Conferences will be called to consider what can be done from time to time for beauty throughout the state. 1 1 — The commission should be required to report to the gov- ernor and the public at least biennially, and oftcner if it wishes, respecting the forces working against appreciation of beauty and beauty making, as for example, treatment of the state capitol like permitting dirt to accumulate, or per- mitting litter on the ground of state buildings, etc. ON ADMINISTRATIVE REORGANIZATION 337 -Cradually a body of information will be built up which can be used for teaching purposes in schools and for study pur- poses by architects and builders including the great indus- trial builders. Few contributions to art have ever been made by any man that surpass in significance the Wool- worth Building in New York City, it would have been im- possible had not the industrial builder been able to appre- ciate the plans submitted by the architect. It will mean much to Ohio's industrial future to have a state department of public instruction teaching school children, teachers and parents the durable satisfaction of outward beauty and of inward desire to participate in beauty making. SUGGESTIONS BY COUNTY AND CITY SUPERINTENDENTS FOR IMPROVING OHIO'S PUBLIC EDUCATION Typical of helpfulness which is always available to the legislature, to the universities and normal schools and the state department of public instruction are the following suggestions received by your committee from county and city superintendents of schools, in answer to its request for school men's "co-operation in its search for opportunities to increase the helpfulness of state departments not only to public welfare in gen- eral but to education in particular." No attempt is made to distinguish between suggestions commg from counties and others coming from cities because there is little significance in that distinction. Nor are names given because the value of the sug- gestion is in the use that can be made of it and not in its source. When properly organized the state department of public instruction will be drawing upon county and city experience and thus keeping alive currents of question, inventiveness and cooperation from the innumerable "sub- scribers" through educational headquarters acting as "central". I — In what ways can the helpfuhiess of state departments to public welfare be increased? Departments should send teachers to teachers' institutes; reports are now often ancient history; penal institutions should be under the control of the state department of education and made into industrial schools; stop excessive supervision by state officers over university and normal school expenditures; deficient children should be removed from all rural schools and otherwise provided for; law enforcement should be more vigorous with respect to imbeciles where there is much talk and little action at the present time, 22 33'"^ REPORT OK JOINT LEGISLATIVE COMMirfEl-: 2 — How can road- building be made more useful to schools? We yearn for consolidation ; we depend on roads ; using the school as a center all important roads leading to it should be improved ; roads should be constructed to aid centralization and consolidation; wu^iout roads centralization is impractical; the educational need tor roads has never been adequately con- sidered ; rebuild without tearing up ; develop side roads, not merely the main roads; give roads used by pupils priority; build better roads so that so much need not be spent on repairs. 3 — What state activities do you think should be discontinued? Voluminous reports which are not read : "none, we want more of them" ; the state board of agriculture is not needed ; last spring four men were getting $2O,G0o on one job (place not specified). 4 How can schools be helped more by the three state univer- sities? Let the universities join the Ohio State Teachers' Asso- ciation in working out i)olicits for the state ; let them give closer cooperation ; assist in special courses ; give free ad- dresses; hold exhibits on child welfare and provide free loans; organize corresipondence courses ; help study special problems ; furnish experts; have survey departments; organize depart- ments for scientific tests : keep closer touch with actual school work ; help rural schools in back-to-school drives. Let them turn out better prepared teachers ; train more grade teachers; go farther with extension classes; cooperate on surveys of children's aptitudes ; give more attention to phys- ical education ; hold short summer sessions ; two or three weeks for county superintendents under the direction of the state superintendent, to unify work; have personal representatives visit schools; develop more leaders for rural districts; have real rural departments which now are "a. joke"; make courses more practical; broaden the extension service to fit the rural schools ; encourage more distinctly rural high schools fitted with community needs so that there will be less city high school work in the county. Let universities make themselves more thorough and demo- cratic ; keep university boards separate from the central board of education for they now have large numbers of alumni and great political strength which would enable them to get men on a central board but would not be interested in public educa- tion and teacher training. ON ADMINISTRATIVE REORGANIZATION 339 5_How can schools be helped more by the agricultural ex- periment station? Let it have a mailing list of schools ; send out material ; use each school for clearing house ; place every school child on the list; put out bulletins which children can read; see that farmers get them through schools; hold farmers' meetings because bulletins are ineflfective unless there are community gatherings to discuss them; give schools more results; have closer cooperation with the county agent and the schools; provide loan exhibits and lectures ; encourage every school to have its own plot; demonstrate in connection with schools; give more instruction in village and central schools; make a closer study of local conditions; encourage local county farm studies; report to farmers immediately after investigation. 6_How can schools be helped more by normal schools? The normals and Ohio state university should be under ■separate boards to prevent the university from dominating the normals to the detriment of teacher training; normals should give lectures, exhibits and speakers; and far more extension work to include medical inspection and nursing; much more extension in the winter when attendance is small ; more rural work ; surveys of children's needs ; free demonstration lessons. Normals should hold conferences with public school men ; give closer study to conditions and needs of schools; place larger emphasis upon training in citizenship for community and national affairs; offer specialized courses in each subject including domestic science and manual training; be under the direct control of the state superintendent ; give full credit for county normals; have practice teaching the first year; train more in how to manage school; deal more intelligently with physical education ; organize department of tests and measure- ments to cooperate with county superintendents in scientific administration of the schools; have higher qualifications for their own instructors. Normals should give more practical courses ; give less time to methods and more to subject matter; provide more practice teaching ; train teachers for rural work who are in sympathy with rural activities; train teachers for rural leadership; teach real rural work instead of forcing city school systems on rural districts; give full credit for time spent in county normals; limit short courses to essentials ; do not confine instructions to any particular textbook; be more thorough in fundamentals; give more definite training for particular grades ; help teachers see better the difference between theory and practice; strive 340 REPORT OF JOINT LEGISLATIVE COMMITTEE more to reduce the cost of attending them ; discontinue summer six weeks [rather, strengthen their work]. Every county should have one good strong county normal ; if properly organized county normals would do a large part of Ohio teacher training; at present county normal schools are lacking in proper direction, equipment and number of students. All normal school instructors should be experts in actual school work and rural school work ;, normals should develop definite plans to increase the supply of teachers. 7 — How can schools be helped more by the state department of health? Let it have recognition among us and support m every county; furnish lecturers to schools; inspect; supervise; make health surveys of school room sanitation and hygiene; cooper- ate with school nurses and physicians; furnish sex hygiene charts ; loan volumes and slides ; examine the mentally sub- normal [belongs to the bureau of juvenile research which is prepared to do this work] ; organize local groups to build dispensaries and hospitals; maintain nurses for the rural schools; provide visiting nurses for all schools; make nursing compulsory. 8 — How can schools be helped more by the state department of public instruction? Stop treating it in the present shamefully niggardly way; it should have leadership and direction in school afifairs and be permitted to develop constructive school policies : should formulate school legislation to submit to the legislature ; should have power to inspect all places where children are taught, whether public, private or parochial ; should be a select board chosen wholly from schools [doubtful advice] ; should propose constructive school legislation, seek more school funds : urge consolidation, conduct occasional meetings ; should have man power sufficient to follow up all work started and to finish up its suggested programs of work ; should have more power to act; should be taken out of politics; jM-ovide it with more expert assistants. Name a state superintendent at from $10,000 to $15,000; get biggest educational leader, "then he will do the rest" ; hav- ing appointed a superintendent, should name subordinates only at his recommendation ; should give him power and hold him responsible accordingly; work out policy and system so that local prejudice may not defeat the purpose of education ; develop more definite educational program that reaches into the ON ADMINISTRATIVE REORGANIZATION 34^ school room ; should be held responsible for results in all edu- cational institutions ; give it power to organize faculties in the normal schools; give it more initiative and more power to require conformity to its standards; require all other educa- tional activities to function in harmony with plans made by it ; make surveys, conduct research and collect useful data; have more field workers so that there would be rural and village supervisors; send speakers to county teachers' and farmers' institutes ; determine the minimum essentials for rural schools. Organize night schools and education for adults; give more aid to institutes; give special help in different subjects espe- cially in nature study [using for this purpose actual best teachers] ; recommend text books ; enforce uniform text books and uniform courses of study ; give more specific helps and suggestions for "we are in need of knowing what the other fel- low is doing" ; issue monthly bulletins for teachers and board members; have special primary and supervisors of rural schools ; furnish close supervision. Its building department should handle all inspection includ- ing fire protection which high school inspectors could do, where now there is district fire inspection and industrial commission inspection besides three inspections by under-writers ; aid in securing higher performance in districts; have speciaHsts in interpreting school laws. Give as much attention to elementary as to high schools and correct condition where now "to meet high school stand- ards many counties are robbing the children of the grades, the more democratic institutions"; elementary schools should re- ceive the same support and supervision as high schools; aid educational work in communities which will not vote money for buildings. Call conference of rural and city supervisors ; during sum- mer, hold two- or three-week sessions for county superin- tendents, paying expenses at Ohio state university under the direction of its superintendent to unify work; have frequent conferences with public school men where in the last four years no conference has been called; county superintendents should be called together at least twice a year; should keep in closer touch with boards; be more closely affiliated with normal schools. State department should have policy and program and work to it; organize teachers' institutes and extend them to large cities ; have closer cooperation with university extension ; work out progressive theories to answer the demand of the reconstruction period. 342 REPORT OF JOINT LEGISLATIVE COMMITTEE 9 — How can schools be helped more by the legislature? Pass fewer laws and better ones ; make it possible for state department to do things in a large way; use shall instead of so many mays; clear up many cloudy points so that the punitive clause in attendance law will be clear; work in cooperation with the Ohio State Teachers Association ; have a more tolerant attitude toward members of the teachers' asso- ciation; consult rural school men when framing laws govern- ing rural schools ; put Ohio schools on a par with other states ; establish standards and give someone power to enforce them. Abolish local boards in counties ; make the county board the unit and give the county boards more authority in fixing a tax levy to avoid conflicting issues; "for the Lord's sake divorce us from budget commissions" ; give county boards authority to choose textbooks ; give county superintendents undisiputed power to choose teachers; enable counties to pay trained teachers' salaries equal to those in cities ; make $1000 the minimum salary [$800 made the minimum in 1920 for any teacher, $1,006 for two year normal graduates, $1,200 foi four, year graduates] ; pay half of rural teachers' salaries. Tax trucks enough to cover the damage they do to roads ; provide for county truant officers; abandon constant examina- tion — one and three year certificates — and make the four- year certificate provisional with continued renewal if work is satisfactory ; provide houses for rural teachers ; pass a law for condemning property for teacherage purposes as well as other school purposes ; revise the tax system to give schools more revenue [done in 1920] ; put no limit on taxation if levied by vote of people in community. Give state department of public instruction larger powers over all state schools, and industrial schools under the state department; do not give the state board power over other branches in universities than teacher training; provide for new codification of the school law and bring requirements up to date. SUGGESTIONS BY OHIO'S STATE FACULTIES FOR OHIO'S PUBLIC EDUCATION In answer to requests from the joint legislative committee on administrative reorganization faculty members of state supported in- stitutions filled out several hundred postcards which called for brief suggestions under these four heads : ON ADMINISTRATIVE REORGANIZATION 343 I — VVork over-supported or unnecessary, 2 — Work needed but not yet undertaken. 3 — Work inadequately supported, ^ — W'ork not properly organized (in university, state department, teacher training school, other state services). Many individual faculty members wrote in more detail than the postcards permitted and sent valuable information and constructive sug- gestions. At least three of the faculties in groups considered the opportunity for helping Ohio education, appealed to individual members to make suggestions and appointed committees to formulate proposals for dif- ferent faculty groups. For example, at the Ohio state university the college of engineering at a faculty meeting read yoiir committee's letter; ordered a letter thanking the committee for recognizing the cit- izenship of the university facalty and for giving it opportunity to make suggestions ; wrote asking .your field agent on education to meet the engineering faculty; conferred at length with the field agent and Gay- lord C. Cummin, C. E., your field agent on public works and other engineering problems; asked separate committees to formulate pro- posals; finally after compiling these proposals sent a composite state- ment of great value. Many of the suggestions from faculties bear upon the efficiency with which organization is used rather than upon organization. This material is of great value to Ohio and should be studied by educational administrators and should be used as clinical material for the training of educational investigators and managers. This hurried survey by individual faculty members proves the great advantage of so democratically and strategically advertising educational services that those who are closest to the educative process sball be constantly in an attitude of asking what the larger state wide meanings of their work are and of passing on suggestions to their own com- mittees, to administrative officers, trustees and state managers. The following summary is but a sample of the information and helpfuhiess that exist in all faculties and that would immeasurably pro- mote education if reservoired and let out through the mill race instead of over the mill dam. Art. 1 — College of fine arts needed ; departments of architecture, land- scape architecture, music, dramatics. 2 — A state art commission is needed, a body of professional men to pass upon the artistic merits of public buildings and to develop public good taste. 344 REPORT OF JOINT LEGISLATIVE COMMITTEE Agricultural Experiment Station. 1 — Needs closer connection than the voluntary co-ordination of past years. 2 — Should send specialists to conduct experiments for public schools. 3 — Should issue bulletins which upper grade children can under- stand. 4 — Should establish an experimental plot at every centralized rural school. 5 — Should organize farmer's meetings. 6 — Should be co-ordinated with the university. 7 — Should be placed under the university. Agricultural College. 1 — Production of marketing of farm products needs experiment and education. 2 — Exact cost should be ascertained of producing one hundred pounds of milk and a pound of butter fat or a can of con- densed milk. 3 — The producing capacity of cows in the state could be increased by study. 4 — The utiHzation of dairy product needs to be taught. 5 — New dairy equipment for teaching is needed. 6 — Rotary funds would make the dairy school less expensive to the state. 7 — More farm machinery is needed for agricultural engineering. Buildings and Repairs Needed. I — Another gymnasium at Miami. 2 — Repairs and maintenance funds and more space for Wilber- force. 3 — New library at Ohio state university and 4 — English building. 5 — Auditorium. 6 — Proper housing for both men and women students. 7 — Women's building. 8 — Testing laboratory for civil engineering. 9 — Greenhouse space for plant pathology. 10 — Electric equipment for charging storage batteries. 11 — Buildings for tractor testing. 12 — Completion of Brown Hall. 13 — Building to house all language departments with laboratory equipment. ON ADMINISTRATIVE REORGANIZATION 345 14 — Botanic gardens should be developed for the department of plant industry. 15 — At Kent additional repairs and janitor service. 16 — Give one department of public works authority over all forms of public construction in place of so many commissions. Commerce and Journalism, O. S. U. 1 — Prominent business men, journalists, administrators and social workers should be brought to lecture, expenses paid. 2 — Extension courses should be offered, lectures, correspondence courses and regular courses of study. . , 3 — An agent should be maintained to answer calls from news- papers and to make surveys of their business. 4 — A monthly magazine [now published] devoted to interests of Ohio press. 5 — More houses and higher salaries so that teachers may be retained. 6 — Universities should develop greater use of expert knowledge of state and private activities. The same relation should be established between state schools and business and commercial pursuits, that now exists between agrricultural school ana farm. 7 — More courses should be offered in business administration, accounting and trade. Conservation. 1 _ A s^ate bureau is needed to conserve streams, forests, fuels, game and people and to plan for necessary reservations. Economics and Sociology, 0. S. U. I _The enormous ground covered by the department of economics and sociology with over 3,000 registrants should be divided into a number of departments, as in other large universities. 2- A department of geography is needed instead of a division between economics and geology. 3 -Economic geography courses should be given for the conti- nents and for each continent separately. 4 — The entire economic department and library facilities, equip- ment and instructors is inadequately supported. c- Courses should be given where elected county officials may avail themselves of instruction relative to the duties of the office to which they have been elected. 346 REPORT OF JOINT LEGISLATIVE COMMITTEE Engineering College, O. S. U. 1 — Teachers of engineering should be to some extent producing engineers. 2 — Department of agricultural engineering and university archi- tect could plan all state barns and save fees for the state. 3 — The experiment station founded but not sufficiently supi>orted is important to state industries. 4 — Extension work in technical training is needed. 5 — Graduate school needs more support if Ohio is to train experts for using the engineering experiment station. Extension Work. 1 — Short extension courses for rural women and girls, especially in dietetics. 2 — Short community institutes in various parts of the state. 3 — Special instruction in business subjects for business men and 4 — Courses in state industries. 5 — Zoology and entimology for farmers. 6 — U. S. History. 7 — Prevention of disease and veterinary sanitation especially in poultry. 8 — Engineering. 9 -^ Marketing. 10 — Civic improvement. 11 — Night schools and schools for adults, by the state in O. S. U. 12 — By and for county superintendent through correspondence courses. Graduate School O. S. U. Is inadaquately supported [many answers]. Health. 1 — More information on disease should be disseminated. 2 — Social science departments of universities and state health de- partment should be co-ordinated. 3 — Health and medical departments should be centralized and an umpire placed over all classes of practitioners as in New York. High Schools. 1 — We are now wasting two years on four-year courses while two years are sufficienl. 2 — Every high school student should have a year of physiology in his fourth yonr after his three years of other sciences to include laboratorx' work on the care of the bodv. ON ADMINISTRATIVE REORGANIZATION 34/ 3 — Local control of hi^i schools in lowering standard of require- ments. 4 — Deficient in spelling, writing and U. S. history when entering Findlay college. 3 _ A series of state wide tests for all high and elementary schools is needed. 6 Only those students who have had Latin know anything about grammar. Apparently English grammar is not taught in the public schools. Industrial Arts, 0. S. U. I The two departments of industrial arts and industrial educa- tion now parallel one another and should be one department for economy and efficiency. 2 — Expansion of domestic engineering is needed including house- hold conveniences of all kinds. 3 — Household chemistry, physics and bacteriology and applied design are all neglected now. ^ Practice houses for senior girls is needed in home economics and for 5 — Cafeteria practice. 6— Additional space in the industrial arts is needed. 7 — Manual training is inadequately supported. Junior College. I — Junior colleges have relieved the University nf Mis.souri of 2,ooo Students. 2 The first two classes at O. S. U. are now in the hands of in- competent instructors due to lack of funds and to large enroll- ment — a junior college would remedy this evil. 3 _ The first two years of university work should be pushed back into high school; add two years to high school courses. 4— Permit junior college only if collegiate rather than high school grade. 5 _ Pass a law debarring from O. S. U. all junior college stu- dents ; let other Ohio colleges take care of them ; spend funds thus released upon graduate work. Languages. 1 — Latin and Greek organizations (at O. U.) not justified by the present number of students. 2 — All of the languages may now be taken either in high school or in college. 3 _ Work in English (O. S. U.) is inadequately supported. 348 REPORT OF JOINT LEGISLATIVE COMMITTEE 4 — Russian and Slavic languages should be taught for govern- mental service. 5 — There should be one year of special training in a French or German house after completing the college course. 6 — Portuguese should be taught for commerce with Brazil. 7 — A state specialist should make scientific measurements espe- cially of modern languages. Libraries. 1 — O. S. U. should have a library training school. 2 — "$1,500 a year for a normal school library is a crime." Medical Colleges, O. S. U. 1 — Consolidate. 2 — Do away with separate homeopathic college. 3 — Put into one college medicine, homeopathic medicine, dentistry, pharmacy. Miami. I — A repository is needetl here for Americanization materials . especially for the work at Hamilton and Middletown normal schools. Music. I — A college is needed at O. S. U. Normal Schools. 1 — County normal results seem scarcely worth while [judgment evidently not based on investigation]. 2 — Training for teaching feeble-minded is needed. 3 — Kindergarten methods should be taught. 4 — Vocational guidance is needed. 5 — State work is needed for music and communistic singing. 6 — Systematic study needed of correct speech and effective speak- ing which are marked assets for teachers. 7 — Training is needed for physical education teaching. 8 — Commercial teachers should be trained. 9 — Information bureaus sliouid lie establisliod for use of voung teachers. [O — Normals should prepare for junior high. 1 1 — More specialization is needed in training of teachers. 12 — Methods are improperly taught before principles, practice be- fore methods, observations before methods or principles, methods before psychology |a judgment not concurred in by other Ohio educators]. ON ADMINISTRATIVE REORGANIZATION 349 13 — Normal training is too largely on a practical basis. There is need for more of the finer things that make for character. 14 — Train teachers to direct centralized schools, high and elemen- tary. 15 — Teachers should be licensed in one subject only. 16 — The teacher in first class high schools should be certified for not more than two subjects, and 17 — For second class schools in not over three subjects. 18 — Two thirds of the normal course should be content and one third method. 19 — Only one school should specialize in music [and inferentially in other subjects]. 20 — Students should receive support while in training, as in Akron, which pays $50.00 and selects the best applicants. 21 — Normals should have research departments. 22 — Young teachers should be followed up by normal faculty members especially assigned to this work. 23 — Faculties should bring influence to bear to increase attendance. 24 — State law should guarantee practice facilities for normals. [See report on Teacher Training for Bowling Green arrange- ment] . 25 — Towns supporting normal schools should have state subsidy and 26 — Their schools should be under the control of normal school. 27 — There should be but one board for all normal schools [prac- tically impossible because Miami and Ohio normals are a part of larger institutions]. 2S — There are too many normal schools [believed to be incorrect]. 29 — Normal faculties should have time for research. 30 — Organize normal faculty on business like basis into commit- tees: If cut from interests created by promoting the general welfare the faculty member's powers are sure to atrophy. Ohio State University. 1 — Much work in the business manager's office compelled by law is unnecessary. 2 — Too much goes into the general equipment, janitors' supplies, carpets, desks, chairs, not enough into scientific equipment of the general department of the arts college. 3 — Collectively there is excessive expenditure for administration. 4 — We should not reach into additional fields but adequately sus- tain what we have. 5 — A thoroughly equipped graduate school is needed. 6 — A bureau of social research is needed to render expert service to the state. 350 RKPOKT OF jOfXT I.KGISI.ATIVE CO.Af M ITTKK 7 — The law school needs a moot court, liljrarian, summer school and publication fund. 8 — Teaching schedule is too heavy. 9 — Office space is inadequate. lo — Clerical assistance is needed by the faculty. 1 1 — Co-ordination is inadequate of education service with admin- istrative departments. 12 — Make classes larger and fewer in number. 13 — Use student assistants for grading papers and thus permit of better teachers and research work. 14 — Faculties should have effective voice in determining policies and the budget. 15 — The purchasing system should be simplified, is now too compli- cated and consumes too much time. 16 — Legislative committees give too little time to iiniversity affairs do not read diagrams of university growth. 17 — Restore to colleges the right to make their own entrance re- quirements [generally considered undennx-ratic in state sup- port and harmful to lower schools]. 18 — Observation indicates that much work in the higli schools is repeated in college, much work in teacher training schools repeats high school and academic work. High schools are not compelled to fulfill the standards set by the state superintend- ent's office. 19 — All colleges should be organized to help develop O. S. U. into an educational center of higher rank with a board to consist of three members from municipal colleges, five from state sup- ported institutions and seven from all other colleges. [From Miami professor. See section on state educational council]. Physical Education. 1 — Public health inspection is needed in all schools. 2 — Physical education department should be a health dejxirtment with health supervision and inspection, credits for required work done and adequate equipment and housing. 3 — Every normal student should have a physical examination as should eve'ry child in the training school . which requires in- struments, showers, dressing room. 4 — Physical education should be required work, carrying credit for three years of college, then elective for the fourth year. 5 — C). S. U. needs a larger gvmnasium. ux>~> lockers and recre- ation and athletic fields. ON AUMINISTRATIVK REORGANIZATION 35 1 Research Work. 1 — University teachers should have time for research work and opportunity for publishing the results. 2 — The normal faculties should do research work. 3 — Provision should be made to relieve researchers of part of their routine duties. 4 — O. S. U. needs a building for research. ^ — Research in language should be stressed. 6 — Research departments in business and social work should be established at O. S. U. with proper equipment and housing. 7 — Engineering teachers should have time for investigation and development in the uncommercialized fields of pure science. 8 — .Research work for legislative committees should be do^ne by O. S. U. departments. 9 — Research is needed in pathology and 10 — Farm machinery, 1 1 — Cost of milk production, 12 — Dairy by-products and rural marketing problems. J 3 — Medical institute is needed which will be independent but affiliated with first-class Iiospitals and medical colleges. 14 — Let the gaging station be on the Olentangy River. 15 — Experimental work is needed on fishes and pond culture. 16 — A bureau of cooperative research should be maintained by the colleges jointly. Rural Schools. 1 — Universities should send out speakers, slides, exhibits. 2 — There is need for a greater appreciation and practice of things organized and beautiful about the farm, home, rural school, churches, roads, parks. 3 — There should be physical education and public health work in rural schools. 4 • — Consolidation should be pursued. 5 — Dental, surgical and medical clinics are needed, school nurses and medical and mental inspection. 6 — County school district should be the rural school unit for tax- ation and administration, thus saving almost $500,000 a year. 7 — All local certificate issuing and certificate reviewing authori- ties should be discounted after 1025. Salaries. i_ Students in training should be paid at normal schools as our national government ])ays army and navy students so thai both number and quality may be increased. 352 REPORT OF JOINT LEGISLATIVE COMMITTEE 2 — It is ridiculous that Ohio is now paying more for supervising the feeble-minded (S7500) than for the state superintendent of schools ($4000). 3 — The state superintendent should be paid $10,000 to $15,000. 4 — Incidental fees should be used to increase salaries of professors [1920 law made this possible]. 5 — Critic teachers cannot be obtained so long as cities are paying elementary teachers more than normal college critic teachers receive. 6 — The state should be the unit for a tuition fund and pay all public school districts so that poor districts may be well taught. 7 — Highly trained specialists in chemicals and soils are not pos- sible within present salaries. 8 — Summer session teachers must have larger salaries. School Boards, Local. 1 — County boards should be elected or school electors, should elect county superintendent, district superintendents and as- sistant district superintendents and all teachers in district. All districts within the county ^hould be abolished. 2 — The county superintendent should be nominated by the state superintendent of public instruction. Social Service. 1 — Social service field work should be undertaken and 2 — Social science departments should be called upon for expert advice. 3 — More community service work is needed. 4 — Training for social service needs more support. State Departtnent of Public Instruction. 1 — Amend Ohio constitution to provide for state board of edu- cation. 2 — A complete reorganization is proposed ; 5-7 members, one out each year, appoint own officers from outside the state if de- sired with fitness the only qualification. Require reports from all state educational institutions and from all public schools; classify schools, public and private; control the certification of teachers; control the conferring of degrees and diplomas ; supervise educational departments of penal and reformatory institutions ; supervise schools for the deaf, dumb, blind and feeble-minded ; control all school or classes for training teachers ; prepare an educational budget ; recommend new regulations or amendments ; give needs to be covered and- salary changes needed. [See eleven provisions ON ADMINISTRATIVE REORGANIZATION 353 proposed in letter from Professor A. R. Mead, of Ohio Wes- leyan.] 3 — More authority over school affairs is needed. 4 — State board should control all educational institutions and libraries. 5 — All educational work should be correlated under one authority and vested in a commissioner. 6 — Text books should be selected by committees appointed by the state board of faculty members from higher institutions of learning. 7 — High spot facts should be circulated from Ohio and from other states for the use of wide-awake teachers, elementary and high school, principals and superintendents, city, county and district superintendents, educational workers in other states, teachers and teacher training institutions and trustees. 8 — Present facilities are inadequate ; the office under-manned ; law is too vague; space is lacking. 9 — Choose an able man — he will do the rest. Stale Superintendcni. 1 — More facts are needed and 2 — More executive power is needed. 3 — Someone should be employed able to plan and execute a defi- nite program or system. 4 — The state superintendent should be given definite powers to determine the qualifications for teachers. 5 — The high schools are not compelled to fulfill the standards set by the state superintendent. Sxirveys are needed, of 1 — Fisheries to yield the largest return from natural wealth of rivers. 2 — All state work and highway inspection. 3 — All streams in co-operation with U. S. geological survey. 4 — $15,000 is needed to complete the publication of results of state survey containing valuable information now withheld from the public. 5 - — Biological survey has received no funds for two years. Taxation for Education. 1 — A fixed millage is needed for each class of school. 2 — There should be a special levy possible for school use outside of the regular levy. [Now possible.] 3 — A commission should be appointed from colleges to give pub- licity to the needs of universities and colleges. 23 354 REPORT OF JOINT LEGISLATIVE COMMITTEE 4 — Citizens of the community must be educated along lines of administrative school work if they are to avoid the hostility toward progressive schools. 5 — More discretion ought to be allowed in the expenditure of money appropriated for schools. 6 — Closer relation should exist between teachers of taxation and state taxation authorities. [Social science group, Miami.] Teachers. 1 — Salaries should l)c paid to those in training in order to increase recruits. 2 — Four years of training should be the minimum. 3 — No one under 2i should l)e permitted to teach. 4 — Clerical help in teacher training school is inadequate. 5 — The state should provide homes for the faculty. Rent would make this a profitable investment. 6 — Our teacher training courses at O. S. U. in manual training should be recognized by the state board under the Smith- Hughes bill. Vocational Work. I — Vocational councils are needed at universities. Wilherforce. Needs facilities for brick-laying, plastering, cement work, pattern making and foundry; also expanded agricultural course, including landscape gardening; also vocational work for girls, confectioners, bakers, courses; dress and hat designing. Zoology. 1 — O. S. U. library is very short in zoological literature, which checks advanced research. "Of my salary of $1,500 I shall have to spend $100 for books." 2 — It is too heavy a tax on individual teachers to have to buy so much scientific literature simply to keep their work up to date. 3 — Laboratory supplies are inadequate. 4 — A scientific man for state work is needed. 5 — More support is needed. The foregoing suggestions are given almost verbatim. They are not a substitute for "best sellers", but they show socially minded constructive thinking by Ohio faculties. It is recommended that your committee have enough copies printed of this section to submit to the university and normal college faculties, together with the next section from city and county superintendents, so that it will be possible to secure study and still further suggestions in time to affect legislative proposals next winter. It is further recommended that these suggestions be called to the ON ADMINISTRATIVE REORGANIZATION 355 especial attention of trustees, presidents and deans for help in planning their next year's work. The first two letters that follow will take up frankly and definitely the problems presented by the large number of elementary courses at Ohio state university. They are suggested for reprinting in full for the concrete help they contain and for the indication they give of the co-operation received by your committee from university faculties. With them for the same purpose are included typical letters* from faculty departments, the engineering faculty at O. S. U. and two groups at Miami :* Dean J. V. Denny, O. S. U. Replying to your request for suggestions as to work not prop- erly organized in our educational system, permit me to make one suggestion. The high schools are now offering such a great variety of work that there is hardly a study with the single exception of English that is now^ pursued by all. The State law compels the higher institutions of learning to receive unconditionally into their freshman courses the graduates of first grade high schools. This requirement practically compels the colleges to offer elementary work in large quantities which should have been undertaken in the high school. For example, all of the languages may be begun either in high school or in college. The same is true of every science. The same is true of history. An investigation would show that fully one-half of the money expended for teaching in the higher institutions is expended on studies now ofifered in high school. One remedy for this condition of affairs would be to restore to the colleges the right to make their own entrance requirements. This right was assumed by the State Legislature a few years ago. Another remedy, and perhaps a better one, would be a new law permitting Jocal school boards to add a fifth and sixth year to the cur- riculum of the local high schools. This would enable the high schools to retain some of their pupils at home for a year or two longer before send- ing them away to the over-crowded and often poorly taught classes in the higher institutions. The state Superintendent's office should be charged with the duty of mapping out several courses for sixth and fifth year high school. Already there is plenty of work given in the high schools of the cities to furnish a student who is going to college with a preparation sufficient to admit him to the sophomore year. The expendi- ture of a little more money would enable the high school to prepare for admission to the junior year in college. College freshman Chemistry, Physics, Botany, Zoology, the languages are all now freely offered in the high schools. For admission to the junior year in college it would only be necessary to add for prospective engineers another course in English and in Physics, another year in mathematics and further work in Me- In these letters punctuation and capitalization are not changed. 356 REPORT OF JOINT LEGISLATIVE COMMITTEE chanical Drawing. For those seeking a liberal course these additions would serve very well if supplemented by one extra course in American History and one extra course in the Principles of Economics. Probably, it would be a good state policy to offer a premium to such schools as should be able to undertake college work, by special grant from the State Treasury to the local schools. This grant should be sufficient to support the additional teaching force necessary. It should be regulated according to the number of students remaining for the fifth year of the high school and to the opportunities offered. There is little hope of any little relationship between the state uni- versities and the private colleges. Voluntary affiliations have been tried for years in this state but for the most part have come to nothing. The small colleges are fulfilling a very useful function for the State .but their charters are usually so strict that it is impossible for these colleges to adjust themselves to modern requirements. Our hope lies in the estab- lishm_ent of a more economical relationship between the universities and the high schools of various kinds. Prof. M. B. Hzunmond, Economics, O. S. U. As a member of the faculty of Ohio State University I accept your invitation to make suggestions in regard to improvements which might well be made to improve state supported education. In doing so, I limit myself to matters connected with the Ohio State University, and while there are many matters which might be suggested in regard thereto, I limit myself to the one which seems to me the most important a't the present time. The growing popularity of a college education and the cheapness of that afforded by state universities has led within the last decade to a growth in the attendance at such institutions out of all proportion to the appropriations necessary to do the work adequately. Some of the state universities have succeeded better than the Ohio State University in impressing upon the state legislature the importance of their needs, but i-n practically all of them the condition prevails which I am about to describe. The great pressure in numbers is, naturally, in the lower classes in the colleges proper, i. e. in our University in the colleges of Arts, Agriculture, Engineering and Education. From the very nature of things most of the students in the first two years of their work in all these colleges are taking work in the same departments, either because the work is required, or because it is deemed necessary for the more advanced and technical courses which come in the later years of the college course. The result is that the student in these courses can no longer select his teachers in these courses. All these departments have to give their introductory courses in sections and most of them have many sections. No department has sufficient ON ADMINISTRATIVE REORGANIZATION 357 funds to hire well-trained and experienced teachers for this work. The work of teaching- these courses is fully as important and diffi- cult as teaching the more advanced courses and, contrary to popular belief, is recognized as such by the older and experienced men in the department. It is obvious, however that these men cannot give their time wholly to these introductory courses and turn over the ad- vanced courses to younger and less experienced men. The older men usually give one Section of the elementary course and devote the remainder of their time to the advanced courses. The result is that these introductory courses fall, for the most part, into the hands of men who have not yet completed their graduate work and who have had little or no experience in teaching. The lack of funds com- pel this. These men are lead by the- prospect of partially earntng their support while pursuing graduate studies to take up this teach- ing, incidentally. I believe that it will repay your committee to in- vestigate the extent to which the teaching in the first two years at the University is done by men who regard their teaching as incidental to their other work and who cannot be expected to take the interest in their teaching which- is taken by fully-equipped and fully-paid men who have entered upon college teaching as a profession. It might seem that the remedy was to supply the University with funds sufficient to employ well-paid men for this work. Unfortu- nately, I do not believe the Legislature is sufficienttly impressed with the importance of the subject to do this. Most men assume that the University is furnishing good instruction. They do not know any- thing to the contrary and conclude that a big University must be competent to give high grade instruction. Now, as a matter of fact the larger high schools are paying much higher salaries to their teachers than are being paid by the University for the men who handle these introductory courses. Furthermore, the work done in these courses does not require ex- pensive laboratory or library equipment. The laboratories must be big enough to handle the students but the expensive and elaborate equipment is needed only for the students who are specializing in the advanced courses. What is necessary is well trained teachers who are sufficiently well paid to take up this work. The teaching of the intro- ductory courses in English, modern languages, history, economics, mathe- matics, the biological and physical sciences which now fill the time of the students during the first two years of their college courses can well be done in a Junior College, connected with any of the large and well- equipped high schools. They cannot do it, of course, without larger funds than are now at their disposal, but if the state would create certain educational districts and subsidize on an agreed basis the strong school in that district which would undertake to establish a Junior College and admit to its privilege all students from that district who had the neces- 358 REPORT OF JOINT LEGISLATIVE COMMITTEE sary preparation, it would serve the needs of those people desiring to send their children to college which would be far cheaper than at present — when the expenses of sending young men and women to college away from home is included — besides affording better instruction than the majority of freshmen and sophomores in the University are now receiv- ing. It might also be a good plan to establish junior colleges in con- nection with the State Normal Schools. The Ohio State University should then be expected to limit very greatly the number of students in its own Junior College. When the system was well established, it might even. be possible to dispense with the Junior College at the University. The great importance attached to education in a democracy and the impossibility of adequately meeting the need in many communities is causing education to be registered more and more as the concern of the larger political units. It is for this reason that the State might well prepare to finance in part the higher education even when the adminis- tration is in the hands of the local political units. The people will more willingly support the schools when they see that the money is being spent in their own community and they have the opportunity to watch the results of the expenditure. I am not undertaking to set forth the details of such a system. I am chiefly concerned with pointing out the fact, which I am sure is not generally appreciated, that the instruction now being given to the majority of students during their first two years in the State University is of an inferior sort judged by university standards, and is steadily deteriorating, and am trying to point out that the work being done in these two years of college can well be handled in Junior Colleges in our large cities, connected with the High Schools, and in certain other communities in connection with the Normal Schools. College of Engineering — O. S. U. The members of the faculty of the College of Engineering of The Ohio State University wish to thank you for the courtesy shown to its individual members in asking then> for their "personal help" in your work and to assure you of our appreciation of the privileges offered us to be of service to our State in ways in which we are considered to be competent, each in his special field of knowledge. After due consideration and some discussion, we respectfully offer the following suggestions under the headings listed on the return post card sent out by your committee. (i) Work Not Needed or Over-Supported. (a) Duplication of Courses. There is some unnecessary duplication of courses of study of a technical and special nature in state supported institu- tions. on administrative reorganization 359 (2) Work Needed But Not Yet Undertaken. (a) Educational Extension Work. Educational extension work is needed under the direction o-f the College of Engineering of the State University in the form of short technical courses of study for the mechanics, miners, clay and steel workers, railroad men, road superin- tendents, telephone employees and others, somewhat similar to that which the state and nation are doing for the farmers. This is already authorized by law. (103 O. L. 662-663.) (b) Junior Colleges. The establishment of Junior Colleges is recommended in those cities not now adequately provided with educational facilities corresponding to the elementary instruction given in the first two years of the college curricula, using the local high-chool buildings and equipments, with the co-operation of the City Boards of Education, and under the supervision of the State University. 3. Work Inadequately Supported. (a) E.vpenses, Salaries and Equipments. The expenses, salaries and equipments of each of the State supported institutions should be supported by some adequate and regular means, such as a mill-tax levy. (b) Building Programs. The building programs, including equipment of new buildings of the State University, of the Board of Adiminstration, and of the other similar units of the State which need new build- ings each year to care for their regular growths, s'hould be supported by adequate and regular means, such as a mill-tax levy. (c) Present Emergency. There should be immediate provisions made for the care of the increases of attendance at the State University in 1919 and 1920. The law of the state does not permit the Uni- versity to limit the attendance. (d) University Library. The State University Library needs additional support and, in particular, provision for engineering books and periodicals. (e) Engineering Experiment Station. The Engineering Experiment Station at the State University for the benefit of the various departments, boards and com- 360 REPORT OF JOINT LEGISLATIVE COMMITTEE missions of the state government, and for corporations and and citizens, has been authorized by law. (103 O. L. 662- 663). (f) Existing Technical Laboratories. Certain Technical Laboratories and their equipments at the State University, such as cement, telephone, materials, and industrial c'hemistry, need support for proper operation to make present investment efficient for the youth and industries of the State. 4. Work Not Properly Organized. (a) State's 'Engineering Activities. The State's Engineering and Constructional Activities should be correlated under a new Department of Public Works, with subdivisions known as Bureaus of Highways, Canals, Rail- roads, Buildings, Parks, Art Commission, Reservoirs, Con- servation of Streams, Fuels, etc. (b) State Board of Education. The educational activities of the state might well be organized under a system similar to that used in New York State. (c) Civil Service as applied to Educational Institutions. The civil service as at present applied to the clerical, steno- graphic and artisan forces of the educational institutions of the state, is not conducive of efficiency. We take the liberty of adding the suggestion that there should be greater cooperation at mutual expense for equipment and labor between the departments and laboratories of the State University and the various Departments, Boards, Commissions, and officials of the State for the benefit of all concerned. We shall be pleased to discuss any or all of these suggestions with you and the other members of the committee whenever it is agreeable for you to have us do so. Again thanking you for the opportunity to he of service to our state, we remain Very respectfully, THE COLLEGE OF ENGINEERING. THE OHIO STATE UNIVERSITY. E. T, CODDINGTON, Acting Dean ROBKKT MkIKLJOIIN, Secretary. ON ADMINISTRATIVE REORGANIZATION 361 English and Public Speaking Division — Miami. In some adequate way bring before the people of Ohio the financial demands that will be made upon them in the natural development of edu- cation and educational institutions during the next ten years. The popu- lation is increasing, the percentage of young people entering and com- pleting high school courses is growing by leaps and bounds, and the per- centage of these graduates entering the state universities is more than keeping pace with this increase. Salaries of instructors must be made commensurate with those of trained and experienced men in other call- ings or this higher education will soon lose public respect and become farcical. The public certainly appears to want it and desires it to im- prove in excellence rather than to deteriorate. But the public in Ohio does not see at all the immense outlay that will be involved and is not educated at present to a willingness to make this outlay. A commission from the state colleges and normal schools, or one specially appointed independent of these, and provided with funds for publicity, could do a magnificent work in the next two or three years in bringing these in- evitable needs to the knowledge of the taxpayers. They might then become ashamed of "sweating" public education out of the teachers and realize that the more respectable and attractive the occupation the better material it will draw to its ranks. Mathematics and Physical Science Division — Miami. We recommend that the legislature provide for a committee of three whose duty it shall be to disseminate positive and impressive infor- mation to all householders of the state in regard to health, sanitation, venereal diseases, insanity, idiocy, etc. Books and long scientific articles are not read, or not understood or believed, but short plain statements of fact addressed personally and frequently to a man or woman will be efifective. EXAMINING BOARDS BELONG IN EDUCATIONAL DEPARTMENT At present there are eight separate examining boards, with 33 mem- bers each chosen from within the profession whose entrance and pro- fessional standards it guards. For 1921 the state appropriations for these eight boards are as follows, taken in the order in which they appear in the appropriation bill: 362 REPORT OF JOINT LEGISLATIVE COMMITTEE Personal Ma'inte- Board Service nance Total State Board of Accountancy (3) $265 00 $365 00 $630 00 State Dental Board (5 members) 3,425 00 1,020 00 4,445 00 State Board of Embalming Examiners (2).. 1,800 00 1,300 00 3,100 00 State Medical Board (7 members) 10,900 00 3,970 00 14,870 00 Nurse Registration (3) 7,115 00 1,513 50 8,628 50 State Board of Optometry (5) 3,840 00 1,350 00 5,190 00 State Board of Pharmacy (5) 5,815 00 3,385 00 9,200 00 State Board of Veterinary Examiners (3).. 200 00 200 00 Taking the per diem and traveling expenses alone of these boards, state expense is as follows : Traveling Board Expenses Per diem State Board of Accountancy $100 00 $200 00 State Dental Board" 850 00 2,000 00 State Board of Emblaming Examiners 600 00 600 00 State Medical Board 2,600 00 2,450 00 Nurse Registration 800 00 1,900 00 State Board of Optometry 500 00 2,000 00 State Board of Pharmacy 2,500 00 1,500 00 State Board of Veterinary Examiners 200 00 This makes a total of $10,850.00 for expenses of board members and $7,950.00 for travehng expenses out of a grand total of $46, 263.50 for maintaining these separate boards. It is suggested that the separate boards be abolished and that their present duties and powers be transferred to the Ohio board of education without specification in the law as to the number of examiners and assistants who must be employed full time or the number of professional men or women in each group who may be employed for consolidation by the Ohio board of education. At present these full time employees total the following: state board of acountancy, state dental board and state board of embalming examiners, i each; state medical board, 4; nurse registration, 3 ; state board of optometry, 2 ; state board of pharmacy, 3. Each of these separate boards acts in accordance with state law to uphold and presumably to advance the standards of its profession. The power of the state is given to the board in recognition of the great im- portance to society of the field occupied by each profession. As rapidly as a profession takes a new step forward in its educa- tional or professional standards, a majority or very active minority tries to secure the backing of the state for these new standards. It is fortunate that in years past professional leaders and the professional rank and file have used their closer knowledge of their profession's requirements for the public's protection. It is essential that no backward steps shall be taken which will subtract in the slightest degree from the protection given to the public by professional examining boards. ON ADMINISTRATIVE REORGANIZATION 363 Furthermore, it is important that the state retain the active co-opera- tion of the various professions in maintaining and advancing high stand- ards for admission to and retention in any profession. There is, however, one aspect of this present co-operation which should henceforth require public attention, namely, the basic idea under- lying every one of these examining boards as now constituted is the pro- tection of the profession rather than the protection of the public. It is true that the reason advanced for giving state authority to professional boards and for having the state name these boards is that their duties concern the public welfare. Within each profession there exists a far- sighted, socially-minded group, sometimes a majority, at other times an aggressive minority, which strives successfully to think of the public iur terest first. It is also true, however, that in spite of best intentions on the part of examining board members and of socially-minded individuals, the point of view has heretofore been primarily that of the profession which does not want its accepted standards lowered and competition fostered by the admission to practice of persons who cannot reach the present standard. The practitioner's interest or so-called vested right has uniformly been recognized by "covering in" or accepting as certified by the state all persons already practicing even though many were not fit according to the new standard. No method of insuring a continuing preparedness has ever been incorporated in law because the power of those within a profession has always been great enough to prevent such a requirement. The time has come when the public's interest, that is, the in- terest of those who patronize these professions, should be the pri- mary consideration in making up examinations. It is for that reason that it is suggested to abolish the present boards, tO' give up the idea of having continuous separate boards for each profes- sional service, and to recognize the solidarity of the state's interest and the educational motive which should dominate professional ex- suninations by placing all of this work under the direction of the newly organized Ohio board of education. The representatives of several professions in Ohio have told us that they would welcome such a change provided that no one of the several professions were singled out for the experiment. They recognize the plan as one which has already been tried in New York under the state board of regents for several of the professions and believe that it would work beneficially in Ohio. Secretary R. H. VoUmayer of the Ohio state dental board wrote of the proposed merging as follows : "If the differ- ent professions would have equal representation on a combined board and if the laws regulating ethical standards, examination fee, fines for misdemeanors, reasons for revocation of license and fees for registration are also identical, I can see no reason why a combined board would not be equally, if not more efficient." 364 REl'OKT OF JOINT LEGISLATIVE COMMITTEE Everything which is now done by eight boards with 30 members now employing .continuously 23 executive officers and assistants could be better and more economically done by a single standardizing agency whose motive is primarily educational. The co-operation of the professions could be retained and increased to even a larger degree than is now possible, for under the leadership of an Ohio board of education there would be lacking certain elements that now foster dissension within professions. It is very hard for a governor to select three or five or seven members of a profession for long terms without running counter to factional prejudices. Results of such mis- haps last through years when long term memberships are held. Under the proposed plan no physician or dentist or nurse would be permanently retained except as a possible employee by the state as an adviser in examinations. On the contrary, individuals or groups would be called in, each a specialist in his field, for advice with re- gard to examinations, perhaps to interview and test candidates, and even perhaps to help mark certain papers, and then they would go back promptly into the current of their profession with the same status as all colleagues. Where now examining board members often come to feel that they have a proprietary right to leadership in the profession and to determination of standards, the temporary examiners could acquire no such exalted misconception of their function and place. Not an iota of professional and scientific ability would be sub- tracted from the preparation of the examination and the marking of it. Laymen would not be engaged for professional examinations. The change means that professional men would not be engaged for lay work, would not be permanently engaged for work that centered in two periods of the year, and when engaged would be used as experts representing the state's educational requirements and not as boards from within professions possessing power to raise or lower professional standards and increase or decrease public protection. While some considerable economy may be effected by this method of substituting temporary for continuing full time service, of recognizing the clerical character of most of the work and of greatly reducing travel- ing expenses, the main advantage from such a change would be that the same educational agency which sets the minimum standard for educa- tional attainment in other directions and which will always be reaching out and forward in the hope of raising that minimum standard and of extending the numbers who attain it, will be held responsible for saying what it is that a dentist or physician or nurse should know and be able to do before the state of Ohio certifies to his or her ability and permits him or her to practice upon Ohio citizens. Another extremely important advantage is this : Because pupils or students and teachers alike are influenced in their study before examinations by what they expect to be asked at examination, this ON ADMINISTRATIVE REORGANIZATION 365 method gives the state a chance to immediately and progressively influence the program, procedure and results of all the training schools and self-students that are preparing men and women for these various public professions. At the same time, it would influence teaching in other states where students are preparing for practice in Ohio. If faculties and students know that examinations in Ohio as prepared for and by the state department of public instruction v^rill use the laboratories of Columbus, then courses of study will be modi- fied to give training via doing, via field work, via saving human life, con- ducting sanitary investigations and organizing health work where the passing mark will be correct and not an 'average of 75% or 80%. In the field of accountancy, schools and private studies will include field work, the public purpose of accountancy, and the governmental and social problems that an Ohio certified accountant should have both desire and ability to solve. For example, it is obvious even to a layman that no person ought to be given state permission to practice medicine who does not know the facts about modern preventive hygiene and ways in which municipalities and states are practicing preventive hygiene. Whether or not candidates for admission to trained work should be asked questions about preven- tive hygiene, social hygiene, community hygiene, proper organization of a state department of health, hygiene teaching and hygiene practice in schools, etc., should not be left to any profession or any three or five members of it to decide. Whether a would-be dentist knows how teeth can be saved and the social importance and moral obligation of saving teeth as well as the mechanical technique of repairing teeth is of the utmost importance for society to ascertain before it gives its sanction to his practice and should not be left to the members of a profession or any three or five members of it to decide. Surely we have come to the time when no person should be allowed to practice in any pfofession of whom the state has not ascertained before admission that he is free from transmissible diseases, a requirement which it would be vastly easier for a central board of education to enforce than for examining boards chosen from within each profession. The higher the standard of general intelligence the more dependent society becomes upon professions and the more important to every man is the training which is given for the professions. It is from the learned professions that the public secures its indispensable builders and counsel- lors. The public needs engineers of many kinds and it cannot afford bunglers ; it needs lawyers and surgeons, physicians and teachers. Even if It did not give a quasi-monopoly to those who are admitted to any pro- fession it would still need to concern itself about the qualifications of those who are to do its counselling, curing, building and teaching. 366 REPORT OF JOINT LEGISLATIVE COMMITTEE Once having recognized the piibHc's interest and protection as the first consideration when admitting new members to a profession, and having charged the state's educational standardizer and leader with re- sponsibiHty for fixing every higher standard for admission to practice professions, it will be easy to secure the following five minimum essen- tials: 1 — There should be wider publicity of the facts about each profession, its standards for admission, the kinds of work it does, its rewards, the number who makei a living by it, and the special qualifications for success in it. 2 — Special training for citizenship, special knowledge of pub- lic service needs and opportunities and of governmental aims, methods, and results should be a prerequisite of ad- mission to professional courses. 3 — No person who has not proved his preparation for service by actually doing what he has learned how to do should be considered fit for any one of the learned professions. 4 — No person should be admitted to any profession who has not had theoretical and field training in the public uses which are being made and which should be made of his pro- fession. 5 — In every community the men and women who are prac- ticing each profession should maintain an active organiza- tion for giving to the public currently the benefit of the special insight and special experience which are gained by practicing that profession. Three practical questions remain to be answered : 1 — Is the volume of work so great as to cause a serious diversion of energy from supervision of education to examining for the professions ? 2 — Is it fair and expedient to ask an Ohio board of education to be on the lookout for malpractice and to prosecute and disbar those found guilty of violating professional standards? 3 — Why should not this examining work if transferred be placed under the state department of health rather than the state de- partment of education? While not exactly a congenial type of service for a state department of public instruction, the maintenance of legal and professional standards of practice could easily be organized and managed more economically from one office than from several. In this work the full co-operation of the strongest members of each profession can be enlisted. The state ON ADMINISTRATIVE REORGANIZATION 367 and county prosecuting officers will work as earnestly for a central standard maker as for a number of separate boards. As to the volume of work, it is not as great as such names as state dental board and state medical board suggest. In the last five years the state medical board has admitted through reciprocity with other states, that is, without examination, 369 or the equivalent of 74 each year, and has examined 865 or the equivalent of 173 each year. Of 865 the medical board failed 39. In the same five years the dental board examined 1080, of whom 361 or almost exactly one in three have failed. This volume of work falling into different periods of the year and of the kind that is easily standardized is not too great for the state department of public instruction easily to organize and direct. In 1919 the state medical board made 168 investigations which it cites as an objection to a combination of the various examining boards under one direction. Yet distributed over a year, 168 investigations are not many. Much of this investigational work can be done by officers of the state department who have other reason for being in the localities where the special investigations are needed. Of the dental examinations the total exceeds the number of separate individuals for they have the rule that a person failing may come up for second re-examination without an additional fee and without any higher educational requirement. "The board holds two examinations a year, one in June and one in October. Of those who fail about three-fourths are sure to appear for re-examination at the next regular meeting of the board. At this examination about three-fourths of the three-fourths who failed pass and the remaining one-fourth take the examination at each successive opportunity until they pass. I have known of a few who have taken the examination at least ten times before they passed." It would be easier for a board and executive officer not themselves representatives of a profession to place the bars a little higher after each failure. Where the passing mark in theory is 75% and in the practical examination 80% as with the dental board, and a general average of 75% with the medical board, the public welfare should be protected against special preparation or "cramming" for examinations. The reasons for combining the work of these boards under one head are as cogent as the reasons which now give to the medical board responsibility for examining applicants for limited practice such as osteo- pathy, midwifery, chiropractic, electro-therapy and other branches em- braced in Section 1 274-1 of the General Code. Justifying the concentra- tion of these examinations under the medical board the secretary of that board wrote : "All of these people are engaged in the treatment of human ills and I know of no body' of men who can define the limitations which should be exacted of a limited practitioner — a masseur for example — save those who have had a complete education and have passed the necessary examination showing qualification. As at present arranged, it 36^ REPORT OF JOINT LEGISLATIVE COMMITTEE would seem that the state medical board with the subsidary committees in osteopathy and nurse registration, with the ability to call to its assistance for a practical examination in a particular branch of limited practice, an individual qualified to do such limited practice, that the best interests of the public are conserved. "Left to their own devices, these above mentioned limited practition- ers would prescribe educational and professional quahfications so ridicu- lously meager that no standard would be maintained. Under present ar- rangement, the state medical board examines all of these applicants in the basic branches which should determine whether an applicant possesses the fundamental education necessary before entering upon the studies of a limited branch." The reasons for not placing such powers in the state department of health instead of the state department of public instruction are these. Commissioner Freeman of Ohio's state department of health maintains that the first duty of a department of heahh is to secure the full co-opera- tion of all practitioners; that this would be practically impossible if the state department of health were mixed up with the factional discussion of proposed new standards for admision into the profession, and con- stantly investigating charges against individual practitioners. This view is supported in a letter to your committee from officers of the Michigan State Department of Health, Dr. R. M. Olin, State Com- missioner, Dr. C. C. Young, Laboratory Chief, and Katherine Ostrander, Director of the Division of Social Service concurring in the following statement by Dr. W. J. V. Deacon, Epidemiologist : "It is generally con- ceded that the registration and examination of physicians would not be successfully conducted by ilie state department of health. My personal acquaintance with a number of health officers who are charged with the duty of registration and examinations leads me to believe that the two do not work successfully together. I believe it is to the general good of the entire service that these two functions of protecting the public and of exercising certain police powers in relation to practitioners be separate. .... The greatest possible success in public health administration comes from securing the willing obsen^ance of the law because the pur- pose of it is understood." Of centering responsibility for examining, these three Michigan health officers expressed the following opinion: "Every state adminis- tration is hampered in the administration of its affairs by a multiplicity of boards and a properly organized general board would probably be found far more satisfactory and economical, but such afcoard must be em- powered to secure such advisory assistance as may be necessary from the various professions as would enable them to conduct a just, equitable and intelligent examination." I^y recommending: that this examination work come under an Ohio board of education instead of a consolidated examining board. ON ADMINISTRATIVE REORGANIZATION 369 it is hoped to secure all the advantages of concentration plus the additional advantage of recognizing the state's part in the admission of new practitioners to professions which it licenses as part of its educational program and accountability. POSSIBLE FORWARD STEPS. IN OHIO EDUCATION WITH- OUT REORGANIZING THE STATE DEPARTMENT OF PUBLIC INSTRUCTION Ohio's state department of public instruction should be reorganized. The various proposals made in other sections of this report merit the immediate attention of educational leaders and the public and call for prompt action by the legislature soon after convening in 192 1. As often happens in human activities, however, progress is not entirely dependent upon change in legal forms and legal machinery. The following are cited as forward steps that will accomplish much for Ohio and that are typical of what should be expected between now and any changes that are made in the formal organization or legal powers of the present department: 1 — The interest of the newspapers of the state in live school news can be used more frequently and cumulatively. The schools of the state will furnish the news and the newspapers will circulate it if the state department will arrange to analyze it and pass it on. 2 — With the present mimeograph machines and skilled mimeographers it would be possible to circulate between now and the end of this school year, during the summer when plans are being made for the next year, and in the early autumn months when work is being shaped for the next year, a number of round robin reports of best prac- tices, successes, radical proposals, salary increases granted, practice facilities used by the county normal schools, and questions, from those who lack experience to those who have it. In this way currents of inquiry and co-operation can be kept alive. 3 — High spot bulletins of best practices and forward strivings in other states and in Ohio cities and counties can be cir- culated such as the four which the department has already issued this year in separate bulletins, and such as were sent to the joint legislative committee on administrative reorganiza- tion by out-of-Ohio state, county and city normal schools and colleges of education. High spot information is pouring in to 24 3/0 REPORT OF JOINT LEGISLATIVE COMMITTEE the department constantly. The cost of analyzing it and cir- culating it is well within the present appropriation and facilities of the office. 4 — The educational journals, state department bulletins, re- ports of educational studies from ail over the country in- cluding Ohio can be brought into the office, distributed among the staff for study, if necessary sent out to Ohio state university graduate and senior students for help in high spotting, and the results made available to the whole state. 5 — The cooperation of the two journals which circulate among Ohio school teachers, tiic Ohio Educational Monthly and the Ohio Teacher, can be used far more frequently and extensively than in the past. The editors are greatly in- terested in school progress. They are seeking just the kind of information which is constantly coming into this office. 6 — The statistics of the department for education throughout Ohio, particularly elementary and secondar}' schools, can be made vastly more helpful and their story vastly more readable. There is plenty of time for the statistician to devise such new tables as are needed to bring out new important information. The printing cost is taken care of. The school- men will gladly furnish information if they know it is going to be used for their benefit. It took but a few minutes of the statistician's time to prepare the two tables for your committee showing the annual salaries paid by counties and districts in Ohio to their superintendents. There is plenty of time to make and to have made by co-operating educators and students of education scores of such charts that wall help the general public visualize school needs and school gains. 7 — It is possible to prepare lantern slides of attractive illus- trations and to make the beginning of a division of visual instruction which an expanded department should develop for the benefit of the whole state. To show from limited funds how useful such visual instruction is and how one set of lantern slides can help educate twenty communities will make it easier to secure the funds for an adequate department of visual in- struction. 8 — The annual report of the department would cost but a little more time and money, if as much, if it were made more appealing to the eye and to the mind after the manner of tlie Rural .School P.ullctin issued in iQJO. A few postage .stamps will secure from the best run and best explained out- of-Ohio state departments samples of progressive reporting that "gets across" to the public. ON ADMINISTRATIVE REORGANIZATION 37I 9 — Conferences can be held with specieJ groups, — superin- tendents of large cities, superintendents of smaller cities, dis- trict superintendents, county superintendents, principals in charge of vocational schools, school trustees, etc. The expense of such conferences need not even be borne by the state depart- ment except the small amount which might be spent in sending calls and in preparing programs. The state wants this kind of help to present leadership without waiting for a recognized department. 10 — Through his ex-officio relation to the state board of edu- cation which administers the federal funds for vocational training the state superintendent has the means of learning all about alternatives considered for that work, methods practiced and results obtained and can circulate through the wliole state the facts which he thus learns. 1 1 — The monthly bulletin can be sent as second class postage, and if desired several bulletins can be issued second class so long only as "they are issued from a known place of publica- tion at stated intervals and as frequently as four times a year". The difference in postage between second-class and third-class on ten thousand bulletins is almost $98.00 which can be used for more frequent publications, for large mailing lists or for additional work. 12 — More time in the field can easily be given even by the too small present staff. There is time for the financial secre- tary to be of help to many localities wishing to improve their ac- counting and statistical work. It is possible and highly desir- able for the inspector of teacher training to be in the field more and making more of the visits which were reported by several of those inspected to be extremely helpful. It is possible for the assistant superintendent, experienced in county supervision and familiar with county work in different parts of the state, to spend fully 50% of his time in the field without jeopardizing the work at the central office. Moreover, any state superintendent, just because of his position, can be of great help to county and local school boards and to officers and teachers especially when, as in the case of the present incumbent, this state leader has an unusual capacity for instant sympathy with the teacher's point of view, for discovery of teachers' capacity and for epigram- matic utterance. Through and for such work the department of efficiency tests and survey established in 1914 (G. C. 7654-6) can be re-established. 13 — The field inspections of the present high school inspec- tional staff of seven (one at half time from each normal 372 REPORT OF JOINT LEGISLATIVE COMMITTEE school and Ohio State University and two at full time for the state department) can be made far more useful. It is possible to include county normal schools and the main needs of elementary school systems in their inspections. It is not fair to any locality to judge its high school needs and work except against a background of its elementary school problems and work. Within the department there is the feeling that more could be accomplished if there were full time inspectors sub- ject exclusively to the department in place of those named by the five teacher training schools. It is barely possible that quantitively more work could be done by full time inspectors. It is possible even that better work would be done so far as individual inspections are concerned. It is doubtful, however, if so much benefit could thus be obtained for the schools as a whole as can be gained now from this close co-operation of the state department and the teacher training schools in the inspection of high schools which supply the recruits, for teaching. So far as there is a breakdown or even loss of momentum now due to breaking in new men and to giving men a new start after they swing from college work to field work, the loss of momentum can be anticipated, guarded against and almost completely overcome Ijy administrative steps well within the power of the state superintendent. From the standpoint of fu- ture schools it is a pity that every single faculty member of each teacher training school cannot be used for field inspections of elementary and secondary schools under conditions where ac- countability for dispatch, sense, contact, vision, definite knowl- edge of school requirements and ability to analyze and test can be exacted by the state department. 14 — Almost to a dollar moneys voted for the state department's own use and for expansion of school work in counties and districts can be profitably expended. There never should be $100,000 or one-half or one-fourth or one-tenth that amount returned to the general fund because it has not been earned by counties and districts or because its constructive use has not been insisted upon by the state department's executive. In 19 1 9 the funds for traveling and office expenses (about $8,000) might have been so used that the $93,000 appro- priated for counties and districts which was turned back would have been earned by them. At least the department could have ha\l a record of having explained to these districts the advantages to their own children of spending money nec- essary to earn the state appropriations. ON ADMINISTRATIVE REORGANIZATION 373 15 — A school program can be prepared for submission to the next legislature which will include a clear and convincing statement of the next steps for Ohio's schools which should be taken up by the state department of public instruction, to- gether with the cost of those steps. Where heretofore for several terms the department has been cutting its costs and yielding to uninformed or misinformed demands for retrench- ment it should now take the reins and explain to the legislature and the public the need for a greatly enlarged budget. Any state which has voted the school revenues which Ohio's legis- lature unanimously voted in 1920 will see the advantage of appropriating the relatively small additional amounts necessary to qualify the state department of public instruction to help districts, counties, and cities use their new taxing power most effectively. Without state leadership of the right kind it will be easy for the people of Ohio to waste many times the amount which a properly equipped state department would cost. POSTSCRIPT Letters and instructions, calls for conference and other educational matters which have been sent by the new state superintendent to Ohio school officers since this report was written show that many forward steps have been taken. It is recommended that your committee ask the state superintendent of public instruction to summarize such forward steps for presentation to the legislature and public in January 1921. 374 REPORT OF JOINT LEGISLATIVE COMMITTEE O CO UJ O 02 a to CO UJ to CO < -J U o N CO = ool s:o\°! = 00 I ON ADMINISTRATIVE REORGANIZATION 375 O LLi h D o if > CQ lU h < h o Ll. —J lu I 376 REPORT OF JOINT LEGISLATIVE COMMITTEE o o CL u_ o ADMINISTRATIVE REORGANIZATION 377 CO o <0 O a Qi 5 < O O s jj_jj ^11^^ SIB? c 5! t s: c C ^ c c c 5 37^ REPORT OF JOINT LEGISLATIVE COMMITTEE OHIO'S THREE UNIVERSITIES Ohio is already spending upon its higher education the enormous total of $2,325,000 which unless conditions and public sentiment change will shortly be doubled; $150,000 for Bowling Green normal college; $175,000 for Kent normal college; $250,000 for Miami university; $250,000 for Ohio university; $1,500,000 for Ohio state university. Ohio has three universities: Ohio university, 1023 students, 63 registered as non-residents at Athens, started in 1802 as the American Western university and was christened Ohio university in 1864; Miami university, 1033 students, 138 non-residents, at Oxford, established by legislative act in 1809; Ohio state university, 6608 students, 566 non- residents, at Columbus, established by the legislature in 1870. The Ohio residences of students as given by students are shown on the service spot maps submitted herewith,* — to the slight overstatement of numbers from college towns because students move there for their college course or non-residents often claim residence there. Each of these three universities has its own board of trustees ap- pointed by the governor with the advice and consent of the senate, — Ohio, 19 appointed for life, plus the president and the governor of the state exofficio; Miami, 27, nine trustees every third year for a term of nine years ; Ohio state university, seven for a term of seven years each. Each of three universities gives the same or similar non-professional courses running through four college years. Each of them has a four year course for teachers which prepares for high school teaching. Each of them has a rapidly growing summer school. Each of them is inde- pendent of the others in its internal management, faculty organization, courses of study, standards for students, etc., except that Miami and Ohio universities have agreed to discontinue work for the master's de- gree and that all three are represented in a conference of higher educa- tion in which Bowling Green and Kent normal colleges are also repre- sented. Informal cooperation gives each institution a slight acquaintance with the other two. For the graduate work leading to the degree. Doctor of Philosophy, the state law has designated Ohio state university alone. Section 7923 declares a policy for all time to come, namely, 1 — The state will build up one university worthy of it as now begun by Ohio state university, and 2 — Miami and Ohio universities are to be colleges of liberal arts but are not to include technical or graduate instruction aside from the usual graduate work for the decree of master of arts (which last has been given up volunt^-ilr ay .''Oth imiversities). * Sec appendix. ON ADMINISTRATIVE REORGANIZATION 379 Over these three independent institutions there is no state author- ity now exercising educational supervision except so far as questions asked and proposals made by the auditor of state, the budget commis- sioner, the governor, finance committees of the legislature or the general assembly itself may constitute supervision. No formal relation whatever exists between the state department of public instruction and the three universities with respect to any part of their work except certification of teachers. Question : Shall this present complete independence of each uni- versity be continued, modified, or abandoned? This present organization violates current orthodox and advanced theories of proper organization for state educational institutions. Using theory as a searchlight a clear need is pointed out by several Ohio edu cators and by out-of-Ohio' observers for several different changes : 1 — A single board which shall have charge not only of the uni- versities but of all other educational services of the state. 2 — Such a single board with a chancellor over all the three uni- versities, having power to name presidents and to carry out the board's policies. 3 — A single board for the three universities and two normal col- leges, administering through a president and faculty for each institution which would be entirely independent of officers and faculties of other institutions. 4 — A central board over the three universities alone working through a separate president and faculty for each institution. 5 — A single board with a chancellor over the three universities working through a president and faculty in each institution separate from all the others. 6 — The abandonment of the college of liberal arts at Miami and Ohio universities and retention of their colleges of education. 7 — The development of Bowling Green and Kent normal colleges into colleges of liberal arts with integral four year colleges of education while still retaining two-year normal courses for teachers, in this way with Miami and Ohio providing four colleges in four corners oi the state and a central state uni- versity at Columbus for professional senior college and grad- uate work, faculty and student research and experimentation. Of these seven suggestions the last alone is suggested as a practical next step for Ohio. The reasons for and against the others are less im- portant at this point than the reasons for the alternative and compromise suggestions which follow: 380 REPORT OF JOINT LEGISLATIVE COMMITTEE 1 — Begin the co-ordination of Ohio's three universities and two normal colleges by first securing and co-ordinating information about them rather than by attempting to physically co-ordinate officers and faculties. This can be done by giving the state department of public instruction the power and the duty to learn and publish the facts about organ- ization, program, equipment, products and needs of these in- stitutions against its background of public school needs throughout Ohio. 2 — Encourage and continue the higher education conference, expect it to be active in discovering and discussing com- mon problems, and foster such activity by making budgetary l^rovision for a qualified itinerant investigator and circulator of information about high spots, best practices and suggestions. 3 — Give the same number of trustees to each of the three uni- versities with the same method of appointment and tenure, that is, reduce Ohio's trustees from 21 with life terms to seven with seven year terms ; reduce Miami's 27 with nine year terms to seven with seven year terms; leave Ohio state university with number and tenure as at present, seven mem- bers for seven years. Later it will probably prove advisable to reduce the number to five as in the case of trustees for Bowling Green and Kent normal colleges. 4 — Put a premium upon democratic cooperation within facul- ties and between faculties and managements on the basis of fact by requiring trustees to hold public meetings, to hold executive sessions only for reasons and with results stated in minutes, to record proposals discussed as well as actions taken, to distribute proceedings among faculty, to ask co-operation of faculty when vacancies occur as suggested in the section on faculty organization. 5 — Require each institution to provide for current scientific self-study through a division of administrative research and reference equipped (i) to analyze the field each institution is altenipling to cover, methods employed and results obtained and (2) to obtain and circulate among officers and faculty helpful information from other Ohio activities inside and outside of Ohio. It is more prodigal for a university to be without administrative self-research than for a great business to be without a testing laboratory and a cost department. As all of the institutions train teachers, and as the advanced work of the Ohio state university's college of education calls for clinical material, it will be possible through divisions of refer- ence and research to kill two birds with one stone, (i) secure ON ADMINISTRATIVE REORGANIZATION 3^1 indispensable information at a low cost and (2) at the same time provide invaluable field training for prospective teachers and school administrators. Not the least important duty of such a division for self-study should be listing the unmet needs of its institutions and specifying those needs which might be met by citizen gifts of time or money. No other step will bridge the chasm that is widening be- tween faculties and administrators and faculties and trustees. - Instead of opposing every attempt by trustees and business management to understand educational problems and deal with them on a basis of established information, faculties should promote methods of organization which will make it difficult if not imposible for business managers and trustees to think of the money and equipment side of education without the aid of definite educational information such as a bureau of ad- ministrative research would cumulatively furnish. - Require that so far as time is the basis of credit an hour in one institution shall be the equivalent of an hour in one of the other institutions, and that an hour or a half year m a county normal shall be considered the equivalent of the same time in any one of the five higher institutions. -Require that each institution install and use the records necessary to show at the beginning of each semester to trustees, officers, faculty, council of higher education, and the state department of public instruction, the use, partial use and non-use of building space and the teaching and non- teaching load of faculty members. Records furnished to your committee show space worth several million dollars com- pletely or partially not used for over half the time and seriously inequitable distribution of service loads among faculties. See accompanying charts. If continuous and scientific self-study is adopted by each institution many other helpful records will result; for example, blanks upon which it will be easy for faculty members and officers to report to trustees and to facul- ties whatever suggestions for improving university work they have obtained from conventions or other absences on leave. — Encourage but do not require uniform and comparable or- ganization of faculties along the line of the best practices available in Ohio or elsewhere. Make special efifort to keep out of faculty meetings all routine matters that should be at- . tended to by clerks or.by small committees. Give the faculty meetings to large educational problems such as the teacher shortage, revision of curriculum, cooperation with the public schools, 'extension education, encouragement of research, de- 382 REPORT OF JOINT LEGISLATIVE COMMITTEE USE, PARTIAL USE, AKD NON-USB OF HOOUS USED BY STUDEHTS Institution Bowling Green Normal Building Adbnini strati on Room 309 Typewriting Dimensions 18 x 28 Student Capacity 12 Period Length Sun. Hon. Tuee. Wed. Thure. Fri. Sat. 1st MjMfk!k!k 2nd MMfitm. 3rd urns 4tll 'Pjjfffifjf^ 5 th Lunoh Ho> ir 6 th &&&&&&&& ,7th 8th &5C&&&&&& &&&&&&&& 9 th JUUfJULMJljL !l It 11 If II 11 11 -H- W^fffj'lfj d^uji nil a jfM' iWlfl'lliHHl 11 H 't H II II It II 10 th ILiilLllfT'li 11 11. mm ffilflS ^fflS WMU 11 Ji u ,y 11 li^flJl •' ' ' ' 1 Vnite- complete U3t, jf-non-use USE, PARTIAL USE, AlTp NOK-USE OF ROOMS USED BY STUDEKTS Institution Bowling Green Building "Admini strati on 217- r,ewing Boom Dimensions tudent Capacity Period Length Sun. Hon. Tues. aifffg nvm frit it i t II l iil It f tHtm . ■U-41-ii il 11 khli m mmhMUiHmit tt'm^ljmiM. White-complete use, fr-iction- partial use, j?-»H:)ii-iiee ON ADMINISTRATIVE REORGANIZATION 383 USE, PARTIAL USE, AND NON-USE OF RCOUS USED BY STUDENTS Institution Miami Univ. Buildinc Uain Building Room 224 Dimensions student Capacity 53 Period Length lat 7; 50-6: 20 Sun. Mon. ^' m Tuea. 29/33 Wed. mm rhurs. 29/33 M Eri. mm 29/33 i£ 2nd 9-10 M 23/3: -MUiL 23/33 23/33 mu- 23/33 #### ^m 3rd 10-11 30/33 M_ 36/3: M. 30/33 M. 30/33 A- 30/3; 'M 4t£ 11- 12 14/33 # 14/33 # 14/33 # wm. Lunch 6 th 1-2 17/33 kmrna J It 11 It a TWIT 17/33 wtrii it nil it il 17/33 MM V' 'MbM MM m 8 th 3-4 yi!i!i hMtii mtM mm 9 th 4-5 mm ^riMl!^, l&iM Mim 10 th 5-6 i Sy ^ iU ''t mm €tM dliite-coiaplete use> fraction-partial us^ USE, PARTIAL USE, AND NON-USE OE ROOMS USED BY STUDENTS Jjistitution Miami University Building Brice Room 105 Dimensions Capacity 45 3^^4 REPORT OF JOINT LEGISLATIVE COMMITTEE velopment of teaching through field work and through doing what needs to be done in factory, shop or community, proper attention to student housing, boarding and recreation and to discovery of individual students' weak points needing correc- tion and strong points needing development. Build up the junior college years and teacher-preparing senior college years in the four colleges and so far as pos- sible reserve the energies of Ohio state university for senior college and graduate work and for professional train- ing that cannot be given in any of the other schools. T3SE, PARTIAL USE, AIID KOK-USE OF HfflOaS USED BY STUDENTS institution Kent St^ite '.lomal Building Uerrill Eall Room 34 Dimensions 24 x 32 Student Capacity 40 White- complete use, frnctions-partiaJ. use, #-nou-usf lo — Charge all non-residents, i. e., out-of-Ohio residents except- ing possil)lv students from foreign countries, a tuition fee that will fairly represent the actual cost to Ohio of giving this instruction; prohibit the admission of non-resident stu- dents to freshman and sophomore years at the Ohio state university ; give resident students preference in state dorm- itories and in private rooms; refuse in continue any out-of- state student who does not achieve a rating of 1^ or whose scale of expenditure has a deteriorating or demoralizing efTcct upon cost or character of living for Ohio students; frankly take the position that Ohio institutions are pri- marily for Ohio students unless conditions develop where ON ADMINISTRATIVE REORGANIZATION 385 there is building space or faculty energy not required for adequate attention to Ohio students. II — Charge the state department of public instruction with re- sponsibility (i) for reviewing the budgetary estimates of these universities and colleges, (2) for tentatively recom- mending reductions or increases according to its evidence of state wide needs, (3) for conferring with each institution before finally recommending a change either to the budget commissioner or to the public, and (4) for submitting a con- solidated budgetary program for all of Ohio's state sup- ported education. In drafting laws to provide for such steps by the three universities and two normal colleges, it will be necessary to have many conferences and to work out details fitted to each institution.. It is not necessary to take your committee's time to explain all of the ramifications of these suggestions. It would be possible from statements by the faculty and officers themselves to show concretely in many different ways for each institution the need for such steps. It is enough to recall that it is upon these institutions that Ohio relies for the recruiting and training of teachers and the recruiting and training of men and women for other professions, and for the higher life imposed by American citizenship upon college-bred men and women. OHIO'S NEED FOR JUNIOR COLLEGES From faculty members of state and private colleges in Ohio came many appeals for a central state university which should be primarily a university and not primarily an institution for elementary college work. Even Ohio state university itself throws up its hands in dismay at its thousands of freshmen and asks relief from the other thousands that the future promises. Faculty members and the president agree that unless something is done to give this central institution relief from veritable hordes of elementary students it cannot hope to develop ability to serve Ohio as other institutions in the state are not equipped to serve. Educational leaders in the faculty at Ohio state university and among its trustees want to develop along advanced lines of scholarship, build up professional schools, graduate schools, and faculty and student research which will both add to the sum of human knowledge and will immediately and permanently serve the interest of Ohio's commerce, industry, agri- culture and government. 25 386 REPORT OF JOINT LEGISLATIVE COMMITTEE Two ways out are proposed : 1 — Raise scholastic requirements and free the university from the necessity of accepting all Ohio high school graduates who wish to register. 2 — Establish junior colleges, which means adding two stories, of college grade, freshmen and sophomore, to the high school work done in cities and counties throughout the state, plus the fostering of relations with other state and private schools of college grade by which these other shall specialize in the training of freshmen and sophomores and the Ohio state uni- versity shall specialize in the training of juniors, seniors, grad- uate students and professional students. The first alternative, that of turning back the hands of the clock and withdrawing the declaration that high schools exist for all the stu- dents in them and not for the preparation of a few for college, is not seriously thinkable for Ohio. Democracy does not go back in such ways and for such reasons. If the high school of any city fails to prepare some or all of its students for the work of the universities, the remedy is to improve that city's high schools. For such services the state de- partment of public instruction exists. Facts about the breakdown of any high school should be used by the universities and the state department for improving that school's standards and not for crippling that school's ability to serve its entire student body and the business and society they are to enter. The second alternative, the development of junior colleges, must be seriously considered by Ohio not merely because the Ohio state uni- versity has more junior college men and women than it is organized to do justice to without neglecting other work, but also because the cost of securing free tuition away from home is so great that large numbers of Ohio boys and girls will never have a college education unless at least the two early years are brought practically to their home doors. If this second suggestion is acted upon there will remain for junior college work at Ohio state university a very large registration from Columbus, Franklin county and adjacent counties. The distribution of the present register is shown on the accompanying service map made by Registrar E. H. Cockins for }our committee. This map shows the total of 3563 junior college registrants in the first semester of 1919-1920, of whom 1076 were from Columbus and Franklin county and 220 from counties contiguous to Franklin. All the rest of the 2267 junior college registrants would be appropriately distributed among four other colleges, except that a considerable proportion of them must continue to come to Columbus for special professional work in engineering, dentistry, medi- cine, etc., until such time as these professional schools begin their ON ADMINISTRATIVE REORGANIZATION 387 Strictly professional work at the third year beyond high school or the junior college year, — a time which cannot be far distant. If such a step were taken for the better distribution of students and for the better use of Ohio state university a great many of the junior college students would undoubtedly register in home town or nearby private colleges rather than pay the carfare to attend one of the other four state institutions which would lack the prestige of size and of suc- cess in athletics that now attaches' to O. S. U. Considerable relief would result if there were no feeders to the upper classes of O. S. U. except the four other state colleges, municipal universities all of which now have four-year courses, and private colleges. Because this step calls for no additional expenditure by the state except to take care of a pos- sibly increased register at the four state colleges, let us consider the rela- 388 REPORT OF JOINT LEGISLATIVE COMMITTEE tion that would develop between Ohio state university and its recognized feeder-colleges. OJi'io state university should come to mean one great central uni- versity representing the highest landing in the whole educational pro- gram of the state. Each of the other two universities, two state normal colleges, thirty-five county normal schools, and the normal department at Wilberforce should be definitely recognized as part of this university. For reasons earlier stated, work done in one part should receive full credit in every other part without, however, binding one institution to continue a student from another institution who proves inability to carry its own work. Each part of this greater university should be encour- aged and required to apply such individual tests to its students that its credentials will give to one of its students a chance to study in any part of the whole university without discount for past time provided only that he works to grade in the future. Certificates or records of work should be signed by the central university as well as by the institution in which the work is taken. Thus, a student who had finished four years in Miami university would re- ceive a degree from the all-Ohio university at Miami; one who took the bachelor's degree at Kent or Bowling Green would receive a degree from the all-Ohio university at Kent or at Bozvling Green. The certifi- cate for work done at a normal county school in a one-year course should be not only from the director of that county school but from the all-Ohio university at that county school. The details of this arrangement should be worked out as the result of co-operative study by a reorganized state department of education and Ohio's colleges. Without changing any of the other factors in the state's present organization it would be possible to effect such co-operation and understanding and such visiting and reporting by the state depart- ment of public instruction that this kind of arrangement among the state supported institutions would work to the advantage of all and with- out injury or inconvenience to any. The final certificating would doubtless best be by the state depart- ment of public instruction, the natural coordinator. The extension of such a relation would easily run to private colleges and to municipal universities not under state control. Obviously, how- ever, in such cases the state when giving a certificate would be certify- ing to a standard which it has observed and tested without being itself responsible for the standard. In order to encourage even the weaker colleges which are not so well equipped to conduct the junior and senior courses as they are to conduct freshmen and sophomore courses and to supervise these younger students during their first years away from home, it would be necessary to show that their participation in the pre- paring of these junior college students would not be lost sight of when ON ADMINISTRATIVE REORGANIZATION 389 the final degree was given. Such recognition would be indispensable be- fore the stronger institutions could be persuaded to send their senior college students to Ohio state university. At present it is easier for Ohio private colleges to send students to the graduate school of Ohio state university because the student's connection with his alma mater is definitely recognized in the final announcement of the degree, which ought also to be specified in the proposed all Ohio certificate. There is no reason at all why the state "of Ohio should not recognize the institution responsible for the early preparation of students who later take degrees from its central university. Thus one coming for two years work from a municipal university in Cincinnati, Akron or Toledo or one coming from one of the many private colleges would receive a degree from the all-Ohio state university (represented by the state department of public instruction) with the notation that a municipal university or private college had contributed one-fourth, one-half or three-fourths of that student's preparation. A relation similar^ to this already exists in graduate research work. The public and private colleges in Ohio have a practical understanding which with respect to Miami and Ohio universities is legalized that they shall not attempt to build up graduate schools. Nominally, all of these institutions are turning to Ohio state university for carrying their ad- vanced students on into research and graduate work. Actually, as many of them have written to your committee, the Ubiversity has not been equipped — largely because of its junior college work — to give the leadership which these other institutions wish. The time has come for an extension of this principle to include a large number of students who prefer the first two years in one of the other institutions and the last two years in professional and other advanced courses at Ohio state uni- versity. One serious obstacle to this development is the large number of junior college students who register from Franklin and contiguous coun- ties. These 1296 students constitute so large a proportion of the total junior college register — 50% — that not much relief will be efifected unless a junior college is provided for them. There are two ways out of this difficulty, one afifecting these stu- dents primarily and the other affecting the whole state. First, it is possible to organize a junior college on the campus for all elementary, non-professional work ; admit no one to this college who lives in a district tributary to one of the other state colleges ; admit no out of state students to this college; give it a special dean, advisors and other supervision in the state's charge such as young people around the ages of eighteen to twenty-one should have; work systematically to keep to a minimum the diversion of energies from senior college to this junior college work. 390 REPORT OF JOINT LEGISLATIVE COMMITTEE The second alternative is to use the state's influence and state funds to foster the building up of junior colleges upon the high school systems of cities and counties. How much the state should do is an open ques- tion. These steps however are clearly involved: 1 — It should have all state schools give credit for advanced work done beyond high school grade in accredited city or county schools. 2 — It should formally by law authorize cities to establish junior colleges. 3 — It should consider helping cities bear the expense of junior colleges on the double ground that it wishes to place the ad- vantages of higher education as equally as possible and that the home town or home county junior college will relieve the state of still greater expense at Columbus than would be in- volved in state aid for cities or counties that decide to main- tain junior colleges. 4 — Any law authorizing the establishment of junior colleges or providing for state aid should permit county and city to com- bine and should permit cities or counties not having a junior college to pay tuition for students sent by them to nearby cities having junior colleges. 5 — It should provide for adequate helpful supervision of all junior colleges bv the state department of public instruction. A great question of policy like this involving a fundamental re- adjustment calls for more protracted study and for more conferences among the agencies involved than yonr committee contemplated. Toledo university is having a field study made of junior colleges in Illinois. Michigan and elsewhere. Three of its staff have been made special agents of the U. S. buerau of education. President A. M. Stowe has offered to make this report available to your committee. A tentative plan for the establishment and maintenance of institu- tions of higher learning including junior colleges, marked exhibit i, is submitted herewith as prepared by President Stowe. Until the field .study that is now under way has been reported upon, this plan is a helpful basis for discussion. Among the more important provisions are these: I — While a junior college may be established by vote of council or legislative body or electors, it can be discontinued only upon the vote of electors. ON ADMINISTRATIVE REORGANIZATION 39 1 2 — The junior college would have its own board of five trustees, unpaid, each serving five years, one going out each year, apart from the local board of education now responsible for high schools, — a controversial proposal. 3 — For a junior college a municipality must levy not less than .2C of a mill and may levy up to .35 of one mill plus .05 of a mill for scientific purposes, — provided in each case that the cur- riculum is of collegiate grade. The third proviso suggests a fear which many have that junior col- leges will mean in many cases only two more years of high school grade rather than two first years of college grade. As a matter of fact two years of college now are said by colleges themselves including the faculty and president of Ohio state university to include a large percentage of course of high school grade. The president of Ohio state university said to your committee that freshmen at the university were being given work under teachers less qualified and conditions less favorable than they left last year in their high schools. Nevertheless, the need remains to recog- nize a distinction between senior high school and freshmen college, and if a junior college policy is to be embarked upon, precaution should be taken to see that collegiate work — work more advanced than high school — will be done. FACULTY ORGANIZATION Ohio has six different educational institutions with faculties that are nominally organized for determining and keeping separate important educational policies, namely, Ohio state university, Ohio university, Miami university. Bowling Green normal college, Kent normal col- lege, Wilberforce combined normal and industrial department. The interest of individual faculty members in problems of organ- ization and in educational problems and the belief of faculty members that progress in their institutions and in the state requires their under- standing and cooperation are great assets to the state. Even that part of tlie present unrest in several of these faculties which is a feeling of discontent because of alleged disfranchisement and lack of faculty repre- sentation, is an asset if properly used by the state. At present each of these institutions works by itself. Although the state is owner, supporter, patron and beneficiary it has no machinery whatever for even asking how these faculties are organized and what the merits are of various contentions between faculty and ofificers, faculty and trustees, or among faculties. 392 REPORT OF JOINT LEGISLATIVE COMMITTEE It is true that the governor, as the appointing power, supreme ex- ecutive and budget framer is free to make inquiry, to make recommenda- tions and even to exert pressure in the interest of better organization. Similarly, the auditor of state may when exercising his powers of audit ascertain differences in organizing and difficulties that exist or are alleged to exist. Finally, the legislature may if it wishes make inquiry into such con- ditions. The fact remains, however, that such inquiry is not made and that heretofore there has been no attempt to relate faculty organization to state needs. Elsewhere, it is recommended that this duty of keeping currently in touch with all of these state institutions and of viewing their organization and results from the standpoint of ioo% of Ohio's educational needs be placed by statute upon a state board of education and its educational director. Pending such action, it is desirable that the faculties of all these educational institutions be organized so as to express the following basic principles : 1 — It is information, not physical presence that makes democracy of faculty management possible. 2 — Unless it is made some one person's business to be seeking and circulating information among faculty members, faculties will never have sufficient information for democratic cooperation, therefore the division of administrative research and reference elsewhere recommended. 3 — Routine matters should never come before a faculty except in the form of typed or printed memorandum of actions taken or of actions required. 4 — Attending to routine matters should be provided for through administrative officers or through one or more small faculty committees, — often preferably of one only. 5 — Legislation with respect to minor matters should be entrusted to a small executive committee, or senate, as in Miami. 6 — Rotation of members on committees should be the rule, to shield the few from too much administrative work and to shield the whole from domination by a few. 7— Only matters of greater magnitude, more particularly unsolved problems of education, should ever come before the faculty as a whole; faculties should keep in touch with routine and minor matters of legislation and administration through mimeographed statements sent by mail or delivered by hand, which can be quickly disposed of at each member's convenience. 8 — Major matters should never come before a faculty for action as a surprise or by oral statement until after they have been ON ADMINISTRATIVE REORGANIZATION 393 submitted in writing long enough in advance for eye-minded members of the faculty, who are the great majority, to know what proposals involve. This means calendars in advance and a known order of business. 9 — It would promote faculty initiative if a faculty member rather than the president were chairman of faculty meetings for dis- cussing educational problems. lo — The president should preside over the legislative body or senate. He should have the power to convoke a faculty meet- ing — to bear a welcome and a program at the beginning of each year, etc. — and to speak at any meeting on any subject but always under the chairmanship of the faculty. The same principles which apply to the whole faculty, apply to the management of departmental faculties where a great deal of time is lost in sitting around, and listening to details that call for administrative action, not debate. Provision for making use of every faculty member's willingness to study and for placing before every faculty member important facts about institutional problems and progress at his own institution, at all institutions of the state and at institutions outside of the state, should be made in the annual budget not as a present to the faculty but as a protection and advantage to the state. The place for such budget allow- ance is the division of reference and research, but it might pay especially at O. S. U. to let the faculty name a full time secretary to help its committees. lliere is no greater fallacy than that physical participation in a meeting is democracy. Nowhere does autocracy thrive more than in mass meetings, even where the mass is small. Inequahty of information means inequality of influence. An uninformed or misinformed person cannot help misrepresenting the faculty even if a faculty member. Had the faculties of higher education in the United States and in Ohio given one-tenth the time the last ten years to considering education that they have given to talking about boys who were disciplined, changes in cata- logue type, dates for meeting, etc.. we would not be confronted with a shortage of teachers and with an unrest in educational circles that threatens not only education but democracy itself. In the past Ohio faculties like the faculties of most other American colleges and universities have kept so little definite information in circu- lation that they could not train themselves to apply the scientific prin- ciples which they teach and use in their research work either to their own record making or to their theories of university organization. This fact was strongly shown by the first draft of the constitution proposed for the Ohio State University. Those who drafted it wanted democracy. They provided for faculty control — faculty initiative-, 394 REPORT OF JOINT LEGISLATIVE COMMITTEE faculty referendum, faculty recall, faculty veto. They provided for everything except information without which all of the other wheels within wheels a la Soviet Russia would be inellcctive for democracy and certain guarantees of autocracy. Another illustration was furnished by the teaching load blanks filled out by members of the five faculties. The advertised purpose of these blanks was "to substitute fact for estimate in seeking equitable loads, adequate salaries and best organization within the universities and nor- mals." The typical errors here cited throw light on the need for con- tinuous self-training in administrative research. They also show the need for having all information that comes before faculties proved and tested and quickly distributed prior to discussion and action : I — Omitting number of sections, number of courses, number of students, course number. - 2 — Claiming six courses taught and giving information about two. 3 — Giving total number of students as the student periods ir- respective of the number of times classes met, thus greatly understating the student periods. 4 — Reporting the number of sections as the student periods, for instance, 15 student periods where there were actually 719. 5 — Entering the number of minutes for class recitation as the number of student hours. 6 — Failing to count 120 minutes per student as two periods in figuring the student periods. 7 — Failing to report student periods although equitable distribu- tion is impossible without definite facts about student periods. 8 — Omitting all totals or incorrectly adding them. Five additional suggestions relating to conduct of faculties after they are organized are submitted for consideration by Ohio faculties and trustees : 1 — That trustees keep faculties informed by holding only public meetings announced in advance; by issuing calendars of steps to be taken up; by making available to faculties whatever in- formation is made available to trustees respecting faculties through printed or mimeographed statements; and by sending minutes of trustee actions to faculty members both indirectly through faculty committees especially concerned and to the entire faculty. 2 — That executive officers and faculty committees use similar methods to keep faculties informed with respect to proposals, discussions and actions which concern them. 3 — That when vacancies are to be filled in presidency, deanship or business managership, the trustees — without delegating ON ADMINISTRATIVE REORGANIZATION 395 responsibility for final selection and without binding them- selves to act within proposals made by faculties — seek faculty information and advice by asking faculties to submit their conception of the work involved and of the type of ex- perience and personality needed for the work, and to send names of persons within or without the faculty regarding whose work and personality officers and trustees would profit- ably seek definite information. 4 _ That the annual report of the president for the entire institu- tion contain, as Miami's report now contains, a summary of principal faculty actions during the preceding year; at Ohio State University this would mean a summary for college facul- ties as well as for the university faculty. 5 That younger faculty members be welcomed and expected at faculty and departmental meetings which discuss educational policies, — and no other issues can properly come before whole faculties. Drawing the younger instructors into the union is needed in fair- ness both to the men themselves and to the future of the in- stitution. Anyone who is qualified to teach students is quali- fied to participate in faculty meetings. In the few cases where younger instructors show bad taste or tactlessness, such action at faculty meetings would throw light upon disqualifications that call for institutional attention. Talking without having anything to say is not peculiar to youth or to low faculty rank. Any means which will disclose such a propensity early before it has been permanently attached to the faculty will tend to strengthen faculties. REMUNERATIVE WORK BY FACULTIES "Commercializing Our State University" is the title of an article in a daily newspaper signed "Old Grad" which asked your committee to in- vestigate the outside work done by professors. It was charged that there were professors "who were commercializing this great institution and who are spending on outside work much of the time which they should be spending in teaching students, thus netting large financial gain by virtue of being connected with the university." It was further urged that the legislature "pass laws making it necessary for the professors to attend strictly to university work only." The facts regarding outside remunerative work by 99 full professors at Ohio state university are these : only 18 out of 99 reported any time and these gave in one week a total of 138 hours, equivalent to a little over three full weeks for one man. 396 REPORT OF JOINT LEGISLATIVE COMMITTEE 3 gave less than an hour during the week, I gave from 2 to 3 hours, 3 gave from 3 to 4 hours, I gave from 5 to 6 hours, 4 gave from 6 to 8 hours, 6 gave over 8 hours. In view of the difficult)^ experienced to make both ends meet with present salaries, it is surprising that so few faculty members reported time given to outside remunerative work. It is regrettable from the standpoint of instruction, research, service to the state and ability to inspire that so small a proportion of full pro- fessors at Ohio state university have such relation with the world's work outside of college walls that they are privately consulted and employed. Instead of legislating against outside remunerative work by faculty members the state would better encourage such work, so far as promo- tion of university service permits. The worst possible w^ay to deal with the chance that faculty mem- bers will neglect university work for outside work is to prevent outside work that will help vitalize university work. Failure to try to earn or failure to have facilities which include in- vitations for outside employment may mean more serious impairment of teaching service to the state than can outside earnings whether large or small. Services rendered to university or college must be tested by what happens to university or college rather than by what is done outside. This calls for a kind of information heretofore lacking as to what goes on in the classroom and what is done for students by institutions inside and outside of classes. If service to the state can be proved satisfactory it is obviously profitless for university and college to worry about outside remunerative employment. If service is unsatisfactory the state will not care whether there is outside work and whether it is paid or voluntary but will give attention to what is done for the state. Whether faculty service is satisfactory or not can be found by watch- ing the 'service. With respect to faculty employment, including the possibility of out- side remunerative employment, it is suggested : 1 — That the arrangement between the university and each in- structor specify a regular schedule for appointments of in- structor with students. 2 — That a current record show which appointments have been kept, which appointments have not been kept, and the reason. ON ADMINISTRATIVE REORGANIZATION 397 3 — That written explanations be filed with deans on blanks pro- vided by the business office not only for protracted absence, but for all absences, to include those for which no substitutes are provided. 4 _ That for the period of a year the total cost to the university of absences recorded be computed at the rate which the uni- versity pays each instructor in question for the number of ap- pointments missed, in order that the university may know from its own experience whether salary deductions should be made for absences and what maximum number of absences may be allowed without salary deduction. 2 — That when absences are granted to individuals for the purpose of representing the university, or serving the university, at national or state conventions, two steps be taken to secure re- sults commensurate with the cost to the university: that two reports be required for administrative offi;cers and regents — one written report of suggestions received for the university to be recorded with administrative officers and regents ; and one written report as to how absence has been used by the indi- viduals in question for the improvement of their own work or that of their department. Some universities have gone so far as to require that no member of the instructional staff may make arrangements with outside agencies, private or public, for a portion of their time in return for a fee, salary or honorarium without first informing the dean in order that when necessary the approval of the president or trustees may be requested. This is a fair requirement which might well be considered by the trustees of Ohio in- stitutions. Faculty members will readily see that more damage will re- sult from unfounded suspicion than from recorded fact. If too low salaries is a reason for taking on "pot-boiling" remunerative work the massing of evidence against such pot-boiling will help secure adequate sialaries. If desire to become identified with world work that needs to be done promptly and correctly is the reason for taking on outside employment a record of such desire will point the way to methods of vitalizing and motivating all instruction. One type of remunerative work by faculty members should, it is suggested, give way to non-remunerative work by the institution itself. namely, technical service to state departments or to the university itself. At present the university itself pays for analysis of building materials and state departments pay for analysis of coal, for example. In fact, the chief reason given by the board of administration for not taking current samples of coal for its many institutions to see whether specifications are complied with is that the university charges 398 REPORT OF JOINT LEGISLATIVE COMMITTEE SO much for analysis. These payments now go to faculty members with whom the universit}- has made special arangements. It is suggested that the legislature arrange for the university through its technical departments to render technical service to the state as an institution, the money recognition of such service to be in the form of additional appropriations to the university rather than cash payment to individual faculty members. This substitute procedure would build up departments and depart- ment prestige. It would secure funds for expansion and for research. It would increase the state's appreciation of the university. An even more important gain than any or all of the others would be that it would encourage the use of students in rendering service to the state, would interest students irt the applications of their studies to state wel- fare, and would gradually lead to providing in the curriculum for services to the state. The University of Cincinnati's students of engineering work in the chemical laboratories of the city department of health, one week in the laboratory and one week in the university. The state's need for chemical and engineering services which the university could render through students would provide invaluable laboratory material and character building for Ohio's students. By such relation as is here suggested Toledo's Municipal University has greatly increased its moral and financial support. In its budget estimates and annual statements it frankly bases its appeal for public support on the many ways in which it is helping the city council, public officials and citizens deal intelligently with public problems calling for technical analysis. How Ohio state university has already benefited and wishes still further to benefit its students by giving them training via rendering service to the state is summarized in the following letter from the de- partment of civil engineering: "Apropos of your address before the College of Engineering yesterday, permit me to suggest that the Department of Civil Engineering at Ohio State University would like to continue and extend its services to the state. We have already used the students in this department to do the following state work: 1. Surveyed and Mapped Fort Ancient for the State Archaeological and Historical Society. 2. Surveyed Buckeye Lake (S houndary) for the State Department of Public Works. 3. Surveyed Lake Loramie for the same State Bureau. 4. Surveyed and Mapped the State Fair Grounds for State Board of Agriculture. 5. Surveyed State Prison Grounds at London for Board of Administration. 6. Surveyed and Mapped Ohio State University grounds for Board of Trustees. 7. Made road surveys for State Highway Department. 8. Made Road Maps of 88 counties of Ohio for State Highway Depart- ment. ON ADMINISTRATIVE REORGANIZATION 399 "The foregoing state work was done by our civil engineering students during summer vacations, working under direction of our civil engineering instructors. Instead of making up practice camps as they do at other universities, we have accomplished some real and useful work each summer with the students and would like to keep it up if you can give us the chance. "We have received compensation enough on each task to pay expenses and a small salary to each student, but at that, the work was done for the state much cheaper than others could do it, and the work has all been of high grade. "When no state work offered, we have made real and useful surveys during the summers for cities, counties, corporations and in one case, for the United States in Yellowstone Park. * * * "This department has already done much state work, and is anxious to do more. We are especially interested in investigations and would like to study the highway materials of the state, but our highway materials testing apparatus had to be turned over to the Highway Department some time ago because they had not enough apparatus then and have not enough now. Our worst need now is for extension of this equipment and of other equipment for studying highway problems, for which an addition to this crowded building (Brown Hall) is very badly needed." NON-REMUNERATIVE DIVERSION OE FACULTY ENERGY A detailed study would doubtless show that Ohio institutions, like other universities and colleges, suffer far less because of outside remun- erative absences from work by president, deans, directors, department heads and instructors. Wherever regulations and agreements do not specifically account for time spent away from their work by college officers neither trustees nor executive officers can tell if absences are over-done. A partial check on absences is now kept by the requirement that no one's expenses may be paid for a convention outside of the state unless approved in advance by the emergency board which consists of the gov- ernor, auditor, attorney general and chairman of the house and serfate finance committees. Many faculty members pay their own expenses, rather than ask a privilege of the emergency board. If executive officers pay their own expenses outside the state their absences are subject to no review. No absences within the state are subject to a review\ Whether a faculty member dismisses class or holds two classes on one day in order to free his time for absence on another day is not now a matter of record. The subject is mentioned here not to propose a solution but to em- phasize the fact that where no effort is made to test the benefits of absences from college duty by officers or faculty members there will usually be much greater loss due to non-remunerative absences than to outside remunerative work: and that diversions of energy for outside 400 REPORT OF JOINT LEGISLATIVE COMMITTEE non-remunerative work are frequently far mpre costly and far less pro- ductive than remunerative outside work. A bureau of administrative research could use information respecting time given to outside work, opportunities for it and benefits from it in ways that would be so helpful to the faculty that reports could easily be obtained and courses of study be modified to require more and more use of the world's laboratories via work needing- to be done. INTERCHANGEABLE CREDIT FOR WORK IN OHIO SCHOOLS The need for any and every step which will foster the recruiting of teachers is reason enough for a state law which will recognize credit for credit by state colleges no matter by whom credentialed or to whom offered for credit. As stated in the reason for abandoning the present practice of dis- counting a year's work in the county normal schools when graduates present themselves for credit at other normal schools or Ohio state uni- versity's colege of education, the businesslike remedy for deficient stand- ards is to raise the standards by proper supervision and not to check the flow of students. The work done by Miami university is work done by and for the state of Ohio. The same is true of work done at Columbus, Athens, Bowling Green, kent a4id the 35 places that now have county normal schools. If an individual comes unprepared the remedy is to dismiss that individual or put him on probation and is not to raise the bars against the whole state institution from which he comes. If evidence accumulates that a particular school is lax and that its certificate cannot be taken safely at face value, the remedy is, through publicity, through correspondence and through dismissal of unable students, to make that institution's certificate mean what it says. Occasionally — not as often as would be well for education — some institution will break loose from tradition and insist upon making an experiment. For example, at present Kent normal college has for some subjects a shorter recitation period than Bowling reen normal college or the three universities. Other institutions claim that a student who has had thirty periods of forty-five minutes each cannot have covered as much ground as satisfactorily as that same student or another student whose thirty periods have been ten minutes longer each. Only on the assumption that student benefits from instruction is commensurate with the time he recites or hears others recite does this claim hold good. If student benefit depends more upon the time he studies out of class than upon the time he recites or listens in class, then ON ADMINISTRATIVE REORGANIZATION 40t the length of the period is no fair test of benefit. What the student gets from a course and gives to it probably has much less relation to the length of period than many other factors, and can be told only by quite different tests of his development. So long, however, as hour measure is used, it is possible to reduce forty-five minute periods and fifty-five minute periods to comparable values. This is obviously the thing for sister state institutions to do rather than to refuse reciprocal relations because the periods are of different lengths. A still more important duty resting upon the state department of public instruction is to find out by actual tests for what pupils and sub- jects a forty-five minute period is more productive than a longer period. ANNUAL REPORTS AND CATALOGUES OF OHIO EDUCA- TIONAL INSTITUTIONS As part of the operating audits by the auditor of state which have been recommended in various reports to your committee there should be included the audit of publicity methods employed by state educational institutions. Likewise, an exacting audit should be given by the budget commis- sioner when considering and before allowing requests for printing and for subordinate activities that are not largely patronized. Two more audits should be made of publicity methods used by edu- cational institutions, one by each institution through its own division of administrative research and efficiency and second, by the state department of public instruction. The reason for the persistence of obsolete methods of advertising by normal schools and universities is that audits of publicity have been lack- ing. In another state when the head of a teacher training institution was asked what percentage of his constituency could understand a certain paragraph which described a course for teaching given by himself, he answered: "A negligible percentage". Asked whom he had in mind when he wrote the paragraph and other parts of the catalogue, he answered : "My colleagues at Oberlin and Harvard." Catalogue making and report making suffer from this failure to picture first and foremost the audience that is to be reached. A second reason for too little imagination and too little skill in de- scribing what institutions offer is that the support of state institution-^ has had no direct relation to reporting. Even among private colleges where substantial support comes from endovv/ment or from appeals to a few rich persons the educational importance of proper catalogue and re- port making has been slighted. Scores of private colleges might easily 402 REPORT OF JOINT LEGISLATIVE COMMITTEE have found the funds for increasing their instructors' salaries by pub- licity methods that would have increased the number of students at the old tuition rate or have kept the same number of students at a willingly paid greatly increased tuition rate. A third explanation for the almost repelling character of much catalogue making and reporting is that Ohio's state institutions, excepting the two normal colleges at Bowling Green and Kent, have had about all the students they could easily take care of. Why, therefore, concern themselves with the tens of thousands of young people in their district who are eligible to admission and some of whom might be led to take advantage of university offerings if these were attractively described? The current Ohio university catalogue is a volume of 204 pages plus cover. Beginning at the first cover the not-yet enlisted student has to read or thumb over 22 pages before he finds anything that directly concerns himself.. The inside cover names the board of trustees; pages 2 and 3 give the calendar; pages 4 to 13 name the faculty and faculty deans; pages 14 to 18 give the origin of the university beginning with the Treaty of Paris, September 3, 1783; then follow half a page about the location and three pages briefly stating the number of buildings and their purpose, the names of the colleges, summer school and extension department. If the student starts from the back cover he thumbs over fiist 40 pages which give the names of people whom he does not know, their home addresses and an index. A prospectus for a private business college or for an oil mine in Texas or for one of Ohio's many industnes needing additional capital does not wait so long before making a direct appeal to the prospective patron. In this volume of 204 pages no student is photographed and no building, no campus trees or walks. In fact, there is not a word for the possible but undecided, not-yet-landed student except a couple of sentences describing location which if made more prominent would be good sellers, namely, "Lovers of nature certainly cannot fail to be charmed with its picturesque surroundings. The sanitary arrangements of the city are unsurpassed." Many catalogue makers are differentiating between the obtained patron and the hesitant patron and are issuing a catalogue in sections fitted to the relations of catalogue maker and catalogue reader. This has the advantage of not only being more inter- esting for the reader, but of saving print paper, printing and postage. When it comes to describing Ohio university courses themselves. the student's interest and ability to choose are taken for granted. That the liberal arts course will help a man in business is stated, as is the possibility of saving time for law or medicine or engineering by selecting certain arts courses. But why anybody should want to be an engineer, or lawyer, or business man or teacher and what types of personality and previous training should avoid or seek either profession are not stated. Although there is a dearth of trained chemists and although the whole ON ADMINISTRATIVE REORGANIZATION 4O3 country was aroused by the war to the importance of chemistry to American industry, this course is introduced in the catalogue by giving the names of four instructors and a paragraph which begins as follows : "The aim of the chemical department is two-fold ; it offers to the general student the opportunity of becoming acquainted with the principles of this science and gives him practice in some of the methods used in a chemical laboratory." Why anybody should study chemistr)% what he can do with it in business or what a liberally trained man or woman can do with it in daily living is not stated. In the same way the reporting of universities has an important bearing upon the ability of these institutions to serve Ohio. Not only the officers should be encouraged to tell their story of service in a way that will interest the people of Ohio, but in addition Ohio's state organiza- tion for auditing, for criticizing, for advising best practices and for sug- gesting improvements should be such that the annual reports of educa- tional institutions will be an important part of the state's university ex- tension work. Difterences in methods of analysis and of publicity expressed in the reports of the three state universities show the importance of giving a new significance to these annual statements. The last published report of Miami university begins with mention of students, 1027 of them, a gain of 28.8%; the second section lists i6 gains; the third section lists 13 needs and possible gains. With respect to none of these points, students, gains, and needs can the three universities supported by the public be compared. Ohio university and Ohio state university fail in their reports to give any indication of self-study or administrative self-analysis that is so obvious and encouraging a feature of the Miami report. Moreover, field examina- tion as stated in another section of this report shows that these uni- versities actually lack such administrative self-analysis as enables Miami university to present the following: 1 — The numerical and percentage gain in each class of students. 2 — The relative gains and losses of men and women. 3 — A comparison of total enrollment with actual attendance by graphs. 4 — The withdrawals during the year. 5 — The average weekly attendance and the relation of average . attendance to enrollment. 6 — Scholarship averages and gains (i6 points). y — Needs and possible gains including the opportunities for private gifts (13 points), 8 — Important official actions of the faculty. 9 — i A scale for valuing services of instructors (22 points under six heads) . 404 REPORT OF JOINT LEGISLATIVE COMMITTEE 10 — The permanent influence of the S. A. T. C. on the college. 1 1 — Scholarship of secret society students. 12 — Results of the students' adviser system. 13 — Reason for a monthly inspection of student houses. 14 — Department recommendations. 15 — Positions filled by employment committee, with class and salary. 16 — Analysis of subjects taught by 2,002 teachers in high schools as a guide to teacher preparation. 17 — Analyses of statistical tables and comparisons of term with terms. 18 — Student absences. 19 — Lessons learned from study of institution economics, board- ing halls, etc. 20 — Audit of student organization accounts. 21 — Work done on buildings and grounds and work needed next year. 22 — Instructional hours of recitation and laboratory, and men and women students of each instructor each term. 23 — Analysis of grades given by each instructor. 24 — The teaching load carried by each instructor. 25 — The scholastic ranking of freshmen in each semester. 26 — Schools from which freshmen entered. 27 — Recorded use of library books. 28 — Frequent challenge of the premises upon which work is being done and suggestion of improvements. For example, Ohio state university's report for the year ending June 30, 1919, opens with three and a half pages with respect to trustees and faculties, obituaries and testimonials that are important, but never- theless lack the appeal necessary to arouse and feed interest. Two more pages are given to enrollment and decrease without comparisons to show the important fact that in this after-war year there had been an in- crease of 675 students which portended an enormous increase the fol- lowing year. Nowhere is there a list of advanced steps taken or gains made, and of needs not yet met. The president's report to the trustees is less than twelve pages, of which less than nine are editorial, less than five a report on the university's activities, and less than one of ref-erence to after-war responsibilities. While in the reports of deans there are important facts and suggestions, they are lost for lack of emphasis. Had the reports been considered a splendid opportunity for educational work rather than as a traditional "compliance required by law", telling use might have been made of such excerpts as these from reports of deans : ON ADMINISTRATIVE REORGANIZATION 405 1 — "The tendency of American students — graduate, undergrad- uate and professional — to measure their progress by the number of credits they have earned is deplored by the ju- dicious. But a much more fundamental remedy must be found than the additional examination at the close of the work. When found it will probably prove to be not an added piece of machinery but more inspirational teaching." J. V. Denney, dean of arts. 2 — "As soon as funds can be provided the two recently author- ized bureaus of business research and social research should be organized as it is very important that the university should give the kind of service which these bureaus were created to render." J. E. Hagerty, dean of commerce and journalism. 3 — "Our dental students gave good service to the work at the girls' industrial home." Harry M. Semans, dean of the college of dentistry. 4 — "There is lack of space and equipment in all branches of chemistry. . . . 58% of engineering students passed all their academic work." E. F. Coddington, acting dean, col- lege of engineering. 5 — "A veterinary experiment station for original research espe- cially along the lines of applied pathology and bacteriology is greatly needed. . . , The veterinary hospital treated 6,289 cases besides 1,867 cases treated in the out-patient clinic. The clinics have been self-supporting." David S. White, dean of the college of veterinary medicine. By the time this report became available Ohio state university found itself overwhelmed with students, under-manned with instructors and beset with unrest because of too low salaries. Not only were ill- equipped candidates for teaching positions added to the faculty, but graduate students in recitation and even under-graduate students were drafted as assistants. Yet there is not a word in any one of the reports calling attention to the probability of a largely increased register, and warning the people of the state that salary increases and emergency appropriations would be indispensable. Dean Vivian of the department of agriculture reported that "several n\embers of our faculty have found it necessary to resign to accept commercial positions, in most cases at very slightly increased salary." While at first glance this seems an exception to the earlier statement that the need for salary increases was omitted, it will be noted that the net effect of the paragraph is to indicate other causes than salary increases for the condition of affairs which Dean Vivian found alarming. Pages 48 to 143 are given to financial statements, lists of names, credit hours and students in course, the total number of degrees con- 406 REPORT OF JOINT LEGISLATIVE COMMITTEE ferred since the founding of the university, the students in the joint technical and professional course, names of students receiving degrees and certificates in 1919, and 14 pages of student army training corps statistics. None of these tables is analyzed for lessons. There is no graphic presentation, no photograph, no typographical aid and indenta- tion which the business world and the Miami report use to great advan- tage; no evidence that university practice elsewhere has been studied; no comparative tables ; in a word, no evidence of administrative analysis or of attempt to use the report for throwing light upon the path ahead and for giving the public, legislature, alumni and possible donors infor- mation with which to think straight and helpfully about this great university. While the annual report of Miami university is in many respects a notable contrast and points the way to methods of studying university problems, frankly discussing and efiFectively presenting them for all who read university reports, time is not taken here to illustrate. It is fair to emphasize the fact that the defects of official reporting in such as are above mentioned are still the rule in educational reporting throughout the country. There are, however, so many exceptions and the reasons for exceptions are so obvious that the opportunity for improving Ohio state university's publicity is specially pointed out in the hope of helping that institution and other institutions which are influenced by its example. To insure continuing helpfulness of criticism and suggestion with respect to annual reports and catalogues, it is recommended that the state department of public instruction be given authority and duty to require with respect to minimum essentials which it shall prescribe a uniform and therefore comparable reporting by the three universities and five normal colleges. NON-RESIDENT STUDENTS IN OHIO UNIVERSITIES In the first semester of 1919-1920 there were in four Ohio schools — Ohio state university, Ohio university, Miami university, and the com- bined normal and industrial department at Wilberforce — 1148 of 9269 students who reported themselves as non-residents of Ohio: 566 of 6608 in Ohio state university; 63 of 1023 in Ohio university; 138 of 1033 in Miami university; 381 of 605 at Wilberforce. The two state normal schools at Bowling Green and Kent report no non-resident students. The total number is an under-estimate of non-resident students be- cause a large number who have not acquired legal residence in Ohio register from an Ohio address. These non-resident students now pay no tuition. They pay the same fees as Ohio's students and in every way are on the same footing as are Ohio students. ON ADMINISTRATIVE REORGANIZATION 407 S^r _ __..... _._■ ..^._ •..-■;.Lr^. .:-^-■^'« - iUjr It is recommended : 1 — That no non-resident students be admitted to the freshman and sophomore years at Ohio state university. 2 — That a tuition fee be charged of non-resident students, except- ing only students from foreign countries. 3 — That the legislature fix this tuition fee instead of leaving it with the individual institutions to fix. 4 — That the auditor of state be charged with responsibility for auditing the method employed by each institution to collect tuition fees from non-residents. 5 — That a law be passed declaring that legal residence may not be acquired within a fixed period of say two years by mere at- tendance at a university. 6 — That a law prohibit the acceptance of non-residents in a woman's dormitory until adequate accommodations have been made for Ohio residents. 7 — That acceptance of Ohio non-residents be conditioned upon there being room Avithout overcrowding of classes. 8 — That if a .presumption is later recognized as elsewhere recom- mended against classes of imder ten, the number shall be counted after subtracting non-residents. 9 — That graduate scholarships within the control of the state be not awarded to non-resident students. 10 — That the standard of scholarship for admission and for con- tinuance in the university for non-resident students even after they have paid tuition be fixed at '"good" or above good or "above 80". 11 — That until living accommodations have been greatly improved at Ohio's state university no out-of-state student be regis- tered from an address within one mile of the university. 12 — That at Miami and Ohio universities preference be given in the dormitories and in near-by private homes to resident students. 13 — That a law specifically give to the executive of each institution the power and duty to ask withdrawal of a non-resident stu- dent whose scale of expenditure is so high as to prove demoral- izing or injurious to Ohio's students. Against these recommendations several arguments have from time to time been urged by educators. They are taken up seriatim. I. "It is a matter of reciprocity between states. If we give free tuition to non-residents their state gives free tuition to our students." No one knows how many Ohio students are in other states. It is known 408 REPORT OF JOINT LEGISLATIVE COMMITTEE that several other states charge tuition, and a high tuition, considerably higher than the total fees now charged in Ohio. There is no reason why Ohio students should go out of the state. It is unbusinesslike to trust to chance for an equitable reciprocity. 2. "The collections are not worth the trouble." It is true that many non-resident students will give wrong addresses. Ohio, however, receives their high school records. It is an easy matter to verify their residence. It would cost but an infinitesimal part of the tens of thousands of dollars which Ohio ought to collect, if it has these students. 3. "It would be unfair to Ohio's young people to discourage as would tuition fees the coming of out-of-state students with different and stimulating backgrounds." Experience shows that tuition does not de- crease the number of out-of-state students although it may change the character and discourage some who would otherwise come just because there is no tuition. There is reason to fear that the value of these for- eign backgrounds is greatly exaggerated or at least the value of the difference between advantages from such background where there is no tuition and where there is tuition. Ohio's institutions are crowded, greatly over-crowded. They lack dormitory and boarding facilities. It is unfair to Ohio young people to bring them into communities where they cannot be properly housed and fed. The disadvantages of losing now and then, or losing regularly an out-of-state student are very small compared to the disadvantages of paying too much for room and of being in over-crowded classes. There is another very important consideration in support of a high tuition fee and of the foregoing recommendations which frankly advise placing a substantial premium upon Ohio institutions for Ohio students, namely, the coming of out-of-state students in considerable numbers has the effect of concealing failure on the part of institutions or of depart- ments within institutions to establish helpful relations with Ohio schools. For example, it seems narrowing to suggest that graduate scholar- ships under the state's control go only to Ohio students. Scholarship, we are told, knows no state boundaries. Ohio should foster ablest minds from whatever source. A vastly higher standard of effort and attain- ment will result where competition knows no state line. In a sense all of these arguments are valid. The fact remains, however, that Ohio maintains its institutions primarily for the sake of serving Ohio and of giving an opportunity to Ohio's young people. Where there is not a pre- sumption in favor of Ohio students, there will actually exist a presump- tion and a practice in favor of non-resident students because of the con- ditions which bring them to Ohio institutions : they are strangers ; they come from afar; they especially appreciate courtesy and friendly in- terest ; their appreciation invites special attention and interest. The same scholarship in a foreigner will receive more recognition than in a resi- dent. The most important consideration is, however, that the list of elig- ON ADMINISTRATIVE REORGANIZATION 409 ibles for scholarships is a register of an institution's contact with its own state. It is more important for Ohio state university to know why there is not Hvely competition of scholarly young people for each opportunity than it is to advance a particular scholar. Again, the suggestion that non-residents be required to take a second choice in private homes available for rent seems unneighborly. But why, pray, should the son of an Ohio farmer be forced to take an inferior room at an inconvenient distance in order to make room for a student from Indiana or New York? The most extreme case is that at the normal and industrial depart- ment at Wilberforce, where almost two out of three students are non- residents. If that institution were voted its present budget of $86,493 and had only 194 total of Ohio students, the governor, auditor, budget commissioner, legislature and school management would be asking "What does this mean ? Why have we so few students ? Where does the school work fall short? Are we on the wrong track trying to do the wrong thing?" These questions are not asked now because the relatively small service to the state is concealed by the 381 non-residents who produce a condition of congestion and seeming over- prosperity. In the homeopathic school the total register of 29 is small, but raises fewer questions than the figure 21 for resident students. More than one in four of this very small register, or eight in all out of 29, are from other states. At this point it will be suggested that if a homeopathic medical college for 21 Ohio men is to be maintained, the presence of eight non-resident students will not appreciably add to the cost. In this case, this is true, but they do appreciably subtract from the burden of proof which is upon the university for maintaining a separate college for so small a register. In training for teachers these four institutions have 122 non-resident students or about 10% of the total register in education. Although only 122, they are just 122 obstructions to a full understanding by Ohio of the very small and inadequate number of students in training for its own teaching force. What the tuition fee should be at each institution is a matter for study and conference. There is no reason whatever for fixing a figure below $100 for the junior and senior years and graduate work at Ohio state university. The 269 in the junior college or freshman and sopho- more years ought not under any circimistances to be admitted at a time when the university is overwhelmed and its standards jeopardized by lower classmen. The 122 in normal colleges should be received only on pledge to teach at least a year in Ohio's schools for each year of instruc- tion, in addition to paying tuition. For Miami and Ohio universities a charge of at least $60 a year would seem a minimum. The superintendent of Wilberforce combined normal and industrial department believes that a charge of $50 in ad- 410 REPORT OF JOINT LEGISLATIVE COMMITTEE dition to the fees now being paid would not materially reduce the number of out-of-state students, which fact would make even a higher minimum desirable because the only justification for this school is that it has met an Ohio need. The recent enactment that these four institutions be allowed to in- crease salaries provided they increase fees may easily cause a reduction in the number of Ohio students who register. If fees are charged by state institutions their competitive attractiveness is reduced and students encouraged to remain nearer home in private colleges. If such should prove the result it would be most unfair to the public which supports state universities to have the presence of non-residents conceal the reduction in the number of resident students. Yet without charging a special non- resident tuition fee such will undoubtedly be the result. OHIO STATE UNIVERSITY If Ohio's three state supported colleges are considered as one in- stitution, or as the result of one single motive to provide free higher education, Ohio's registration would rank third among the forty-eight states. Its total would be exceeded by only California and Michigan. At the top of this great system of free higher education is the Ohio state university, which registered /200 students in the regular school year 1919-1920, and 1300 in the summer of 1919. This central university provides professional courses in education, commerce and journalism, engineering, law, medicine, dentistry, optometry, and veterinary medicine besides extensive undergraduate and graduate courses in arts and science. The sections of Ohio from which these students come are shown on the service spot maps for the registration in November 1919 and for four graduating classes, which were filled out by Miss Edith H. Cockins, registrar, one for each college, one for the whole university, and one for the junior college registration. To facilitate use of this information by citizens, state officers, legislators and faculties, Ohio state university fur- nished not only the maps themselves, but photographs in duplicate and a set of slides. If the registration increases the next decade as it has the last decade this central institution will have in 1930 about 15,000 students. Where it is now costing about one million and a half a year it will in 1930 be costing five or more million dollars a year unless in some way radical reductions are made either in the per student cost of instruction or in the number of students to be taught. Although there arc two other state supported universities, Miami and Ohio, and two normal colleges, Rowling Green and Kent, a law has ON ADMINISTRATIVE REORGANIZATION 411 declared the state's policy to be (i) to develop only under-graduate colleges and teacher training schools at these centers and (2) to develop at the Ohio state university alone one university worthy of Ohio, with professional colleges and a graduate school of high rank. A short cut to an appreciation of the major probrems now confront- ing all those responsible for the Ohio state university is furnished by the following summary of 12 facts which for your committee were placed before the trustees at their February meeting and before the council of deans on the next day, by request of the president. I — Complete non-use of the university's classroom space exceeds 50%, not counting evening hours, Saturday afternoon or any hours when space was partially used, as by a class of 20 in a room for 50, in spite of the universal conviction among ofHcers and faculty that the buildings are so seriously overcrowded that effective instruction is difficult when not impossible. NoN-Usc, Partial U5eXompletdUs[ or Buildings OHIO STATE UNWEK^ITY NonUse Part.il Uie I I Complete Ui 412 REPORT OF JOINT LEGISLATIVE COMMITTEE 2 — Of 325 classes by 99 full professors, 55 have five or fewer students and 113 have ten or fewer students, — in spite of the general impression that this year's overcrowding has almost eliminated small classes. 3 — Of 99 full professors 56 report no research during the six week days selected for describing in detail the teaching and non-teaching loads of the faculty; 11 others reported one-half hour or less per day; eight others between one-half hour and an hour a day. This makes 75 of 99 full professors who reported no research or less than one hour a day. Each of the remain- ing 14 reported from one to two hours. Only seven or 7% reported two hours or more, — a fact which many deplored in written and oral statements to your committee. Of 88 ranked as instructors 65 reported no research, five under half an hour a day, 1 1 between half an hour and an hour, three between one hour and two hours and only four over two hours, — a condition that bodes ill for future standards of scholarship among such instructors and their students. 4 — Of the 56 full professors who reported no research two re- ported fewer than 10 hours a week given to instructional duties; five from 10 to 20 hours a week; 19 from 20 to :^o hours; 19 from 31 to 40; and only 11 over 40 hours given to instructional duties, — a fact for which university authorities were hardly prepared because the reason usually assigned for the little research has been that the faculty was overloaded with instructional duties. 5 — Of 56 professors reporting no research 24 met with their classes fewer than five hours, 20 from five to 10 hours, seven from 11 to 15 hours and five over 15 hours. 6 — To all instructional duties including conferences with and about students, preparing of papers, reviewing papers, time spent in class and time going to and from classes, 22 of 99 full professors gave over 40 hours a week; 5 less than 10 hours; 6 from 16 to 20 hours; 15 from 21 to 25 hours; 18 from 26 to 30 hours; 19 from 31 to 35 hours; 63 less than 6 hours daily; 14 from 36 to 40 hours; 12 from 41 to 45 hours; 3 from 46 to 50 hours ; 7 over 50 hours 36 over 6 hours daily. 7 — In total time required by fhe state 37 or 38% of 99 full pro- fessors reported less than 40 hours a week and 62 or 63% re-, ported over 40 hours a week. 3 from 21 to 25 hours; 4 from 26 to 30 hours; 6 from 31 to 35 hours; 13 less than 6 hours daily; 23 from 36 to 40 hours; 21 from 41 to 45 hours; 17 from 46 to 50 hours ; 10 from 51 to 55 hours; 7 from 56 to 60 hours ; 7 over 60 hours ; 86 over 6 hours daily. ON ADMINISTRATIVE REORGANIZATION 413 Week'5 Work- Professors 20% 8—18 of 99 full professors report time given for outside remun- eration from seven minutes to 28 hours a week, totalling 138 hours, or the equivalent of three full weeks for one professor; 3 less than i hour; i from 2 to 3 hours; 3 from 3 to 4 hours; I from 5 to 6 hours ; 4 from 6 to 8 hours ; 6 over 8 hours. Of the 18 reporting outside work 14 also reported no re- search. The one who reported 28 hours bracketed his time spent on scientific research, study for professional work and outside remunerative work. 414 REPORT OF JOINT LEGISLATIVE COMMITTEE 9 — 3% of time reported by 99 full professors and 6% of 88 in- structors' time went to individual conferences with students out of classes (see per page 6) : Time to conferences of 99 professors: of 88 instructors No time 22 13 Less than i hour a week. ... 21 22 1 to 2 hours 25 19 2 to 3 hours 15 10 3 to 4 hours 5 9 4 to 5 hours 5 3 Over 5 hours 6 12 10 — The teaching loads, that is, the total student periods found by- adding together the total number in all recitations, lecture or laboratory periods, range from, zero for one research professor to 1000 for another professor having large lecture classes; 14 total less than 100; 18 total 100 to 200; 17 total from 201 to 300; 49 having fewer than the minimum suggested by the U. S. bureau of education; 21 total from 301 to 400; 8 total from 401 to 450; 29 within the minimum and maximum figures suggested by the U. S. bureau of education; 7 total from 451 to 500; 5 total from 501 to 600; 4 total from 601 to 700; 2 total from 701 to 800; 3 over 800; 21 over the maximum suggested by the U. S. bureau of education. USE, PARTIAL USE, AI-ID IJON-USE OF ROOMS BY STUDEKTS Institution Chip State UnlT. Buildinc Horticulture Roon 106 Dimensions 35 x 20 Student Capacity 30 V^-i perxoQ Length Sun. Hon. Tues. '.ved. "hura. Fri. Ji?)^00000 :OO0Q0OC ^ Q'/O'j OOO 00000000 nfioonnno nffntfnffff fhHHfifiM (JkJ'OOOOOG 00000000 QGOCOOCjG 00000000 nr.r.nncjnfi infyfitllMit OQOOOOCO })C)0ooooo 00000000 :ioooooooo ooocoooo QOOOOOCO OOOGOOOO QOOCOGGO H mm mm 'uiinrii 'it¥iHt:n} -^/i^ 26/3C ,v,/.r-.,\71-iS-/.-A OOOGOOOO GOuOGGGO GGGGGGGO CGGGuGOO 00000 CGO OOGOOOOd OGGL.OGG& OOOGOGGG 00000000 OOOGOOOO OCOOOOOO OOOGOOOO COOOOOOO OOOOQfiQO iuUM #;/;/;/^ miiu lifinfifltit If, h t l iuH l i i l i!. ; XliiUlUULjl u nlrtT If If tl il :llhritlflH - il f 4 -f n »»J, ihlnfih. 'li (ia>f>.iS:&r i)lanning and supervising graduate ON ADMINISTRATIVE REORGANIZATION 425 work the Ohio state university has a part-time dean and a graduate council of representatives from different departments. To administrative duties the dean of the graduate school gave during the typical week reported by the Ohio state university faculty ten hours and a half, and to faculty meetings two hours, making a total of twelve hours and a half given to admin- istrative duties and faculty meetings. During that same week he gave over 29 hours to instructional duties, including two hours to individual conferences with students outside of class, three hours to supervision of teaching by faculty members, and almost four hours to conference with faculty members with respect to classes. A graduate school that will do for the state of Ohio, its universities, its social problems, and its gov- ernment what clearly needs to be done, cannot for some time to come afford to have its dean giving 29 hours a week to in- structional duties of any kind other than helpful supervision of graduate research and instruction. 2 — That the graduate dean be held jointly responsible with depart- ments for insuring the adequacy of research methods and re- sults. At present this supervision is left entirely to the de- partmental organization. This means that in a very large per- centage of cases it is left actually to the graduate student him- self. There is now no plan for testing the worthwhileness of a research project before the student embarks upon it or after he has sul^mitted his results except such as the interested de- partment itself im])OS€s. 3 — That the content of instruction and training in the graduate school be changed so that it will almost entirely consist of field projects or strictly professional work, and that it be extended to include in absentia work. It ought not to be necessary for a man working on an interesting problem and needing help to give up his work, leave it behind him at home, and go off to Columbus in order to secure help from the state's university in prosecuting that work. It ought not to be necessary even for graduates or other persons with advanced problems in the city of Columbus to stop their earning in order to secure help from the university. There should be afternoon courses, night courses, Saturday courses, correspondence courses, and indi- vidual conferences through which the university will send its ability to direct stimulating supervision to the ])lace where a problem needs solution. 4 — That by slight but entirely practicable changes of method the university tie up its supervision of graduate work with the industrial, professional, and educational worlds in all 426 KEl'OUT OF JOINT LKGISLATIVE COMMITTEE parts of the state. It is a pity, for example, that the great laboratories of the General Motors Corporation were not placed on the university campus, or that, being placed in Dayton, they were not made a recognized part of the university's laboratory and training equipment. Every school system in Ohio can and should be part of the laboratory of the graduate school. The gathering of graduate students at the university in Columbus should be for the most part for the sake of checking up on field studies rather than for listening to lectures or doing as- signed reading. 5 — That the co-operative studies suggested in the report on re- search be extended to include a program and procedure for the graduate school, including far more exacting tests of the theses for the master's and doctor's degree. 6 — That a full time dean be expected to work out for faculty adoption tests of student purpose and student personality before registering emy student in the graduate school. Tax- payers of the state will not insist upon giving anyone free graduate opportunities who cannot prove capacity to use those opportunities. The quickest way to build up prestige for Ohio's graduate school is to have the world know that it will not bother with people who lack personality, force, "displacement", and desire to use scholarship for service. It is demoralizing to scholarship to have large numbers of young people hanging on to a university instead of learning how the world can use or will refuse to use what they have already acquired. It is certainly demoralizing to state supported education that a man who lacks the nerve to go out into the world at the end of his senior year can by staying in a fifth, sixth or seventh year, by mere accretion, secure an advanced degree and a teaching position at some college. A corollary to this proposition is that the university should stop offering courses which can be suc- cessfully taken by anyone who lacks purpose and personality of the high standard which a graduate school should define. One exception seems now to be necessary, namely graduate work in education. The Ohio law pays a teacher for addi- tional credits. Fortunately the graduate school can prevent this law becoming a farce and imposition. It can oft"er courses to teachers which will be unavoidably helpful even if at first the teacher's only motive in coming is to secure the promotion or salary advance which the law and current standards in school work make dependent upon more academic credits. 7 — That courses be worked out for in absentia work which will definitely recognize as graduate work of high degree ON ADMINISTRATIVE REORGANIZATION 4-7 Studies and accomplishments in home towns and even travel. Oliio is strong enough to snap its fingers at the academic tra- dition which gives credit for reading about a factory or cathe- dral or a poet's birthplace and denies credit for visiting them. No state institution is strong enough to foster a tradition which recently led a great privately endowed university to refuse a degree to a man for outlining and securing public adoption of a great policy, and later gave a degree to another man for de- scribing how the first man did it. 8 — That graduate scholarships or fellowships under the state's control be offered only to Ohio residents. The many argu- ments against this practice have been stated in another section. Occasionally Ohio may lose by this discrimination an oppor- tunity to help some man or woman whose later work would bring great credit. This possible gain is very small compared with the great gain that will result from having Ohio's gradu- ate school combing the high schools and colleges of the state for the most promising abilities by constantly advertising to stu- dents and instructors that there is $10,000 available for scholar- ships and fellowships. This decision once made, there will not be $3750 in fellowship money unassigned, as there was in 1920, at least until after the university has again and again made the opportunities known. 9 — That under the direction of the dean, and with the help of a division of administrative research, the graduate fac- ulty be asked to make the studies with respect to Ohio's own practices and results which were suggested at the 21st annual conference of the Association of American Universities, held at Ohio state university in November, 1919. (i) Is it true at Ohio state university, as President Hadley of Yale said it was generally true, that "the present method by which the graduate departments of our universities attempt to train research students in almost every subject indiscriminately results in waste of money, loss of efficiency, and over-production of third rate research men" ? (2) In what, if any, subjects ought Ohio state university not to try to do research work or even other forms of graduate work? (3) If President Hadley's advice is followed to develop research where it is now strong in resources and students, rather than to build up the weaker lines to a common level, where does Ohio state university research and graduate work need more or less support? (4) What is being done and what might be done to make 4^8 REl'CJKT OF JOINT LEGISLATIVE COMMITTEE sure that Ohio state university is not committing "a crime against society by subsidizing graduate students unless there is prospect that the students thus subsidized will find a demand for their services afterwards" ? (5) How many men who have received scholarship aid from Ohio state university in the last twenty years have "failed to go into research or teaching work afterward"? (6) .How many "have done badly or indijfferendy in those lines as compared vvith the number that have done well" ? (7) How does Ohio stat-e university test student abilities and demand for service in advance, so that, as President Had- ley suggested, "no man can expect a scholarship merely because he is needy and promising, unless there is some specific prom- ise that he will do work for the public, for which good living wages can be had, after he has finished his studies"? (8) If, as Professor Stieglitz of the University of Chi- cago suggested, "the great revolutionizing discoveries in science have been made as a rule by unexpected observations studied by a genius", and if in order to develop fundamental research all we need is to "bring a maximum number of minds of the genius type in contact with observation", how can the graduate school develop contact with world problems that need to be solved so that research ability can have maximum opportunities for unexpected observations? (9) If the University of Michigan can secure funds from private business for promoting pure research and developing research understudies, where they originally sought to deprive the university of a research professor, what steps can Ohio's graduate school take to interest Ohio's business men in keeping intact a strong training school for scientific investigation at Ohio state university? (10) If, as Dean Ford of the University of Minnesota re- ported, "we people right in our own universities have not laid the very best basis of co-operation upon which a national re- search co-operative program can be brought about", how can co-operation among departments represented in Ohio's graduate school be increased ? 10 — That the annual report for the graduate school analyze its clientele, its buildings, its forward steps, and its principal needs. There is no better way to improve the work of the graduate school and to foster its research than to apply the principles of scientific research to the graduate school's own problems and work. It would make it easier to secure high grade work from the graduate council if the annual report summarized the problems presented to the council and their principal actions. ON ADxMINISTRATIVE REORGANIZATION 429 ORGANIZATION FOR RESEARCH Among the suggestions made to this committee by faculty members and by city and county superintendents of schools, there appears fre- quently the plea for more research, more men capable of research, more men who will insist upon opportunities for research, more facilities for research, more time for research, more helping the state through re- search, more training of students in the methods of research by having them do research work. These demands for greater benefits from and more attention to re- search come by no means exclusively from the full professors at the Ohio state university or even from younger men on its instructional stafif. Faculty groups at Miami and individual instructors at Ohio university. Bowling Green and Kent and several private colleges insist that Ohio cannot longer in fairness either to her scholarship or to her material interest afiford the restricted opportunities for research which have here- tofore been supplied. Instead of being jealous of the senior college and graduate school at the Ohio state university other institutions, including private colleges, have suggested that it would materially strengthen their power to com- pete for instructors and for students with out-of-Ohio institutions if at the Ohio state university there were opportunities and inducements for research comparable to those in other states. Nor does this demand for research opportunities refer only to the Ohio state university. From the normal schools come reasons why within normal schools there should be research into educational problems and practices. On the faculties at Miami and Ohio universities are scholars who believe that Ohio's ability to draw strongest teachers will require provision at these other Ohio institutions for research work during the working time for which the state pays. By research many different lines of advanced study are meant. There is scientific research which seeks new truths for truth's sake, — for the sake of adding tO the sum of human knowledge — with little or no reference to the practical value of the new truth that may be dis- covered. Then, there are many forms of ultilitarian research such as those conducted by the engineering experiment station, for which the college of engineering was recently given a fund, and the studies and experi- ments of the college of agriculture into production costs of food and best methods in animal husbandry. Another type of "service research", i. e., practical research of in- estimable social value, is the agricultural extension work which is ver- itably "making over" rural life. An equally needed service is outlined in the three research bureaus which the trustees of the Ohio state uni- 430 REPORT OF JOINT LEGISLATIVE COMMITTEE versity have authorized but not yet financed, — for business research and service, social research and service, governmental research and service. Finally, there is training in research for each of the subjects in the graduate school including the different kinds and forms of field' work which each department could and should organize. For not one of these kinds of research are there now adequate facil- ities, program, professors, or students. During the week December 8-14, 1919, the time given to research was reported by 165 full professors in five state institutions. Only those professors appeared in this total whose duties are almost entirely instruc- tional. For example, all deans but one are omitted. Of 165 full pro- fessors III, or 66 per cent, or two out of three, reported not one minute of scientific research; 56 of 99 at the Ohio state university; 20 of 25 at Ohio university; 13 of 17 at Miami university; 9 of 10 at Bowling Green normal college, and 13 of 16 at Kent normal school. If we add the 26 others who reported some research but less than one hour a day we have a total of 137 out of 165, or 83 per cent, or six out of seven, who reported either no research at all or less than one hour a day. Two possibilities of serious error exist in these figures : This week may have been far below the average without the fact being realized for lack of records for previous weeks, and Sunday is omitted, which may have been a mistake. While many men threw their Sunday work into the other six days, a few have informed your committee that their re- search is done chiefly on Sunday. Sunday was dropped from the origmal blank as the result of a conference where it was urged upon your com- mittee that university work should be so organized that no essential part of it will depend upon Sunday. For this study of organization the details for each of the institutions are not given. In the section on the Ohio state university details are given for the two groups, full professors and instructors. The blanks upon which these facts were reported contain material that would be invaluable for later studies and correlations by administrative officers and the col- lege of education. If such use is not desired in Oliio the institute for pubHc service will be grateful for the privilege of retaining them. The large number of full professors in. five institutions who reported no research work at all and the other considerable number who reported less than an hour a day should be read against the backgrotmd of two beliefs that are current among full professors: 1 . The highest efficiency in teaching is impossible where there is no research ambition together with research opportunity and achievement. 2. The state of Ohio in its appropriations and in its assignment of work has failed to make allowance for research and has, therefore, discouraged it or made it impossible. ON ADMINISTRATIVE REORGANIZATION 43 1 Whether the beHef that research is indispensable to competent teach- ing is true or unsound, the fact remains that the world of scholarship in the United States had for nearly two generations accepted it as true. Practically every full professor at the Ohio state university would prob- ably declare this belief as would the majority of full professors at the other four state institutions. Probably the great majority of instructors would insist that hope for research opportunity to make a record in scholarship was one of the factors which drew them into college teaching. Either Ohio must prove that research is not necessary for efficient instruction and for the development and contentment of faculties or else it must provide the opportunities now denied. This problem is the legislature's problem and the governor's and the public's and lay trustees' and is not a trifling detail to be settled by faculties, officers and trustees. If faculty conviction regarding research is not changed and if Ohio fails to make allowance for research in its time schedules, then Ohio must give up the hope of attracting and holding scholars of first rank. The little, too little, research reported by Ohio faculty members equipped for scholarly attainment, including many who are widely re- puted for scholarly attainment, is undoubtedly somewhat less than would have been reported in earlier years. The problem of readjustment after the war and the experience with the Students' Army Training Corps would have reduced the time avail- able for research even had there been no increase in registration and no depletion of teaching staff because of resignations. Another deterrent or obstacle to research is the actual condition of the teaching organization, especially at the Ohio state university, which has been literally "shot to pieces." The unexpected increase in registration called for a large increase in the teaching staff. There was enough pirating by other institutions to nearly break up the teaching staff. Of 19 staff members in the college of commerce and journalism w^ho left in June, 1919, expecting to return to the university, only seven were on the payroll six month later. President Thompson, speaking to your com- mittee, declared that the university was so ill-prepared to take care of the large freshman classes and to meet this unexpected loss of teachers that it was compelled to 'use even undergraduates and was "reluctantly giving these young people less qualified teachers and less favorable working conditions than they had in their home high schools last year." Under such conditions there has necessarily been a decrease in the time and strength left for scientific research. Because, however, it is these conditions which are affecting the state, the facts reported on time sheets are given as professors reported them. 432 REPORT OF JOINT LKC.ISLATIVE COMMITTEE Typical of suggestions which came to your committee from faculties are these : 1 . University teachers should have time for research work and opi>ortunity for publishing the results. 2. Engineering teachers should have time for investigating and developing work in tlie unconimercialized field of pure science. 3. Research in business and social problems should be done by university departments that have special training in subjects under investigation. 4. Research in business and social problems should be established with proper equipment and housing. 5. Research in veterinary pathology is needed. 6. Medical research should be fostered. 7. Research in educational problems should be treated as indis- pensable. 8. In agriculture many kinds of research are needed, the field of farm machinery being almost untouched. 9. The Ohio state miiversity should equip itself to lead and super- vise research work done by faculties in other Ohio universities. 10. In the field of education where the lack of research leadership and facilities is especially felt, the Ohio society of education has outlined a plan by which the individual members, and the colleges and teacher training schools they' represent, may work with the state department of public instruction (and of course with the state teacher training schools) "to study scientifically special phases of educational problems." A striking summary of the situation comes from the college of engineering, the Ohio state university, in an ai)]ieal for scientific research for its own sake, for the state's sake, for the student's sake, and for the development of the teacher. Because of its suggestion that university re- search should utilize practical engineering problems in the industrial field, and because of its clarity and forcefulness, the letter is repeated in full with our black-tyjiing for emphasis, in the five following paragraphs : Engineering cannot be properly taught by persons who have an inadequate idea about what modern engineering is. To have an adequate idea in this matter one must at least, to some extent be a producing engineer oneself. It is becoming increasingly difficult for teachers to establish connections with commercially producing concerns. To do so one must have acquired a considerable reputation, or else be in a position to suggest new and promising lines of technical development. For ON ADMINISTRATIVE REORGANIZATION 433 both purposes it is necessary that the teacher inside the University should feel himself as an active worker for technical progress and feel industrial problems as his own. This is only possible if he is given time and support for investi- gation and development work inside the institution with which he is connected. Younger men should be regularly employed in such work for a considerable part of their time. Men of higher rank should be given a sufficient number of assistants to enable them to turn their insight and experience into productive use even though their time may be largely taken up by teaching or administrative work. At the present time even leading members of the engineering faculty are forced to waste a considerable part of their time on tasks which in commercial concerns are regularly performed by office boys, stenographers, and clerks, not to mention technical assistants. Going outside the engineering departments to the purely scien- tific department, it might be stated that if at all universities as little time were allowed for scientific research as in a number of scientific departments at the Ohio State University, then there would be no science to teach. Commercial concerns in their research have to look to profit today or tomorrow. It is up to the men at the institutions of higher learning to discover the entirely new and unforeseen possibilities hidden in the as yet uncommercialized outlying fields which pure science ofters. Teachers who are barred from this sort of work must feel that they are relegated to the rear, that they are mere hangers- on, and this feeling will soon rob their teaching of all spirit and en- thusiasm. The first step for Ohio to take is to ask the five boards of trustees to ascertain man for man and department for department why research is at such a low ebb among its full professors. Is it because teaching hours are too many and teaching load too heavy? Is it because they have too many administrative duties? Is it because of any question in their minds as to the importance of research or as to the worthwhileness of it in cases where adequate facilities are lacking? Is there lack of prestige attaching to research or is the difference between Ohio's insti- tutions and some of their fellow institutions in other states not so much in the amount of 'profitable research as in the absence of a research cult that fosters talk about research without actually stimulating research ? Excess of time given to instructional duties will not entirely ac- count for the absence of research. Meeting classes, preparing for them, reviewing papers, interviewing students and conferring about them oc- cupied a week of the conventional 39 hours in the case of only 38 of in professors reporting no research. For 36 others, instructional duties oc- 434 REPORT OF JOINT LEGISLATIVE COMMITTEE cupied less than 30 hours a week ; two had less than 9 hours ; two from 10 to 12 hours; three from 12 to 15 hours; 7 from 16 to 20 hours; 12 had fewer than 20 hours of instructional duties. The total working week of the professional group leaves little time for research as the following statement shows as issued to the news- papers early in January by your secretary: Are university professorships easy berths and snaps ? Do university professors live a life of leisure? Not if the 159 Ohio teachers, ranking as professors, w^ho recently reported the details of one working week to the joint legislative committee on administrative reorganization, are typical of their craft. These 159 professors, in three universities and two normal schools, reported 7141 hours spent on work required by the- state. This is an average of 45 hours per professor. Because this average, however, con- tains the shorter as well as the longer working weeks, it fails to show many cases of what labor outside of college walls would call "overwork," and a few cases of almost "doing time." Of the five faculties 108 full professors report a working week, excluding Sunday, of over 40 hours required by the state; 137 a week of over 36 hours; 43 a week of over 50 hours; 12 a week of over 80 hours, and five a week of over 70 hours. One at the Ohio state university re- ported 92 hours. Nor is this all the time involved in working as a professor for Ohio. To the foregoing totals should be added 336 hours, equal to two hours apiece, for professional study and research. The largest amount of time spent by any professor for these two purposes, which are no less neces- sary for successful work even though not specifically required by the state, was 19 hours at the Ohio state university, Ohio university, and Miami; 10 hours at Bowling Green and 11 hours at Kent normal school. Where do the professors put in all this time? Not all of it with classes, of course, but besides meeting classes, they must prepare for meeting them, and must attend to the results of meeting them, as by marking written answers, reviewing note books, and interviewing stu- dents. Largest amounts of time given to individual talks with students were 6 hours at the Ohio state university and Ohio university, 12]/^ hours at Miami, 4 hours at Bowling Green, 4J/2 liours at Kent. Our committee hopes that taxpayers and teachers throughout the State will study these facts, which indicate that during the academic year Ohio professors have little leisure time in which "Satan can find mis- chief for idle hands to do." Whether the teaching load and the other duties incident to working for Ohio as professor are equitably distributed, it is not easy for the faculties themselves and their officers to ascertain. Lessons bearing upon organization will l)c drawn from these figures l)y our committee in its final report. ON ADMINISTRATIVE REORGANIZATION 435 The question is not how many hours does a full professor work but are conditions such that his time goes to service of greatest help to students of the state. Analysis raises the question whether Ohio faculties are not giving altogether too much time to work that might be done by clerks. Not including research for which with two exceptions provision is made by Ohio and which therefore falls into personal work, the total time of 165 full professors in five institutions was distributed as per the accompanying chart. At the Ohio state university 29 per cent of the • time given to the state by full professors went to non-instructional work. If even 20 per cent had gone to research and only 9 per cent to non- instructional duties, it would have been a more business-like use of this valuable time and would have accomplished much for research. After due allowance is made for interferences beyond faculty con- trol the fact remains that there is still vastly less research than time permitted. Important questions that should be answered by the insti- tutions concerned and by the legislature representing the public which needs the result of research work, include these : What is it that keeps these faculty members from doing research work ? Why do they question its value so far as any of them may? What specific research plan has been interfered with? What would they like to do if conditions were favorable, etc. ? For answering such questions we have proposed a bureau of administrative research within each institution together with exacting audits of research costs, methods and results, by the auditor of state, budget commissioner, finance committee of the legislature and the state department of public instruction. A special co-operative study is needed at the Ohio state university for the purpose of working out a scientific method acceptable to all departments : 1 . For budgeting time and funds for research by faculty members. 2. For changing courses of study so that more research and par- ticipation in research will be possible and necessary. 3. For testing the value of proposed research and of the proposed researcher's capacity for research, before an investment is made in it. 4. For interim tests of progress. 5. For tests of final results to decide the scientific value of each contribution, the lessons contained in it for various university and state departments, and the best methods of giving cur- rency to its findings. 6. For training researchers in putting their results in a form that will be not only correct in diction but readable, interest- ing and convincing. 43^ REPORT OF JOINT LEGISLATIVE COMMITTEE Talk about research is not research. Desire to research is not the same as ability to research. Little headway can be made in formal allot- ments or budgeting of state funds or state time among research projects unless faculties themselves will abandon the idea that one piece of work dubbed research is just as important as any other research project, and will accept the businesslike proposition that research must be proved in advance to promise worthwhile additions to knowledge or aid that will be desirable or necessary tomorrow. Thus far the Ohio state university is singularly free from cant and pretense respecting research. Distinguished studies have been made by the faculty members. The scholarship of the Ohio state university educators has been repeatedly recognized by out-of-Ohio institutions who have outbid Ohio for their service. The greatest need now is for officers and faculties to marshal facts about the need for research by faculty and students so that trustees, budget commissioner, governor, legislature and public will see that it is to the public interest both to finance and to demand an attitude and practice of research in state institutions of learn- ing. MEDICAL AND NEAR-MEDICAL COLLEGES, O. S. U. Besides the college of medicine, Ohio state university has three medical and near-medical colleges : homeopathic medicine, pharmacy, vetinary medicine. It is recommended 1 — That the work done by the college of homeojiathic medicine and the college of pharmacy be incorporated in the college of medicine: 2 — That serious consideration be given to the i)ossibility of merg- ing the college of veterinary medicine and thic college of agriculture foi purposes of. administration. The more colleges the university has. the more deans it nuist have, and the more administrative machinery. The more deans there are. the more difiioull it will ])e to ])lace the salaries of deans at the point which will he necessary to secure and retain men of sufficient ability for such important i)ositions. .Alihough the college of i)h;irniacy now hris an acting dean there will be constant ])ressin-e to recognize the college by giving it a dean. .■\s soon as tluM-e is a di'an, iiressnre will begin against any discrimi- nation and for the same s,il:ir\- that otlicr deans have. Trofcssional men ac(piaintcd with the respet'tix'e fu'lds of niedic-ine and pharniac\- have assured Nour ctmniittee that there is no reason wh\- the dean of the college of medicine should not do the deaning for the college of ]>harmacy as well as for physiology or public health or bacteriology. ON ADMINISTRATIVE REORGANIZATION 437 In the typical week used for recording teaching and non-teaching loads the acting dean of the college of pharmacy gave 43 hours to instructional duties and eight hours to non-instructional duties. On this record the acting dean gives all the time he contracts for to instruc- tional work and "throws m" his (leaning. The argument for trans- ferrmg the duties of deanship from this ofhce to the college of medicine rests, therefore, upon other grou.nds than diversion of teaching energy by this acting dean. As to the veterinary medicine it is quite unorthodox to suggest that it be made part of the college of agriculture. It is even true that the college of veterinary medicine deals with several classes of patients — such as decorative dogs — that are not involved in the agricultural course of study. In spite of these two facts there is reason to believe that it would help both the college of agriculture and the college of veterinary medicine if the latter were abandoned as a separate college and its work incorporated under the dean of the college of agriculture. Veterinary work for horses and cattle is the most important veterinary' work which veterinarians have to do. The co-ordination of medical attention to agricultural animals with the agricultural purposes these animals serve will help the state. The dean of the college of agriculture is now paid $4800 or $800 more than the other deans. He must have a well-ecpiipped central office. It would cost much less to have the deaning of the veterinary medicine done in this office than to organize it separately. What is more imporiatit still, the dean of the college of agriculture would have more reason than has the dean of a separate college for develop- ing the veterinary college, for ha^•ing it known throughout the state and for seeing that agricultural counties are supplied with professional skill. During the four years 1913-1917 Ohio residents numbering i [8 were graduated from this college, 39 or over 25% from Franklin county, 57 or nearly 4o9f from Jackson and contiguous counties ; 30 counties had no graduates. In November 1919 there were but 45 Ohio residents in this college, 18 or 40% from Franklin county, 69 counties having no students. The 56 non-residents who graduated in four years and 57 non-residents out of 102 who registered this year are reasons for placing the promotion of this college under an officer whose interest is not primarily in veterinary medicine but in the economic interests of Ohio which veterinary medicine can help. In suggesting that the college of homeopathic medicine be merged with the college of medicine it is recalled that already the princijile of merging has been frankly recognized. Already the great majority of subjects needed for medical practice are taught for both colleges 4,^S KKl'OKT OF JOINT LKGISLATIV1-: COMMlTTEIi by the college of medicine, for cxamj.lc. anatomy, hactcrioloiry. obstetrics, physiology, surgery, etc. For only two reasons can a separate college of homeopathic medicine be urged : one, that the medicines which it ]>rescribes are difTerent either in character or (|uantity or both, the other that homeopathy has a distinguished past which should be preserved in name and organization. Whatever distinction there is between the teaching of medicine in the college of homeopathic medicine and the teaching of medicine in the college of medicine can easily continue to exist under one college with provision for separate instruction in homeopathic medicine. This would serve every purpose of those ]>ractitioners who continue homeo- pathy and who want their sons or understudies to have instruction in the same school. The argument for a separate school is primarily sentimental. The way to meet it is to appeal to this sentiment and to show that in the long run there will be more deference for homeopathy's past if Special courses are incorporated in the general college of medicine than if homeopathy limps along with an ever decreasing number of students. In the Aear 1919-1920 there were but 21 Ohio residents registered at the college of homeopathic medicine: 7 from Franklin county; 4 from Cuyahoga ; 2 from Montgomery and one each from Champaign. Darke, Greene. Hamilton, Henry, Lake, Medina, Washington ; and none from yy Ohio counties. In the four years from September 1913 through June i<;i7 there vv^ere 29 Ohio graduates from 13 counties, and none from "j^ counties. Yet there is a special college, a special dean, s]:)ecial office overhead, a special hospital. H homeopathy were a new and growing sect, if it represented some new i>rinci])le which the world was bound to adopt, it would be progressive of a state like Ohio to give it a chance and to back- it during its "infant industry"' (la\s. Ihit that is not the case with, homeopathic medicine. In the year 1918, in all tlie country, there were 340 students registered in the six honieojiatliic colleges rmd 114 j^raduates. This is a decrease in students sinee Kpo of from pointment bureau or some other source. Its value is only for the current address of the graduates. On the 19th of February, 1920, there were fewer than 15 applicants on the active list. The chairman stated that application blanks would be mailed to the graduating class within the near future. No record is kept of the personal visits in search for teachers. If a superintendent visits the university, the applicants are called in for a personal interview, but no other record is made but the new address of the applicant who is accepted. There was no report for the year 1919 completely indicating the work of the department. It was stated that if a commission had been paid by teachers placed at the commercial rate of five per cent on the first year's salary it would have amounted to $23,000 for the applicants placed last year. It was also stated that with the exception of about six all of the three hundred applicants enrolled with the employment depart- ment had been placed. No adequate records were available to verify this. All of the applicants may have secured positions, but there was nothing to show that the position had been secured through the instrumentality of the appointment committee. Applicants were recommended to a superintendent in some cases without the applicant being notified that such recommendation had been made. The superintendent, being satisfied with the report from the uni- versity, would then take up with the applicant the question of accepting the position. There is grave danger in this. If the applicant happens to be enrolled with a commercial agency, the agency may also notify her of such vacancy. If she then files application as result of this notice, even though the agency fails to ni:ikf a direct recommendation and even though the position is secured by virtue of the university recommendation, the applicant must according to her contract pay a commission to the commercial agency. ON ADMINISTRATIVE REORGANIZATION 453 In some cases superintendents are placed in touch with teachers be- fore they have filed formal application with the appointment committee. This happens at the ofif seasons, but records should be kept for protection of the committee and for a complete report. The committee does not handle applicants after they have been out of the university over two years. On account of the great demand for teachers no advertising is done with superintendents and prospective employees. No advertising is done to secure registration from graduates of the university, for this is claimed to be unnecessary. No effort is made to place an exceptionally strong teacher in an exceptionally good position unless the teacher happens to be enrolled with the appointment committee. It is recommended : 1 — That there be but one office appointment work and that the records be where the interviewing and placing officer makes his office ; 2 — That sufficient clerical help be provided for keeping the neces- sary records ; 3 — That a system of card records be installed for all applicants which will show all of the facts about the applicant, including the positions to which she has been recommended and her ex- perience in positions taken; (faculty members or others should be given specific facts, not general impressions, such as the University of Wisconsin employment bureau and several other employment bureaus now require ; in fact it would help to have students and applicants mark themselves on a personality chart, of which several are now available.) 4 — That a system of card records be installed for all positions to be filled, whether -learned of by personal calls or by letter, to include facts as to each person recommended for the position ; 5 — That printed blanks be used to notify applicants promptly of every recommendation made by the employment service, with return card for the applicant to indicate promptly whether she will accept the position if obtained ; 6 — That service be extended to all graduates and former students of O. S. U. instead of discontinuing service after two years; 7 — That more detailed information be recorded respecting the personality of the applicant, so that not so much wall depend upon the chairman's personal acquaintance, or at least so that what the chairman personally knows may be on the record in case he is absent; 8 — That more detailed information be required and recorded with respect to the positions which are seeking teachers, for example such information as was listed in the ten questions suggested by the school revenue inquiry in March, 1920; (No teacher 4S4 RICl'OKT OF JOINT Li:(;iSLATl\K COMMITTKE should go blindfolded into a community. No community tliat is backward in its provision for teachers should have the sup- l)ort of the state university in concealing or condoning tha* backwardness.) 9 — That all records be brought and kept to date, including sum- maries of applicants placed, positions filled, applicants not placed and positions not filled ; 10 — That high spot facts that come into^this employment bureau be used as a means of advertising the ability of the college of education to serve Ohio's schools ; for example, "Superintend- ent Smith calls for a special teacher at $125 a month;" "Of three students considered, Miss A. P.. Jones, '19. was chosen:" 1 1 — That the cost of service per applicant placed, per position filled. per applicant listed, and per position listed, be currently recorded ; 12 — That a co-operative study be made for which the help of former students and the advice of the auditor of state shall be sougl.t, to answer the questions whether even greater advantages could be obtained from this service, and the commonly argued ob- jections could be avoided, if a charge were made sufficient 10 maintain the service ; 13 — That instead of waiting to be asked by strong graduates to recommend them to a position, such as the superintendency at Akron which is now looking for strong applicants, and instead of v^aiting for positions to apply, this bureau l)e alert, the first to know of a vacancy, and always knowing about O. S. U.'s strong teachers ; 14 — That the bureau's services be advertised through a required annual report and through catalog announcements which will give specific facts about its placements and positions whicli it was unable to fill and also through other means of publicity such as bulletins, printed cards, articles in school journals, newspapers, etc. ; 15 — That in the work of the bureau students from the college of education be employed on assignment as part of their train ng for school management ; 16 — That the general scope of this employment service be extended so that with the help of the college of education and other faculties it will not only bring position and applicant together but will in addition give the O. S. U. student skilled diagnosis of his personality and training and help in improving both be- fore taking a position. This means the development of a vocational guidance clinic; the con- structive use at placement time of the student records and psychological ON ADMINISTRATIVE REORGANIZATION 455 tests and scholarship; the introduction of vocational tests such as were found practicable in the army, aviation, and navy service; the building up of character tests during a college course, and the fijial assaying in this placement service. COLLEGE OF EDUCATION The last word in Ohio teacher training is spoken and will be con- tinued to be spoken from the Ohio slate university's college of education. Because this has graduate students and ofifers the degree, Doctor of Philosophy, because this is the only institution which the state recognizes . as of university grade, because it is associated with training for high school and college instructors, this central school at Columbus will set the high water mark for state work in Ohio. That mark should be very high, as high as -an be found elsewhere in the country. It may merely seem high because not so low as that of county normal schools or the four other state normal colleges. What it is will depend upon steps taken in the spring of 1920 to fill the deanship in the college of education which will become vacant July i, when the resignation of Dean George W. Knight takes efifect. It is suggested that your committee make a special appeal to the trustees and faculties of the university to redefine, with a view to Ohio's needs in 1920 and thereafter (1) the job and opportunity assigned to the college of education and (2) the experience and personality qualifications which a new dean should possess. As stated in another, section of this report, this redefinition can not fail to call for standards higher and serv- ices more extensive than any that have yet been attained in the practical training of teachers and supervisors, if the Ohio state university will ask the public school men and women of Ohio what kind of leadership they would like from the college of education. There is still time to arouse enthusiasm for this central leadership which will bring to Columbus several hundred ambitious teachers and supervisors who now feel tliat they must go to Chicago, Madison, Ann Arbor or New York City. There are personal reasons besides pride in their state which would make them prefer stimulating practical help from th Ki:i'(iKT OF JOINT LECilSLATlVE COMMITTEE confer with their colleagues or with men with special experience regard- ing such matters as the making of annual reports, conducting campaigns for greater community support, recruiting teachers, revising a course of study, more learning by doing, need for university help and supervision for studies and experiments of school men in their own schools, etc. If the Ohio state university does this for her own state's sake she needs no sanction from other states, but, in fact, will find her example emulated throughout the nation. A^ain there are many live educators who do not feel equal to long hours of lectures or to devitalizing hours in a library reading what other people have said about their work, but who would like to meet other strong men and women and confer as equals regarding next steps. Such a course would have no fixed recitations, no lectures, no assigned readings, no required work of any kind except perhaps participation in games and physical training, but would depend for its success upon round-table conferences and individual conferences. There is similar need for ex- tension and in absentia work by this college. The only reason such courses have not been widely developed is that no method has yet been worked out for giving academic credit to- ward the degrees of Master of Arts or Doctor of Philosophy. Ohio needs such conferences and such opportunities for growth more than it needs more academic credit or academic degrees. It is entirely practical, however, to work out tests of growths that will justify giving the academic recognition which is called credit. It is not too late for Ohio to organize under the leadership of the Ohio state university such courses in connec- tion with its five normal schools and the summer annual meeting of the Ohio State Teachers' Association at Cedar Point. The fact that in doing this Ohio would be a pioneer and not a mere follower of tradition is no argument against it. Xow is the time also for a still further important step by the trustees and the deans — a step in which fortunately the faculties of Miami and Ohio universities can easily join, namely, a study by all faculties and especially l)y the deans, of the aims, methods and results of the college of education. It is no secret that there has been a lack of enthusiastic co-operation, even if not actual friction, between the college of education and various other colleges. In the college of arts, for example, there is a widespread belief that the so-called professional courses in the college of education are frightening strong men and women away from teaching and are making those who take such courses less valuable as teachers than they would be without them. Of course, the college of education does not believe this or it would not be requiring such courses. It is equally obvious that tliis is a ([ucstion of fact that can not be settled by two parties wi.shing the truth. New is the time to settle it on the basis of co-operative investigation. ON ADMINISTRATIVI-: REORGANIZATION 457 Again in tiie college of arts are many men whose opinion carries weight, who believe that a person who is full of a subject can teach it without knowing the history of education and educational psychology. In the college of education and in scores of other similar colleges are men who have given a life time to studying this question who believe they have proved that the student who knows and loves chemistry, geology, economics or history can be made even more enthusiastic about his subject, and far more capable of helping young people develop in in the study of it, if he learns the technique of teaching. Nobody wants to believe what is untrue on this issue. Nobody wants to urge what is impractical. It may be that the right answer is midway between the two arguments. It may be that by slightly changing its own method of prac- tice teaching and its theoretical subjects the college of education can persuade other colleges by practical demonstrations that knowing a sub- ject and knowing how to interest others in it are two entirely dififerent things. The large number of graduates and undergraduates conscripted without warning into the university's teaching force this year may profitably be used as clinical material. Whatever conflict there is can not possibly outlast a joint effort to apply the principles of scientific analysis to the two methods at work. Another type of question which calls for similar co-operative study is whether a library school or a social service school when organized, should be in the college of education or under the library service or arts department. Now is the time to start such co-operative study so that when the new dean takes office he can go in with the informed, whole- hearted co-operation of the other colleges. If a division of administrative research and reference is established, such continuing study of the college of education, its methods, its results, and its relations to other colleges will be one of the appropriate uses of its opportunity. In making such studies it should be able to call upon the students in the college of education and should be willing to use them. In fact the development of administrative research should always go hand ;n hand with the use of students from different colleges as a means of making the research cost as little as possible while at the same time giving invaluable field work that needs to be done and that will be used before their eyes for benefiting the state. A co-operative study of the college of education would give atten- tion to facts like the following, explain them and suggest constructive ways of dealing with them : Of 88 Ohio counties 23 have no students this year in the college of education ; 21 had but one ; 16 had two ; 20 had from three to five ; only five besides Franklin County had more than five ; on'y two besides Franklin County had ten or more. Obviously it will not suffice to say that various counties are nearer one or the other normal school or private college. 45<^ Ul'.POKT or JOl.VT I.KC.ISI.ATIX'K (( ) M M ITTKK With respfct to each county the qtiestion should be answered; "What steps have l)ecn taken to accpiaint hi,i,'h school students, their !ie s, and men and women already teachinj^ and supcTN'i ; nj; ■•..•. '■' 1 facilities ofi'ered by the Ohio state university college of education?" In this same way the service spot map showing this year's registra- tion and the graduates for the last four years would profitably be taken up county for county with the view to correspondence and visits that should be started with school principals, teachers and children of these counties. The employment service offers another held for fruitful study. In a separate section is given the report by W'. C. IMakey, of the Institute for Public Service, who knows teachers' employment service from per- sonal experience. Though brief and made after one short visit this report shows that a co-operative study of the employing methods directed by the college of education would prove profitable. The registration during the summer session of 19 18 would well be compared with the lists of county, city and district superintendents and supervisors in Ohio schools — and with the catalogue lists from Teachers' College, Columbia, Universities of Chicago, Michigan, W' isconsin, etc. — during the last few stmimers to learn what they sought outside the state which was not being furnished by the Ohio state university's summer school. Joint visits to instructors of professional subjects and of so-called academic subjects like history, chemistry, English and other languages would profitably be made by representatives of the college of education and of the arts college. For your committee visits were made to two classes in educational p.sychology in midwinter, 1919. The fact that both were being taught by women was not known to the visitor. In the first class the instructor was lecturing on aims in selecting subjects to be taught. Several relevant (|uestions were asked by class members; Why should we not teach a subject for its disci|)linary value? What aim would a inipil have in taking a subject already re([uired by the course of study? Hie teacher answered these questions instead of having class members answer them, a method that schools of education tell students should not be employed in teaching. V^ery few ([uestions were asked b\- the teacher. There was almost no discussion, another ear-mark of defective teaching. The second class began with the writing of the ne.xt lesson's as- signment on the blackboard : Fatigue — definition of terms used in study of fatigue, text 305"v3'5- Problem of efficiency at end of several hours of mental work, text 283-294, especially .Aral's work. In S]>ecifying the ])age limit for gr()\\n-ui> students this teacher of teachers violated one of the basic principles of teaching which colleges of education are trving to enforce. ON ADMINISTRATIVE REOKCANIZATION 459 The subject for the day was "Transfers in training," an important question in all fields of education, because our present course of study is based largely upon the theory that facts used or habits developed in the study of one subject make a student more competent to deal with other subjects; for example, that training in Latin grammar improves English speech and develops power of logical thought. The instructor urged the_ use of personal judgment in considering experiments and ad- vised against accepting book results. "Use the data and form your own conclusions." After discussing various kinds of transfer of sub- ject matter she took up transfers of procedure, e. g., -reducing proportion to percentage under the four headings, method — aims — ideals — atti- tudes. In this class of 31 there were eight members who took some part in the lesson by asking or answering a question. The instructor called by name upon those students who had shown willingness to answer. She did not extend her range to include those who did not volunteer. Four times she asked the class if there were any questions they wished answered or explained and obtained only one question, and that one the first time she asked — another violation of the theory of instruction v/hich the college of education teaches. When one student presented an editorial from a daily paper which urged the teaching of Latin be- cause of its value to students of French and Spanish the instructor ex- plained the application of this to the problem instead of letting a student do it — another obvious violation of the method v/hich professional courses are intending to teach and exemplify. These two illustrations are given merely to emphasize the importance and profit of classroom visits for those responsible for the training of teachers. It is a truism in the educational field that young people will teach as they are taught rather than as they are told to teach. This makes it indispensable to intelligent management of teacher training in- stitutions that deans and department heads — and presidents, too — know how future teachers are actually being taught, whether in so-called professional courses or in history and English courses which are no less professional because they deal immediately with subject matter that teachers must draw out and impart. This year of overcrowded classes and teaching by a large number of unprepared graduates and undergraduates was a year of unequaled opportunity for the college of education to be of service to all depart- ments. Apparently it never occurred to any other department to ask help of the college of education in supervising the teaching by under- graduates and graduate assistants. In only a small percentage of cases did it apparently occur to responsible department heads to ascertain by actual visits where these young teachers needed help in tlieir instruction or where their classes needed protection against curable deficient instruc- tion. 460 Klil'OKT OF JOINT LEGISLATIVE COMMITTEE Of 99 full professors including one dean, two visited students teach- ing and nine supervised faculty members teaching — three less than one hour, one two hours, four over two hours in the week recorded. Of 76 associates and assistant professors, six including one of physical education and one of military science supervised other instruc- tion an hour and a half; one, arts, visited student teachers 30 minutes, as did one, engineering; two, Romance, supervised faculty 65 and 145 minutes, and one, physical education, 130 minutes; and one, military science, no minutes. It is not self evident that these assistants were teaching badly be- cause they had not taught before or had not prepared for teaching. It may be that some of the very best teaching in the university was by them. What the facts are could and should be ascertained by co-opera- tive visiting. Too serious to be lightly overlooked by trustees or deans of faculties was the Teachers' Week demonstration and mass meeting made under the auspices of the college of education. What happened is stated briefly before the interpretation of what happened. It was long after the governor issued his proclamation, January 6th. calling upon all forces in the state to co-operate in Teachers' Week, and long after the state campaign was under way and plans made for a city campaign among civic agencies, school and the press before any step was taken at the Ohio state university. So far as faculties or public knew no steps were taken or were in contemplation until the week before the Teachers' Week drive opened. Then at a faculty meeting one faculty member rose to move the general and whole-hearted participation by the faculty and faculty wives. The proposer of this motion was not a mem- ber of the college of education. For making such a motion when "not a member of this college in whose province the subject of Teachers' Week so peculiarly belonged" this faculty member was rebuked by the dean of the college of education and the faculty told that this college had been contemplating a faculty demonstration. The up-shot of the discussion was that the faculty voted to leave with the college of education the plan for a Teachers' Week. The meeting adjourned without taking up th? several suggestions which the mover of the original motion meant to make, namely, convocation of faculty and faculty wives; convocation of students, references in each instructor's classes to the opportunities of teaching from the standpoint of the subject being taught; individu'-l conferences with students wishing light on teaching with reference to their own hopes, aptitudes and predicaments. Days passed and nothing further was heard by the faculty until the (lay of the mass meeting. iMually at tlie last hour it was annonnced that tlierc would be a nia^s nu'cting (^f faculty, faculty wives and stu- dents, o])en to the ])nblic. at which the president, a member of the Co- lumbus board of education, the b'ranklin Count v su]KM-intendent and ON admin:sti^\tive reorganization 461 Governor Cox would speak. At the hour for the meeting there was but a handful of people in the chapel. In all from 150 to 200 finally came besides the chorus. The governor was unavoidably detained, which fact disappointed the audience, but did not account for the almost complete non-attendance of faculty and faculty wives at the meeting. While no ofHcial count was taken it is doubtful if there were half a dozen faculty members present or more than that number of faculty wives. This is a score of about one per cent. After conceding full force to the various explanations — influenza, printing troubles, conflicting engagements — the fact remains that this show of interest in Teachers' Week by the Ohio state university raises several questions with respect to the stewardship of trustees, of executive officers, of faculties in general and of the college of education in particular that call for serious co-operative study. The publicity methods used by the college of education have been referred to in the section on advertising the rewards of teaching. One of the great opportunities of the new dean will be to put this publicity on a new basis which will call for more information with respect to young people available for registration ; those actually registering ; their progress while in school ; opportunities for wholesome good times ; their successes in practice teaching; conditions of employment open to these students, especially those positions seeking the student; the character of opportu- nities taken by students; evidences of their growth after they begin to teach; reasons why they withdraw from teaching; Ohio's own main needs in the teaching field. The begining of an additional and improved publicity might profit- ably start with a high spot study of the college of education and its offerings. One high spot is the relation which the Ohio state university has enjoyed for several years with the high schools, the schools for the deaf and blind and the hospitals for the insane and feeble-minded in Columbus. Instead of being limited to a hot-house school of selected children work- ing under artificial conditions, the Ohio state university students in the college of education have the privilege of teaching in the public schools at Columbus under trained supervision of both college supervisors and high school supervisors. So sound is the principle underlying this rela- tion that teacher training leaders in the country are with few exceptions seeking to establish such relations with their home town public schools. A second high spot is the practical training in journalism. The running of the Lantern by students and preparing one daily issue of a Columbus paper each year ofYer many suggestions to prospective teachers. This is a great asset to the university and to Ohio journalism. It should be known for its own sake and for the bearing it has upon the general adoption by the university of the method, namely, learning by doing 4^2 KKPORT OF JOINT LEGISLATIVE COMMITTEE what needs lo be done and what has dehnite punctuaHty and acceptability tests. A third high spot is the fact that tlie heads of tii€ schools for the blind and deaf and the hospitals for the feeble-minded and the insane are glad to have their institutions visited, their methods studied, and their pupils and inmates given intelligent tests, etc., by classes from the college of education. This nearness to sociological laboratories is a very great asset which justifies not only special mention but efficient advertising. A fourth high spot, the bureau of juvenile research, has its head- quarters and observation home in Columbus. Its head, who is a cele- brated teacher in this field, is available to explain and demonstrate various aspects of juvenile research to the 0(hio state university students and is conipetent and glad to guide them, in field studies, service and research. A fifth high spot is the access — foi- observation and for special study as well as for practice — to the city school system of Columbus which exemplifies practically everything that is best and worst in school facilities and school practice. The superintendent is a far-seeing educa- tor with a record for constructive work such as few others in the country enjoy. Progressive and able principals and teachers, parent-teachers' as- sociations and an educational council are furnishing material for studies and opportunities for field training in community leadership. No high school teacher or graduate student should be certificated by the college of education who has not personally visited and participated in elementary school work. Furthermore, experience proves that observing buildings that lack proper facilities and classes which lack inspired and modern teaching is a helpful background for high spot building and teaching. A sixth high spot is the co-operative attitude of the county school .\vstem. A seventh and most important high spot is the nearness to the state department of public instruction which in the next few years will be taking many forward steps in education and services that ofifer unsur- passed opportunity for field training in research and service, in educa- tional publicity and in field examinations. An eighth and instructive high spot is the presence in Columbus every other year of the legislature, the presence all the time of the central state offices and the constant discussion in the local press of state prob- lems, many of which have a distinct bearing upon education. W'ith these and many more high s]iots, the Ohio state university's college of education can fairly seek to hold in Ohio several hundred of its able educators who now take their knowledge of Ohio's needs to other states for their advance work. From the teaching force of Colunilms and ne.irbv schools there should be more teachers wishing courses in education and other subjects than the total present registration in the college of education. The four o'clock courses now offered can be readied by only a feu eUnienlary teachers ON ADMINISTRATIVK Rl'.ORC.AN I/.ATION 463 and by them often at serious sacrifice of their school duties. Since the state law and pending proposals before various city boards of education put a high premium on college courses, it is suggested that the college of education would profitably offer its services on the campus or at centers convenient to groups of teachers, principals and other supervisors, as follows so far as demand may justify: 1 — Afternoon courses, later than 4 P. ]\i. 2 — Evening courses. 3 — Saturday forenoon courses. 4 — Special direction of experiments or studies by individual teach- ers or supervisors as to subject matter, method of instruction, or classes of pupils. SHAI.L THE TEACHING PROEESSION BE SUBSIDIZED? No fee is now charged for attendance at Bowling Green and Kent normal colleges. A fee of $15 a term or $30 for the regular year is charged at Miami and Ohio normal colleges at Oxford and Athens. Yet the register at the two schools charging a fee is more than double that at the two schools which charge no fee. In this comparison the increased register is not credited to the fees; the comparison is stated to indicate that in spite of the absence of fees. Bowling Green and Kent have not made sufficient appeal to the seven thousand and twelve thousand teachers of their districts. The experience of Wilberforce, where free rent is given to Ohio residents, and where only 194 of 575 registrants are Ohio residents, and where only 37 Ohio students are registered for normal work, would indicate that so small a subsidy has little efifect. A more substantial subsidy is proposed by President J. E. McGilvrey of Kent normal college, namely $50 a month to students while preparing for teaching. • President McGilvrey cites Akron City, which is paying this amount and which in spite .of competition from the great industries of Akron, and in spite of the drift away from teaching which is almost universal elsewhere, is able to attract the best abilities from Akron high schools into teaching. It is claimed that since this method was adopted the Akrou normal school has been able to take the pick instead of the leavings. Distinguished out-of-Ohio normal school men are quoted as believing that teachers can never be recruited without subsidy. At the Cleveland meeting of the N. E. A. in February, 1920, an ad- dress delivered by President James C. Riggs, of Oswego Normal, N. Y., urged state scholarships for teachers in training for the following reasons : 4'''4 RKl'OkT OF jorXT r-KC.ISLATlVK COMMITTEE 1 — Increased pay for public school teachers has not increased the student body of the normal school. 2 — The promise of college credit for normal school work has failed to bring any appreciable number. 3 — The attractions of an enriched curriculum and superior in- structors in the elementary courses have not been sufificient to ofifset the call of a good position in business, a living and a saving wage "beginning now." 4 — To an eighteen-year old student just out of high school the delay of two years or more before he can become an earner is a long period to wait and in many cases is prohibitive, for few elementary teachers come from families of even moderate in- come. 5 — Pfi^'^fe competitors often find it npo^c«;prv to pay for lesmer? in training; hospitals, manufacturing establishments, telephone companies, the army and navy, the national guard. 6 — When teachers were needed for the Philippines. Porto Rico, and the Canal Zone, the federal government did not delay in furnishing the necessary funds which would attract to those services. 7 — New York state pays three thousand students $ioo a year dur- ing a four year course, and by that means has obtained students of the best scholarship. 8 — Sixty-six hundred foreign students from eighty different coun- tries are in American colleges most of them at the expense of their home governments. 9 — Secondary schools advise, urge, and instruct their best students to go on to college rather than to normal schools, because col- leges offer free scholarships, like Cornell university's six hun- dred free scholarships. lo — Scholarships are superior to pensions because they put the emphasis at the beginning of service. 11 — Scholarships would secure for schools not those who drift into normal schools, but those who have been carefully selected. 12 — The amount of money needed for scholarships is small com- pared with other public expenditures, such as for forestry, ap- plied agriculture, or a state fair of one week. 13 — Practically every other civilized country pays maintenance in part for teachers while in training as future servants of the State. 14 — In the United States, New Mexico has provided free scholar- ships at three State normal schools; South Carolina gives one hundred and twenty-five free scholarshii)s; Akron jxiys $50 ON ADMINISTRATIVK REORGANIZATION 465 per month ; Maine pays all expenses for a six-weeks' summer session, including railroad fare, board, and laundry from the time they leave home until the return, for one hundred teachers selected on a basis of physical and mental fitness (and further provides for a bonus at the end of the next year) ; Connecticut. Utah, Arkansas, Louisiana, South Dakota, (Virginia) permit loans from public funds to prospective teachers; the Smith Towner bill for federal aid, which is being considered by con- gress, provides for scholarships to encourage a greater number of talented young people to make adequate preparation for public school service. Among those who commended the proposal for scholarships were cited Commissioner Calvin M. Kendall of New Jersey, the new president of the National Educational Association's Division of Superintendence and Dean James E. Russell of teachers' college, Columbia university. In testing the appeal for scholarships as a remedy for the teacher shortage, several questions must be asked of Ohio. 1 — Can Ohio afford it ? 2 — Will the remedy work — v^ill it supply a sufficient number of teachers ? 3 — Will it put the profession on a sound competitive basis? The answer to the first two questions is, Yes. Ohio can afford whatever it costs to have teachers enough. There is no such thing as a human society unable to set aside from its earnings or its men and women enough energy to teach the coming generation. A state which has 520,000 automobiles, almost one to every two school children, and fifteen to every teacher can afford all the teachers it needs. A state whose laborers', employers', farmers', and stockholders' pockets are bulging with profits, as are these in the state of Ohio, can afford scholarships for teachers if it wants to. Scholarships will work, too, for if offered to high school graduates they will if large enough attract into the profes- sion a large enough number of teachers. It is not so clear that the third question can be answered in the af- firmative, namely, "Will it put the profession on a sound competitive basis?" At the meeting of Ohio school men during N. E. A. week at Cleveland, the concensus of opinion seemed to be that scholarships would tend to perpetuate not to remove the profession's disqualifications. The argument against scholarships runs like this : I — The argument for scholarships wrongly assumes that it is the initial attracting power rather than the holding power of teaching which is endangered by too low salaries. 466 KKPOKT OF JOINT I.KC.ISI.ATl VE COM M lTTi:i-: 2 — So far as inability to live without earning is responsible for the small numbers in teacher training schools, that difficulty can be better overcome by state loans than by state scholarships. 3 — The more the state pays young people to enter teaching training schools, the more school districts will be encouraged to under- pay those same yoimg people after they begin teaching. 4 — Scholarships cannot overcome in the minds of ablest young people the competitive disadvantage of a profession which after graduation pays too low salaries. 5 — Paying scholarships will help conceal other difficulties with teaching than too low salaries, which must be corrected before the profession will attract large enough numbers and will ex- cuse those who continue and create unfavorable conditions from finding, admitting, and correcting the mistakes of present practice. 6 — Paying scholarships without exacting a high standing of per- sonality, scholarship, and apparent qualifications for teaching, will attract into the profession a large number unqualified to uphold its standards. 7 — Unless scholarships are paid regardless of the student's ability to pay, the service will soon rank as a charity or semi-charity, which ablest abilities will want to avoid. 8 — Scholarships used to attract students into teacher training schools will give no guarantee whatever of an increased supply of actual teachers unless compulsion is used to enforce the written or implied contract, which compulsion will operate to keep away the ablest abilities. 9 — If accepting a scholarship carries with it a pledge to teach, the scholarship will accomplish less than a negotiable student loan which does not interfere with the student's freedom to teach or not teach according to his proved abilities and best interests. 10 — Nothing should be done for or to teaching and candidates for teaching which will put teaching on any other than a competi- tive basis with all other services to society. It is a (liflirult question to decide without actual tests. There is certainly merit in President iMcGilvrey's suggestion that one of the normal colleges be chosen for an experiment. It is recom- mended that your committee suggest to the legislature an experi- ment in one district — the Kent district or the Bowling Green dis- trict — of payments to teachers in training on the following condi- tions : ON ADMINISTRATIVE REORGANIZATION 46/ I — That no student be subsidized who does not belong within the district ; who has not a high record in high school scholarship ; who has not a first rank in the personality needed for success- ful teaching; • 2 — That the initial acceptance of the scholarship and the receipt for each monthly installment carry with it a pledge to teach in the schools of Ohio at least two years after completing the course or in case of beginning to teach before finishing the course a proportionate time, and the further condition that if the holder does not teach or does not maintain a standard of scholarship while in school which permits the school to recommend her, she will pay back the scholarship by installments, with interest. As a corollary to this suggestion it is recommended that in another district a second experiment be made of a state bonus, to graduate teachers from the normal school of that district for com- pletion of each of the first two or four years of teaching. If one hundred teachers were encouraged by such scholarship or such bonus in each of the two districts to take a two year course at each of the two normal schools, Bowling Green and Kent, it would cost a hun- dred thousand dollars in bonuses for the Bowling Green district and a hundred thousand dollars in scholarships for the Kent district. Thus, for two hundred thousand dollars the state would have secured two hundred teachers for service of at least two years and would have helped settle a question that is fundamental to the welfare of itself and every other state. LOAN FUNDS FOR STUDENTS PREPARING TO TEACH At present no ajjpropriations are made for students' loans although privately secured funds are used for this purpose. It is recommended that at least $20,000 be voted as a rotary fund for each of the teacher training colleges. Student loan funds have proved their value wherever tried. When administered with even ordinary care the losses are infinitesimal, yet the numbers assisted are very large. Those who have gone to college or those who for lack of funds have been prevented from going know how a few dollars often stand between the student and his ability to enter or continue in college. If it requires $300 to spend a year away from home without earning, a student might as well not have anv monev as to have $250; in this case $50 at the end of the year is but one-sixth of the total year's cost, but it means a whole year lost unless it can be found or counted upon at the beginning of the year. 468 REPORT OF JOINT LEGISLATIVE COMiMITTEE How large a percentage of America's high school graduates go into office and factory instead of on to college simply because tliey lack the relatively small amount of money necessary to study with- out earning, no one knows, and no one has ever tried to find out. We do know that the proportion is very large, just as the propor- tion is large of elementary children who stop going to school when they finish the eighth grade, not because they lack ambition, not be- cause they lack superior ability in studies and superior promise for vocations, but because their parents actually cannot afford or mis- takenly believe they cannot afford to get along without their chil- dren's small earnings. When education is democratically organized and earns the two adjectives free and universal, which America so generally applies to it, no instruction will be given free to any boy or girl who is able to bear the expense of traveling to and maintaining himself during such instruction, which will not at the same time be given to other young people of equal ambition and ability who for no fault of their own are unable to pay the railroad bills and the board bills and room bills necessarv to take advantage of such education. The provision of public loan funds by Ohio's normal colleges and universities would be one step in the right direction because this step would pay interest while producing teachers and other professional men. There is not even an argument of expediency against it. A subsequent step will unquestionably be found necessary on grounds of justice and on grounds of necessity, if our great common- wealths are to maintain even approximately free and universal higher education ; namely, the beneficiaries of such opportunities at state col- leges and universities will be required to give negotiable pledges to pay back, out of their later incomes and "unearned increments," to the state for the education of other citizens. When that time comes there will be no reason for withholding from any young people in Ohio opportunities for higher training. While theargument for olan funds to recruit teachers applies also to loan_ funds for recruiting dentists. ])hysicians, enginceriana has 12 out of 21, Carroll 10 out of 15, Clinton and Highland 9 out of 10, and Scioto 6 out of 18 who come for a one-year course in train- ing not yet prepared to take that course. At the conference of county normal directors several directors cited students who lacked credits because there was no four year first grade high school in their home town. Reasons were given for believing that these students because of their earnestness and special effort — including two young men for whom a moving case was made out — were better students than others who had received a four-year course. There certainly is merit in the contention that when men and women present themselves for training in county normal training schools — or in state normal schools and state universities — the main test should be whether thev are prepared to take the work that will be given them in the future ralber than whether they have done certain work in the past. There are educators of first rank — Dr. James H. Dillard of the general education board and the Slater and Jeanes funds, Dean Balliet of New York uni- versity and Dean Trowbridge of Columbia university, — who insist that in our higher education we must abandon the unit or credit system and put a pvcmumi upon ability to do new work. As a practical pioposition in 4/6 REPORT OF JOINT LEGISLATIVE COMMITTEE Ohio, however, in the absence of adequate means for discovering in time those who can do the new work without hampering others in their class, *there seems every reason for insisting upon full compliance with the ad- mission requirements of a four-year, first grade high school certificate. At the time when several states are working toward four years of training after graduating from a high school before any one shall be allowed to teach in any state school even in the kindergarten, is the wrong time for Ohio to be requiring less than four years of high school for admission to teacher training courses. What shall be done in the few instances where students who have been unable to attend first grade high schools possess knowl- edge of the common branches, plus personality, plus application which make them superior in promise of teaching ability to others who have had four or five years of schooling? In fairness to such students let us rcmeml)er that lowering the bars does not help them carry a course for which they lack preparation, does not help other meml)ers of the class avoid being held back by their lack of prepara- tion, does not help the director whose burdens are greatly increased 1^}- their unpreparedness which is no less a burden because he con- siders it an opportunity. There are other ways of meeting the situation. To lower the bars for county normal schools means evading the situation. The way to make up for the lack of first grade high schools is to have more first grade high schools and to use every individual's disappointment as an argument for increasing his home town's high school facilities. !^ec<»n(lly. young people who lack the last year of high school preparation should be encouraged to supplement their work either by extra work at home or by going to a near-by high school which has the fourth year of approved quality. The following summaries of difticulties and needs of the county normal schools, as reported to your committee by directors, empha- size tlie need for the larger and more definite program of helpful- ness by the state department of public instruction w hich is urged in other sections of this report. Difficulties were reported as here classified by the number of schofjls given in parenthesis after each figure. 1 — Competition from business colleges (3) 2 — Arranging for observation (2) 3 — Conference with students: time (i) place (i) 4 — Practice facilities (2) 5 — 'I'ime for supervision (7) place (6) 6 — Lack of assistant (i) 7 — Local teachers unskilled (i) 8 — One room schools lacking (2) ON ADMINISTRATIVE REORGANIZATION 477 g — Board of education does not furnish necessities (i) 10 — Does not settle question of continuinff the school (i) 11 — Lack of general science (i) 12 — Location unfavorable ( i ) 13 — Lack of board and room (i) 14 — Difficulties of transportation ( I '^ 15 — Unprepared students (2) 16 — Fitting modern methods to rural teaching (2} 17 — Lack of equipment (i) 18 — Overcrowding (i) 19 — Duties too varied (3) 20 — Program too heavy (2) 21 — Refusal of state normals to give full credit for county normal time (i) 22 — Difficulties of starting a new school ( i ) High Spots reported included these: 1 — News column in county papers (2) 2 — Illustrated booklet (i) 3 — Singing (3) 4 — Alumni organizaton ( i ) 5 — Practice teaching (12). Regular teacher observes hfth year grades once a week, special class for tardy pupils, type recita- tion in history, problem recitation in geography, students take responsibility, use Landsittle's guide, teach same subject each grade. 6 — Course of study (12): Socialized recitation (i), dramatiza- tion of reading (2), solid content of course (i), inspirational content (i), course in picture study (i), social usage (i), opera stories (i), rural life in Ohio (i), rural Hfe generally (i), rural domestic science (i), exacting scholarship (i). 7 — Professional library (i) 8 — Traveling library ( i ) 9 — Learning by doing (13), making reports, directing exercises, directing physical training, directing picture study, exhibits literary society, conduct noon lunches, story telling, current events. Suggestions zvere made as follows: 1 — Higher salaries for county superintendents ( i ) 2 — For directors (3) 3 — Full credit by state normals (7) 4 — Locate in county seat ( i ) 5 — More union of counties ( i ) 6 — Course of study (5): Rural life, fewer changes, two years, more English 47^ KKPOKT OF JOINT M:(;rSr.ATJ VE COMMITTEE 7 — State department should give more support (4) : Have more power, make more helpful visits, send lecturers, have full time _ supervisor fl 8— Practice teaching (13); Model room or model school (5); full time supervisor (i) ; assistant (5) ; separate practice from observation (2) 9 — Standards (7) : General (5) ; of teaching (i) 10 — Equipment generally (2): Need two rooms and office 11 — Publicity (i) : State department should furnish high spot magazine 12 — Co-operation of local specialists would help (i) 13 — Teachers should be on same pay as state normals' (i) 14 — Students should be ofifered more pay as teachers (i) 15 — By com])ining two counties two teachers would be possible (i) Needs reported numbered 70; 1 — Location (2) '^ 2 — Building : ( 1 1 ) General (3) Separate room (i) More room (7) Better heating system (i) Better lights (i) Reading room (2) Rest room (i) Library space (i) 3 — Assistant directors (7) 4 — More money (3) 5 — More students (3) 6 — More salary (i) 7 — More publicity for schools (3) 8 — More co-operation : ( 5 ) From board of education (3) Superintendent (i) . High school principal (i) 9 — Practice teaching: (4) General (i) More time (i) 10 — Equipment : (26) General (4) Bookcases (2) Domestic science (3) Books (5) Pictures (2) Cabinet (i) ON ADMIXISTRATIVK RKORClAN IZATION 4/9 Maps (l) Magazine rack (i) Musical instrument (2) Facilities for teaching agriculture (i) Manual training (i) Record system (i) 111 2 foregoing suggestions from busy county normal directors prove th- val'j^ ^+ a round robin oi hign spots and suggestions; in fact the county normal directors have so felt the need of exchanging experience that through their ai^sociation they have already opened a round robin service. It is recommended that the state department of public instruction through its special supervisor of this field develop correspondence with directors and among directors, and the exchange of questions, experiences, and encouragement through round robins. One other kind of work which can be done only by a state depart- ment through state wide publicity is suggested by a county director. A rural teacher from one of these county schools recently gave as one of her chief reasons for not wanting to teach any longer in the country the following: A teacher is required to make a religious profession even though not in sympathy, as for example during a season of revival, and "The school teachers, O Lord, where are they?" was quoted from one Ohio minister's prayer. Teachers are not expected to be human: at a teachers' meeting the superintendent said there was too much friendship among teachers: one man teacher had taken a girl teacher out riding. In another case the board dismissed a very able woman teacher because her superintendent had taken her to several entertainments. While much can be done through general publicity and through city and county superintendents to help patrons see the necessity of their supporting teachers for school work without punishing them for religious differences and without requiring them to play policeman or make slaves of themselves to overcome pupils' difficulties, a very great deal can be done directly through the county normal schools. The suggestion is re- peated that these schools require not less than the full time of one super- visor, plus the assistance that can be given by high school inspectors when in their cities, plus assistance that can easily be arranged for from the colleges which are giving teacher training courses. 480 KKl'OKT OF JOINT Li:( MSLATIVE COMMITTEE COLLEGE CRI':i)rr EOK COL'NTV X()RAL\L WORK It is reccmmended that the law require each state- supported institution to recognize a year in a county normal school as the equivalent of a year in one of the normal colleges or Ohio state university. At the holiday convention of county normal school directors with your committee's field agent there was practically unanimous oj^inion to the effect that one reason why it was so hard to secure students for the county iiormal school was the refusal of the normal colleges to give full credit for time spent in the normal school. Later conferences and correspondence confirmed this testimony. It is inevitably discouraging to young men and young women who work as hard and as earnestly as county normal students do work to have their time discounted when they ])resent themselves foi the next opportunities ofifered by the state. In practice they are required to ofifer a full year at the county normal plus a summer course or more as the equivalent of one year in a state normal school. This requirement would be unfair to the state and to its pro- gram for recruiting teachers even if it were fair — as it is not — to the uidividual county normal student. To refuse full credit is an evasive way of meeting the situation which state normal schools have in mind, namely, that in nianv county normal schools the work is not of the same grade as the first \"ear in a state normal. The right remedy for this condition is not to contimie work that is not equivalent to state normal instruction, is not to assume that the county normals must of necessity be conducted in a less com- petent way, but rather to make sure that a year in the county normal is equal to a year anywhere else. In suggesting that the law prexent a frank discrimination against county normal schools on the assumption that time there' is worth but three-fourth or five-sixth as nnich as time in a state normal, it is not intended to suggest that an indixidual student who pro\es his inca])acit\- to continue in a state normal shall be continued. On the contrary, it is intended to place the county normal in the same relation to the state nor- mal for its year in addition to a high school certificate that the high schools are in with res])ect to th(> admission of their students to the universities and normal colleges. There is nothing in the law which compels any stati' institution of higher learning to keep a student one- hour after he has proved h's inability to do the assigned work. Tlu' law simply says wha.t ])ul)lic sentiment throughout the coinitrx has r'-- (juircd the law to ^ay and will un(iuestional)]\- continue to demand, namely, that the state shall not admit Ihe right of an\ higher institution of learn- ing to refuse to recognize \hv work of secon(lar\- schools which have been certified by the state department of public instruction. ON ADMINISTRATIVE REORGANIZATION 481 Whether speaking of county normal schools or high schools the remedy for too low standards is not an arbitrary line against certain classes of public schools but an intelligent and insistent policy of supervision and helpfulness, which will bring all schools of a class up to the stan.dard necessary for the next step in advance. One other step is needed at once to raise the standard of county normal schools, — directorship salaries should be greatly increased, at least doubled, end correspcndinsg increases required in experience and personality qualifications. Instead of paying only $500 toward a second teacher's salary the state should pay not less than half and would profitably pay 60% in order to encourage increasing register evervwhere until a second teacher is needed. SLACKER COUNTIES IN TEACHER TRAINING The service maps which show for the state as a whole and for each of the state supported educational institutions the number of stu- dents who are preparing to teach, can be helpfully used in many ways by all officers and students who are attempting to compare the benefits that ought to be realized with the benefits that are being realized from teacher training schools. Slacker counties is used as the title of this section to emphasize the parasitism — unconscious of course, but none the less parasitical — of county after county which while demanding teachers for its schools is failing to furnish apprentices. It is not necessary here to point out counties. Where a county employing 250 teachers has only three young men and women training for teaching, it is a slacker county. Any other county is a slacker county which is not furnishing the quota of teachers in training which is necessary to meet at least its own requirements. (See service map on page 440) THE COMBINED NORMAL AND INDUSTJRIAL DEPARTMENT AT WILBERFORCE UNIVERSITY This institution for negro students (605 in 1919 including 30 in the practice school) is entirely state supported. It was created by the legis- lature in 1889, (G. C. 7975). Seven years later in 1896 the legislature reorganized this department under a separate taxable property of the state, the rate' to be fixed once in two years and to start at thirty-five- ten-thousands of one mill upon each dollar of taxable property evaluated. Although the laws, (G. C. 7985) provide that each senator and re- presentative of the General Assembly may designate one or more youth 31 482 REPORT OF JOIXT LEGISLATIVE COMMITTEE of his district who shall he entitled to attend this department free of tuition, there were 44 comities without representation of students in 19 19, only 24 counties had more than one and of 224 Ohio residents it is es- timated by the institution "within accurate data", 85% were known to have been suggested by assemblymen and senators. It is recommended : I — That all connection whatsover with the privately supported Wilberforce university be severed. At present, the state appropriates $5,000 a year to be spent for "teaching service at Wilberforce university". Literally and legally this sum may be a payment for services rendered rather than a subsidy. In moral effect and in actual practice it borders so closely upon the type subsidy which the constitution prohibits, that it should be avoided. The reason for the constitution's prohibition of subsidies to private agencies is illustrated by the following ways in which the state is party to extra legal and illegal exploitation of itself and its students by the private cooperator, Wilberforce university: 1 — $5,000, as above, for services without any control over these services. 2 — $2,500, which W^ilberf orce charges state students registering in academic subjects, although Wilberforce students pay no tuition for state instruction in vocational subjects. 3 — $750, library fees charged state students. 4 — $600, one-half the librarian's salary for attending to a library in a private building used by private college students also. 5 — $500, one-half the new books each year used jointly. 6 — $500, one-half the preceptress' salary for joint services. 7 — $540, one-half physical director's salary for joint services. 8 — $500, one-half sewage disposal plant cost. 9 — $750, one-half hospital cost. 10 — $1,000, one-half use of auditorium which it u.^es dailv. 11 — $900, light and water. 12 — $2,500, rental value of academy Iniildings, heated. 13 — $22 rental value of athletic field, never computed. 14 — $22, rental of gymnasium, never computed. 15 — $22, its share of depreciation of state property used by its students, never computed. 16 — $16,140 plus several thousand more for rentals, upkcej) and depreciation, every dollar of which is spent 1 — Without ])roper control ; 2 — Undoubtedly in violation of the spirit if not the letter of of the Constitution, as shown by Attorney General Sheets' opinion of Nov. 30, 1903, and ON ADMINISTRATIVE REORGANIZATION 483 3 — To the clear detriment of the state's own institution. A searching investigation would undoubtedly disclose many other losses to the state due to this unwise relation. Laymen find it hard to see that this present relation does not violate article 6 section 2.2 of the Ohio constitution which reads: "But no religious or other sect or sects shall ever have any exclusive right to or control of any part of the school funds of the state." Instead of putting a state supported institution in a position where it must practically spend $5,000 a year on the kind of service and the kind of course which a private institution has to offer, the state should see to it that its own institution plans the right kind and quality of serv- ice and has the money necessary to pay for that service. As it actually works out, this industrial school in attempting to use faculty members and courses provided by Wilberforce university for students preparing for the ministry and taking academic college courses, has retained a number of disserviceable highly academic courses that seriously misfit the voca- tional purpose of the normal and industrial school. Freed from the influence and the glamour of academic subjects, it is inconceivable that industrial courses will be requiring five terms of French or German for a course of carpentering; three terms of German, French or Spanish in the first two years of mechanical engineering; three terms of psycholog}', two of principles of teaching, two of history of education and two of educational sociology, in a two year teacher's course in printing, etc. A second tie to be broken concerns the board of trustees, 'z.^ members of which are now chosen by the board of trustees of the private institution, Wilberforce university. By section 7976 the university is entitled to four members. The state names five. If this step is taken it will be necessary to amend section 7975, which now says that this school shall be maintained ''at Wilberforce university in Greene county, Ohio" by striking out the word "university". This will leave the school at Wilberforce. The arrangement has not worked out happily from the standpoint of the state's department. There has been growing friction which in 19 19 reached the stage where it was necessary' for the legislature to in- tervene atid to appoint a special investigation committee. One reason for the difficulty between the two institutions is the fact that the oft'spring has been greatly over-shadowing the parent institu- tion. In 1905 there were 154 in Wilberforce university and 155 in the normal and industrial department. This slight difl:'erence of one out of 154 to the advantage of the latter has grown until in 1920 there are one-half more (605) now in that department, than in the combined col- lege academic and theological seminary (407). How far the increase in Wilberforce university from its low point of 112 in 1909 to 407 in 1920 484 REPORT OF JOINT LEGISLATIVE COMMITTEE is due to state investment in the normal and industrial department is not an important question for the state. It is important that after twenty years slightly over one-third of the present registration or 224 of the total registration is from the state of Ohio and that nearly two-thirds of the total state expenditure for this institution is for non-residents' of Ohio. 2 — That the present board be abolished and a new board of five members be created to be appointed by the governor. While not necessary, it is probably advisable to put in the law the proviso that no one of the five trustees shall be chosen from the member- ship or officers of the board of trustees of Wilberforce university. With the naming of a new board should naturally come a great increase in board attention. Now the minutes are chaos and there is every indica- tion of treating this institution as a "poor relation" to Wilberforce the private university. 3 — That a tuition fee be charged non-resident students of at least $100.09 a year in addition to all the fees charged resident students. In case later the terms are changed to four quarters instead of two semesters, this tuition fee should read at least $25.00 a term or quarter. In the first semester of the current school year, 381 of 605 students came from outside Ohio, 42 of 81 normal students and 339 of 524 voca- tional students. As these figures show, this institution is maintained primarily for out-of Ohio students. Entirely apart from the question whelther Ohio has reason or has means to maintain a school here for negro students from other states there is the more important question whether the presence of this large number of non-residents is not blind- ing the management to important needs in Ohio which it should be tr}^- ing to meet. If there were only resident students there this year, they would re- port 39 in the normal school and 155 in the four classes of many voca- tional courses and 30 practice school pupils. A total of 194 bona fide students wouJd seem pretty small as it seems small on the spot map, but the grand total of 605 makes a pretty large institution and the man- agement easily forgets that it is reaching but a small fraction of its natural constituents. While of course it is now possible to focus the attention upon the very small resident students and to canvass the state for students who need this institution, it is expensive to lose the prod of ambition for size. The suggested tuition is set with the distinct idea of discouraging non-resident students. Unless the state is willing to do this it would be better to impose a charge that would make this out-of state traffic self- supporting, and to go into the business of advertising the school as widely as possible witli a view to recruiting students who will pay. ON ADMINISTRATIVE REORGANIZATION 485 4 — That the state department of public instruction be required to visit this institution, to keep in touch with this work and to report annually to the governor and biennially to the legislature the principal facts regarding it. The work which this institution was intended to do is of great iiTK portance to all people in the state. Ohio's industries need trained artisans and can not continue to ignore the resources of the negro citizens. If however, this institution is to be conducted, it should have the benefit of all the experience of other institutions in the state and of the best voca- tional practice in the country. Rendering this service is a natural duty of the state department of public instruction. 5 — That the extension classes be greatly extended. Where now this extension work is of little consequence and affects but a few groups totalling 135 in three places, it should be a strong factor in all industrial cities. In fact there is grave reason for ques- tioning whether the greater task of this institution should not be exten- sion work. Instead of taking 1S5 young people to a country school remote from industrial processes, it would be better to take the teachers to a much larger number of industrial workers where they are actually at work and where their daily work can be correlated with their instruc- tion at school. 6 — That the state consider entertaining the offer of Wilber- force university to pay $250,000 for the state's plant. This offer was made publicly by the president of the board of trustees of Wilberfcrce university. The plant is worth three times the amount that is offered but the plant is in the wrong place. Conceding remarkable success during the next ten years at this institution, it can still do but a very small service on its present site. A small part of this extra expense put into expert teaching in industrial neighborhoods where the plants are furnished either by city high schools or by industrial plants themselves would accomplish vastly more for the vocational education of the negro of Ohio. One of the buildings belonging to the state stands on ten acres of land that belongs to Wilberforce university and it is estimated by the management to be worth from six to sevep hundred dollars an acre, or in all from six thousand) to seven thousand dollars for this piece of property, the only property in which there is a joint ownership. To residents of the state no charge is made for room. To non- residents a room charge of $5.00 a term, or $15.00 a year is made. There is no reason why free room rent should be given to Ohio students at this institution any more than at any other institution in the state. There seems no reason whatever for charging non-residents less than the actual cost to the state of furnishing those accommodations. 486 REPORT OF JOINT LEGISLATIVE COM.MITTEE From the annual report of Wilberforce university and the combined normal and industrial department no evidence is obtainable as to the profit or loss entailed in conducting a boarding department. To the ex- tent that the state of Ohio is jointly responsible for the character of this report, it is inexcusable. The report of the state auditor throws no light upon this business. The budget makes no direct appropriation. Where it has capacity for 180 in its dining room it is trying to care for 253; in O'Neil dormitory for boys there are 117 where capacity is 80; in Arnett and Mitchell Hall for girls there is an average of 25 and 14 above capacities of 90 and 60. The catalogue shows lack of cohesion and clear planning. The argu- ments which the managers have made for divorce from the private Wil- berforce are many, of tliem proof conclusive that a complete inventor}' should be taken- by the state of the institution's aims, facilities, personnel, results and blinding political influences. 7 — That the normal department be abandoned. There are five state normal schools in Ohio for the training of teachers besides 35 county normals and six city normals, to all of which the negro students are welcomed. In January, 1920, there were but 39 resident students in the normal department. They could be vastly better taken care of if distributed among the other normal schools. Unless eitort is to be made to recruit a very much larger number of negro women for teaching there seems no justification for maintaining the heavy over-head that is detailed for so small a normal group. In three years there were graduated from the normal department 44 Ohio stu- dents. This does not indicate a demand for a special school for negro students. 8 — That the business and educational management be in- tensively studied by the governor and the legislature from the stzmdpoint of its efficiency. POSTSCRIPT In April, two months after the foregoing summary was written, additional information was obtained. Your committee chairman asked that action on the report be deferred until the field agent could see the report of another joint legislative committee specially appointed to in- vestigate the Wilberforce institutions, and secure the educational sub- committee's report. Later it was learned that the Wilberforce board had recently reorganized, had named as president a newly appointed former member at the first meeting attended by him, had installed his sister long past three score years as matron of the woman's dormitoiy, and after declaring the superintendent's office vacant as of July first, had per- mitted him to resign. ON ADMINISTRATIVE REORGANIZATION 487 These steps have been taken by a board in which four of nine mem- bers are named by a private religious corporation. They vote together, i hey need but one vote to determine action for a state institution. The condition is none the less sinister because two state members voted with the privately appointed members, one of them being elected chairman be- sides being joined in the service by a relative on a paid post. Such results are invited by the relation which the state has estab- lished with this private institution. Such results and worse are in- evitable where any private agency is in position to play parasite on the state treasury. They would not be tolerated if due to any church of w'hites. They are not more tolerable because Wilberforce university is managed for negroes by negroes. It is a shocking demonstration of contempt for the public as partner that this board dominated by a religious corporation should begin its response to a state appeal for helpful co-operation by dismissing a state officer whose worst ofifense against "co-operation" was trying to build the state's work and to reduce interference from private sources. The recommendation that a complete divorce be effected is re-en- forced by these happenings. It is unfair to the negroes of Ohio to give state countenance to conditions that will inevitably debauch some of their number and reflect discredit upon them all. Instead of concurring in the recommendations of the other joint legislative committee's three educational specialists, your field agent believes that harm, not good, will come from continuing the interrelation- ships of the state's vocational and normal school with Wilberforce academic and theological schools. For much less than the $12,500 actual cost which now goes annually to the private institution adequate state service with no drawbacks can be purchased. There is no reasonable hope for developing worthwhile industrial attitudes and work among negro students in a state supported institution who are dependent for content and method of instruction, or for attitude toward their industrial future and the life it makes possible, upon instructors chosen primarily for a theological seminary, a liberal arts college and a "modern pre- paratory school". $12,500 spent upon extension work in industrial centers as earlier recommended would do infinitely more for negro education without throwing any obstacles and contumely in its way. SHALL OHIO HAVE A CHANCELLOR OF EDUCATION? If the time comes, as elsew^here recommended, when degrees of each state-supported institution will be given by the state of Ohio and not merely by the institution, there will appear need for a central mobilizer of vision with respect to educational needs and of understanding with 488 REPORT OF JOINT LEGISLATIVE COMMITTEE respect to educational practices. Shall this overseer be a chancellor apart , over all institutions? Shall he be also the administrative head of Ohio state university, or shall he be the state director of education? No educator in the state should ever be given prestige higher than that of the state director of education by whatever name he is called. With the term "chancellor" Mrill go highest prestige. Therefore it is suggested that if the time comes when a chancellor is required, the title be given to the officer responsible for the state department of public instruction. The man whose sweep includes children who have not }ct started to school, children in rural schools, students in county normals and universities, should be accorded a leadership not second to a man whose sweep includes the relatively small percentage who go to one or all of the state universities. UNSETTLED EDUCATIONAL PROBLEMS IN OHIO Among the unsettled problems the following call for early study by the universities and colleges, by the state department, by unofficial private associations that include representatives of private colleges, and by a state educational council such as earlier suggested: 1 — Can the state develop junior colleges in other fields than educa- tion at Bowling Green and Kent without endangering the pres- tige of its teacher training course ? 2 — Would the payment of $50 a month to teachers in training materially increase the supply of teachers without discrediting the profession and delaying the adequate salary recognition of it? 3 — Has the time come to modify the requirement that private col- leges wishing to certify teachers must give a minimum of thirty hours of so-called professional instruction, or does experience prove that the character rather than the amount of professional instruction should be changed? 4 — Will Cincinnati, Akron and Toledo continue to maintain munic- ipal universities and at the same time pay their share toward state supported universities, or must the time soon come when in fairness to these centers and other centers that wish munic- ipal junior colleges, colleges or universities the state must either take over the cost of the universities or make payment in pro- portion to service rendered? 5 — Should the city normal schools be left exclusively to municipal support and supervision or must the state recognize its inter- est in the teacher supply and teacher quality and the demands ON ADMINISTRATIVE REORGANIZATION 4S9 of equitable treatment by making state contributions toward city normal schools ? 6 — Is it possible to reorganize and readjust the professional courses so that it will not be necessary for Ohio State Uni- versity to give any elementary courses and any junior college courses in any one of its professional schools? 7 — Is there any present day reason for continuing junior, senior and graduate work outside of avowedly professional courses? 8 — Since the purpose of education is to develop power, should state institutions arrange to recognize and to guide the develop- ment of power away from the institution through supervised in absentia work, reading, travel, writing, and participation in pubHc service or other field work? 9 — Is a searching cooperative study needed of subjects taught in universities, colleges, high schools and elementary schools, and of methods employed in teaching, for the purpose of listing all opportunities for eliminating waste of energy and time? 10 — Are uniform state standards desirable such as a uniform mini- mum course of study, uniform state examinations for elemen- tary and high schools, uniform tests for promotion and gradua- tion at the county and state normal schools, uniform salary schedules in schools supported entirely or in part by the state, or does Ohio wish freedom for each set of executives and trustees to fit courses and salaries to their own understanding of local needs above a minimum set by the state department of public instruction? II — Would a short intensive course accomplish more than several long drawn out courses taken concurrently — one hour, or two, or three, or four a week ? Will a short survey course give students quite as much about the sciences and literature as they now retain while enabling them to cover several more fields ? 12 — Has the time come to distinguish between courses where the student is a mere auditor exposing himself to inspiration and information, and other courses where the student studies, and still other courses where he studies and works for honors? 13 — Are there subjects wdiere the passing mark must be correct and not 60 or 70% ? 14 — Is it possible to organize so that each student will go as fast as he can without being impeded or confused by those slower or faster than himself? 15 — Can learning by doing and "projects" profitably displace a large part of the present lecture and text book work ? 490 REPORT OF JOINT LKGISLATIVE COMMITTEE i6 — Are there many subjects that can best be learned and many powers than can best be developed by serving the state while learning and developing, for example, by making community surveys and by otherv/ise helping out state departments? With regard to each of these questions there is a difference of opinion. It is impossible to secure enough information and enough dis- cussion to answer these questions in time for action by the next legisla- ture. Many of them can never be answered until experiments hc^^e been made. For example, leading educators insist that it has never yet been possible for a normal college to carry on side by side work headed toward teaching and work headed toward other professions without seriously detracting from the interest which students and teachers alike take in preparation for teaching. Miami University, on the other hand, believes that its success in drawing more students to its normal college than Bowling Green and Kent combined is partly, perhaps chiefly, due to the presence at Miami of students preparing for other professions. Pros- pective teachers, it is said, feel that they will have a better time and do have a better time during their college course where other subjects than "teaching" are being taught, than they could have if there were only pros- pective teachers and chiefly women at that. To reconcile the two points of view, discussion and re-discussion and experimentation are needed. Again, with regard to paying normal students while in training sharp differences exist. The president of Kent Normal College feels certain that in no other way will it be possible to recruit enough teachers. He quotes Akron's experience where for $50 such as Akron factories pay for apprentices the normal schools have their pick of ablest students instead of taking the leavings. He believes that expending $300,000 a year in Kent in paying teachers in training would be well invested. Yet at the meeting of Ohio educators dur- ing N. E. A. week in Cleveland the majority judgment seemed to be that starting out to pay teachers to prepare for teaching would ac- centuate present objections to teaching, that it is on a part charity basis and unable to compete with other vocations in attracting ablest men and women. Those who held this view insisted that it was far more important to pay teachers after they begin to teach than to pay them while they are preparing to teach. These two conflicting views cannot be settled before next January. No one is justified in holding either view dogmatically. Study, discussion and experi- mentation are needed. In another section an experiment is recom- mended with the pay-while-leaming plan and the bonus-when-teach- ing plan. A similar conflict of views exists with regard to the third question, whether the present character and quantity of professional training is ON ADMINISTRATIVE REORGANIZATION 49I elevating the standards of teaching or is rather lowering the standard by discouraging and driving away best abilities. Private colleges have in- sisted to your committee that the requirement of thirty hours professional work includes repetition and prevents giving other work that is more valuable. State colleges of education insist that more rather than less professional work should be required. There must be a wide-spread disbelief in professional courses before a great literary journal will print statements like these: "Operations in normal schools or teachers' colleges will not change the species to which a person belongs. And the grave and overshadowing consideration about a teacher is whether he or she belongs to the teaching species, or is only trying to imitate the habits of that species and thereby draw a salary. . . . The great thing about a teacher of youth is not at all how much he knows of the science of education, the laws of learning, the administration of a school, or of the particular subject which he teaches. The important thing is his personal radiative power as an illuminant along the highways which his pupils have to travel. One could weep, and one must weep, to observe how, in place of this, something manufactured is sub- stituted." When a magazine that exerts great influence upon public thought makes charges against professional schools Ohio professional schools for teachers should either have evidence to disprove the charges or else modify their requirement. They are not organized now to secure or to circulate information. This issue cannot be settled before next January. No one man's and no one group's judgment will be accepted as final. The way to settle this question is .to study it, analyze these professional courses, observe the way they are taught in the schools, observe their application by teachers after- ward and discuss the significance of this information. Controversial in another way is the question of state support for municipal universities. The danger here is not so much that the state will find itself over night shouldered with these institutions as that the cities now supporting them will over night decide to stop supporting them. Fortunately recent experience does not justify such fear. On the con- trary, these municipalities are, voting more and more funds this year and are apparently becoming more and more proud of their home universities. In spite of this current tendency, however, it is difficult to believe that with potential public school revenues raised to ten or twelve or more mills in every Ohio municipality, and with other costs of government mounting, Ohio can reasonably count upon the willingness of Cincinnati, Akron and Toledo to keep up great home universities and at the same time share in proportion to their property values in the cost of state 492 REPORT OF JOINT LEGISLATIVE COMMITTEE universities, to go on maintaining their own colleges for teachers and still contribute to the state's colleges for teachers just as if the state were preparing teachers for them. It is a question which Ohio will do well to begin studying now before there is any open public issue. For the same reason cities like Dayton, Lima and Youngstown that are now maintaining one ye^r city normal schools cannot reasonably be counted upon to support the much needed development of county and state normal schools, and at the same time to carry alone the burden of home town normals. The much needed separation of junior and senior colleges at Ohio state university can make little headway unless changes in course of study are agreed upon which will not necessitate maintaining freshmen and sophomore work at Columbus as preparation for dentistry, medicine, law, agricultural engineering, veterinary medicine, etc. It may be that Ohio cannot do full justice to its students unless it gives up some tradi- tional subjects. It may be that the list of pre-requisite courses has in it a number of courses that ought to be eliminated, for example, that a foreign language course which does not enable the student to speak or write or read in that language is not indispensable to any professional course. To suggest that any particular course in a college or university is not needed at the point where it is now offered is worse than lese majeste — it is rankest bolshevism. There exists no authority whose word on this subject can be considered final. Argument will not settle it. Majority voting will not settle it. It can be settled only by a series of conferences following studies that Ohio ought to have made by its university and college faculties and state departments. With regard to extension courses or extra-mural courses taken away from the university or college, the challenge of present theory and prac- tice promises much profit. Hundreds, perhaps thousands, of those who are overcrowding Ohio state university are there not because they prefer to do their growing there, but because they cannot get recognition for growing unless they spend their time there. Millions of dollars in capital invested in l)uildings, hundreds of thousands of dollars annual income devoted to salaries and facilities for university work of high grade are mvolved in the answer to this question. A still greater issue is involved, namely, should a great democracy democratically organize its educational facilities and place them within reach of practically every person ambi- tious and able enough to use those facilities, or "aristocratically" and "plutocratically" concentrate those facilities in a few cities away from chances to earn while learning? To some it seems preposterous that a school superintendent should have to stop superintending in order to secure academic recognition for ability to superintend. Hundreds of Ohio's ablest teachers and super- visors drop their work for Ohio's children and stop even thinking about ON ADMINISTRATIVE REORGANIZATION 493 that work, give up their learning-, and go to distant schools inside or outside Ohio to listen to talks about their work by teachers who perhaps have never themselves done such work. Again the engineering college of Ohio state university has not yet developed the in-and-out or cooperative plan which has worked so suc- cessfully at the University of Cincinnati where students learn one week in factory or shop, and attend engineering courses the next week, and in each period have the benefit of a so-called coordinator who sees to it that while working they apply the principles they learn at college and while studying at college they build up on their practical experience. New York university has just adopted this plan. Ohio state has in- vestigated but has not yet adopted. It will remain an open question until trustees and other faculties study and discuss its principle which can as readily be applied to commerce and journalism or political science and chemistry as to engineering. Even in the arts course there is an analagous situation. Some edu- cators call it topsy-turvy reasoning that puts a higher value on a 60% mark gained in a lecture course with thirty other students than on home reading and thinking upon the same subject with ability to pass the same test vv'ith a mark of 80 or .90%. Conditions have so changed since clois- ter colleges were first organized and even since modern professional schools were first organized that great states must soon arrange to take the college and university to the student where he is earning his living and stop requiring the student to stop his earning, to leave home, and to live in an artificial overcrowded atmosphere in order to get what his own state will recognize as education. As the Ohio service spot maps show the register at each state uni- versity and college is largely local : 1 — Of Ohio residents registered in the autumn of 1919 105 or 44% of 240 at Bowling Green normal college came from that city and Wood County and 184 or 72% from home and contiguous counties. 2 — Of Ohio residents registered m the autumn of 1919 27 or 13% of 209 at Kent normal college came from Portage County and 91 or 43% from the home and five contiguous counties. 3 — Of Ohio students registered in the autumn of 1919 172 or 20% of 895 at Miami university came from Oxford and Butler counties and 431 or about 50% from home and from contiguous counties. ^_0f Ohio resident? registered in the autumn of 1919 299 or 31% of 960 at Ohio university came from Athens city and county and 404 or 43%o from home and six contiguous counties. 494 REPORT OF JOINT LECilSLATIVE COMMITTEE 5 — Of Ohio residents registered in the autumn of 1919 2067 or 36% of 6042 at Ohio state university registered from Columbus and P>ankHn county, and 2442 or 40% from home and six contiguous counties. In other words the reason why ten thousand other Ohioans are not attending state universities is that the universities are too far away and not tliat these students lack ambition or ability. To suggest credit for correspondence courses, credit for extra- mural courses given in home towns, credit for individual study under university supervision seems to many to be almost blasphemy. It is impossible to harmonize conflicting views before the next legis- lature. It is not impossible to start a study v/hich will eventually lead to forward steps of great value to Ohio. tenltrf: of voluntary boards It is reccmmended that all statutes relating to the tenure of un- i)ai(l boards be so amended that a board membfer may not succeed himself. It is not suggested that one person be limited to one term, provided that after a lapse of a term a governor or other appointing power has reason to requisition again the services of a former member. The rear.on for this suggestion is that the state of Ohio has adopted for the most part the theor}' that duties of administration should be given only to full time, paid, and so far as possible, previously trained and skilled administrators ; and that voluntary boards and commissions shall be used for inquiry, recommendation, criticism and moral support bnt not for administration. There is a reason for the distinction and that reason goes back to decades and generations of experience with impaid boards. At the same time, the concentration of administrative responsibility upon paid ex- ecutives, a very small number or one for each main service, makes it indispensable that un])aid, \'oluntary interest be secured to check the tendency of officialdom to interest itself in the mechanics rather than Uic humanities of management. The pnri)0se of the voluntary board being to sec what is needed or desirable that is not yet being done, it is imj)ortant thai at no point it shall have a self-interest in mistakes of management that will keep it from wanting to explain unmet needs to the public. It is also important that it shall not have a ])ersonal reason for wishing to shield executive officers. To free voluntary Ijoards from temptation to conceal their own mis- takes of management, it is suggested in these re])orts that all administra- tive duties be transferred to administrative offices. For example, that the ON ADMINISTRATIVE REORGANIZATION 495 division of child welfare and the support bureau be transferred from the board of charities to the director of welfare administration. To free voluntary boards from the temptation to become more in- terested in institutions than in needs that are not being met by those institutions, or to become more sensitive to their own past records than to opportunity for making new records, or to become dull to needs be- cause of familiarity or the habit of not noticing them, it is suggested that no trustee be permitted to succeed himself. In a few instances, by no means as frequent as many will think, the state will lose at a critical time the official interest on some board of a particularly valuable board member. As an offset to this possible loss are the following probabihties : Those same constructive board mem- bers will attempt to do far more in their limited term if they know they are not to succeed themselves; many other members who keep procras- tinating with the thought that tomorrow or the next day they will do vv^hat the governor hoped they would do on the board will speed up in order not to leave a record of inactivity ; governors will be more careful to select men and women who will use their single term to the state's advantage; there will be fewer instances where small groups of voluntary trustees assume an attitude of proprietorship, even more autocratic than many elective and appointive officers assume who consider the state serv- ice a private preserve ; and while now^ and then the state will lose the services of some trustee willing to give a lifetime to building up some institution, it will gain freedom from being patronized by individuals who forget that although unpaid and although trustees they are neverthe- less servants of the public. This recognition applies immediately to the board of charities, the recommended board of education, the board of the two state normal schools if they are continued, the trustees of the soldiers' and sailors orphans' home ,if this is not placed under the director of administration as recommended, and the three boards of the three universities. To the relatively few in the state who have given thought to the actual management of the universities, the question will arise as to whether the tradition of long tenure for university trustees should be broken. At the Ohio university trustees are appointed for life, and re- main trustees for life whether they ever go to a meeting or not. At Miami university and Ohio state university, the law does not require life terms but tradition prefers re-appointment. While governors feel free to release a trustee from service the presumption stands in favor of continuation. In his own mind, if not for explanation to the public, a governor must have some special reason for failing to re-appoint a uni- versity trustee. It is here suggested that on all state boards the presump- tion should be in favor of not continuing a trustee unless proof of ad- vantage to the corporation served exists. To thus limit the term frees the 40 REPORT OF JOINT LEGISLATIVE COMMITTEE executive from embarrassment, frees the state from' tradition and fosters conditions where every broom will be a new broom so long as it is used. This change will not aftect the continuity of a board, nor interfere with its having a continuing memory of its problems and acts. If the law provides that one trustee shall go out each year it will insure a seven year or five year memory in each board, according to the size of the board and a memory span of thirteen or nine years. It is recommended that the laws pertaining to all boards of trustees be changed so that no board shall consist of more than seven members, that the term of each be seven years, that only one retire in a year, and that no trustee may succeed himself. NEED FOR ROTARY FUNDS It is recommended that the legislature definitely recognize the dis- tinction between capital and operation expenses by establishing rotary funds for state institutions. It is further recommended that the practice be discontinued of letiuiring return from sales that niiglil appropriately be used for in- vestment to be turned into the state treasury and that the present embargo msisted upon by the auditor of state as to trading among institutions be lifted. Institutional managers have with almost one voice protested that the present practice instead of putting a premium upon foresight and shrewd management puts a premium upon wastefulness and indif- ference. If a hospital for the insane cannot use its own good luck or good husbandry on the farm for the improvement of its own farm, it loses interest in making such improvements. Such is the contention, such is the fact, and such is human nature everywhere. If one state farm cannot trade an animal that it does not need for some other state farm's unnecessary animal, and if it can do nothing with an unnecessary animal to its own advantage, it is at least tempted not to worry about the state's interest in that animal. Financial control is only financial chloroforming if the result of it k to discourage far-sightedness and economy. It is easy and entirely .safe to control finances of state institutions by accounting methods while still leaving an opportunity to keep turning over and over their capital to the state's advantage. Many other legislatures have dclinitclv recognized the difference between expenses and investment by establishing what they call rotary funds. Examples are furnished in the following statement from the department of animal husbandry in the college of agriculture, Ohio state university, one dealing with purchases and sales of live stock ON ADMINISTRATIVE REORGANIZATION 497 and the other with exchanges. Numerable other ihustrations might be furnished from the institutions under the board of administration. The principle is so clearly stated by Professor C. S. Plumb that there seems no answer but agreement. The end which the auditor of state seeks by prohibiting exchange can be accomplished by making, as he can, an audit of results which will stimulate and not paralyze university initiative : 'Tn order to properly supplement certain class room lessons, relat- ing to farm animals, such as breeding, feeding, the relationship of form of function, management, the breeds, etc., it is vitally necessary that the college of agriculture maintain herds of improved live stock. Such herds are maintained in all our agricultural colleges. At this university we usually keep about 25 head of horses, 100 of cattle, 125 sheep and 100 or more hogs. To properly care for these tnimals, and to improve the work in breeding, , necessitates the expenditure of a considerable sum of money from year to year. Funds should be avail- able that will permit the \iniversity to purchase such animals as may be desirable or necessary to further the work. Such,, however, is not the case. r 1, o^, "The conditions wdiich have existed for years, are as tollows : ilie legislature has usually appropriated about $3,500 a year for the uni- versity for the purchase of live stock. The past two years the sum has been $3,800. This sum has not been specifically for the animal husbandry department, but for the university as a whole. This being so, some of the money appropriated each year has been used for purchasing work horses for the farm. This year a number of horses have been bought, thus reducing the fund for purchase of animals for the animal husbandry department to less than $3,000. Persons at all familiar with the cost of high class horses or cattle, or even sheep and swine, realize how small a fund there is with which the uni- versity has to work. During the year 1919-1920, large numbers of cattle and swine have sold for averages of $1,000 or more. In 1917 the university needed a Percheron stallion, and we purchased a horse that was of outstanding merit, but he cost $2,500, leaving but $1,000 for all other live stock expenditures during the year. "In many colleges, the department is allowed the use of funds derived from the sale of live stock. In Ohio this is not the case, and the university is required to turn into the state treasury all moneys from live stock sales. It is immaterial how much money is derived from sales. It returns no benefit to the university. Under present conditions, w^ere our sales $100,000 in a year, we should still appar- ently be allowed but the small sum now available. If, however, this money, as a rotary fund, were available to the department for equip- ment and supplies, it would enable us to purchase much necessary livestock and place our equipment on a better basis for educational work. It has always been very uncertain whether we should receive any state appropriation at all, for live stock,, so that if we had a rotary fund, it would give us a degree of independence in the way of animal appropriations that we do not have now. "The department is further handicapped in another direction. The auditor of state has expressed the opinion that no exchanges of live 32 498 REPORT OF JOINT LEGISLATIVE COMMITTEE stock should be allowed, between the university and other proprietors. Therefore, while 'in the past this department has done some trading, and to university advantage, at present the practice is discontinued. Under these conditions the university is denied the right to follow a universal practice among stockmen, and which may be followed to the advantage of both parties. In the purchase of the Percheron stallion to which reference has already been made, the owner of the horse agreed to take part of his pay in live stock. He visited the uni- versity, and expressed a willingness to take certain animals that we de- sired to dispose of, at a fair compensation in trade. In view of our shortage of money, this trade would have been very advantageous to the university, but the exchange was jirohibited and fell through. Per- sonally, I fail to see any logical reasons for denying the department the privilege of making exchanges, which it must be assumed are in the in- terests of the state. If the persons in charge of the live stock are qualified, then it seems to me they should be permitted to use their judgment in the methods of securing or disposing of live stock, so long at least as justified in the light of common custom. "I am sure that it is the opinion of the men in the department that with reasonable funds at the disposal of the university, and a properly safeguarded freedom of action, we should be able to place before our students inspiring lessen? in ]i\e stock husbandry, that necessarily have to do with ample instructional material of the better class." A rhetorical anti-climax that hcl]~)s drive tb.e lesson home is added from the state hospital: "We ha\e a pedigreed bull calf that we mignt sfc^ll for $75. Our stock man said this morning that if we sell it we ge< no benefit from it for the iuoney goes to the state. He sug- gested, therefore, that we cut it up for meat.'' The rotary fund prin- ciple is sound and should be generally adopte;d at once. ONE HEAD FOR FOUR IN ADMINISTERING WELFARE INSTITUTIONS By WILLIAM H. ALLEN With regard to the board of administration which is responsible for expressing Ohio's best thought in managing twenty-three different insti- tutions having an aggregate population of 25,000 and spending $12,000,- 000 each biennium, it is recommended: I — That the board of four members be abolished. 2 — That a director of welfare administration be created with all the powers now possessed by the board of administration. 3-^ That to the director. of welfare administration there be trans- ferred the administrative responsibilities now carried by the Ohio commission for the blind, the support bureau and chil- dren's welfare work of the board oi state charities, and the board of trustees of the soldiers' and sailors' orphans' home at Xenia. If adopted, these recommendations will put into one executive's hands the administrative duties now carried by sixteen board members, make for better administration of all services involved, and release sal- aries, expense money and energies that will elsewhere accomplish vastly more for the state than is now being accomplished by the present organ- izations. The reason for transferring the administrative services of the com- mission for the blind to the department of administration is that this commission has now become a large business enterprise. Its purchases, its sales, its patrons, its homes to be visited and blind persons to be taught at home, and its traveling expenses, have exceeded the point where a voluntary commission can give more perfunctory attention to its work, costs, and results. The time of a capable executive should be free for extending and improving the work without the necessity of trying to give a widely scattered, seldom-meeting board enough knowledge about the work to justify it in voting authorization. The voluntary interest of persons devoted to furthering the interests of the blind can be util- ized more effectually in educational work that does not involve admin- istrative duties. The reason for transferring the administrative duties now being performed by the state board of charities is three-fold : they belong prop- 499 Days Board of Administration Members did aind did not visit 18 Out of Columbus Institutions — Fiscal Year, 1918-1919 Blank space indicates day of visit; *Indicates day of no visit out of Columbus. IJr. Riddle Jan Feb Mar Apr May Jime July Aug Sept Oct Not Dec Mr, Guthery Jan Feb Mar Apr May June July Axig Sept Oct Not Dec Mr. Seiner t Jan Feb Mar Apr May June July Aug Sept Oct Nov Dec Mr. Creamer Jan Feb Mar Apr May June July Aug Sept Oct Nov Dec :^ *** ***** ******** **** ** * ***** ********************* ** ****** *** ***** ********** **** ******* **** **** * ** ** ****** ****** ***** ** ***** *** ****** ***** ***** **** ****** ***** ******** **** **** ****** ****** ********* ** ***** *********** ****** ******* *** ** ***** **** ***** *************************** ********************* **** **** **************** ************** ** *** ******* *** **** * ******************* ********** * ** ****** *** ********* **** ****** **** ****** **' ***** ***** ** ** *** **** * ********* ** ** ************* ***** ******** ******* ******** ** *** ** ** ***** ** **** ** *** ************ **** * * ************* ************** * *** ***** *** ********** **** ********* ******* **** ******* ************** ************* ******************** ********** **** ***** ********** **** *********** ***** ***** *** ********* ** ****** *** ****** ***************** ******** **** ***** ******** ********* ****** * * ***** ******** ******* ** ****************** *** ** ****************************** ***** *** *************** **** ********* *********** ** ***** ****** *************** ***** ******************** ********** ************ ******* ****** ************************ ** *** **** *** ** *********** ***** ***************** ************* ***** ************************* **** ******************* ***** ** *** *** ******************* **************** ************* ***** *** ***************** ** (500) ON ADMINISTRATIVE REORGANIZATION $01 erly with other administrative services in this same field where they may receive exacting supervision ; they cannot be well enough done by any board that meets infrequently; and they divert the attention and energy of board members from duties of inspection, criticism and recommenda- tion which should be regarded as imperative, but which actually have lapsed to almost negligible consequence. The reason for placing the soldiers' and sailors' orphans' home in a large administrative department is that this institution for over six hundred children is entitled to advantages of wholesale purchasing, sys- tematic repairs, expert advice on farming and gardening, expert promo- tion at budget time, expert executive supervision and helpfulness which a voluntary board of trustees does not and cannot furnish. The objec- tion that soldiers' children should not be classified with the unfortunates who are cared for by the administrative department seemed strong enough when the board of administration was established to prevent including this school under central administration. But that objection was largely the result of misunderstanding. No disparagement of any class is involved in giving it heat or engineering service or budgetary over-sight or executive supervision from the same center which supplies other different constituencies. The friends of the Xenia home surely do not want less for the children at this school than the utmost expert direction will give. Nor can they, after the facts are explained, be willing to deny the state the advantages that would come from putting this service where the utmost can be learned from it. The reasons for substituting a single director for four members as head of the state's administration of institutions are five : 1 — The work of a judicial character that called for board action when the separate institutional boards were first abolished has now been accomplished ; 2 — Present work calls for study, decision, action, dispatch, ef- ficiency, for each and all of "which one head is everywhere better than four ; 3 — The cost of obtaining four men of the caliber contemplated when in 191 1 the salaries were fixed at $5000 is now prohib- itive for it means at present rates from $40,000 to $60,000 a year for initial salaries in this one office ; 4 — Far more work can be secured from specialists employed for field work if they have to account to but one superior instead of four; 5 — One person able to decide and to execute will have a continuing motive to study causes and consider and propose remedies where a board of four has found it impossible in nine years to adequately utilize in this way either the expert ability on its own pay-roll or the progressive citizen interest and institu- tional experience of Ohio and other states. 502 REPORT OF JOINT LEGISLATIVE COMMITTEE In addition to or in explanation of the foregoing reasons for a single director instead of four board members, the following facts are cited : In the last fiscal year only 223 visits were paid to institutions by the four board members or respectively 63, 76, 52, 32 each. See the accompany- ing chart on page 2 for graphic ilustration. The member whose assign- ment this year is general humanitarian interest and finance visited last year when chairman on but fifteen days when not accompanied by other members. This chart itself shows the difficulty of having four heads instead of .one, all of them co-ordinate. It is extremely difficult, as experience has shown everywhere, to entice men into the field if there is an excuse for remaining in the office. It is difficult enough where men are under instructions. The board members are doubtless surprised that they are in the field so seldom. The total — 223 visits for all of them — is less than a full working year of one person after due allowance for vacation and sickness. Of 1000 minimum working days to which the state was entitled, 223 were spent partly in the field, leaving 'j'j'] at the office. And while some office work is needed, it can hardly be contended that it is in the proportion of ']'j'f to 223. If we add together the days spent in the field by the agriculturist member, the physician member, and the humanitarian member, we have all told 160 days in the field, or 36% less than the equivalent of one full year of one itinerant specialist. For these 160 days of field work and the office supplement, the state paid $12,000. At the value of money when the board was first established, it would have been $30,000 for 160 days. $4,000 for 76 field days by the agriculturist member, $4,000 for 52 days by the physician member, and $4,000 for 32 days by the humani- tarian member, represents a salary rate vastly exceeding that of any other state officer or any public ofifiiccr in the United States, except the president. Not one of the eighteen institutions outside CoUmibus was paid the statutory monthly visit, the monthly failures to comply with the law running as high as ten months not visited out of twelve monthly visits due. Even the state reformatory for men which is seriously over- crowded and presents grave problems was skipped three months. The three institutions which can easily be visited in part of one day by auto- mobile run — boys' industrial school at Lancaster, girls' industrial school at Hyatts, and the women's reformatory at Marysville — were paid yj visits, or almost exactly one-third the year's total visits to eighteen insti- tutions, while the hospital for epileptics at Gallipolis, the Madison home and the state sanatorium combined had only 14 visits. Nor is tliis twelve-month period below normal in amount of visiting done. In the two six-month periods — Jan. i to June 30, 1918, and July I to December 31, 1919 — the total of visits was 43 fewer than in the fiscal year July i, 1918 through June 30, 1919, the members making ON ADMINISTRATIVE REORGANIZATION 503 respectively 14, 13, 18 fewer and one 2 more than in the other twelve months. In the last six months of 1919 only one of eighteen institutions — the new prison farm — was visited every month as required by law. The girls' industrial school, which was much in need of attention, was not visited in July, November, and December ; the Ohio state sanatorium was not visited in September, November, and December; the hospital for epileptics was skipped four of six months, as was the Lima hospital for the criminal insane ; the institution for feeble minded was missed each month. More fundamental reasons still for substituting one executive for four coordinate conferring heads have to do with the larger purposes for which Ohio maintains these institutions : 1 — The board has after all these years failed to provide for the same systematic study of its human problems which it has given to problems of purchasing and of controlHng finances; 2 — Although free to print illuminating reports and to require sci- entific analysis of its results and lessons it has failed to do both ; 3 — After taking the statesmanlike step of bringing on a specialist in mental abnormalities as head of its bureau of juvenile research it has given him only restricted use even of its own laboratories, has failed to use him in its institutions anfl has • actually permitted his exclusion from the boys' industrial school ; 4 — It has failed to give the state the truths needed to show whether the new penitentiary plans are an unimaginative orgy of expense and misplanning as Mr. Cummin has reported to your committee, or are as the building commission maintains a wise expenditure of $10,000,000; 5 — It has failed to turn the searchlight of its institutional experi- ence upon the causes of crime and the possibility of greatly developing probation work in counties in order to keep men out of state penal institutions ; 6 — It has failed to develop leadership of state thought regarding the vast problems entrusted tO' it. It has failed in these services not because it did not want to help but because it was asked to do what boards and commissions seldom do, namely, manage and administer as well as legislate. It has been no one member's duty to look ahead for the entire many-sided problem. Even where one member has special knowledge he must defer to three others who lack his special knowledge but who are compelled to go through the form of weighing his evidence and challenging his recom- mendations. With such diffusion at the top it has naturally been im- possible for the state to secure from trained subordinates the service 504 REPORT OF JOINT LEGISLATIVE COMMITTEE they could gladly give were efficiency and initiative fostered and com- pelled by an exacting head with a consistent cumulative policy. The needs of the girls' industrial school, paid 79 visits in the two last calendar years, illustrate limitations that are inherent in manage- ment by several heads where no one person has the duty or the power to make decisions and compel action. 1 — This school with about 450 girls in daily residence has never had soft water, has had no running hot water for bathing, has until 1920 failed to filter the brackish water used for bathing, and even now is continuing to use water so hard that it is unsuited for bath or laundry use; 2 — More land is needed for a dairy — no cows whatever are milked now, although a dairy would ofifer excellent educa- tional opportunities ; 3 — A proper filing system is lacking ; 4 — Adequate dental attention has never been given. Two seniors from Ohio State university come two months after the holidays for practice work but between February or March and the next January all girls received are without dental examination unless some special urgency requires attention by a local dentist ; 5 — Thorough physical examination has not been given .for ear defects, adenoids, enlarged tonsils and other removable de- fects, although such examination is among the minimum rights of all state charges, particularly children of school age ; 6 — Salaries adequate to secure persons properly equipped for this work have neither been allowed nor sought; 7 — Fire drills were stopped some time ago on the ground that they suggested setting fire to buildings. On the day of our visit one hose was examined which could not quickly have been run out because it was already tangled. Fire protection was in- adequate, neither buckets of water nor fire extinguishers being available ; 8 — No girl is held back from parole because she is illiterate or near-illiterate ; 9 — No state certificates are held by the teachers in the school. Record blanks call for so little information that they are of little use; 10 — The parole officer's reports are vague, practically useless, and largely hearsay. They do not report whether the girl goes to school, or if she goes to school how she is doing at school. They do take time to report fulsome praise of the school, credited to parole girls and their employers; ON ADMINISTRATIVE REORGANIZATION S^S II -While each girl is supposed to be trained three months in the laundry, three in the kitchen, and three in dress-making, they are encouraged whenever they show special adaptability for ironing or baking or sewing to stay where their tastes and attitudes are. There is no check on this and no provision for proper sequence of assignments. No record is kept of the work done by girls in the various departments. Utterly in- adequate use is made of God's out-doors for play, physical training, and for valuable training in gardening; i^_No register of visitors is kept. There is no way of telling there how many times the members of the board of administra- tion or agents of the board of state charities have visited the institution. It was insisted that nobody from the board of state charities had been there for nearly three years until the investigation of 1919; . , 13 — The county superintendent never visits there to supervise the teaching or help the teachers ; • , •> 14 -No cooperation has been effected with the educational de- partment of Ohio Wesleyan at Delaware, which would be of much help and which would undoubtedly appreciate the use of this school as a training ground for practice teachers ; I. — The assembly room is used "twice on Sunday and perhaps twice a fortnight", whereas it should be used every school day and frequently of evenings ; 16 — The gymnasium was out of commission at the time of our visit and has no equipment except for basketball ; 17 _ One board member has long been convinced that the manage- ment was incapable, a second member has jumped always to its defense, the two other members have remained neutral ; 18 — When o-harges by the state board of charities against the man- agement were being heard by the board of administration the chairman withdrew from the meeting because the manage- ment's sponsor on the board used such unparliamentary and truculent language toward the board of charities agents ; 19 — After this conference the management was instructed to in- stall adequate records, an instruction which was almost mean- ingless because the management did not know what constitutes adequate records. No follow up was employed to see that the orders were promptly and properly complied with ; 20 — Although in the management's presence the board arranged for a joint visit to the girls' industrial school by its own repre- sentatives and agents of the board of charities to verify one • or two points in controversy, the chief matron absented her- self and left the desired records locked up. Yet no disciplin- ary step was taken or could have been successfully taken re- 506 REPORT OF JOINT LEGISLATIVE COMMITTEE garding- this insubordination, because of the division within the board ; 21 — From reports by the state department of public instruction (upon request) and the children's welfare department of the board of charities, based upon extended field examination, it is clear that the school has all these years lacked the right kind of educational program, right methods, and right person- nel ; there has been no school principal ; no plan for insuring that girls were placed in proper grades ; no adequate super- vision; no plan for supervision; no uniform blanks for re- porting children's needs ; no teacher of physical training and no domestic science teacher until autumn, 1919; no art teacher; no special instruction for girls who are retarded because of either mental deficiencies or lack of previous opportunity; in- adequate library ; not enough large enough modern maps and too little use of those they have ; no provision in the individual cottages for proper collection of books; no apparatus or ap- pliances for teaching science ; no piano or victrola in five of the cottages; no central definite merit system for encouraging proper demeanor (Mr. McNamara being resorted to for use of the so-called "paddle" for corporal punishment) ; inade- quate recreation ; insufficient medical examination and super- vision, with failure to enforce proper segregation of girls with venereal diseases ; no resident physician for several months; 22 — To find out the facts about one girl it was necessary to look in eight different places, not to mention unfiled documents and communications in different drawers of the office desk. It was the practice at the beginning of the new year to destroy prac- tically all the correspondence concerning the children of the past year. The chaotic condition of such few records as are kept at the girls' industrial school is due not to willful viola- tion of business procedure but to almost complete lack of com- prehension as to the service which records might render; 23 — The management has not been sent to see progressive insti- tutions covering the same field or to attend national confer- ences. Nor has the board seen that the management or any other agent of the board should study current literature dealing with similar industnal schools and day schools ; 24 — Each report by the auditor of state has shown that local pur- chases and expenditures had exceeded the total, in the second period of a little less than a year and a half by $4216, 150%, without including telephone service and milk vouch- ered through as emergency items; ON ADMINISTRATIVE REORGANIZATION 507 25 — As recently as November, 1919, and presumably at present, steaks and other cuts for the officers' table w^ere being charged at the rate per pound paid for wholesale carcasses, that is, at 13c instead of 36c to 50c; 26 — The management, the board of administration, and the public are without the necessary information for learning what if any causes of delinquency are removable, what if anything churches and public schools might be doing to prevent the send- ing of hundreds of girls to this school who never ought to be there at all ; 27 — The bureau of juvenile research might as well be in New Jersey as in Columbus, so far as concerns the study of girls at this school, except for the few who are sent by the courts direct to the bureau. At the time of our visit the chief matron pointed out a girl as having been railroaded to this school for an entirely innocent mishap because she had no influential friends, whereas the other girl, who was with her when the auto- mobile broke down and occasioned the appearance of evil, was dismissed because her family had influence. Taking this official statement of the case it is obviously the state's duty to remedy such an injustice the minute there is evidence of it and to investigate every allegation of injustice; 28 — Instead of search for usable truths there is almost complete lack of it and the actual destruction of records when they reach the hoary age of twelve months ; 29 — Of both the girls' industrial school and the boys' industrial school the two investigators for the state department of public instruction reported a conclusion which the board of adminis- tration has failed to compass in its thinking and planning; "We have become embarrassed with the bigness and complexity of the problems which the two schools present for solution." Of the teachers, the state department of public instruction reported that they lacked adequate training and THAT while they hold elementary certificates it is doubtful if any of these certificates are now in force. They are sufficiently mature and experienced. They are sincere and devoted to their work. They are certainly kind and firm and have a good influence on the characters of the" girls." 30 — Initiative and individuality among girls is not sufficiently studied and fostered to justify such a school. The same is true of the boys' industrial school at Lancaster, where for hardly a minute of the day is a boy free from compulsion and supervision. They rise to order and in squads. They march in formation to breakfast. They go to the washroom in forma- 508 REPORT OF JOINT LEGISLATIVE COMMITTEE tion. Twice a day they are compelled to wait in silence from ten to fifteen minutes while the details are being changed. Re- creational periods are supervised. Were any member of the board of administration clearly respon- sible for taking remedial steps shown to be necessary by the girls' school's experience, records would not be destroyed on the flimsy pre- text that this safeguards the girl, but on the contrary records would be carefully studied to see in what ways if at all Ohio is doing less than it ought for those youthful charges. If the medical member were a full time medical supervisor, sub- ject to civil service competition and to orders from a director of welfare administration, he would see a physician installed within twenty-four hours from the notice of vacancy and not leave innocent young girls in daily contact with dangerous cases of venereal diseases. Had any single member of this board been undodgably accountable for this condition which arose in May, 19 19, at the girls' industrial school, he would have found intolerable the inaction which has made little if any impressioa upon the four members. Such evidences that the time has come for a single-headed direction of these multiple important services are not incompatible with frank ap- preciation of admirable services rendered by the board of administration during its nine years. The auditor of state when summarizing the early advances up to December, 1915, wrote that the change from separate boards to one central board had already resulted in more systematic and economic administration, in the elimination of politics in the conduct of the various institutions, and in many cases in improvements worthy of commendation. At that time fourteen criticisms, some serious, some slight, were made with respect to methods at the board's headquarters; seven with respect to fiscal management; and seventeen with respect to institutional management, — a total of thirty-eight discrepancies of records, defects of management or other conditions needing correction. In 1919 the auditor's representative reported to your committee that im- provements had been made at every point. No one familiar with institutional management can visit the head- quarters of the Ohio board of administration and its institutions, as we have visited twelve, without Avishing to testify to numerous evidences of progressive administration. Any change that would jeopardize the Spirit and method that have made these advance steps would be inadvis- able and costly. A mere mention of a few high spots will show that the change from a board to a head should make it easy to extend the number of excellences or high spots : 1 — The central office is business-like in arrangement, equipment and atmosphere, and was constructed with prison labor. 2 — The fiscal supervisor is not only spontaneous in his desire to be of help and in his ability to place finger on desired in- ON ADMINISTRATIVE REORGANIZATION 509 formation, but is open-minded and keen to find some way of improving today's practices. 3 _ The institution chiefs are for the most part well trained, de- voted, and professionally ambitious, in fact, the type of officer whom other states are paying at much higher rates. 4 — The manufacturing and sales division has grown from $250,- 000 to $1,300,000, which increase more nearly represents qual- ity increase than is the case in comparable private business expansion because the prices for prison-made goods have not inflated, and numerous state purchasers have declared that quality of goods and promptness of service have improved. 5 — In making the farms more productive, many advance steps have been taken: a rotation of crops is scheduled; records show the produce by each cow on each farm; records now show not only the total production of each kind of grain and fruit, but also the acreage in each and henceforth produce facts' and acres employed will be correlated ; for sales there is the same central control through "requisition for sale" as formerly through requistions for purchase so that now calves are not sold at one farm for $5.00 and at another at $15.00 as was formerly the case, but pedigreed bull calves are held for their real value which in some cases has run to $75:00 or even $800.00. 6 — The bureau of juvenile research was established with a far- seeing program for the intelligent analysis of the state's mental diseases and abnormality among children. In time if properly executed this program would vastly improve the work of the public schools of the state, the probation service for^ the county courts and the work in the various state institutions, while at the same time showing how to eliminate the mental defectives from the state's penal and correctional institutions and to provide for the segregation of mental defectives who when at large are a greater menace to society than are even confirmed criminals. 7 — Over $3,000,000 plus the allowance that should be made for the rising scale of prices during the last three years of the board's management has, the chairman of the board estimates, been saved to the state by reductions in per capita costs below the rates expended under the independent boards. The foregoing earmarks of efficiency have each its own absolute value. The state should appreciate them, but none of them is peculiar to a four-headed organization. None of them is impossible or difficult for a single-headed executive to continue. In fact, each of them will be easier for a single competent executive to continue and develop than 510 REPORT OF JOINT LEGISLATIVE COMMITTEE for any four-headed board, particularly any board which under present circumstances can reasonably be expected. The member who has built up the manufacturing and sales business is about to retire, as is the senior member of the board. The two re- maining members, an agriculturist and a physician, would frankly say they are not qualified by experience or interest to manage or to super- vise the expansion of this enormous business. However, if the two present members should decide that one of them should have this serv- ice, their weight might easily determine such action at a meeting with two new appointees. It is not at all probable that for the present salary of $5,000 any new member can be obtained who is qualified for this heavy business responsibility. On the other hand, the salary necessary to se- cure a man qualified to do this work would undoubtedly be urged also for the three other commissioners, which would raise the combined sal- aries to a prohibitive total of from $40,000 to $60,000 a year. Again, the high type of executive at the head of many of the board's institutions is not due exclusively to the board of administration, but is due also to the state civil service commission's competitive examina- tion and the law's protected tenure. The board itself is not free to dismiss a competent chief, even if it wishes to do so. Where it has known of incompetence and might have made removals for incompetence, it has waited for death or for some help outside of itself to relieve it of responsibility for decisive action. It has failed to take advantage of the excellent capacities of its chiefs and even discontinued "round robin" re- ports of successful practices and helpful suggestions. It has discouraged variations in business practices. Where heads lack capacity for self de- velopment, the board fails to foster or compel study or improvement as in the case cited of the girls' industrial school. Over against its statesmanlike judgment in establishing a bureau of juvenile research has already been cited its failure to utilize that bureau. Right now the board is completing a hospital and observ- ing station for one hundred children, with but two showers, although the director of the bureau of juvenile research, if consulted as to these plans, must assure the board that either the work of this hospital and observ- ing station will be seriously hampered by the lack of adequate bathing facilities, or else at considerable expense, the state must rip up newly built rooms and install additional showers and other bathing facilities. One of the final arguments made for a board is that several heads are needed for parole. The reading of the minutes shows that at one sitting in August, 1919, the board decided to discharge 185 boys and to parole 176 from the boys' industrial school, for dates as far ahead as eight weeks. Where in part of one day 351 boys are disposed of, it is obvious that the paroling board is merely "rubber-stamping" the recom- mendations of the responsible institution head. Nothing in such a case ON ADMINISTRATIVE REORGANIZATION 51I is done by three or four board members which could not be done equally well by a single head. The extent to which the board has acted as a deliberative body is difficult to ascertain because the minutes show only actions taken. For example, October 14, 1919, when the above mentioned hearing was given to the state board of charities for presenting the facts as to various short- comings in the management of the girls' industrial school, the minutes give no conception of the nature of that conference. They fail to record that, and when, the chairman left the room, although the fact that he was absent part of the hearing and the fact that he left because of his own board's conduct throw important light upon the board as a deliberative body. The reading of the minutes for two years gives no indication that there is need for four commissioners rather than one. This is not meant to imply that many unsettled problems were not discussed over and over again by the board in session and between sessions. The point is that the matters that were up for discussion called for definite information and for' action rather than for discussion. In this connection it should not be forgotten that where record of action is kept there are so many parties to the conduct of a state insti- tution that it is extremely difficult for serious injustice to be concealed and protected over a long period. While such possibility exists, exper- ience shows that it is quite as easy for it to exist under a board manage- ment as under a single head. The responsibility for inadequate reporting for the board's important institutional service cannot be shifted entirely to the secretary of state The board is free to print its own reports with its own prison help. It already prints a very elaborate statistical report with a very great deal of expensive tabular composition. The last of these reports contains 313 pages, plus II inserted tables, all but about 10 pages of which material is in very fine type. There is not a line which indicates that any member of the board or any of its employees has studied the social, economic and medical problems for which these pages give elaborate cost facts. On the contrary, there is evidence that the board has failed to develop this par- ticular kind of study. Whether or not one head is suDstituted for four, one of the first steps which should be taken is to establish a division for the study of the human aspects of institutional management, analogous to the specialists in engineering and agriculture who are now employed. Every institution head should be constantly studying the social problems entrusted to him and the meaning of his institution's work. Nothing will encourage such study more than requiring a publication of^ a periodic report in which each head may seek professional recognition at the same t-ime that he gives an account of his stewardship to the board which employs him, to the governor who is responsible for that board, and to the people of Ohio for whom he works. 512 REPORT OF JOINT LEGISLATIVE COMMITTEE Elaborate statistics are helpful only if somebody studies them. For example, the excellent blanks instituted the last quarter of the current fiscal year for the purpose of comparing amounts raised with acres, while a credit to the board, also emphasize the fact that for eight years no com- parisons have ever been made to show how different institutions compare as to product per acre. For six acres of beans' we find five institutions varying from 210 bushels to 604 bushels, or if we take the bushels per employee engaged in raising beans the amounts were respectively 108, 144, 51, 201, 70. For green com, the number of dozen ears per acre varied from 197 to 8060, the totals being 197, 469, 548, 598, 8060. The cost of producing milk varied per gallon from iic at the reformatory to 29c at the boys' industrial school. The point is that this kind of com- parison has not been made in the elaborate annual reports, although the facts for comparison have been printed in them. From want of organization at the central office, either through a board member or a qualified investigator, the board has failed to do the educational work which is the final test of managing hospitals for those suffering from tuberculosis, hospitals for the epileptic, industrial schools for the wayward, reformatories for those not yet steeped in crime, and penitentiaries for experienced criminals. The state sanitorium for tubercular patients has no excuse for existence except that it conducts a militant training school for teaching that tuberculosis can be cured and can be prevented. Hospitals for the insane that report over one-third of their patients discharged as recovered and one-sixth discharged as im- proved also have a great educational work in the prevention of insanity and the restoration of individual and social conditions that will tremend- ously reduce the drain upon the state for the maintenance of insane patients. Neither within individual institutions nor in conferences of in- dividual hospitals or in conferences of all hospital chiefs, nor in the board's publicity nor in provision for out-patient's work, has the board recognized the importance of its preventive educational service. In the correctional field there is the same failure to analyze the experience of the board's own institutions and to recognize prevention and education as more vital than the maintetiance of reformatories and penitentiary. Not even in its budget-making has the board exerted the multiple influence of four heads ; instead of being four or more times as effective as one man in presenting the needs of the institutions entrusted to it, this lM>ard of four members seems to have been less effective. In 1920 the chairman of the board gave to a newspaper as a reason for asking the governor not to re-appoifit him at the expiration of his term. Febru- ary 15, 1920, that he was disgusted with the legislature's refusal to give the money absolutely needed for building up industries and for maintaining institutions. He cited cottages for the feeble minded which were already built and which the state was going to the expense of heat- ON ADMINISTRATIVE REORGANIZATION 513 ing in order to keep the pipes from bursting, that the board of admin- istration was unable to put patients into for want of a paltry $10,000 for equipment. Accepting without reservation the chairman's own state- ment of the situation, and without seeking to learn whether in a budget of several million dollars there were accruals of $10,000 which the emergency board would permit to have transferred, the lesson is here drawn that the board of administration had failed to secure the public's attention and the legislature's attention to facts which needed only to be stated properly in order to win action. A single director of welfare administration would be directly re- sponsible to the governor. If anything goes wrong, if a complaint is to be answered, if information is desired by the legislature, there will be one person responsible. That one could not make the excuse that his fellow board members were away or that they disagreed with him. So great would be his power to help or to hurt the governor's reputa- tion that few governors would knowingly appoint an incompetent or willingly gamble on the prospect of incompetence when they have it in their power to select executives whose past experience and whose known personality give almost positive proof of ability to succeed. To sub- stitute such a single head is in the direct line of progress and a logical next step in dealing with Ohio's institutions. Conscious of his responsibiHty, and accustomed to acting on the basis of information for which his business-like office would be central, a director of welfare administration would find it easy to make more use of citizen cooperation than has been reasonably practicable for a board of four 33 PHYSICAL EDUCATION AT THE SCHOOLS FOR THE BLIND AND THE DEAF By WILLIAM H. ALLEN Friends of the blind, including former officers of the Ohio staf^ school for the blind, and members of the commission for the blind would like the state school to be separate from the other institutions under the board of administration. A state school, they say, should be a school ; it should have nothing in its management or its association to connect it with institutions for the subnormal and the delinquent or criminal. They argue that whatever may have been the initial thought regarding the state school, the present thought is that it is easier to bring a number of the blind together in one place and to give them the training which is their due than to take that training to them in small localities. They approve the teaching of the blind with the seeing in public schools as is being done particularly in Cleveland and Cincinnati. If Ohio had a separate administrative board which was managing strictly educational institutions, it would be appropriate to transfer the school for the blind and the school for the deaf to such a board. Since, however, Ohio has no central board for managing educational institutions, and has no other work with which the school for the blind or the school for the deaf might be combined, the alternative is to establish an entirely new board or to leave the management of this institution with the same office that manages twenty-two other institutions. Confronted with such alternatives, Ohio would do best to retain with the other institutions the schools for the blind and the deaf. A director of welfare administration can do all and more than their friends now desire for these schools, provided he uses an educational supervisor. The need for an educational supervisor is so apparent that no person competent to be director of welfare administration could i)os- sibly try to get along without one. In sjjitc of this fact the earlier recommendation is repeated that any law creating a director of wel- fare admniistratioii would brst not specify the type of organization which he should (■nii)lov for doing his many sided work, but should rather hold him rcsponsil)lc for getting results and make the specification of super- visors a matter to be determined each year at budget making time ac- corduig to that year's foremost needs. The absence of an educational supervisor has already been mentioned with respect to the two industrial schools for girls and boys. There is 5 '4 ON ADMINISTRATIVE REORGANIZATION 515 similar need, in some ways even more important for the state, at the two reformatories, the penitentiary, and the prison farm. For the two last named institutions the chaplains are doing their best but without facil- ities, funds, time allowance for prisoners, or training on the part of the chaplains themselves. This general need will be provided for if the recommendation is adopted that the state department of public instruction be required to inspect and report upon educational program, methods and results at all of these institutions, including the hospitals for the insane, where there is much possibility of improvement through teaching. To illustrate the need and to show concretely how the present board of administration has failed to organize helpful direction for its schools, two brief reports are here cited upon physical education at the schools for the blind and the deaf, made by Miss Marie M. Weber, then physical director for the War Camp Community Service, Columbus. PHYSICAL EDUCATION FOR THE BLIND The time given is two forty-minute periods a week for all students. Two recreation periods are used : 4 150 to 5 :30. The course consists of the simplest setting up exercises. In warm weather the playground is supervised, so that the children will not injure themselves. No swimming. No athletic games. No games in the gymnasium. No hiking. The posture is very poor. Training in posture is not emphasized enough when giving the children their physical training. In teaching no music is used. The teacher depends entirely upon counting. Descriptive commands are given, then the instructor goes around and helps individuals with the assistance of those members of the class who are not totally blind. The students' attitude toward gymnastic work is enthusiastic. They are anxious to learn all exercises correctly. Complete physical examinations are lacking ; children are not taught how to overcome defects nor are they taught how exercises benefit the body. School credit is not given for home work. Individuals are not taught either exercises or games which they can do later at home. The teacher has had some training. She gives only part time to physical training as she is the secretary of the superintendent. She understands her work, however, and has the children's interest at heart. The equipment consists of a girls' gymnasium with a large space but no apparatus, and the boys' gymnasium with apparatus that blind can use. The playground is well equipped with apparatus which the blind can use 5i6 safely, slides, swings, chinning rods, and a large "never still". No gymnasium uniforms are used. Two out of twenty-seven wore bloomers. Social life: at table children are allowed to converse. They are divided into groups of eight. One girl partially blind at each table serves. Children are taught by the teachers how to eat. Teachers take turns in the dining room for this. Twice a month there is an entertainment for older students. They are taught parlor games which they can play. The principal object of these is to have the boys and girls meet each other in a social way. PHYSICAL EDUCATION FOR THE DEAF The time given is fifteen minutes three times a week for those 6 to 12; one hour twice a week for those 12 through sophomore year in high school ; high school juniors and seniors do^ not have formal work in physical education. The girls' work consists one-fourth of exercises where dance figures predominate; one fourth marching and fancy drill; and one half of small group dancing. Spectacular work is much in evidence. The more grace- ful ones do the dancing while others stand around and look on. The latter were rebuked when they communicated with one another or tried to imitate those dong fancy dancing, which took the same small group each time — about ten out of a class of forty. No gymnastic games were played ; the children have certain times for play but are taught no games in their gymnastic classes or elsewhere. Girls have no athletic games ; there is no one to coach them, as the regular physical training teacher is not interested in or acquainted with athletic games. Although there is a big swimming pool there are no regular swimming classes. Girls are allowed to use the pool at certain times. Hiking — none. * The boys' physical training consists of drilling, setting up exercises, and use of apparatus. Their work is not as spectacular as that of the girls, but there is hard work for all. Games in gymnasium — none. Of athletic games, the boys have football and -basketball teams which compare favorably with teams composed of hearing boys. Only the most fit, however, get a chance at these games. Swimming is not taught regularly. At certain times the boys are allowed to use the pool. Interclass contests — none. Hiking — none. The posture for both boys and girls was as a rule good. The teach- ers set good examples. ON ADMINISTRATIVE REORGANIZATION 517 The method of teaching- is by imitation ; the teacher goes through the- exercises first. Music is used ; the children feel the rythm and thus keep in' time and together. The students' attitude toward the work seemed to be that it was a bore. The children did the exercises without energy and without inter- est. The few girls who re nved special attention to their dancing were exception. Otherwise students seem to go through this physical work because they have to and are simply waiting for the period to be over. They are nervous and fidgety whenever a pause occurs for change of music. Physical examinations are not given. The children are not taught the value of exercise in self-improve- ment. School credit for home work is not given. Children are not taught either exercises or games which they can execute at home. They are taught exercises, but not their value, and thus there is no incentive The teacher is a dancing expert, with no other preparedness in physical training. She g-ives exercises more for the effect they will produce than for the physical benefit of the child. She appears to scorn the awkward and allows them into her classes only because it is required. For example, a group of very awkward girls who are fast becoming aware of very long arms and legs were standing in a corner near the teacher and visitor. The teacher remarked: "Now what can you do when you have to put up with such as these?" When asked if she taught the girls any athletic games, she replied : "No, I never had time to learn anything about them. You know when one dances one just has to keep right at it. I hardly have time for anything else." The equipment consists of one good sized gymnasium fully equip- ped, but not kept well enough ventilated ; there are swimming pools with showers ; football field with goal posts ; a playground with slides, swings and sand piles ; a large playroom with cement floor on which children can skate. For gymnasium work there is no uniform — three girls out of a class of forty wore bloomers. A REMINDER In reporting these conditions in one field that need correction, sight is not lost of the admirable work which these two schools have done and are doing. This is a study of organization, not of efficiency. One field is cited where work has not yet sufficiently developed merely to illustrate the need for a kind of helpfulness which neither the board of adminis- tration nor the boarvf of state charities nor the state department of public instruction has crg/'/.;.{' j;,/j] What this means may be judged from the following figures. Upon one day's study and interview interrupted by meals and amenities, of course, there were paroled in 1919, from Marys- ville 24 in January, 20 in April, 20 in June, 1 1 in December, 9 in March, 8 in July, 7 in February and November, 4 in Septem- ber and October. In 3, 4, or 5 days each there were paroled from the reformatory at Mansfield 108 in March, 105 in April, 96 in January, 82 in June, 81 in July, 'jj in February, 60 in May, from 40 to 44 in November, December, and September, and 34 in October. 5 — Instead of increasing- the number of the board, provision for increased visits to institutions and increased interviews of inmates should be made by giving the board more in- spectors. By working- arrangements with the institutions and by improving the technique of securing information it will be possible to use men already on the staff of each insti- tution. 6 — Best practice in other states should be studied by the clemency board. "We have no comparisons of methods in Ohio compared with other states", the board wrote. The Legislative Reference Library would gladly and cumulatively secure information from all states where there are parole boards and place Ohio's board of clemency in position to an- alyze better its own practices and to benefit from the practices of other states. 7 — Analysis is needed of Ohio's problems and practices. With offices in the penitentiary and branches in the two reformatories it has not seemed advisable to build up special systems of records. It will be easy, however, through a system of tags and devices that have proved their worth, to keep a current record of work done by the board of clemency and of correc- tional problems in Ohio which will be invaluable to this board and to the state. Standing as it does at one gateway and re- viewing as it must the inflow at the entrance gate, this board should be able to tell Ohio where if at all its program for pre- venting or reducing crime is breaking down. It should be able to give the governor invaluable advice. Such program it has not yet undertaken. It has not sought the information with which to understand the volume and complexity of the prob- lems which clear through its office. It can throw no light upon the effectiveness of the probation system in the county courts. It states that it does not know what proportion of parole break- ers have been returned by institutional parole officers, by pro- bationary officers in counties or by police departments. As a ON ADMINISTRATIVE REORGANIZATION 555 next Step it is suggested that this board be held responsible for formulating a method which will enable institutions and county courts to work together for far more efifective parole and for helpful interpretation of causes and promulgation of remedies in the field of correction. 8 — In deciding whether to parole or to delay parole the board has not yet insisted upon evidence of physical soundness or of minimum educational attainment. It is suggested that a parole policy be adopted, that as far as the law permits it to decide no prisoner shall be paroled who has not learned to read and write, and that no prisoner suffering from a curable disease be paroled until the penitentiary or reformatory has done everything possible to cure such disease, — subject of course, to time limit of fixed sentences. In paroling a prisoner effort is now made to secure him a position, to encourage and help him while holding the position, and to delay parole until he has obtained a position. While recognizing that many prisoners in the penitentiary and many inmates of the reformatories are just as ready for parole in the eighth month as they are at the twelfth, the board of clemency has neither recommended a modification of the law nor helped work out a method of acting within the law to reduce the cost to the state, to reduce congestion in the institutions and to help inmates. At the women's reformatory women are being placed on farms not on parole but on their honor. Their earnings come back to the institution as trustee and finally to the inmate. Technically this practice conforms with the law. The prisoner is not on parole until after the twelfth month. Actually she is at work on an honor job long before the twelfth month. It is suggested that the board of clemency investigate this method and either foster it within the present law or urge an amendment in the law giving discretion to the institution heads and the board of clemency to recognize exceptions when it is entirely compatible with the best inter- ests of the state to place prisoners on parole earlier than the thirteenth or twelfth month. The board of clemency has no jurisdiction whatever over the parole system of the two industrial schools, for boys at Lancaster and for girls at Delaware. It is not advisable that this board be given charge of such parole. It should, however, be required to investigate the methods, standards and results of parole at these institutions. It is recom- mended that a law be enacted which will give it such powers. In this way the board will learn much to the benefit of its work and for the assistance of the industrial schools while gaining light upon the gap be- tween what courts and probation officers might be doing and what they are actually doing to prevent crime and to restore violators of law. OHIO SOLDIERS^ AND SAILORS' ORPHANS' HOME By WILLIAM H. ALLEN In November, 1918, the home which Ohio conducts at Xenia for orphans of Ohio soldiers and sailors registered 662 children — 343 boys and 319 girls. For this school and home the state has appropriated $236,000 for 1921 — $93,000 for personal service, $105,000 for supplies, $38,000 for other maintenance charges, and if the legislature does what is obviously needed for teachers and matrons $20,000 more must be added, — with- out increasing the number of pupils registered. From September, 191 3, throughout August, 1917, the home gradu- ated 46 children from its high school. Among high spots the following should be mentioned : 1 — Every boy or girl must take hand work and vocational work as well as academic studies. 2 — The printing, including the annual report, is done in the print shop as i^art of the educational work ; the home weekly of four pages is also put out from this print shop. 3 — The annual homecoming or reunion of alumni, paid for by the school, is a commendable effort to keep the school idea rather than the orphan home idea in the foreground; it is unfor- tunate, however, that only 150 of the alumni express interest by paying for the home weekly. 4 — A fire drill observed by unannounced visitors emptied the school buildings promptly and brought volunteer firemen to their posts. 5 — Dental attention is provided and work done is reported. 6 — There is a resident physician. 7 — Much progressive work was observed at the school, including for example, attempts to compare the progress and attainment of pupils with those of other public schools by means of standard measurements, and the instruction in stenography. 8 — The home superintendent's wife, whose title is matron but who is actually superintendent with respect to matters educa- tional and domestic, has rare ability for this kind of work; vastly more use could be made of this ability if she could see leading schools of the country, private academic schools, public industrial schools, etc.. as "well as orphans' homes, 556 ON ADMINISTRATIVE RKORGANIZATION 557 9 — The superintendent's personality and business interest are high spots from which far more could be realized for the benefit of children if he also could see best practices in other institu- tions, if he had current literature of institutional management, and if he had the benefit of such help and supervision as a director of welfare administration and the state superintendent of public instruction might give. Of 88 counties in Ohio 23 counties had no pupils registered; nine counties had one ; nine counties had two ; eight counties had three ; five counties had four. The counties within a short ride of the home — Montgomery, Greene and Clark — had 245 children or over one-third the total for the entire state. Less than half of the children received are orphans. Of 116 chil- dren received for the last fiscal year ending June 30th, 1919, the fathers of 25 were living, the mothers of 25 were living, both the fathers and mothers of 53 were living. The facts as to the total number during the last several years or at any one time, who are neither orphans nor half orphans, are not known to the institution. There were two cases each of five and six children from one family ; seven cases of four children from a family ; ten cases of three children from a family; twelve cases of two children, and twelve cases of one. Of these 45 families in only five cases of 13 children are the father and mother both dead; in 9 cases of 25 children the father only is dead; in ten cases of 25 children the mother only is dead; in 21 cases of 53 children both parents are living. Back of this school there is an enthusiastic clientele of former sol- diers and sailors. Alumni, especially those who have succeeded, are apparently anxious to have the school continued. Because this school was started by the Grand Army of the Republic there are in all parts of the state loyal friends of the G. A. R. who - would jump to the defense of this school against any unfair criticism. Unfortunately this loyalty to the original idea has not as yet taken the form of securing progressive improvements in the facilities and the instruction at the school. An obvious next step is to see that the G. A. R. and the new American Legion have the facts about the original purposes and present practices of this home. The small number of counties represented, the small number of families represented, and the large proportion of children who coipe from famihes where both parents are living, show that this orphans' home is not primarily a home for orphans ; is not available to a large enough number of eligible children; and is not, in fact, the kind of institution which the law intended when it prescribed the following con- ditions for admission : 558 REPORT OF JOINT LEGISLATIVE COMMITTEE "The trustees are authorized and required to receive into the Home under such rules and regulations as they adopt, the children and orphans residing in Ohio of such soldiers and sailors who have died or may hereafter die by reason of wounds received, or disease contracted while serving in the military or naval forces of the United States ; that are found to be DESTI- TUTE OF MEANS OF SUPPORT AND EDUCATION; and the children also of permanently disabled or indigent sol- diers and sailors of said service found DESTITUTE as afore- said." If the children who are now in this home are eligible to the home, there are also enough other eligible children in Ohio to fill twenty such homes. If Ohio is not prepared to give the same treatment to all eligible children of soldiers and sailors, it is not fair to maintain a school for an infinitesimal fraction of those children. Now is the time to face squarely the question whether Ohio will continue to discriminate in favor of a small number or will give free education and home to soldiers' and sailors' children generally wherever the simple requirements for admission are met. A special reporting on the physical education, outdoor play, and social training of these children was made for your committee by Miss Marie M. Weber, at the time director of physical training for the War Camp Community Service of Columbus. Miss Weber's report is given briefly in her own working notes : 1 — Ph_\sical training is given in the school room, not outdoors, I the reason given being that the children might run away if given physical training outdoors. (The physical training teacher frequently referred to this as an ever present danger. The superintendent admitted that it occasionally happened but that he considered it natural.) Children are not even taken to the assembly room which has quite a large floor space and a few pieces of small apparatus for a gymnasium. — again for fear there might be attempts to escape. 2 — The training consists of one 30-minute period once a week — ten minutes on arm and leg exercises to develop grace, ten minutes in skipping and running, and ten minutes on expres- sion for the purpose of using gestures. 3 — The teacher is not interested in physical education, but teaches it from necessity. She not only does not like to do it but considers that she is not ecjuipj^ed for it. She is not trained for it ; she lacks knowledge of purpose and methods. Her chief interests are dramatics and dancing. She is a very good dancing teacher. ON ADMINISTRATIVE REORGANIZATION 559 4 — Attention is paid to posture. 5 — Windows are not opened during exercise periods. During the visit children were scolded for opening windows on ac- count of the heat. 6 — High school children do not have physical training, "as their time is all taken up with their other studies." Older boys have a basketball team but no provision is made for the in- experienced boys or for the girls. 7 — A dancing class (folk and seesthetic) was started for the girls and met once a week for 45 minutes after school. It was^ stopped after two lessons because the girls practiced some of their dancing steps out of class and the older members of the faculty disapproved. 8 — There are no hikes, although the home is out in the country. The reason given is that there is no one to take them and they might run away. 9 — Tennis, volley ball, baseball, captain ball — none. 10 — Swimming: none except for boys on special occasions in sum- mer. They are then taken to the creek. 1 1 — Interclass contests — none. The reason for this is that they play no games. 12 — Physical examinations are not given except upon entrance to the institution. The teacher reported that the superintendent does not see any value in them. (Entrance examinations are not complete enough.) 13 — Recesses: none during school. Directly after school until the evening meal children have domestic duties. 14 — Playtime is from 6 to 7 P. M. During this time they have someone to watch them but not to teach them. In winter this play is in the cottage, the only time they have for con- versation. 15 — Playgrounds are in a run down condition. Several pieces of apparatus that could be used to advantage are out of order. There are chinning rods in excess considering the lack of other playground equipment. 16 — The playground equipment for large boys consists of chinning rods, two sliding poles, two ba^skets, one pole for giant stride that is not in use because out of repair; for small boys a teeter board, two rods for swings but no swings, and chin- ning rods; for girls four rods for swings but only one swing, two sliding boards and two teeters. 17 — The armory and drilling room equipment consists of boys' basketball and a large floor space for drilling in winter. The drilling is under the supervision of a United States major, a«d' 560 REPORT OF JOINT LEGISLATIVE COMMITTEE takes i^lace after school three times a week, except that boys inarch to and from school in military formation. 18 — Of social training there is none at this school, except a very little in the senior year, according to the matron. Boys and I girls are kept strictly apart at all times; they do not meet the opposite sex socially except at school. They are not allowed to have dancing or any social entertainments ; within sexes they are not allowed to converse during meals ; a matron at each table maintains discipline and serves food, in a motherly way. Teachers know very little of the life of the children outside of the school, for they eat in a separate dining room and live in separate houses and have no responsibility what- ever out of class. 19 — Of music each child has two periods a week, the length of period varying with the grade; in the lower grades fifteen minutes and with high school students forty-five mniutes. Opportunities for community singing are lacking. If Ohio continues this home it is recommended: 1 — That effort be made to place the facts about education and free board ofifered before ^11 soldiers and sailors in Ohio. This should be done not only once but repeatedly. Similarly, such facts should be repeatedly called to the attention of public schools, churches, probate judges, other public officers and private charitable agencies ; 2 — That the management of the home be transferred from its -j present board of five trustees to the recommended director of welfare administration, for reasons stated in the special report on the board of administration ; 3 — That responsibility for visiting, examining, and publishing facts about the school and its budget estimates be lodged by law with the proposed Ohio board of education ; 4 — That the law prohibit the reception at this school of feeble- minded or other sub-normal children and require the certifica- tion of sound-mindedness by the bureau of juvenile research (now attached to the board of administration) before the authorities may receive a child; 5 — That all children at present in the institution be examined by the bureau of juvenile research with a view to eliminating from this school the fifty to one hundred children who are feeble-minded or seriously sub-normal. While the parents of children who need to be eliminated may regret such action it is clear that the state of Ohio has absolutely no right to place soVmd-minded boys and girls of heroic soldiers and sailors in day-and-night contact with sub-normal children. The parents of unfortunate children can also be shown that it is quite un- ON ADMINISTRATIVE REORGANIZATION 561 fair to those children to have them in a school and home that is not intended or equipped to do what is necessary for them ; 6 — That instead of maintaining its own high school the children be sent to the high school of Xenia, and that the state con- sider having at least upper grade grammar school children given the benefit of normal school surroundings and exac- tions, in the Xenia schools ; 7 — That special effort be made to inform the local chapters of the Grand Arm}- of the Republic and the American Legion as to the program and practice of this school and of any new pro- posals regarding it that may be made. Reasons for the above recommendations are given in each of the following facts : I — The home itself is now very much an orphan as an institu- tion, even if it is not a home for orphans. 2 — It does not get the hearing that it deserves from the legislature or the public. 3 — Its methods of describing its work and studying its problems are not up-to-date, except in part of the school work where modern methods are being used. 4 — It makes no attempt to keep follow-up records of all its former pupils: it knows about striking successes, of whom there are several. It has an alumni day for which it pays expenses. But these are by no means a substitute for a student ac- counting. 5 — Its boys march to school, the older bo}s in military formation, the younger boys trailing along but in formal squads ; the girls all go together in a long line. 6 — The girls are in uniform aprons, even to the upper high school years. 7 — Conversation at meals in the central dining hall is said not to be prohibited but it is sufficiently discouraged that it does not take place — obviously an educational opportunity lost ; the reason given is that it would make too much noise, which reason has been abandoned by progressive children's institu- tions. 8 — There is no kindergarten for the children too young to attend school : they are divided among the different cottages and are taken care of by the matrons during school hours and by the older girls at other times ; at meals some of the younger boys are cared for by the older boys. 9 — The physical education is quite inadequate, as previously sum- marized. 36 562 REPORT OF JOINT LEGISLATIVE COMMITTEE 10 — The management is not familiar with the management of similar institutions either by observation or reading, although of capacity and temperament which would greatly benefit from attending conferences and visiting best institutions. 1 1 — Conversation in the cottages is prohibited except at the free hour. 12 — By 1913 three different trustees, according to the auditor of state, had automatically resigned from the board by absent- ing themselves three times in succession from board meetings without being excused. 13 — A fire menace, a wooden building, is continued, although the auditor of state has recommended that it be moved to an- other location where it cannot endanger other buildings. 14 — The board apparently pays no attention to the recommenda- tions of the auditor of state as to improving methods and facilities for doing the school's work. 15 — The annual report gives no indication of attention by the trustees to the problems that the school has to solve, and is quite seriously deficient as an educational report; of pages 16 to 55, less than one page is given to schools, including near- ly twenty pages of disbursements that are of no use to anybody. 16 — The school teachers have no responsibility whatsoever after school hours. If this school is continued it would be possible to correct many of the foregoing deficiencies. More normal living is possible and desirable without additional expense. Young children need not go to school in squads. Recesses will help the school work ; free playtime will promote health and increase interest in schooling; physical training can be so attractive that children will not be tempted to run away; outdoor gym- nastics and interclass contests are practicable ; there should be continuous physical supervision and repeated re-examinations; it is not necessary to have so complete a divorce between school and after' school time; salaries should be such that all the matrons and school teachers will be the best that can be had and will take interest in most progressive in- stitutional methods. But does Ohio wish to continue this particular method of express- ing its gratitude and obligation to soldiers and sailors ? The state is not ready to answer that question. It is, however, ready to ask it and to start discussion of it. It is recommended that the legislature of 1921 ask the state depart- ment of ])ublic instruction and the Ohio board of state charities, with the help of one ])ers()n each to be named by the G. A. R. and the Ameri- can Legion, to have this institution visited and carefully studied, as a ON ADMINISTRATIVE REORGANIZATION 563 home and as a school, and to report hack to the legislature what if any modification in the present program should be made. The opportunities given at this school are very much less than those in or near the home towns of the overwhelming majority of pupils in this school. With all the facts before them the members of the Grand Army of the Republic and of the American Legion would undoubtedly decide that there are many other ways of helping children of destitute or needy or otherwise unfortunate soldiers and sailors that for the same money would reach a vastly larger number of children and would give those reached vastly larger benefits. CITIZEN CO-OPERATION NEEDED BY DIRECTOR OF WELFARE ADMINISTRATION By WILLIAM H. ALLEN In a state which has centraHzed its welfare administration by sub- stituting single heads for boards, and few departments with far reaching powers for many independent departments, there is danger that govern- ment organization will become first unaware of and then indififerent to best informed public opinion. The public that is interested, and may be further interested, in the state's work for health of mind and body and attitude in hospitals, industrial schools, reformatories, and penitentiaries is of two kinds : those who have direct personal relation with the institutions and with law enforcement; and those whose interest is in the public welfare rather than in themselves or relatives. So long as the first class exists in such large numbers as are directly concerned in Ohio's management of 23 institutions having 25,000 in- mates, it will not be easy for institution managers to perpetrate gross abuses. If this personal interest were organized it would be all the citizen interest that is needed. vSuch direct personal interest, however, is isolated, unorganized and too personal to become an important factor in shaping and leading a public demand for better state-wide conditions and more progressive management of institutions. It is the second class, the persons whose interest is public not personal, that is capable of organizing itself, of analyzing present methods, of challenging present results, of circulating higher ideals and pertinaciously demanding improved methods and enlarged pro- grams by state officials. Persons that have no friends in hospital or I)rison feel freer to demand and keep on demanding such management of state institutions, and such use of their lessons, as will eradicate or greatly reduce conditions that make for mental disease crime and poverty. For mobilizing this second class of citizen interest and for using the suggestions and complaints, the griefs and hopes of the first class, Ohio has not yet sufficiently organized. There are many private charit- able agencies extending now even to rural counties. The State Council of Social Agencies contains in its membership leaders from the most active private agencies concerned with social work and can be of in- valuable aid to state officers and the public. There is finally a state Social Welfare Conference, the importance of which has been recognized 564 ON ADMINISTRATIVE REORGANIZATION 565 in laws that permit county and state institutions to pay the expenses of workers who attend these annual conferences. Universities, normal col- leges and public schools have shown a desire for more knowledge re- garding social work and more opportunities to train young people to think straight about social work and to participate in it. With these agencies the welfare administration has not yet established sufficient definite or helpful relations. Officers of state institutions are not in the habit of attending or benefiting from the state welfare conference. Nor have they been fostering and using the inter- est of private agencies and citizens in their needs. While university visits have been welcomed and in a few cases active help has been welcomed, there is a vast store of helpfulness by university and normal colleges which a director of welfare administration should tap and apply. To emphasize the helpfulness of civic interest to the official man- agement of state institutions and to emphasize and advertise the obligation of these agencies to act independently of personal rela- tions with state officers, it is recommended: 1 — That the state board of charities or state welfare board rec- ommended elsewhere attempt to organize for asking, secur- ing and using more frequent and more definite suggestions from all private and public agencies connected with wel- fare work. 2 — That the state board of charities or state welfare board be recognized in the law as merely one of several agencies instead of as the principal directing agency of the state wel- fare conference and that the conference be free to select a secretary other than the state board's secretary. 3 — That a law be passed stating explicitly that citizens may have access at all reasonable hours to all official records of public welfare agencies including the state agencies and state directoi- of welfare administration; and that if such records are refused a citizen or citizen agency may secure from the courts an order authorizing inspection. It is not necessary to make any exemption of records that will be open to the public. If a citizen should wish to examine a public record for no public purpose but for the private pur- pose of learning certain facts about certain persons whose relatives have been treated in a state hospital the necessity of making application to the courts would be a sufficient protection against abuse of this right. Among the official records that would thus be open to the public would be any constructive proposals or specific criticisms that might be sent to the director of welfare administration or one of the institutions in his charge by private citizens or agencies. PROPOSED PENITENTIARY By GAYLORD C. CUMMIN This report begins with your committee's question whether the plans for the new penitentiary at London are economical and ends with the conclusion that the main defect is not in any detail of plans, but with the proposal to meet Ohio's penitentiary problem by spending $8,500,000. The people of Ohio should know what is implied in this proposed investment for housing 3000 persons cinvicted of felony: It is almost one-half the total amount now invested by the state in institutions for the care of defectives whose population (1918) was five times as great as the capacity of the new penitentiary. It exceeds by one-fourth the total investment in Ohio state uni- versity with a registration of more than twice the capacity of the proposed penitentiary. It is within $1,000,00 of the total amount invested in Ohio state university, Ohio university and Miami university, which together care for 10,000 students. It is yj% of the total invested in rural schools in Ohio. It exceeds the entire present investment of the state in correc- tional institutions (penitentiary, two reformatories and two industrial schools). The walls and gates will cost enough to pay yearly the state's contribution toward ten county normal schools. The proposed conservatory will cost six times as much as the average school building and thirty times as much as the average rural school building. The proposed administration building alone 'will cost nearly 50% more than the state house annex or nearly three times as much as the Wyandotte building. The proposed administration building, auditorium, mess hall and kitchen will cost more than the stale house. The basis for these figures is the architect's estimates of June, 1928, with 40% added to cover increased cost of building since that date. Still higher costs are in prospect. A few high spots on state activities show that — I — Mansfield reformatory for younger and less hardened criminals is more crowded and has more men idle than the ])enitentiary for the older and hardened. 566 ON ADMINISTRATIVE REORGANIZATION 5^7 2 — The employees of the state are working in unsafe, insanitary and unfit surroundings. 3 — Milhons of dollars are needed for schools and teachers' salaries. 4 — The institution for the feebleminded is so over-crowded that additional commitments cannot be made, over a thousand mental defectives now awaiting admission. A mental defective at large is a greater potential danger to society than a burglar or highwayman. The people of Ohio should ask themselves : How many cities of 3000 population have a hospital costing $300,- 000? How many cities have an auditorium costing $430,000? How many free citizens worship in a chapel costing $220,000? How many citizens live in homes costing $38,000, the estimate for warden's residence; $25,000, the estimate for deputy warden's residence; $21,000 the estimate for chaplain's residence? Whether the state can afiford better living conditions for those con- victed of crime against the state than for those unfortunates in state institutions through no fault of their own? Whether the state owes more consideration to its employees or to those convicted of offenses against society? Whether millions should be spent on a monumental prison when the education of the young is handicapped by lack of funds? Whether convicts should have better living and working conditions than the great majority of free citizens? Whether millions should be spent to correct bad conditions in the present penitentiary in five or six years when they can be cor- rected in six months for a small fraction of the amount? HISTORY OF THE MOVEMENT FOR A NEW PENITENTIARY In 1906 Governor Harris appointed a commission on prison reform. In 191 2 Governor Cox appointed a similar commission who re- ported on February 17, 1913. The following are the only references in said report to the necessity for a new penitentiary and are the only reasons in published reports for the state obligating itself to an expenditure of approximately eight and a half million dollars. "A commission was appointed by Governor Harris under au- thority of a joint resolution of the General assembly adopted March 31st, 1906 to investigate the Ohio penitentiary problem. The com- mission called to its aid some of the foremost prison men of the country, and after careful investigation and consideration made a report containing valuable information and the following recom- mendation: 'The commission is clearly of the opinion that the 568 REPORT OF JOIXT LKGISLATIVF. COMMITTEE State of Ohio should have a new penitentiary upon a new site, and that it should be located on a large tract of land * * *" * * * ''The old penitentiary plant * * '■■■ is reasonably fit to serve the ordinary purposes of a prison and can be used as such for a number of years to come without disgrace or reproach to the state" * * * "The enforced idleness of 600 to 800 men at the Ohio Pen- itentiary is the most serious feature of the penitentiary problem, and is in itself a complex humanitarian and economic problem de- manding iuuncdiatc solution." * =>= * * "Your commission found factory space available (in the present penitentiary) in which at least three-fourths of the idle population can be employed." * * * * * * "The acquisition of land suitable for a new penitentiary and the beginning of the work of creating the new institution ought not to be delayed. A large tract of land, about two thousand acres will be the greatest aid to a right solution of the problem." The commission recommended as follows : — 3. "That an act be passed for the appointment of a commis- sion with authority to select and acquire for the State, by purchase or condemnation, about two thousand acres of land for a new peni- tentiary, the location to be not too near any city and not too far from the center of the state; transportation facilities are, of course, essential, and an abundant svipply of good water." "Swamp land or waste land capal)le of reclamation would have a special fitness for the purpose; clay or shale suitable for brick- making or stone for a quarry would be desirable features. "Plans for the new institution should be perfected by the board of administration with the best expert advice and assistance, as soon as is consistent with due care and consideration; the work of development and construction, should be done, as far as possible with prison labor." (This wise provision has apparentlv not been followed in carrying out the plans.) In accordance with this recommendation an act was passed author- izing the appointment of a commission and on August 20, 191 3 Governor Cox appointed the penitentiary commission. This commission took up its duties and selected and purchased a site containing 1448.5 acres near London in Madison county. They then studied the requirements of the institution and later em- ployed architects and engineers to draw uj) jM-climinary plans and to make definite recommendations as to the new institution. The result of these studies is embodied in an elaborate report en- titled "New Ohio Penitentiary, Description of Preliminary Drawings," to which frequent references will be made throughout this report. ON ADMINISTRATIVE REORGANIZATION 5^9 Briefly, the architects recommend the purchase of additional land amounting to 1088 acres of which 325.24 have been purchased since the recommendation w^as made. The plans provide for an elaborate plant of large and well con- structed buildings of brick, concrete and steel. A list of the principal ones together with their estimated cost of June, 1918, and of January I, 1920, will give a good idea of what is proposed and is as follows: Jime 1I9I8 Jan. 1, 1920 Administration building $462,500 00 $647,500 00 Interior cell blocks 485,000 00 679,000 00 Exterior cell blocks 370,000 00 518,000 00 Dormitories 170,000 00 238,000 00 Utility building 193,750 00 271,250 00 Small chapel 164,000 00 229,600 00 Large chapel and auditorium 310,000 00 434,000 00 Dining room and kitchen 306,000 00 428,400 00 Connecting corridors : 118,800 00 166,320 00 Hospital 212,500 00 297,500 00 Conservatory 40,000 00 56,000 00 Maintenance building 165,000 00 231,000 00 Small factory building 110,000 00 154,000 00 Raw material warehouse 230,000 00 322,000 00 Large factory building 560,000 00 784,000 00 Finished products warehouse 144 , 000 00 201 , 000 00 Power house 240,000 00 336,000 00 Stack 12,000 00 16,800 00 Tunnel system (For pipes, etc.) 34,500 00 48,300 00 Wall 164,000 00 229,600 00 Guard towers 1,200 00 1,680 00 Gates 4,000 00 5,600 00 Warden's residence 27,000 00 37,800 00 Deputy warden's residence 18,000 00 25,200 00 Chaplain's residence 15,000 00 21,000 00 Dairy barn 95,000 00 133,000 00 Horse barn 28,000 00 39,200 00 Grading, etc 353,800 00 Water supply 189,250 00 Distribution heat and electricity 160,610 00 These together with some minor items exclusive of cost of site ($363,340), architects' fees ($56,000), etc. total $5,746,310.00. Present prices would make site, buildings, etc., cost about $8,500,000 of which perhaps $1,500,000 might be saved by the use of prison labor if very efficiently managed, although this saving is more apparent than real, as the same men could be used upon other work just as profitable to the state, if not engaged on this project. The present penitentiary is valued at $1,578,591.97 in the 1918 report of the auditor of state. If this full value could be realized by sale of site, buildings, equipment, etc., it would still leave the cost of the pentientiary at present prices greater than the original estimate. 5/0 REPORT OF JOINT LEGISLATINE COMMITTEE NECESSITY FOR NEW PENITENTIARY After the report of the commission on prison reform appointed by Governor Harris a large amount of money was spent on the old peniten- tiary and it was made reasonably sanitary in spite of its great age. The report of the commission appointed by Governor Cox points out that the present plant can be used for a number of years without reproach to the state. They also report some overcrowding and from six to eight hun- dred without work. These conditions are serious and should and could have been corrected at once, but at the present time, seven years later, the conditions complained of still exist. At present there are over four hundred cells occupied by two men each, which is serious, as it leads inevitably to fighting and immorality, and there are about four hundred idle or working on jobs where they are not needed. There are, roughly, two hundred and fifty prisoners receiving instruction in school where many more would take advantage of such opportunities did they exist. Seven years have passed and many more years will pass before a new penitentiary can correct the present conditions. The average population resident in the Ohio penitentiary for the year ending June 30, 1918, was two thousand, the maximum at one time being 2078. The new penitentiary is planned for a capacity of 3,000 prisoners, and is designed on a unit plan to be built as needed. It must be realized, however, that even on a unit plan a cost of two-thirds ca- pacity will run from four-fifths to five-sixths the cost for entire capacity. A tabulation of the growth of prison population in the last nineteen years shows that if the same rate of growth continues the capacity of the new penitentiary will be reached about the year A. D. 2020. Plan- ning ahead for a generation seems liberal enough but for one hundred years is beyond reason. We are not in a position to even guess at prison needs one hundred years from now. There is every reason to believe that there will be a smaller rate of increase in prison population in the future than in the past, if not a posi- tive decrease. The trend of modern thought is toward the treatment of the mentally defective criminal in separate institutions. The state should seriously consider the scientific study of the mental condition of prisoners in the correctional institutions, and provision for placing those found to be mentally defective in institutions for the feeble minded or the criminally insane. Such action would result in relieving very ma- terially the crowded condition of the present correctional institutions. With the mentally deficient removed a much larger number of prisoners could be paroled successfully. The fact that there is now nothing to prevent the parole of the mentally incompetent prisoner is responsible for a great amount of the trouble with the present parole system. No mental defective should ever be paroled. The coming of prohibition, based upon experience in other states where prohibition has been in ON ADMINISTRATIVE REORGANIZATION 57^ effect for a long period, will serve to still further cut down prison population. The state is therefore faced with a strong probability of an actual steady decrease in prison population instead of an increase. Conditions have entirely changed from those existing in 1913 and may change still more in the next ten years. We are in a new world with new conditions and new problems. Methods of handling the crim- inal are in a constant state of flux. Is the state justified in proceeding with an expenditure based upon conditions which no longer exist? Is it not better to go slow, correct the present objectionable conditions promptly and at as low a cost as pcszible, ?^iu await developments? The penitentiary commission was orderd to secure a site and make plans for a new institution. This they have done and done well when their instructions are taken into consideration, but the plans are drawn as if the state of Ohio had no duties or activities except the paternal care of those convicted of felony. The result of their work is a fine example of the danger of appointing a separate commission for such work. They see their problem by itself and not as a part of the entire state problem. As a magnificent monument the plan is defensible; as a solution of Ohio's penitentiary problem it is nothing less than a crime. It will be urged that the proposed penitentiary will be a great manu- facturing institution and will be self-supporting. The "profits" shown in 1918 would have to be multiplied by eight to pay the fixed charges on the new plant and this is certainly improbable. Allowing, for the sake of argument, that the institution will be self-supporting, is it neces- sary to go to the proposed expense in order to get such results? Could the objectionable conditions be remedied more promptly at a lower cost? THE PROBLEM AND ITS SOLUTION Boiled down to its fundamentals the problem of the Ohio peniten- tiary is, (i) providing more room for housing about 450 men; (2) pro- viding additional work for about 400 men; (3) doing this as promptly and with as little expense as possible. It is therefore recommended: 1 — That additional living quarters be provided at the London farm for about 100 men in the form of a wooden dormitory sur- rounded by a barbed wire fence. 2 — That additional quarters of similar character be provided at the state brick plant for about 150 men and additional brick making equipment be installed, if necessary. 3 — That several semi-portable rock crushing outfits be provided and rock quarries opened for crushing rock for road work, the convicts being housed in "knock down" frame barracks sur- rounded by barbed wire fences. 57^ REPORT OF JOINT LI'X.ISr.ATnri COMMITTEE This plan will house the convicts as well as our soldiers were housec in their training camps, and will provide useful work which the state needs. The brick manufacturers and broken stone manufacturers will probably fight any effort to use convict labor in this kind of work but that is no reason why it should not be done. The private companies are not going to be able to furnish enough brick for the road program this year anyway, and if the state starts such manufacture on a large scale it will be able to build more brick road than would otherwise be possible. The amount of architects' fees paid for the preliminary plans ($36,000) would go a long way toward carrying out these recommendations. 4 — That the board of administration be asked to study the poss'- bility of opening a coal mine for the supply of state institutions, to be operated by convicts. Ohio is a great coal state. State institutions use a large amount of coal annually. The state has a surplus of prison labor. Q. E D. 5 — That the state try to purchase from the federal government either Wright Field or Camp Sherman, should either be aban- doned. These camps have sewer systems, water supply, electric power, heating system, roads, cell blocks, dormitories, hospitals, work- shops, warehouses and f^rm land. If the privilege of meeting the highest private bid for these plants be granted the state, they can be secured at a small fraction of their value. If part of the ground is leased, extend the lease. Tear down buildings not needed with convict labor and re-erect for dormitories at brick plant, London farm. Re-erect others at state institutions to relieve present congestion. Re-erect others as rural schools, community buildings, etc. in country districts, charging the county or school district the cost to the state of building and labor. Use the camp site itself as a penal farm colony. The convicts will then be as well cared for and housed as were our soldiers in the training camps. They should be able to stand this without injury. 6 — -Take immediate steps to have mental condition of convicts tested and place the mental defectives in the proper institutions. This is discussed in the body of the report. These defectives should not be in a penitentiary anywa) and should not be eligible to parole, nor should they ever be freed from proper institutional care. The freeing of tb" mentally defective is a greater menace to the well being or the state than the freeing of the most hardened criminal. 7 — Abolish the penitentiary commission, and return the unex pended balance of their appropriation, $737,083.66 Jan. I9tli ON ADMINISTRATIVE REORGANIZATION 573 1920, and the remainder of the $500,000 appropriated for the biennium 1919-1921 (about $450,000) to the general fund. Cease work on carrying out new penitentiary plans. ■ Have the board of administration estimate the neceslsary amount of money to carry out recommendations as above and make such appropriation. APPENDIX A OHIO PENITENTIARY COMMISSION, Tentative Classification of Disbursements, October 2, 1913 to February 5, 1919. Purchase of land $292,540 00 Abstract of title 300 00 Architect fees 56,000 00 Architect landscape 2,809 75 Olmstead Bros 358 35 Engineers surveys and maps 3,837 90 Timber surveys and estimates 372 00 Attorneys fees 1.500 00 Ten viewers as witnesses 50 00 Salaries 100 00 Traveling expenses > 3 , 5.^6 10 Guide — wages ; 30 00 200 Blankets 400 00 Carpenter work 1 . 838 38 Equipment 1,029 90 Books , stationery and pr.iiting 39 79 Stenographer 206 70 Engines saw mill and machinery 1,210 51 Building materials 9,426 96 Paint and oil 213 47 Pumps , pumping and wells 693 92 Freight and Drayage il,897 27 Water tank, and tower 762 90 Soil analysis 71 75 Two brood sows H"^ 00 Witness fees 9 10 Unclassified 1,019 06 Total Oct. 29, 1913 to Feb. 5, 1919 $380,394 61 Total Feb. 6, 1919 to Jan. 19. 1920 (unclassified) 143,044 92 Total disbursements $523,439 53 574 REPORT OF JOINT LEGISLATIVE COMMITTEE OHIO PENITENTIARY COMMISSION, Appropriations and Disburskments, Octo]!er 29, 1913 to January 19, 1920. Appropriations Fiscal Year Disbursements Lapsed Balance $250,000 00 Ended Nov. 15, 1913 $20197 $249,798 03 25,000 00 Ended Nov. 15, 1914 256,300 11 $2,500 00 15,997 92 Ended June 30, 1915 13,782 94 2,214 98 2,214 98 10,000 00 Ended June 30, 191C 100 54 9,899 46 Ended June 30, 1917 7,972 48 1,926 98 380,000 00 Ended June 30, 1918 8,417 16 373,509 82 50,000 00 Ended June 30, il919 139,54188 51183 283,456 11 50,750 00 To Jan. 19, 1920 97,122 45 237,083 66 Total disbursements $523,439 53 Total lapsed 5,220 81 *5,22G 81 Balance Jan. 19, 1920 237,083 66 $765,750 00 $765,750 00 APPEHDH B /$4500 2000 Curve Bhowlng Investment per Inmate of different Institutions oomparod with total Inmated of all Institutions In 1918. ©Hospital for Insane and epileptics. -f Ohio aanatorlun for tuberoolosls. X Homes for wards of the state. Q Correotlonal Institutions. ^New penitentiary - 2,000 capacity, (four-fifths expenditure) flew penitentiary - 3,000 capacity. NUMBER OF INMATES ADMINISTRATIVE REORGANIZATION IN OTHER STATES (THAN OHIO) By C. B. GALBREATH To the Joint Legislative Committee on Administrative Reorganization: At the outset of the work undertaken by the joint legislative com- mittee on administrative reorganization it was deemed important to know, in a general way at least, what had been undertaken and accomplished by other states that had attempted investigations similar to that contem- plated in the resolution creating your committee. Arrangements were ac- cordingly made for a systematic study of the work in other states in order that each member of the committtee might have before him a summary of information available. The result is embraced in the following pages. It will be noted that frequent quotations have been made from re- ports and laws of other states. This has been done in order that there may be nd mistake in regard to conclusions reached. There have been popular misapprehensions and misunderstandings in regard to the work in some states, based evidently upon inaccurate statements as to what was actually accomplished. A few instances are here noted. The news was heralded abroad through the public press that the state of Kansas had adopted the "state manager plan" which was ex- plained to be simply the "city manager plan" extended to an entire state. The study of Kansas prepared under the direction of your committee shows that this was incorrect, although a substantial and very satisfactory reform was accomplished in that state under the direction of a business manager for its benevolent and educational institutions. The statement has frequently been published that Illinois has abol- ished 125 separate and distinct administrative agencies and has estab- lished in place of them nine departments of state government with a director at the head of each. It will be noted that while the state gov- ernment of Illinois was reorganized under the nine departments prac- tically none of the pre-existing agencies have been abolished. They have been subordinated under nine directors. An ofificial report published one year ago is authority for the state- ment that Nebraska has consolidated her state offices, boards and com- missions without giving additional appointive power to the gov- ernor. A careful reading of the code adopted by that state shows that the governor is given authority to appoint every administrative officer and employe in the state from the humblest janitor to the heads of departments. In view of these facts and others of somewhat similar character it has been thought best to let official reports, statements and communica- 575 576 REPORT OF JOINT LEGISLATIVE COMMITTEE tions from the different states tell the story of what has been ac- complished. This the summaries on the following pages have attempted to do. The governor of Illinois is quoted as having said, in advocating ad- ministrative reorganization for his state, "Of course, there was much opposition by some of the political friends. They did not like to see these attractive places given up". In this statement the governor sug- gests one of the chief difficulties to be encountered in any plan for ad- ministrative consolidation that would eliminate existing positions. It is reported that when the secretary of war recently proposed the abolition of about five hundred positions in his department he re- ceived protests within two or three days from the friends of those hold- ing more than half of these positions. This is not at all surprising and he probably later received protests from the friends of practically all of those whose positions were involved. In Ohio quite recently when an increase of salaries for state em- ployes was under consideration it was suggested that the money to pay the increased salaries might in part at least be provided for by the elimination of certain positions that were not absolutely necessary. It was found, however, in a very short time that this plan could not be carried out. Every employe was certain that his position was necessary. His friends were in cordial agreement and the chief of his department was usually more than willing to lend his support. As a result salaries were increased without discrimination and all positions were conceded to be necessary. It is doubtless true that the popular outcry against appointive officials and employes in the midst of political campaigns is in a large measure unwarranted. It would be popular, of course, to abolish fifty or sixty positions and substitute for them five or six at moderate salaries, but this could not be done unless much work that the people insist upon hav- ing the government do were abandoned. This has not been done in any state and there is really little to encourage the belief that it will be seriously attempted. It is equally true that there are some positions that could be abol- ished without injury to the state's service and that there are others filled by persons who are not qualified to earn an adequate return for their salaries. Under our existing system, however, it is found extremely dif- ficult to safeguard the interests of the state where such conditions exist. The civil service system was designed in large measure to correct such conditions and much has been accomplished through this agency, but it is everywhere assailed by those who wish to administer the affairs of the state while they hold office in accordance with their own judgment and interest, free from all interference however worthy its purpose. Reference is made to these matters simply to show the difficulties thai beset any system of government reorganization that contemplates a sub ON ADMINISTRATIVE REORGANIZATION 577 stantial reduction of officholders and appointees. In actual practice it will be found much easier to reorganize state government with no thought of salary reduction and with the single purpose of readjusting the ad- ministrative agencies of the state in the interest of greater efficiency. This seems to have been the course pursued, with slight variations, in those states that have made substantial changes in their administrative codes. ALABAMA On February 13, 1915, the legislature of the state of Alabama passed a resolution authorizing the appointment of three members of the senate and five members of the house, by the presiding officer of each, to investigate "each and every department of state, and properties thereof, the expenditures therein, for what purpose and how paid ;" to search for evidence of waste of public funds and to investigate the administration cf the free text book law. The speaker of the house of representatives, by the terms of the resolution was made ex-officio member of the committee. A report was made to the legislature July 13, 191 5. This report was devoted chiefly to the following subjects : "Recommendation for state budget and accounting system ; The care of convicts ; The department of agriculture and education ; The railroad commission ; A state purchasing department ; Expense accounts of Governor Emmett O'Neil." The report is frank in some instances almost to the verge of harsh- ness. The department of agriculture is exhibited in the following fashion : "In this department we have found evidence of spoils, graft and corruption. 'The department of pure food and drugs during the past four years instead of being used for the purpose of protecting the public from impure food and drugs, has served as a means of a systematic scheme of robbery and thievery. * * * * "The office system of this department and the method of ac- counts and book-keeping are antiquated, loose and utterly out of accord with the demands of modern appliances. The corruption, embezzlement and graft herein disclosed, which has run through this department like- a scarlet thread, is the tragic evidence of the deficiency of our business system." The immigration department, which Avas overhauled by this commit- tee, comes in for scathing arraignment. Here are a few extracts: "Within the past four years $42,000 of the people's money have been expende'd. We have not been able to find that the state of Alabama ever realized one cent on this investment. Not only was this amount a total loss of the taxpayers' money, but, in addition, 37 5/8 KEi'ORT UK JOINT LEGISLATIN E COMMlTTIiE the office has been used as a means for embezzlement. The profligacy and waste of the pubHc funds through this department can be denominated nothing less than criminal * * * * "The evidence has disclosed that the commissioner, at the ex- pense of the state, took frequent trips to San Francisco, Chicago, and other points. One of these trips cost the state $265. On another occasion over $1700 was expended for an exhibit of a few ears of corn at the Chicago land show. At this time a vaudeville perform- ance was conducted by the commissioner at the expense of the state * * * *_ "The report of this department would be comical if it were not so tragic." Other departments of the state government of Alabama fared little better at the hands of this committee, while still others were more fortunate. Some critics outside of the state have regarded the report as evidence that the committee was on a 'graft hunt,' rather than a mis- sion to lay constructive foundation for the improvement of administra- tive conditions in Alabama. Whatever the animus of the committee and the antecedent political causes leading to its creation, the agitation so vigorously started seems to have. inured to the benefit of the state. The law enacted early this year, while not effecting a very radical re- organization of the state government, has provided safeguards against the loose business methods which formed the burden of the complaint in the report of 1915. The legislature of Alabama at its recent regular session enacted a law which was approved February 13, 1919, creating a state board of control and economy. The title of the act reads as follows : "To create a state board of control and economy ; to provide members thereof, their tenure of office, salaries, duties and mode of appointment, and to prescribe rules and regulations governing the said board." Section i of the act reads as follows : "Section i. That there be and is hereby established a state board of control and economy consisting of three members, one to be chairman and the other associate members, to be appointed by the governor. One of the associate members shall be designated by the governor as secretary to the board. The members to hold office at the will of the governor and be subject to removal by him in his discretion when in his opinion the public good requires it ; and if not sooner removed the holding of the position of chairman shall terminate at the end of four years from date of appointment and if any one of the associate commissioners is not sooner removed the holding of his position shall terminate at the end of two years from the date of appointment. In case of removal by the governor or the termination of the holding of any of said members by lapse of time, the governor shall aj)])oint another chairman, associate member or members as the case may rcMiuire. each of wliom sliall hold the office ON ADMINISTRATIVE .REORGANIZATION 579 to which he is appointed subject to the same power of removal in the governor, and the governor on naming successors thereafter to fill any vacancy occurring by lapse of time, or by removal of the governor, may prescribe the time the holding may continue under said appointment and when it shall terminate by lapse of time if there be not an earlier removal by him in his discretion. The chair- man of the board shall receive as compensation for his services at the rate of $500 per month for the time that he actually holds his position and the associate members shall receive compensation for their services at the rate of $333.33 per month for the time actually served." The board thus created has to do chiefly with the financial affairs of the state. It is given authority to expend all moneys appropriated for eleemosynary and charitable institutions ; to cooperate with the governing boards of such institutions; to control and fix the compensation of all officers and employes in these institutions ; to purchase all supplies for all administrative activities of the state, including educational institutions; to adopt rules and regulations with the approval of the governor, for conducting the state's business ; to keep a complete and accurate inven- tor}' of all state property except books purchased for the library. The board of control and economy does not have authority to fix the compensation of officers and teachers of purely educational institu- tions of the state, nor does it have power to select superintendents, managers and employes of charitable and eleemosynary institutions. Tt does have power, however, to remove "any such superintendent, manager or other employe * * * whenever in the opinion of the board the inter- est of the institution requires it." It is evidently the purpose to economize by giving this board com- plete control over all expenditures by the administrative agencies of the state. CALIFORNIA Governor William D. Stephens of California, on November 25. 1918, appointed a committee of eleven members "to survey the activities of state government and report upon the practicability of introducing economies in administration." This committee consisted of the state controller, attorney general, three members of the state board of control and six citizens, one of whom is president of the commonwealth club of California and another of whom is a former United States senator. The committee was asked to make a study of the problems of economy and efficiency in state offices and to report to the governor on the following points : I — The statute under which each department, bureau and com- mission is organized. 2 — The powers, duties and internal organization as provided by law, and in fact exercised. 580 REPORT OF JOtXT Li:c,ISL.\Tl\ K COMMITTEE 3 — To what extent powers and duties overlap and duplicate. 4 — Analysis and comparison of appropriations and expenditures. 5 — Recommendations. Following are excerpts from the instructions of Governor Stephens to the committee : "During the past few years California's government has been practically reconstructed. We have experienced a development along social, humanitarian and industrial lines which for so short a period surpasses the history of like achievement in any other state. But exactly the same results follow in governmental development as follow expansion in private business, and as in private business, after grow^th and development, we must remove all extraneous expenses and practice the strictest economy in carrying on the state's activities. If there be debris and structural staging necessary to the work of building but unnecessary and expensive to proper main- tenance, such non-essentials must be removed. "Necessarily in grappling with the big industrial, economic, and social problems governmental activities have grown up more or less independent of each other with inevitable over-lapping. What we want to know is the extent of this overlapping, and the possible saving to the people in cost of government without injury to the public service." The committee made its report to the governor under date of March 12, 1919. In its formal report the committee, through its chair- man, said : "The recommendations submitted embody fundamental prin- ciples of governmental management which, when put into force, we believe, wall not only make for immediate improvement in the administration of the state's afifairs, but will be the foundation upon which any future expansion of the state's activities may rest. "The time limitation placed upon the work of the committee, in order that its report might be in your hands in time for presenta- tion by you to the legislature, has not permitted the making of recommendations for changes other than those which can be put into effect immediately by legislative enactment. It is at once ap- parent, therefore, that the committee has not exhausted the subjects covered by your letter, and that it would have been impossible to exhaust them in the time at our disposal. Nevertheless if the recom- mendations contained in the report are carried out the proposed readjustments will, in our opinion greatly increase the efficiency of the state government, and this at a cost of approximately $550,000 less per biennial period." In describing its method of procedure the committee makes the following statement: "A tentative plan for the grouping of the state's activities into eleven functional groups was outlined and provision made for the study of these groups through the medium of five subcommittees ON ADM[XISTRATIVK REORGANIZATION 5^1 composed of members of the general committee and associate mem- bers chosen from persons throughout the state for their recognized abihty and famiharity with the problems to be studied by the com- mittees to which they were appointed." Then following the names of the subcommittees and the names of 211 associate members who assisted in the survey, the report proceeds: "A communication was sent to every state department, board and commission requesting that the committee be furnished with the following information : 1 . What are your powers, duties and internal organization as provided' by law, and in fact exercised ? 2. To what extent do the powers and duties of your depart- ment overlap and duplicate those of another? 3. What changes, if any, do you. believe could be made in your department in order that the work might be carried on most effectively and in the most efficient and economical manner? 4. What other suggestions have you in mind, relating either to your own department or to the state's business as a whole, that will make for a more efficient administration of the afifairs of the state? "The various agencies of the state answered in great detail. After the receipt by the committee of the replies the subcom- mittees with associate members held hearings in Sacramento, San Francisco and Los Angeles, to which were invited the representatives of the various boards, commissions and departments, together with those citizens who had expressed interest in the subjects under dis- cussion, and the general public At the hearings the fullest and freest opportunity was given for the expression of ideas and views, to which full consideration was given later by the committee." From the information gathered through the questionnaires sent to the different state departments, the committee prepared a "review of the organization and functions of all existing agencies of government ar- ranged in functional groups." This is introduced by a summary of the arrangement with the agencies classified under the following heads : I. Legislative 10. Labor 2. Judicial II. Education 3- Executive 12. Public health 4' Legal service 13- Institutions 5- Finance 14. Social service 6. Trade and corporations 15- Civil service 7- Public works 16. State defense 8. 9. Agriculture Natural resources 17- Examining and licensing This division was made to facilitate the study of existing agencies in the state government of California. The office, board or commission classified under any of these divisions was studied and a condensed state- 582 REPORT OF JOINT LEGISLATIVE COMMITTEE merit .made of the terms and salary of the principal officer or officers and the functions of the department or office. Following this is a tab- ulated citation of the acts "controlling all departments, boards and com- mission." The commission, after its brief and comprehensive investigation, finds occasion to say some good things about state administration in California. This statement is characteristic of western optimism and the pride and faith of the Pacific states in their institutions. It is as follows : "California's Governmental Advancement "After a comprehensive survey of the present agencies of the state government the committee finds that they are rendering to the people of the state loyal and effective service. These various agencies have been created in response to a public demand and the legislature of the state has responded to that demand, and, in the main, has exercised sound and careful judgment. Too much praise can not be given to the legislatures of California which have convened since 1910, for their patriotic and constructive achievements. Under the leadership of governors with social vision and determination, the wishes of the people have been crystallized into legislation which has resulted in removing social unrest and in strengthening faith in popular government. The committee believes that the accom- plishments since 1910 should inspire the people of the state with a feeling of pride for what has been done by the various state agencies. Not only has California been a leader in humanitarian legislation, but it is among the most advanced states in methods of financial control and business management. "Obviously many of the policies, and the agencies from time to time created to carry them into effect, were experimental in their nature and it was to be expected that the integration of those agen- cies and their proper functioning, one with another, could not be worked out carefully in advance. Duplication and overlapping were inevitable. It should be noted, however, that no one appeared at any of the committee's hearings to challenge either their policies that have been adopted or the integrity of those charged with carry- ing them into effect. The aim of the committee's recommendations is to make more efficient, effective and economical the agencies of administration in operation, without lessening the services they are rendering to the people of this state." Governor's cabinet recommended. The creation of a governor's cabinet was recommended by the. com- mittee to be composed of the following officers: 1 . Director of receipts and supplies. 2. Director of accounts and expenditures. 3. Director of trade and corporations. 4. Director of public works. 5. Director of agriculture. 6. Director of natural resources. 7. Director of labor. ON ADMINISTRATIVE REORGANIZATION 583 8. Director of institutions. 9. Chairman of the board of education. 10. Chairman of the board of health. 11. Chairman of the board of social service. Under these officers it was proposed to organize the administrative £;tate agencies in departments corresponding tO' the official title of directors; that is, department of receipts and supplies, department of ac- counts and expenditures, etc. As already stated, the committee made its report to the governor on March 12, 1919. Governor Stephens under date of March 19, 1919. transmitted the report of the committee v^ith a special message relating thereto to the general assembly of California. The governor's comment on the report is, in part, as follows : "In the letter of appointment addressed to every member of the committee I referred to the desirability of formulating a definite plan for improving the administration of the state's aflfairs, and for introducing such economies as might be possible without prejudice to the public welfare or impairment of present efficiency. Attention was called to the need of ascertaining just where over- lapping existed, if at all, and the possible saving to be effected by its elimination. It was emphasized, of course, that such saving must be made without interfering in any degree with the service of those great commissions erected within our state during the last decade, and which have meant so much to the health, the safety, and the general well-being of our people. "The report is a very valuable public document and deserving of the most careful thought. It is significant, however, that it is devoid of criticism so far as extravagance, inefficiency or overlap- ping are concerned. Indeed, generous tribute is paid by the com- mittee to the honesty, zeal and public spirit with which the commis- sions and other departmental agencies are operating. This report will be of great value in the assurance it must give to our people of the fidelity to trust of our public servants. "The committee has apparently felt constrained to propose a new plan which is a substantial departure from those methods and agencies now existing and well known to the people of the state. A somewhat radical change is purposed in our methods of administra- tion when it is proposed to substitute in place of most of the existing commissions a system of departments and bureaus, with directors, chief of divisions and minor heads, all holding office directly or in- directly at the pleasure of the governor. "To change the laws of California to provide for a complete reorganization of the structure of the state government is a task so huge that there is little hope that it can be accomplished in the remaining days of this session of the legislature. Indeed, the work is so important, and the results which may follow such changes are so vast, that the members of the legislature and the people of the state should have ample time for careful consideration and study. So far as the people have given this subject thought, I am con- vinced that they are not interested so much in the structure of gov- 584 REPORT OF JOINT LECISLATINE COMMITTEE ernment as they are in an immediate reduction of the cost of gov- ernment while maintaining the same high standards of efficiency. The plan of government is important mainly as it reflects itself in economy and in efficiency. "The first thing to be noted in the report is the annual amount the committee believes it is possible to save. This amount is $275,- 000 a year, and consists of two classes of savings. One class, con- sisting of $175,000, I am informed through a member of the com- mittee, may be saved from two sources — first, by a system of cash discounts on purchases, and second, by taking the transportation of the insane from the sheriffs of the counties and placing the matter in the hands of trained attendants from the hospitals. "It occurs to me that these two items of savings, while excel- lent in themselves, have no essential part in a particular plan of governmental reconstruction, since both, if feasible, can be done equally well under our present plan of government. "The cash discount system, which the committee estimates will save $150,000 a year, can be put into operation by making our purchases out of a revolving fund, if it is found that sufficient checks and audits can be had under such plan adequately to safe- guard the public moneys. A bill covering this matter will be pre- sented to you for your consideration. "If the foregoing two items of saving can be successfully accomplished, the committee's estimate will leave but $100,000 a year as a saving that might be effected by a complete reorganization of our present governmental agencies. "I am firmly of the opinion that the legislature at this session should go as far as possible in the enactment of measures tending towards consolidation of certain commissions, where it is certain that such consolidation will not result in lessened efficiency and will with equal certainty result in the lessening of cost. To this end there will be submitted several bills, all drafted with a design to bring about economy, and it is my earnest hope that you will give these rneasures your approval. Among them will be bills for elimi- nating some attorneyships now carried by various boards and com- missions, and providing for consolidating such work in the office of the attorney general. Bills for consolidating certain commissions will also be prepared. "One of the criticisms directed against the suggested reorgan- ization of the administrative structure of government into a num- ber of departments, all under the control of appointees to hold ofiice at the pleasure of the governor, is that such arrangement would place tremendous power in the hands of the chief executive. While it may be wise to centralize power if at the same time responsibility is also centralized, yet the question is of such serious concern that it seems ill-advised to act precipitately. As chief executive I am un- willing to advocate greater power for the governor without more extended study, and without opportunity for the people to give some clearer expression of their views than can be had in the time inter- vening: between this and the close of the session. "I shall insist upon the strictest economy in the administration of the state's affairs, but I would not lessen the efficiency of our public service, nor the amount of humane and upbuilding work that is being done." ON ADMIXISTKATINK REORGANIZATION 5'^5 On March 20, 1919, the assembly of CaHfornia considered the mes- sage from the governor and the accompanying report and referred the same to the committee on governmental efficiency and economy. To the present time (January i, 1920) no further action has been taken. In comparing the recommendations of the California commission with the civil administrative code of IHinois this difference is apparent: In each of the departments recommended by the committee of California the director of the department is made the administrative head of one of its divisions. In Illinois the director under the code seems to have general supervision of all the divisions of his department without directly administering any one of them. COLORADO At the legislative session in 191 5 the general assembly of Colorado enacted a law providing for a survey committee of state afifairs of Col- orado. This committee consisted of seven members, two appointed by the senate, two by the house of representatives and three appointed by the governor. The committee was authorized to investigate all departments and agencies of the state administration. The attorney general of the state questioned the constitutionality of the act creating the committee. This led to litigation and the case went to the supreme court. On June 5, 1916, the act was declared to be con- stitutional. A number of special investigations were made and reports were sub- mitted to the legislature in February, 1917.. These reports, fifteen in number, are named by title under "State Publications" listed in the bibliography submitted to your committee. The committee had, in addition to its secretary, other employes and a stafif of three specialists who conducted investigations. In addition to these, voluntary aid was given by the U. S. public health service, the U. S. bureau of education, Columbia university and specialists in the state of Colorado who contributed their service without pay from the appropriation for the use of the committee. The legislature of 1917 did not provide for the continuation of the committee although the governor, in his annual message, strongly urged that it do so. The governor in 1919, in his message to the legislature, urged the consolidation of state governmental agencies in the interest of efficiency and economy. While important legislation has not followed the sun-ey of Colorado, the published reports indicate thorough work on the part of the com- mittee and the investigators and constitute a valuable contribution to the literature of state administrative reorganization. 586 REPORT OF JOINT LF.GISLATIVE COMMITTEE CONNECTICUT By act of February 8, 1915, the legislature of Connecticut created a commission on the consolidating of state commissions of Connecticut. This commission consisted of nine members appointed by the governor, a majority of whom were required to be members of the general assem- bly or of existing state or county commissions. This commission was re- quired to report before April 191 5 upon the reorganization and con- solidation of various state and county boards with a view to greater economy and efficiency : to revise the public health laws that waste and duplication of authority might be prevented. The commission reported within the time specified. Its investigation covered the brief period prior to April i, 191 5. Seventeen days were given to hearings on the work of 32 boards and commissions. Extended recommendations for administrative reorganization were made and the report includes drafts of acts proposed to carry out recommendations. No important resulting legislation has been reported. DELAWARE In Delaware the movement for reorganization of the state govern- ment originated with the comicil of defense of that state. The move- ment here may therefore be said to be the direct result of the war. In the summer of 1918, before signs of peace were apparent, the defense council of Delaware called to its assistance the New York Bureau of Municipal Research and commenced an investigation of the government of the city of Wilmington which gradually extended to the counties of Delaware and the state government as well. Chester C. Maxey, of the Bureau, described conditions in Delaware as a "chaotic jumble." The state government was found to possess 117 administrative agencies, 83 of which were appointed by the governor. The council of defense, basing its action upon investigations by the New York Bureau of Municipal Research, reported in favor of a complete reorganization of the state government, under nine departments. Acting upon these recommendations Governor Townsend requested the creation of a recon- struction commission to investigate the report and make recommendations to the legislature for action. The general assembly of Delaware adopted a resolution which was approved April 2, 1919, "Providing for a commission to make a survey of state government and state offices and county government and county offices and report to the next general assembly." A committee was appointed pursuant to this resolution and is now completing its survey of the state government and preparing a bill embracing its recommendations to submit to the next general assembly. ON ADMINISTRATIVE REORGANIZATION 5^7 IDAHO In his message to the legislature in 1919, Governor W. D. Davis of Idaho made the following recommendations relative to reorganiza- tion of the executive departments of that state : "The executive and administrative departments of the state should be divided into a small number of departments, the heads of which, so far as the constitution permits, shall be directly re- sponsible to the governor. The functions of every officer, bureau, board, or commission in the state should be assigned to one of these departments. The departments should be subdivided where neces- sary into bureaus, the heads of which and the subordinates under them being selected with view to their expert fitness and qualifica- tions for their respective positions. "I further propose that the heads of the several departments, including the constitutional elective officers, shall constitute a gov- ernor's cabinet or council, thereby furnishing a vehicle through which all the departments of the state government can be co-ordi- nated and correlated in their functions;" The governor's recommendation was heeded and the bill to make it effective, known as the administration consolidation bill, was intro- duced in the senate of Idaho and is now a law. It is not to be under- stood, however, that the' movement for the reorganization of the state government had its inception in the message of Governor Davis. A writer thoroughly acquainted with state affairs in Idaho thus describes antecedent conditions that opened up the way for the enactment of the law. In part he says : "The measure is the outcome of a number of years of intense dissatisfaction arising from the methods employed by state admin- istrators. Criminal proceedings, wide-spread criticisms of the state land board — one of the most important boards in the state — lack of uniformity of accounting, absence of a budget, and equally unbusiness-like methods have characterized the state administration from some time back. In fact there have been many rumors that the financial condition of the state is in a far more serious condition than people generally were aware of. Expert accountants have been on the state books for over two years and those conversant with the situation contend that the whole matter of state finance is in a hopeless muddle." The law was approved by the governor February 19, 19 19 and it became effective from and after March 31, 1919. It reorganized the government of the state under the following departments : Agriculture ; commerce and industry; finance; immigration, labor and statistics; law enforcement; public investments; public welfare; public works; reclama- tion. Each dq:artment has an administrative officer at its head who is 588 KEl'ORT OF JOINT LliClSLATINE COMMITTKE called a commissioner. The legal designations of these officers are there- fore as follows : Commissioner of agriculture Commissioner of commerce and industry Commissioner of finance Commissioner of immigration, labor and statistics Commissioner of law enforcement Commissioner of public investments Commissioner of public welfare. Commissioner of public works Commissioner of reclamation In addition to these executive heads the following officers are designated in the law under the different departments : Department of Agriculture Director of markets Director of animal industry • ■ Director of plant industry Director of farrs Department of Commerce and Industry Assistant commissioner of commerce and industry Director of banking Department of Insurance Director of insurance Manager of state industrial insurance Department of Law Enforcement Fish and game warden Department of Public Welfare Public health adviser Department of Public Works Director of highways Department of Reclamation Director of water resources In addition to the foregoing administrative officers there is created under the act a board of agricultural advisors "composed of nine per- sons, the members of which shall be officers." Section 1 1 of the act, relative to appointment, is very explicit in the authority that it confers upon the governor. It reads as follows: "All officers created by this act shall be appointed by the gov- ernor, and, except those who under the constitution are appointed for specific terms, may be removed at his discretion." Another section of the law authorized the appointment of any of the elective officers of the state to the head of any one of the nine depart- ments, providing he is otherwise qualified, but prohibits the payment to ON ADMIMSTKATIVE REORGANIZATION- 589 him of any salary other than that which he receives as an elective state officer. A noteworthy feature of the Idaho law is that which provides special qualifications for the incumbents of certain offices that it creates. In this respect it follows the law enacted in Massachusetts in 1918, re- ference to which is made in the study of that state. Because of the importance of this feature the qualifications required are here given in full : "In the Department of Agriculture "The board of agricultural advisors shall be composed of repre- sentative citizens engaged in various agricultural pursuits through- out the state, not excluding representatives of the agricultural press and of the state agricultural experiment station. "In the Department of Commerce and Industry "Neither the commissioner of commerce and industry nor any director in his department shall be the owner of or financially inter- ested either directly or indirectly in any banking or insurance cor- poration subject to the supervision of the department. "The commissioner of commerce and industry shall have had at least five years' practical experience in the banking business, or shall have served for a like period in the banking department of this or some other state. "The director of insurance shall have had at least five years' practical experience in the insurance business. "In the Department of Law Enforcement "Neither the commissioner, nor any other executive or ad- ministrative officer in the department of law enforcement, shall hold a license or certificate to exercise or practice, any of the pro- fessions, trades or occupations regulated or licensed by said depart- ment. "In the Department of Public Investments "The commissioner of public investments shall have had at least five years' experience in the banking or investment business. "In the Department of Public JV el fare. "The public health adviser shall be a person experienced in the practice of public health and sanitation and authorized under the laws of this state to practice medicine and surgery. "In the Department of Public Works "The director of highways shall be a civil engineer of not less than five years' experience in road building. "In the Department of Reclamation "The director of water resources shall be an hydraulic engineer with not less than five years' experience in the practice of irrigation engineering." 590 KEl'ORT OF JOINT LKGiSLATlNE COMMITTEE Why qualifications are not required in this act for all officers named therein is not clear. The fact that they are required in a number of departments, however, is significant of a tendency to thus protect the public service. It is certainly illogical to fix standards of fitness for those in subordinate positions while assuming that any person who may be appointed is qualified to serve at the head of a department. The number of offices created and specifically named in the Idaho law is not large. There is a blanket provision, however, in section i6 of the act which makes it possible to extend the list of employes. It reads as follows : "Each department is empowered to employ necessary employees, and. if the rate of compensation is not otherwise fixed by law, to fix their compensation." Of course employment can not be provided where appropriations have fiot been made for that purpose. The number of employes in the state under the new law is therefore indefinite and dependent upon the legislature and the heads of the different departments. Until the law is in operation and the reorganization provided by it has been effected and tested in practice, it will be impossible to make a comparison be- tween expenditure for salaries under the old system and the new. Many offices and positions are abolished, but to what extent they will virtually be reestablished under the new code is not known. It will be noticed that there is no provision for a department of education in the Idaho code. The educational institutions of that state have not been brought within its purview, doubtless because they are satisfactorily administered under laws previously enacted. ILLINOIS In April 1913 the general assembly of Illinois passed a resolution authorizing the appointment of a committee of four senators and four representatives to investigate the departments of the state government, including all bureaus and commissions which had been created by the general assembly. The investigation was to be made with a view of .securing a more perfect system of accounting, combining and centralizing the duties of the various departments, abolishing such as were useless and securing for the state of Illinois such reorganization as would pro- mote greater efficiency and greater economy in her various branches of government. The committee was given full authority to employ expert ac- countants, attorneys, stenographers and other assistants necessary. An appropriation of $40,000 was made to carry on the work of the com- mittee. -ON ADMINISTRATIVE REORGANIZATION 59^ The resolution did not give the committee a specific name but the reports of the committee bear the designation, "efficiency and economy committee". On July i8, 1914 the committee made a preliminary report to the general assembly embracing the following recommendations : '"More or less natural grouping of the existing 100 departments into the following subdivisions: "Finance administration. Education. Charitable and correctional institutions, Public works and conservation. Agricultural agencies. Labor and mining agencies. Public health and safety. Control of corporations. Law officers. State militia Miscellaneous. "Recommends preparation of budget by governor and heads of departments. "Such reorganization as is here recommended should bring about greater harmony between the executive and legislative branches of the state government. The governor will have authority over the whole executive organization and means for enforcing his authority and may properly be held responsible for its conduct." On December i, 1914, the committee made a report, covering 80 pages, which includes a graphic representation of the state executive organization in Illinois and the one proposed to supercede it. It details advantages to be gained from the proposed reorganization and in con- clusion gives the following summary statement of "results to be ex- pected :" "Correlation and Supervision "The proposed organization of related services into the same depart- ment will bring about greater economy and efficiency by eliminating unnecessary and duplicate positions, and still more by bringing about greater harmonv and co-operation in the work of such offices. It should also be easier to avoid over-lapping of functions and to promote co- operation between the several main departments. The detailed plans will also attempt to equalize salaries and to provide for a more definite and uniform system of reports. Under the proposed organization- there should also be 'little or no occasion for the creation of additional depart- ments in the future as new services when needed can be attached to some of the departments already established. "Efficiency and economy should also be secured under the proposed plan of reorganization by establishing a more definite system of super- vision over the several branches of state administration. The head of each department will determine many matters hitherto brought to the attention of the governor or decided by minor officials without relation to other related offices ; while the more important questions will be pre- 59- RKI'ORT OF JOINT LE(^.ISLATI\E COMMITTEE sented to the governor with adequate information and in proper form for prompt action. By this means the governor will be enabled to give more attention and consideration to the larger problems both of administration and legislation. "With regard to the constitutional elective officers, these cannot be brought under the complete control of the governor without changes in the state constitution. Under the proposed plans, however, these officials will be given authority and can be held responsible for all matters properly belonging to their offices ; while functions now placed on these officers which are not closely related to their primary duties will be transferred to offices under the supervision and control of the governor. Assistance in Legislation "With a well organized executive system, recommendations from the several departments should also be of much assistance to the general assembly in matters of legislation. Such recommendations should cover a large part of the important legislation needed ; and coming from officers responsible for its execution will be more carefully prepared both as to substance and form and with reference to previous legislation, than proposals from other sources. By this means there should be brought about greater harmony between the executive and legislative branches of t-he state government. Responsible Govcrmnent "Moreover, under the proposed reorganization the general public will be able to learn more readily from the reports of the important departments of the actual conduct of public affairs in any of the main fields of state government. And, as the governor will have authority over the whole executive organization, and means for enforcing this authority, so far as possible under the present constitution, he may properly be held responsible by public opinion for its operation. Budget and Accounts "The proposed reorganization will also aid in the preparation of a proper budget of estimates as a basis for appropriations. Each depart- ment will be able to formulate a careful estimate of needed appropri- ations, considering the relative demands of its several bureaus, and serv- ices ; and these departmental estimates will be compiled and analyzed by the state comptrolller for submission to the governor, who wilT recom- mend the aggregate budget of items approved by him to the general assembly. This will place on the governor the responsibility for the total amount requested ; and the general assembly will hesitate to increase the .appropriations beyond the amounts recommended by the governor. "A comprehensive pnd modern system of accounts (such as is sub- ■nittedin outline, and which has been worked out in detail for the peni- tentiaries and reformatory) will also aid in controlling and fixing re- sponsibility for expeiiditures and \n preparing close estimates for the budget. Economy Expected "To measure accurately in statistical and mathematic terms the ?xpected improvements, is more difficult than to point out the general results likely to be gained. But some estimates may be made of the ON ADMINISTRATIVE REORGANIZATION 593 direct financial advantages. The general plans of consolidation and re- organization will directly reduce expenditures for salaries and expenses of officials, and for office expenses by about $100,000 a year. The saving proposed in the extension of taxes and the interest on tax col- lections will amount to $500,000 a year. The centralization of inheritance tax administration should reduce the cost of collection by one-half, or at least $ioo,coo a year. The management of local school funds by county treasurers instead of by school township treasurers, should save one-half of the present cost of administration or another $100,000 a year, if the consolidation of prison management results in placing the cost of maintenance on the same per capita basis as in the charitable institutions, there will be a further saving of $200,000 a year. The more centralized organization proposed for the rental and supervision of state offices and for printing and the purchase of supplies should also bring about a re- duction in expenses of not less than $100,000 a year. "Combining these items it may be roughly estimated that the direct financial saving, on the basis of existing services, will be not less than $1,000,000 a year, of which $600,000 will be direct gain to the state treasury. An effective budget system should make possible still larger reduction of expenditures. But the most important gain will, after all, be in the increased efficiency of public administration, which will be equivalent to a large saving to the state, even if it cannot well be measured in dollars and cents. A more efficient revenue administration, for example, will produce large revenue with a more equitable distribution of the burdens of taxation. "At the same time, it should be borne in mind that with the increase in population and in the demands for public activities .... as for education, good roads and better treatment of the wards of the state .... the total appropriations and expenditures of the state are not likely to be reduced. Indeed a department which is performing efficiently a useful service may receive larger appropriations than if the work were done poorly. "But the increase in state expenditures which must be expected makes it all the more important to provide a system of administration which will make possible and probable a more efficient and economical administration of the public funds. It is with this purpose that the in- vestigations of. the efficiency and economy committee have been under- taken, and its plans for reorganization have been formulated. "The committee, is unanimously of the opinion that the reorgan- ization of the executive departments upon the general lines proposed will result both in much greater efficiency, and in greater econ- omy in the conduct of state administration. Likewise, it will aid the governor and the general assembly to perform their duties more effectively in the public interest ; and it will give the general public more definite and adequate knowledge of the purposes and results of the administrative service of the state. The several members of the com- mittee also concur in the specific recommendations, except in so fax as dissent is indicated in the supplemental sJtatements attsdae/i thereto. NEED FOR FURTHER INVESTIGATION "The investigations by this committee and the reports and plans submitted cover in a comprehensive way the field of the state executive organization established and governed by the acts of the general assembly. 594 REPORT OF JOINT LI-.CISLAT) VE COMMlTTI-.E There remain, however, other fields and branches of state and local gov- ernment in Illinois where a similar investigation would develop that large economies and greater efficiency could be secured. Siich an investigation will be of value to future sessions of the general assembly, and will be of particular value, in view of the proposals now being urged for a con- vention to revise the state constitution. "If constitutional or important statutory changes are likely to be made in the near future, there should be careful and systematic survey of the governmental organization and of other provisions of the present constitution, and their practical operation, in comparison with those of other states and countries. This should include an examination of the state executive officers, the judicial systems and the general assembly, and of the relations between these departments of state government. There should also be a careful study of local government, as established by the constitution and by statute, and of its relation to the central gov- ernment of the state. Still further there should be included an examina- tion of the constitutional provisions relating to suffrage and elections, education, finance and taxation, corporations and public utilities and the methods of amending and revising the state constitution. "On all of these subjects, there should be available a comprehensive and thorough analysis of the existing constitutional provisions of Illinois, and a detailed report on how these provisions actually work. There is needed, for example, a scientific study of the use of the governor's veto power, of the exercise by the courts of the power to declare statutes unconstitutional, and of the present systems of representation in the houses of the general assembly. "Along with this investigation of the present governmental system in Illinois, there should be a study made of similar and different methods in other states and so far as practicable those of foreign countries. These should include inquiries and reports on such subjects as the relations of the executive to the legislature, woman suffrage, the initiative and ref- erendum, municipal and county home rule, judicial organization, pro- portional representation, and methods of taxation. "Such a survey is essential in order to make available for the mem- bers of the general assembly and the constitutional convention the data which should be at hand for statutory and constitutional changes. Some- thing of the kind has been authorized in the state of New York to pre- pare for the constitutional convention to be held in that state in 1915. To collect the information, and to analyze and digest the data thoroughly, the investigation should be commenced as soon as possible. "This committee, therefore, recommends that the forty-ninth general assembly provide for a comprehensive survey of government in Illinois, to collect and digest the materials bearing on the problems of legislation and proposed changes in the state constitution." The final rejjort of the efficiency and economy committee of Illinois was published in 191 5. It opens with the report to the legislature under date of December i, 1914 and concludes with appendices made up of special studies of those selected by the director of the committee. Pro- fessor John A. Fairlie, to make investigations of various subjects re- lated to state administration. Following is the table of contents of these special studies : ON ADMINISTRATIVE REORGANIZATION 595 REVENUE AND FINANCE ADMINISTRATION By John A. Fairlie. THE ACCOUNTS OF THE STATE OF ILLINOIS By George E. Frazer, C. P. A. ACCOUNTING ADMINISTRATION FOR CORRECTIONAL INSTITUTIONS By Spurgeon Bell. CHARITABLE AND CORRECTIONAL INSTITUTIONS By James W. Garner. EDUCATIONAL ADMINISTRATION By John M. Mathev^s. LABOR AND MINING AGENCIES By W. F. Dodd. AGRICULTURAL ADMINISTRATION By James W. Garner. PUBLIC HEALTH ADMINISTRATION By John M. Mathews. SUPERVISION OF CORPORATIONS By Maurice H. Robinson. PUBLIC WORKS, PARKS AND BUILDINGS By C. O. Gardner. MILITARY ADMINISTRATION By Quincy Wright. CIVIL SERVICE LAWS By A. C. Hanford THE SECRETARY OF STATE AND LAW OFFICES EFFICIENCY AND ECONOMY COMMISSIONS IN OTHER STATES By A. C. Hanford. These published studies are a series of monographs of great value to any committee having under consideration a reorganization of state government. They exhibit the chief foundation work of the committee ; they cover, in the aggregate, 971 pages and embrace a carefully pre- pared review of state administration, not only in Illinois, but in other states. With these studies before them the members of the Illinois com- mittee had a general view of various methods employed in the solution of state administrative problems. The value of this is so apparent that it need not be dwelt upon. Take, for instance, the question of educational 596 REPORT OI' JOINT IJ'.C.ISLATINI-: COM M ITTKE administration. This is a problem of great importance in every state. A committee about to reorganize its state educational administrative agencies would be interested in knowing what has been done along similar lines in other states. The same is true of agricultural adminis- tration, charitable and correctional institutions and the other subjects exhaustively presented in the voluminous appendix to this report. Consolidation of state governmental agencies, of course, implies a centralizing of authority and responsibility. This is emphasized with great frequency in the Illinois report. It seems to have made a deep impression, not only upon the committee but upon the general assembly that considered the findings of the committee. A bill embracing the general principles of the committee's report was introduced in the general assembly of Ilhnois in 191 7 and became a law ; it is known as the civil administrative code. It differs in some respects from the recommendations of the committee, but it reorganizes the state government under nine administrative departments, with a director at the head of each. It centralizes authority in the governor and gives him very generous powers of appointment and removal from office. The committee did not recommend specific salaries, but the legisla- ture fixed the compensation of a goodly number of important official posts under the state government. Following is a list of the officers and salaries under the Illinois code: Department of Finance Director of finance $7,000 Assistant director of finance 4,200 Administrative auditor 4,800 Superintendent of budget 3,6oo Superintendent of department reports 3,600 Department of Agriculture Director of agriculture $6,000 Assistant director of agriculture 3,600 General manager of state fair 3,600 Superintendent of foods and dairies 4,800 Superintendent of animal industry 3,600 Superintendent of plant industry 3.600 Chief veterinarian 4,200 Chief game and fish warden 3.600 Food standard officer 450 Food standard officer 450 Department of Labor Director of labor $5,ooo Assistant director of labor 3,000 Chief factory inspector 3.000 Superintendent of free employment offices 3,000 Chief inspector private employment agencies 3,000 ON ADMINISTRATIVE REORGANIZATION 597 Industrial officer 5.00° Industrial officer 5-000 Industrial officer 5.000 Industrial officer 5'OO0 Industrial officer 5.000 Department of Mines and Mining Director of mines and mining . • • • • $5.ooo Assistant director' of mines and mining 3.000 Mine officer 500 Mine officer 50O Mine officer 500 Mine officer 500 Miners' examining officer i,8oo Miners' examining officer i,8oo Miners' examining officer l,8oo Miners' examining officer • i,oOO Department of Public Works and Buildings Director of public works and buildings $7,000 Assistant director of public works and buildings 4,000 Superintendent of highways 5.000 Chief highway engineer 5>000 Supervising architect 4,000 Supervising engineer 4,000 Superintendent of waterways 5.000 Superintendent of buildings 5.000 Superintendent of purchases and supplies 5.000 Superintendent of parks 2,500 Department of Public Welfare Director of public welfare $7,000 Assistant director of public welfare 4,000 Alienist . 5.000 Criminologist 5.000 Fiscal supervisor 5.000 Superintendent of charities 5.000 Superintendent of prisons 5.000 Superintendent of pardons and paroles 5.000 Department of Public Health Director of public health $6,000 Assistant director of public health 3.600 Superintendent of lodging house inspection 3.000 Department of Trade and Commerce Director of trade and commerce $7,000 Assistant director of trade and commerce 4,000 Superintendent of insurance 5.000 Fire marshal 3'000 Superintendent of standards 2,500 Chief grain inspector 5.000 598 REPORT OF JOINT LEGISLATIVE COMMITTEE Public Utilities commissioner 7,000 Public utilities commissioner 7,000 Public utilities commissioner '; 7,000 Public utilities commissioner 7,000 Public utilities commissioner 7,000 Secretary of public utilities commission 4,000 Department of Registration and Education Director of registration and education $5,ooo Assistant director of registration and education 3,6oo Superintendent of registration 4,200 The code specifically provides that "each officer whose office is created by this act shall be appointed by the governor, by and with the advice and consent of the senate." It will therefore be seen that all the officers named in the preceding list are to be appointed by the gov- ernor; confirmation by the senate is required. It is worthy of note that the term of each of these officers, with very few exceptions, is made to expire with the term of the governor. In Illinois the governor serves for a term of four years. Section 13 of the act provides ; "Each officer whose office is created by this act, except as otherwise specifically provided for in this act, shall hold office for a term of four years from the second Monday in January after the election of the governor, and until his successor is elected and qualified." This provision seems to be in harmony with the theory that larger power should be vested in the hands of the governor, in order that he may be made more directly responsible for the acts of his subordinates. Governor Lowden in his campaign for election pledged himself to carry out the general principles of reorganization and consolidation recommended by the committee on efficiency and economy. After his elec- tion he used his influence in support of the bill, which was finally enacted as the civil administrative code of Illinois and received his approval March 7, 191 7. Having advocated the principles embodied in the report of the committee and having been responsible, in 4arge measure, for the formulation and enactment of the code, Governor Lowden has been, of course, greatly interested in the measure and desirous that it should fulfill the promises made to the people. In his message to the legislature in 1919 he says: "The civil administrative code went into eflfect on July i, 1917. It amounted to a revolution in government. Under it a reorganiza- tion of more than one hundred and twenty-five boards, commissions and independent agencies was effected. Nine departments, with ex- tensive and real power vested in each head, have taken the place of those bodies, which were abolished, and discharged, under the general supervision of the governor, the details of government for which the governor is responsible. At the time the bill was up for consideration it was claimed that it would result in both cfficiencv and economv. ON ADMINISTRATIVE REORGANIZATION 599 "It has more than justified the expectations that were formed concerning it. The functions of the government are discharged at the capitol. The governor is in daily contact with his administration in all its activities. Unity and harmony of administration have been at- tained, and vigor and energy of administration enhanced. It seems to me almost providential that it should have been en- acted into law before war actually came. A large number of the state's most expert officials and employees were drawn upon by the government at Washington because of the exigencies of the war. The same difficulties arose in the conduct of public business, which vexed private business so much. There was necessarily much confu- sion. The cost of all supplies rose rapidly. Unless the more than hundred scattered agencies, which had existed heretofore, had been welded by the civil administrative code into a compact and coordinate government, anything like efficient state government, during these difficult times, would have been impossible. Illinois, through the greater elasticity and efficiency of her new form of government, was able to meet every emergency of the war without an extraordinary session of her legislature. "The appropriations made by the last general assembly were based upon pre-war prices and conditions. And yet, we will have completed the biennium without a defficiency in any department under the code, with the exception of the item of supplies for the charitable and penal institutions in the department of public welfare." In an article entitled "Business Government", Governor Lowden in the Saturday Evening Post of March 13, 1920, sets forth pretty fully what he considers the virtues of the administrative code, now in force in his state. He explains his deep interest in the movement for the adoption of such a code and the opposition encountered in part as follows: "In my campaign for election I made the reorganization of the business of the state the chief plank in my platform. The people became deeply interested and supported me generously when the legislature met and I undertook a complete reorganization of the work of the state which came under the duties of the governor. Of course there was much opposition by some of my political friends. They did not like to see these attractive places given up. I argued with them that good faith, since we had promised this reorganization in our party platform, required that we should keep our promise. I also urged upon my party friends that political patronage had always been overestimated as a party asset. I pointed out that our greatest victories had been won when we were out of power and without patronage, and our greatest defeats had come when we were in full possession of all the machinery of government. I insisted that the republican party could thrive only when it stood for principle and when it relied upon its achievements. I appeared before the committees of the general assembly and discussed with them at length the questions involved, and before long there was complete cooperation between the general assembly and myself, and to the credit of the legislature the result was the civil administrative code." 6oO REPORT OF JOINT LECISLATIXK COMMITTEE A careful reading of the list of good places still at the governor's absolute disposal, "by and with the consent of the senate," even under the new code, ought to satisfy the governor's "political friends" that reorgan- ization in that state has not materially lessened the "attractive places" that may still be handed out to the faithful. Governor Lowden in this article insists that "red tape" and "sine- cures" have been eliminated, but avoids any detailed statement in regard to reduction of salaried positions or large savings of money. About the best thing he has to ofifer in this line is as follows : "That the government created under the civil administrative code functioned well is best shown by the fact that we went through the entire period of the war without any extraordinary session of the general assembly." The governor is more specific in his claim of efficiency under the new code. He says that there is absolute harmony of administration under the nine heads of departments, which function very satisfactorily with one another and with the governor. In fact there can be no doubt that Governor Lowden and Governor McKelvie are much pleased with the statutory provisions, in their respective states, that enable them, to change all important appointive positions the> minute they step into office and fill them with men satisfactory to themselves. This feature of the administrative reorganization which centers larger powers in the hands of the governor and enables him to put on duty, in all departments, officers politically and personally in harmony with himself is almost certain to make consolidated state government generally popular with chief executives. It will probably end distressing wrangles that fre- quently occur when a new governor is striving to create a vacancy in an office filled by a hold-over appointed by a political rival and predecessor. While Governor McKelvie, of Nebraska, is enthusiastic over our federal government, which centers responsibility in cabinet chiefs. Gov- ernor Lowden seems to think that even our national government has not attained unto absolute perfection. On this subject he says in part : "It is said that there are ten departments of government at Washington. That is so only in name. In fact, there are many times ten independent and practically unrelated agencies of government there. No department under these circumstances can avoid becoming rigid and law bound, and red tape necessarily becomes the rule. If, instead, the department head were authorized to prescribe the duties of subordinates the red tape would largely disappear. The re- sponsible head would have power commensurate with his responsi- bility. Instead of an inert mass you would have a living organism with an actual head." Governor Lowden then goes on to describe operations of the national government under existing conditions as "confusion worse confounded", ON ADMINISTRATIVE REORGANIZATION 6oi and quotes Hon. James W. Good, chairman of the House appropriations committee as follows : "Today 'duplication in the government service abounds on every hand. For example, eight different departments of the government, with large overhead organizations, are engaged in engineering work, in navigation, irrigation and drainage; eleven different bureaus are engaged in engineering research; twelve dift'erent organizations are engaged in road construction; while twelve, with large overhead organizations, are engaged in surveying and mapping. Sixteen different bureaus, exercise jurisdiction over water-power develop- ment. Nine different organizations are collecting information on the consumption of coal. Forty-two different organizations, with overhead expenses, are dealing with the question of public health. The treasury department, the war department, the interior depart- ment and the department of labor each has a bureau dealing with the question of general education. These departments operate inde- pendently ; instances of cooperation between them are exceptional. Each of these departments is manned at all times with an organiza- tion prepared to carry the peak of the load, and maintains an ex- pensive ready-to-serve personnel. A lack of cooperation in the executive departments necessarily leads to gross extravagance." The conclusion seems naturally to follow that, after a state govern- ment has been reorganized and consolidated into similitude with national government, vigilance will still be necessary to make it function in the interest of efficiency and economy. Comment of the public press has been generally favorable to the Illinois plan. There appears to be some uncertainty, however, as to its results in actual saving to the state. The advent of the World War and consequent high prices for labor, materials and supplies of all kinds, of course, make it difficult to draw comparisons between the expenses under the civil administrative code and previous cost of government under the law that it superseded. The harmonious operation of the different departments of state government under the larger powers granted to the' governor with a tenure of office limited to his term of four years, seems to be conceded. Governor Lowden bears strong testimony to this "harmony" and he is assuredly in position to speak with authority on this subject. In order to get fuller information in regard to the procedure of the Illinois efficiency and economy committee, letters were addressed to those familiar with its work. Under date of July 26, 1919, Professor John A. Fairlie, director of the Illinois committee, wrote as follows, in answer to a letter of inquiry: "After the committee had made some preliminary inquiries, I was asked to outline a plan. This proposed a series of studies such as were later made and published with the committee report, based on a preliminary grouping of the existing state agencies. This plan was discussed with the committee and approved: and men 602 REl'OKT OF JOINT LEGISLATIVE COMMITTEE were selected by me for each of the special studies. This included a detailed analysis of legislation, judicial decisions and the published reports of the agencies in each group, supplemented by data secured by personal conferences. "Preliminary reports of each study with tentative recommenda- tions were presented and discussed with the committee. The com- mittee then published a brief preliminary report outlining the gen- eral situation and principles of the reorganization projected. This was supplemented by brief summaries of the studies and tentative recommendations which were mimeographed and sent to the of- ficials and private organizations and individuals interested in each section of the work. The committee then held a series of hearings — two general and public and others on particular topics — to which invitations were sent to officials and others specially inter- ested. At these hearings the tentative plans were discussed in- formally, and after this the definite recommendations of the com- mittee were determined and the report prepared. "The general plans of the committee report were endorsed by both the leading parties in 1916 and were made the main issue by Governor Lowden. The bill for the administrative code was pre- pared under his direction ; and with his active support was passed in 1917. This year this has been followed by an act creating a state tax commission. "If I can be of any further assistance in the Ohio situation I shall be glad to do what I can." In behalf of the Ohio committee, another letter was addressed under date of July 29th, asking for additional information, as follows : "I have here the reports of the committee and the civil ad- ministrative code enacted by your general assembly. The report for 1915, including the appendix of very valuable monographs covering almost a thousand pages, is of great value to any committee making an investigation of its state's administrative governmental agencies with a view to reorganization in the interest of efficiency and economy. This work which has been done under your direction, makes unnecessary much that should otherwise be done by states undertaking a similar work. I am very glad that you had these studies published in a form so complete and satisfactory. "As yet I have had opportunity to make only a hurried survey of the work done by your committee. It seems to me, however, that while the civil administrative code of your state follows in principle the recommendations of the committee, there are in the code some things outside of those recommendations. The number of administrative state officers appointed directly by the governor seems to be large and the aggregate of the salary list generous. I am wondering how nnich saving in salaries has been effected by the code compared with the amount previously paid in your state. "Of course I realize that the salary question is not the only one involved in such a reorganization as has been brought about in your state. It is. however, one in which our committee is inter- ested. Inasmuch as vour civil administrative code seems to be received with general favor, our committee desires full information in regard to its enactment and subsequent results. ON ADMINISTRATIVK KEORGANIZATION 603 "In his public addresses Governor Lowden has declared that the reorganization of the state government has accomplished all that its friends expected. I note that your committee has claimed that the enactment of its report into law would result in a direct saving to the state of $600,000 a year. Does the new code accompHsh that? "Forty thousand dollars was appropriated for your committee. Do you have, in convenient form to send me, a statement of the expenses of the committee? If so, kindly forward it. "I realize that I am asking much in this letter, but the informa- tion requested will be of great service to us at this time." To this letter Professor Fairlie replied, under date of August 2nd: "In my opinion it was significant in the name of the Illinois committee that efficiency came before economy. • Estimates of direct savings were made, to meet the demand for such statements; but throughout the report the emphasis is placed on other matters, and in some of the special reports it is definitely stated that an efficient administration would cost more. "The civil administrative code made some changes from the plans recommended by the committee. In some departments a more centralized system was established; but some of the recommenda- tions where important reductions in expenses were predicted were omitted. Some of them have been acted on this year, — as the ques- tion of interest on state deposits, the new state tax commission, and a revision of commissions in collecting taxes. But the results of these will not appear until some time in the future. "When the bill was being discussed two years ago a compara- tive statement of salaries was made, by those in charge of the measure ; but I do not know where to find this now, and did not have any direct part in this work myself. But some direct reduc- tions were made e. g. in the salary of public utility commissioners. In any case the salary matter seems to me a relatively small part of the problem. "As to actual results under the new code, the situation has been much affected by the general rise in prices. In spite of this, how- ever, Governor Lowden in his message this year notes that the ap- propriation of 1917 for the code departments had not been increased, except for supplies for the charitable and penal institutions. On the other hand the elective state officers had (as usual) requests for deficiencv appropriations for considerable amounts. "A detailed study might make possible some statistical state- ments on this matter, 'but I am not able to undertake this just now. "The committee did not expend its whole appropriation. As I recall, there was something like $10,000 left. Statements of the expenses will be found in the state auditor's reports of 1914 and 1916. The main items were for the preparation of the special re- ports and drafting of bills. The hearings of the committee were informal ; and there was no expense for lawyers for cross examina- tions, nor for technical accounting investigations. "I hope this information will be of some assistance; and I shall be interested in the progress of the same work in Ohio. "I presume you are aware of the Idaho and Nebraska reorgani- zations this vear, following the lines of Illinois." 6o4 Ki:i'()RT OP' JOINT LKCJISLATIN'F. COMMITTKE IOWA On February 6, 1913 the general assembly of Iowa adopted a reso- lution providing for a joint committee on retrenchment and reform con- sisting of the chairmen of the committees on ways and means, judiciary and appropriations, and two members of the minority party in the senate and house of representatives. The committee was authorized to employ accountants and efficiency engineers to assist in the inquiry into the affairs of the state and to institute such changes in administration "as will promote efficiency and economy". A report was made to the general assembly on April 4th, trans- mitting the findings of the efficiency engineers employed to investigate the department of agriculture and the state fair. On Nbvember 12, 1914 the committee made a report recommending the reorganization of the state government in accordance with the fol- lowing arrangement: Department of Social Progress To include and have supervision over the following existing departments : 1. Superintendent of public instruction. 2. Board of educational examiners. 3. State library. 4. Geological survey removed to Iowa City and placed in geo- logical department. 5. Historical department. 6. Historical society of Iowa. 7. Academy of science. 8. Public archives. 9. Library commission. • 10. Board of control. 11. Board of parole. 12. Board of education. Department of Industries To include and have supervision over the following existing departments : 1. Department of agriculture. 2. Weather and crop bureau. 3. State veterinary surgeon. 4. Commission of anim.al health. 5. Horticultural society. 6. Inspector of bees. 7. State entomologist. 8. Dairy association. 9. Beef cattle breeders' association. 10. State and county fairs. 11. Railroad commission. ON ADMINISTRATIVE REORGANIZATION 605 Commerce counsel. Commissioner of insurance. Industrial commissioner. Bureau of labor statistics. Banking. Bank examiner. County examiner. City Examiner Public accountant. Department of Public Safety To include and have supervision over the following existing departments: 1. Attorney general. 2. Adjutant general. 3. State militia. 4. Fish and game warden. 5. State highway commission. 6. Custodian of public buildings and property. 7. Capitol extension. 8. Land office. 9. Meandered lakes. 10. Fire marshal. 11. Board of health. 12. Board of medical examiners. 13. Board of optometry examiners. 14. Board of law examiners. 15. Board of dental examiners. 16. Commission of pharmacy. 17. Veterinary examining board. 18. Dairy and food commission. 19. All examiners of this division. 20. Oil inspectors. 21. Inspectors of boats. 22. Mine inspectors. 23. Board of examiners for mine inspection, etc. 24. Automobiles. 25. Board of voting machine commissioners. The committee also made the following suggestions based upon the proposed reorganization of the state government: "If the foregoing, or substantially similar methods of unification be adopted, and ample authority in supervision be granted the heads of the three great departments, there must result much in economy and efficiency. "Every such appointee should be subject to removal by the governor for cause. The ability of the individual appointed should govern. Political affiliation should not control. No employe should be perrnitted to work for any candidate for any office or contribute to any candidacy while on the payrolls of the state. Severe penalties should follow violation of this provision, such as removal from office, imprisonment and payment of a substantial sum in money to be recovered by the state upon the official's bond by action in equity at the seat of government. Thus will the building up of a political machine be made impossible. 6o6 KKI'OKT OF JOINT LI£(;iSr,.\TI\K COMMITTEE "All the employe's time should be required by the state, and anyone unwilling to work approximately the same number of days and hours per day demanded in other business enterprises should be removed from office. The time clock, universally in use in business establishments of any size through the country, should be installed by the state. The time clock will not injure the prompt and it will spur the laggard, and we see no good reason why the state should not in this particular, as well as others adopt proven business methods. "Duplication of records of the state's business as now prevails could be avoided by unity of operation and management The nuriiber of . regular clerks could be materially reduced, especially by having a few general clerks to serve wherever the state's business may require tem- porary extra help. Heads of minor departments should be guided by a general system of regulation. Authority, and with it responsibility, for success or failure would be centered — the chief of the division to the head of the great department of which that division formed a part, the department head to the governor and the governor to the people and thus will a government most responsive to the will of the people be secured. Much more may be said but the foregoing is sufficient for present purposes." On February 20, 191 5 the committee made a report including drafts of eight bills intended to make efifective in legislation the recommenda- tions of the previous report. With each bill there was submitted a brief explanation making clear its purpose. The intent of the committee and its practical approach to the problem that it had under consideration is indicated by the following excerpt from the carefully written introduction to the bills submitted. "There are three elements contained in our proposed reform. 1st. Efficiency. 2nd. Economy. 3rd. The fixing of responsibility for the purpose of making the government more responsive to the will of the people. "The main idea with us is efficiency. The economy will at once be felt in the getting of greater results from what we spend and this will gradually show more and more as under our plan of competent and comprehensive and co-ordinated management the details of the system will work toward a more direct and economical basis. "We do not enter upon the field of speculative reorganization but simply undertake to establish a business management, taking things as we find them. While the committee is in sympathy with many of the proposed theoretical reforms in government, yet we have not considered it our field to undertake to work out any of these, leaving that field to general legislation. As a matter of fact our work is not in conflict with any of these, and is in harmony with some of them, but the reforms pre- ."^ented in this report are essentially practical, not theoretical, in spirit. "We ask that the proposed reforms suggested by the committee shall be judged only by the re])orts issued by the committee and the measures proposed to be enacted into law, as there are many things suggested in the rei)ort of the effiiciency engineers and in the discussions of these matters issued from other .<;ourccs, with which this committee is not wholly in sympathy and there are other suggestions, while we may ON ADMINISTRATIVE REORGANIZATION 607 have believed them to be based upon sound judgment, we have not deemed it wise to attempt to include in our recommendations for present legislation. We urge the reading of the preliminary report issued by the "committee of thirty" business men of the Minnesota legislature for the purpose of information, but wish to keep before the minds of the mem- bers of the Iowa legislature the fact that this committee is approaching the consideration of these problems from a very practical and conserv- ative point of view." On April 14, 191 5 the committee submitted its final report giving a general survey of its work and including an itemized statement of sav- ings already effected through their recommendations. These aggregate something over $120,000. The committee declares that if the bill introduced providing for the reorganization of the state's business in accordance with recommendations had become a law a very much greater saving would have resulted to the state through the coordination and consolidation of departments. Just what virtue there is in the claim of the committee, in regard to the actual savings brought about through its influence and to what extent these would have resulted without the committee may be prob- lematic. It is safe to conclude, however, that in Iowa as in other states the presence and work of such a committee has a substantial value in directmg public opinion to problems of state government even where no very material changes in legislation result. KANSAS Kansas took steps for reorganization of her state government in 191 5. On March 20th of that year a resolution was adopted by the general assembly of that state creating an efficiency and economy com- mission consisting of two members of the senate and one member of the house of representatives. The senate and the house each selected one member and the governor appointed the third member. The committee was authorized to investigate the management of every institution and department of the state government of Kansas ; also the number and duties of employes of the senate and the house of representatives. The committee was directed to make to the legislature and to the governor a report of its findings, including deserved criticisms and recommendations for "improvements of any kind that will facilitate the business or management of public affairs." The members of the committee were to serve without compensation but their necessary travel- ing expenses were to be paid. A partial report was made Dec. 16, 1916. It included the following recommendations : "i. The reduction in the number of officers and employees of the legislature. 2. The adoption of the budget system with the principal features of the Wisconsin system. 6o8 REPORT OF JOINT LEGISLATIVE COMMITTEE 3. One tax commissioner instead of three. 4. A commissioner of educational institutions in place of the board of administration. 5. A commissioner of penal and charitable institutions. 6. A commission of administration consisting of the governor, commissioner of educational institutions, commissioner of penal and charitable institutions, state accountant and tax commissioner. 7. The creation of a general emergency fund, available for all departments of the state government to meet emergency needs. 8. A uniform system of accounting. 9. Monthly expense reports of all departments. 10. A central store and purchasing agent. 11. Daily deposit in the state treasury of all moneys collected by any departments. 12. Criticism of civil service system and suggestions of changes. 13. A department of agriculture that shall include all other de- partments that have to do directly or indirectly with agricul- ture. 14. An extension of authority to the chief justice of the supreme court to delegate judges in one district to try cases in another district. 15. The employment of special architects to design special build- ings involving large expenditure of money, leaving to the state architect designs for minor buildings and repairs. 16. One utility commissioner instead of three. 17. The abandonment of schools for colored pupils. 18. Restriction of courses offered by the state normal schools. 19. The discontinuance of the last two years of medicine in the courses now prescribed by the state medical school. 20. The abandonment of school of mines, experiment station, agricultural academy and the school of journalism at the agricultural college. 21. Opposition to furnishing further class-room and space for the state university and agricultural college." The committee was of the opinion that a different distribution of class-room work throughout the week would entirely obviate the necessity of furnishing additional space for the university and agricultural college. From the time that the committee was organized there appears to have been a lack of harmony among its members. Senator J. D. Joseph, appointed by the senate as a member of the committee, made a separate report, covering 75 pages, which is in large part a dissent from the recom- mendations of the majority of the committee. The senator opposed reducing the membership of important com-missions. He was verv emphatic in his recommendation for more space for the Kansas state university and backed up his decision with a table showing that other state universities are supplied with larger class-room sjxace in proportioi. to the number of students in attendance. ON ADMINISTRATIVE REORGANIZATION 609 In the introduction of his report Senator Joseph says : "What our industrial "and religious institutions need is HELP, not HINDRANCE, encouragement and not persecution. A senti- ment cultivated for each to regard the other as a part of the same body — this commonwealth — that the help of any, means the help of all, and the injury of any means the injury to all." He criticises the methods of Senator Lambertson, chairman of the committee, and says among other things: "The report is substantially the same the senator could as well have made if he had never visited the state institutions or ofiUces or consulted with Mr. Burton, (the other member of the committee) myself, or any one else." In conclusion he declares in favor of the existing order of things in Kansas as follows : "I wish also to remind in conclusion, that all the taxes paid for state purpose including all state institutions, the price is only one- tenth of our taxes and while I have made many recommendations, suggestions and in some cases assumed the role of critic, I think it safe to say that our state taxes, being only one-tenth of all, are the most economically and efficiently expended of all our taxes. "All praise to Kansas." Regardless of the apparently inharmonious, inconsequential work of the committee, the movement for the consolidation of governmental agencies went steadily forward in Kansas. In 1917, the legislature enacted a law said to embrace a state manager plan for Kansas. It organizes many- departments and offices under a single head of four members. The first report of the board, for the fiscal period ending June 30. 1918 contains the following statement as to the "evolution of the one-board idea" in that state: "Prior to 1905 the various state institutions of Kansas, gen- erally classified under three heads, — educational penal and char- itable were separately governed as to groups. The educational in- stitutions were governed by boards of regents, viz.: six regents governing the university of Kansas with one honorary member: seven regents governing the state agricultural college ; and one board of six regents governing the three normal schools, with an addi- tional three honorary members. The penitentiary was governed by a board of directors consisting of three members. The Hutchinson reformatory was governed by a board of managers consisting of three members. The charitable institutions, including the hospitals, for the insane, boys' and girls' industrial schools, the school for the blind, the school for the deaf and the home for the feeble- minded, were governed by a state board of charities, consisting of five members — total thirty-four. "In 1905, the legislature abolished the state board of charities, consisting of five members, and created in its stead the state board of control, consisting of three members, to have charge of the nine institutions formerly managed by the state board of charities. 39 6lO KlirOKT OF JOINT LEGISLATUE COMMITTEE "In 1913, the legislature abolished the three boards of regents, with a total of twenty-three members, then governing the educa- tional institutions, and created the state board of administration, to consist of three members, to have charge of these institutions, adding to the list of institutions formerly governed by the various boards of regents, the school for the blind and the school for deaf. The legislature of 1913 also abolished the boards of directors, con- sisting of eight members, controlling the penitentiary and re- formatory, and created the state board of corrections, to have charge of these institutions, adding to their charge the boys' in- dustrial school and girls' industrial school. "The legislature of 1917 abolished these three boards, with a total membership of nine members and created the state board of administration consisting of four members, including the governor, who is ex-officio chairman of the board, and providing for the em- ployment by the board of a business manager. These five people have the management of all of the state institutions except the soldiers' home and the Mother Bickerdyke home, the managemeiit of which is retained by soldiers of the civil war. A list of the insti- tutions under control of this board will be found on the third page of this report. "We believe this to be the most radical change in institutional management ever undertaken in the United States. It is an ex- periment which has been watched with interest all over the country, as fully attest the countless inquiries concerning it. "The members of the board and the business manager have been properly impressed, we trust, with the importance of the task committed to their charge, and in this report give their first formal account of their stewardship." The Topeka Capital of June 8, 1919 contains a very interesting and informing article on the experience of Kansas under the caption of "BUSINESS SENSE PAYS THE STATE". The following excerpts are made from the article : — "Kansas, which in times past has been prone to take energetic kicks at so-called 'big business', now appreciates that big business methods, when applied to the advantage of the state, aren't so bad after all. "James A. Kimball, of Salina, became business manager for twenty-six state institutions of Kansas, spending $5,000,000 an- nually, just two years ago. He faced an unlimited number of per- plexing problems. The institutions include universities, colleges, prisons, asylums, orphanages, industrial farms, and hospitals. One institution operates a coal mine and brick plant. The needs of the various plants range from pins to half-million dollar buildings. The employes include college presidents and numerous ditch-diggers. Previous administration of all these institutions has been under separate boards and executives. Mr. Kimball was expected to be a general manager for the entire system, scattered in as many towns over the state as there are institutions. "The legislature of January and February, 1917, had provided a budget that did not take into account such things as war prices and government regulation of materials. ON ADMINISTRATIVE REORGANIZATION' 6l 1 "The plan of a state business manager was decidedly an ex- periment — a case of pioneering. There were dismal failures pre- dicted for the new business machine consisting of one board of administration of three members taking the place of the various old boards, commissions, committees, and secretaries. This board was to be a board of directors, determining policy, with Mr. Kim- ball directing the expenditure of the dollars. "The state business manager took office on July i, 1917. He accepted the appointment with previous extensive experience in the wholesale grocery and candy business as well as experience as a drygoods salesman. His immediate problem as he expressed it was 'to concentrate the buying power of the dollar.' There has to be a saving to meet war-time prices on a peace-time budget." After describing Mr. Kimball's method of securing cooperation when he began his work as state manager, the following statement is made, indicative of the general satisfaction that prevails in the state with the working of the new plan : "The best proof that the state business manager plan, con- ducted on the basis of up-to-date business methods, has been successful is the fact that the 1919 legislature was called upon to make practically no deficiency appropriations — an unheard of thing previously under the regime of many commissions. "The legislature showed its appreciation by adding to the authority of the state business manager." In the state of Kansas, it is popularly believed that a very radical step has been taken in the consolidation of state governmental agencies. The declaration is frequently made that Kansas has adopted "the state manager plan." The impression conveyed is that the change effected in the -state government brings it under the system exemplified in the city manager plan. In other words, we are told that the state manager is to the state of Kansas what the city manager is to a large city. The conclusion is hastily reached by the superfiscial reader and investigator that in Kansas the business manager has practically complete control over all the administrative agencies of the state. This is a mistake ; the board of administration is the controlling power and the business manager is vvhat his title suggests, a fiscal agent who has large powers so far as the financial aiYairs of the state are concerned. Over appoint- ments he seems to have no control, except indirectly through the board of administration. His work is confined to the educational, benevolent and penal insti- tutions of the state. He presents their needs through his board to the legislature and uses the appropriations to secure the best, possible returns in improvements, supplies and service to the state. Some idea of the magnitude of this work is gleaned from the fol- lowing excerpts from the report of the board of administration: — "There are twenty-five state institutions under the control of this board. For the support of these twenty-five institutions the 6l2 REPORT OF JOINT LEGISLATIVE COMMITTEE last legislature appropriated $6,413,202 for maintenance and salaries for the biennium ending June 30th, 1919; and in addition to the sum for salaries and maintenance, $996,718.18 were appropriated for buildings and improvements for the biennium ending June 30th, 1919; total $7,409,920.18. "It should be borne in mind that in the institutions classified as penal and charitable there are 7,138 people who must be fed and clothed on fixed appropriations made at a time when prices of all necessary things for their sustenance and comfort were, at the lowest estimate 50% less than they are now. Every house- holder can realize the difficulty of this task, and that it has been performed without a deficit in any of the institutions is almost an unbelievable fact. For this splendid result too much credit can not be given to our able and tireless business manager." In order that the Kansas situation may, if possible, be more readily understood in this brief survey, a list of the institutions under the board of administration and served by the business manager is here given. It is as follows : State Boards and Commissions of Kansas Under Control of THE Board of Administration Industrial Institutions University of Kansas Kansas state agricultural college State normal school Manual training school Fort Hays Kansas normal school School for deaf School for blind Kansas medical school State fish hatchery Irrigation experiment station (at Tribune) Irrigation experiment station (at Garden City) Agricultural experiment station fat Colby) Agricultural experiment station (at Fort Hays) Officers State dairy commissioner State veterinarian State geologist State forester State entomologist Feeding Stuffs inspector Charitable Institutions Topeka state hospital State orphans' home Parsons state hospital Osawatomie state hospital School for feeble-minded youth Lamed state hospital State tubercular sanatorium Correctional Institutions Penitentiary Industrial reformatory for young men Industrial school for boys Industrial school for girls Industrial farm for women ON ADMINISTRATIVE REORGANIZATION 613 Educational Institutions Under the Supervision but Not Under Control of the Board of Administration Industrial and educational institute (Colored) Industrial department, western university (Colored) The foregoing institutions represent the field of state authority under the board of administration. The financial affairs of all of these are directed by the business manager. His field, though large, by no means includes all the governmental agencies of the state. There are, of course, the elective officers, but in addition to these there are many appointive officers and boards whose work is entirely independent of the board of administration. Here is a list taken from a recent directory furnished by the secre- tary of state of Kansas : State accountant Adjutant general Agent of state at Washington Assistant commissioner of labor and industry Election commissioners Fire marshal Grain inspector Irrigation commissioner Military officers of governor's staflf Oil inspector Custodian of state house Electrician of state house Advisory commission, sanatorium for tuberculosis patients Board of agriculture Appointees of board of agriculture Board of barber examiners Civil service commission Board of education Entomological commission Historical society and department of archives Horticultural society Trustees of John Brown memorial park Kansas highway commission Board of medical examination and registration Memorial hall building commission State mining commission Board of examiners for trained nurses Board of optometry Board of osteopathic examination and registration Board of trustees for Pawnee Rock Board of pharmacy School book commission Board of managers of state sol- diers' homes Tax commission Board of veterinary examiners Kansas water commission State architect Bank commissioner Commissioner of labor and in- dustry Entomological commissioner Fish and game warden Hotel commissioner Live stock sanitary commissioner State librarian Engineer of state heating plant Academy of science Board of chiropractic examiners Board of dental examiners Board of embalming Board of health Industrial welfare commission State fair managers Miners' examining board Kansas state board of review Public utilities commission It will therefore be seen that on the whole the consolidation of the state governmental agencies in Kansas has not been more radical than 6l4 REPORT OF JOINT LF.GISLATIN E COMMITTEE in some other states. In fact, there apparently has been no effort to re- organize the state government as a whole, to reduce materially the num- ber of salaried officers, or to reduce the pay of those in the state service. In answer to a letter of inquiry the following statement has been received from a state officer in Kansas : "You ask if the adoption of the state manager plan — so called — has reduced salaries or eliminated salaried officers. Such was not the idea in creating the position 'business manager' under the board of administration of state institutions. He is merely what the title implies, a special deputy of the board of administration having general supervision over the 'business' end of the work of the board of administration. He has nothing whatever to do with other state officers or departments than those under the immediate control of the board of administration. Salaries were raised ma- terially by the last regular session of our legislature — those under the supervision of the business manager more than those not under his supervision. So far we have no published list of the salaries now in force except that in the session laws of 1919 which have just been published." It is observed, however, that there is general satisfaction with the change effected in the state government and that the board of adminis- tration and its business manager have the confidence of the people of Kansas as reflected in acts passed at the recent session of the general assembly of that state. MASSACHUSETTS Massachusetts seems to have been at work longer than any other state in an effort to consolidate her government in the interest of efficiency and economy. A commission was authorized for this purpose in an act approved June 6, 1912. This was amended June 25, 1914. An Act of June I, 1916 abolished the efficiency and economy commission and trans- feired the duties exercised by it to a supervisor of administration. As first organized the chairman of the commission on efficiency and economy was appointed and designated by the governor. He re- ceived a salary of $5,000; two other members appointed by the governor, received salaries of $4,500 each. A commissioner was appointed each year to serve a term of three years. The powers and duties of the commission are summarized as follows : To examine annual estimates of the various departments; to make special examination of any matter affecting the finances in any depart- ment, at the request of the general court, the ways and means committee, governor, or committee on finance, or the governor's council or upon their own initiative ; to inquire into the law governing financial transac- tions; to study possibilities of promoting greater economy, efficiency and utility in the transaction of business, by changes in law, by reorganiza- tion of departments, by dilTcrcnt methods of administration, by classi- ON ADMINISTRATIVE REORGANIZATION 615 fication of employes, by fixing maximum- and minimum salaries, by reorganizing a central purchasing agency, by substitution of the budget method. The commission was required to report from time to time to the governor and general court. Appropriations were made for the commission as follows : 1912, $18,500; 1913, $28,500; 1914, $28,500; 1915. $39,000. The commission made annual reports for the years 191 3, 1914 and 1915. It made, also, special reports as follows: Report on reorganization of boards and commissions having super- vision and control of state institutions, February 7, 1914. Report on functions, organizations, and administration of depart- ments of the executive branch of the state government, Nov. 1914. Report on budget procedure, May 26, 1916. Of special interest is the report prepared by the commission on the functions, organizations and administrations of departments of the execu- tive branch of the state government. This report was prepared in co- operation with the various agencies in charge of the different depart- ments, ofifijces, boards and commissions conducting the administrative work of the state. The material was furnished largely by those in charge. Where satisfactory answers were not given to questionnaires, representatives of the commission itself made personal investigation and collected the desired information. The result of the survey thus made has been published in a report covering 513 pages. It is a very complete presentation of the admin- istrative agencies and activities of the state and gives to those interested a concise and comprehensive view of the government of the state, to- gether with the duties, terms of office and salaries of those employed in its service. In 1916, as already noted, the law authorizing the efficiency and economy commission of Massachusetts was repealed and the .commission abolished. Under the new act the powers of the commission were trans- ferred to a supervisor of administration, who was also given added authority under this act. He was authorized to appoint a deputy or deputies with the consent of the governor and council. Under this pro- vision he appointed two deputies and a secretary. The term of office of the supervisor of administration is three years and his salai-y $5,000. The supervisor has made annual reports for the years 1916, 1917 and 1918. In addition to these reports he has recently issued a number of special reports of interest and value. The full list of these is found in the typewritten pamphet prepared for the use of the Ohio committee under "State Publications." They are as follows : Recommendations relative to increases of salaries together with an outline of bills on consolidation of departments, 1919. 6l6 REl'ORT OF JOINT LKGISLATIVE COMMITTEE State board of labor and industries. A report on the reorganization of tlie state board of labor and industries. Consolidation of departments, boards, offices and institutions. 1919. Supplementary report on the consolidation of departments according to the plan recommended in the annual report for the year 1918. Purchasing and distribution of office furniture, supplies and equipment. 1919. The recommendations of the supervisor for the establishment of the position of superintendent of buildings, to have charge of the purchase and distribution of office furniture, supplies and equip- ment. The sergeant-at-arms had previously done all this purchasing. Consolidation of state departments, boards, offices and institu- tions. 1919. The second supplementary report of the supervisor of admin- istration on consolidation of departments. ConsoHdation of state departments, boards and institutions. The third supplementary report on consolidation. An investigation of the compensation and working conditions of the officials and employes of the commonwealth and the several counties thereof. 1919. Conduct, methods and practices of the department of the civil service commission. 1919- This report is accompanied by recommendations for the organ- ization of a civil service commission with a single head. Report of the special committee of the executive council on the standardization of salaries in the state service. 1918. The value of the foregoing reports may be judged from the follow- ing excerpts from the report of the .special committee of the executive council on the standardization of salaries, which was adopted by the council, including the salaries recommended for those in the service of the state : "The problems of salary standardization was approached by instituting a general survey of state positions, to determine the number of vocations, professions, trades, or occupations ernbraced in the service, and also to secure a service record of each individual, from which an all-embracing classification could be evolved. "The committee caused to be sent to each state employee in- cluded in part i of this report a questionnaire relative to his par- ticular position, — to be filled out by him personally where possible or practicable. The heads of departments were requested to check these sheets carefully and return them to the supervisor of admin- istration. A complete history or picture of each employee from time of entrance into the service to date was thus secured, as fol- lows : I— Title 2 — Occupation or experience prior to entrance into service. ON ADMIXISTKATIVR REORGAXIZATION 617 3 — Department, bureau or division in which duties are performed. 4 — Immediate superior. 5 — Brief description of scope of duties and responsibilities. 6 — A record of the history in the state service, including facts in regard to entrance ; changes in titles ; transfers ; advancements ; promotions ; changes in duties ; salary rates ; retirements ; re- instatements ; and separations from the service. 7 — Miscellaneous facts. "After these questionnaires had been returned and assorted, repre- sentatives of the supervisor's office held conferences with the heads of the departments, and in many instances with employees themselves, to review the situation and to eliminate obscurity, to insure accuracy and obtain valuable suggestions. A separate investigation was also con- ducted into the scale of wages and salaries paid for similar work by private employers — the whole constituting a very thorough inquiry to determine the worth of the various grades of work. The investigation showed numerous interesting things ; for instance, that there are at present ten different ways of entering the state service, namely : — 1 . By appointment from the governor. 2. By appointment from the governor with the consent of the council. 3. By appointment from the departmental head alone. 4. By appointment of the departmental head, with the consent of the governor 5. By appointment of the departmental head, with the consent of the governor and council. 6. By appointment of the departmental head, with the approval of the civil service commission. 7. By appointment of the departmental head, with the consent of the governor and the civil service commission. 8. By appointment of the departmental head, with the consent of the board of trustees. 9. By appointment of the departmental head, with the approval of the board of charity. 10. By appointment of .the departmental head, with the approval of a central control agency and the governor and council." The report from which quotation is made indicates an effort in Massachusetts to prescribe qualifications for appointees to the various offices and positions in the state service. In some instances these quali- fications seem to be aside from those required by the civil service, but the most important change recommended is the fixing of qualifications for appointees outside of the civil service regulations. An attempt has been made to prescribe qualifications for heads of departments, as well as all of their subordinates. This is interesting because the laws of the United States government and of most of the states even where civil service agencies have been established, prescribe for administrative chiefs no qualifications of fitness to discharge duties of office. It is true, in many instances, that political qualifications are prescribed to insure minority party representation on certain boards and commissions and in a few instances special qualifications are required by statute, but 6i8 REPORT OF JOINT li-:gislati\e committee generally speaking', the assumption seems to be, even where the civil service system has been introduced, that while a standard of qualifications should be fixed for subordinates in the various departments, any person can fill a position at or near the head of the department, if he can get it. The special committee of the executive council of Massachusetts seems to obsen^e the weak logic of such an arrangement. It is proposed to improve conditions by requiring of every appointee some qualification of fitness to discharge the duties of the position which he is to fill. On this subject the committee of the executive council says : "With the exception of a few groups of employes, little or no attention has been given the matter of qualifications at entrance to the service. This acts as an open door through Avhich the un- qualified may enter. The converse is likewise true. Persons with professional pride are not over anxious to accept positions that require no definite standards of work and experience." There will be general agreement with these observations of the special committee. It must be admitted, however, that in actually pre- scribed qualifications the supervisor of administration has in many in- stances been limited to a very narrow range. The executive council of Massachusetts in 1918 approved "General rules and regulations govern- ing entrance, advancement and promotion in the service of the common- wealth of Massachusetts." These rules and regulations require that any board, commission or of- ficial of the state desiring to make an appointment or promotion, to fill a vacancy or a new position shall notify the supervisor of administration and furnish him with certain information in regard to the position to be filled. Upon the receipt of such information the supervisor shall make an investigation regarding the need of the position, compliance with the qualification required by law and the ability of the department or ofificer to provide for the position out of the appropriation available. If the supervisor approves the request and the position to be filled is subject to the civil service commission, the result of his investigation is to be sent to that commission, which will certify eligibles for appointment. If the position to be filled is not subject to the control of the civil service com- mission, the supervisor of administration proceeds to fill it in accordance with the rules and regulations approved by the executive council. These rules and regulations provide qualifications for employment in the administrative branch of the state government. The qualifications in some instances are so shadowy and vague that they are practicall\ non-existent. For instance, the specifications open with the naming of 1 1 officers or classes of officers to be appointed by the governor. And here is the statement of the qualifications : "Incumbents of these positions, who are appointed directly by the governor of the commonwealth, shall have such qualifications ON ADMINISTRATIVE REORGANIZATION 619 as may be fixed by the governor and approved by the council, or as may be provided by statute." In other words, to the governor and his council is left entirely the matter of qualifications. In many positions, however, of a technical or educational character the qualifications are so fully and definitely specified as to afford an effective safeguard to the state's service. Take, for instance, the qualifi- cations of the librarian, who has charge of organization and field work among the public libraries of the state. Here are the qualifications re- quired : "Not less than six years' experience as secretary of a free library commission or at least six years of experience in library organization and administration." Following are the qualifications required of the librarian in charge of work with aliens : "Not less than six years' experience in library work or educa- tional work involving some library experience, at least four of which shall be in work with the foreign speaking alien population." And here are the qualifications prescribed for junior assistant librarian : "A certificate of graduation from a library school, or an equiva- lent educational training, and, in addition not less than one year of experience in library work affording appropriate training and experi- ence in the duties to be performed." The qualifications of assistant librarian are a little higher than those for the junior assistant. All of these qualifications are definitely stated and afford a safe- guard on the whole quite as satisfactory as could be provided in a civil service examination. The report from which quotation has been made continues : "The following existing methods of creating titles for positions were developed : — 1 . By designation from the civil list. 2. By specific reference from statutes creating the positions. 3. By department heads. 4. By direct designation of department head, or the control board, approved in all instances by the governor and council and also approved by the civil servace commission. "Titles should be reasonably descriptive of duties performed and be useful for purposes of payroll audit, office management and con- trol. An analysis of the present titles for positions in service shows that they frequently fail to serve any useful purpose, It is quite unusualto find that a title is such as to signify the relative importance of the position in terms of the entire service. There are now seven 620 REPORT OF JOIXT LEGISLATIVE COMMITTEE hundred titles in use, — one-half of which at least are so non-descrip- tive as to be almost meaningless. Large numbers of positions are mentioned specilically by title and salary rate in the statutes, some of which have remained unchanged for over forty years. Though many of these positions are paralleled in scope and responsibility to positions later created otherwise, these particular employees must continue to be paid in accordance with the terms of the statute, re- gardless of the present value of w^ork performed or with respect to the compensation allowed for these other similar positions subse- quently created. For instance, an employee in one department may receive a salary of $900, absolutely fixed by statute, while in another department for the same work an employee may receive $2,000, the amount being fixed solely by the department heads in the latter in- stance. "The various ways of creating salary rates at entrance to the service were found to include the following: — 1 . By statute, through legislative enactment. 2. By appropriation act not regulated by statute. 3. By either of the foregoing, subject to the approval of the gov- ernor and council." It is needless to say that documents of this character, indicating the line of investigation in other states that have devoted years of work and considerable sums of money to the solution of consolidation and standardization, will be of special value to any committee taking up similar work. From the report on the state board of labor and industries by the supervisor of administration, it appears that the recent constitutional convention made specific provisions for the limitation in the number of state administrative agencies. The supervisor says: "The resolve under which this investigation was made requires a report ^s 'to what extent and in what respects the board should be organized.' A report on this question alone would not meet the requirements of the present situation on account of the adoption of an amendment to the constitution requiring the consolidation of state boards, commissions and authorities into not more than twenty departments by January i, 192 1. This office has therefore con- sidered what other state authorities could advantageously be com- bined with the state board of labor and industries into a single industrial department." As already stated, the progress toward consolidation and simplifi- cation of the executive branch of the government in Massachusetts has extended over a number of years and met with a number of obstacles A writer, in an interesting survey of the movement in this state, pub- lished in 1917, declares that results in actual legislation at that time were so unimportant as to call for no special consideration. From the fore- going it is seen, however, that the work of the commission on cfificiency nnd economy and its successor, the supervisor of administration, has tiinded definitely to a reorganization authorized and made mandatory by a ON ADMINISTRATIVE REORGANIZATION 621 recent constitutional provision. The movement in Massachusetts has at no time been abandoned but has steadily progressed to the results sought by its friends from the beginning. The general court of Massachusetts at its regular session in 1919 complied with the provision of the new constitution requiring the ad- ministrative branch of the state government to be organized in not to exceed twenty different departments. The act making such reorganization was approved July 23, 1919. It has very recently been published. That part of section i of this act which authorizes the department reads as follows: "The executive and administrative functions of the common- wealth, except such as pertain to the government and the council, and such as are exercised and performed by officers serving directly under the governor or the governor and council, shall hereafter be exercised and performed by the departments of the secrtary of the commonwealth, the treasurer and receiver general, the auditor of the commonwealth and the attorney-general, and by the following new departments hereby established, namely: The department of agriculture. The department of conservation. The department of banking and insurance. The departm.ent of corporations and taxation. The department of education. The department of civil service and registration. The department of industrial accidents. The department of labor and industries. The department of mental diseases. The department of correction. The department of public welfare. The department of public health. The department of public safety. The department of public works. The department of public utilities. A metropolitan district commission is also hereby established as hereinafter provided and the provisions of part i of this act shall apply to said commission." The work of the supervisor of administration, the successor of the efficiency and economy commission, seems to have been satisfactory to the general court. Section 15 of the reorganization act reads as follows: "The office of the supervisor of administration existing under authority of chapter 296 of the general act of 1916, and acts in amendments thereof and in addition thereto, shall continue to be under the governor and council, as now provided by law." As already stated, the general court has seemed reluctant to take up and embody in law a code for the reorganization of the state govern- ment of Massachusetts. The recent constitutional convention in that 022 KlU'URT OF JOINT LKGISLATIVE COMMITTEE State, however, adopted the provision requiring the consolidation of state government and the people of the commonw^ealth ratified this action. The general court enacted a law to carry out this provision of the constitution, but in so doing disturbed as little as possible the system previously enforced in that state. The commissions, boards and of^cers are grouped under the different departments named in the first section of the act, but within their respective groups remain much as they were before the change was effected. To illustrate how this principle has been carried out quotation is made here in full of those sections that create the department of banking and insurance: "department of banking and insurance "Section 45. The office of bank commissioner, existing under authority of chapter two hundred and four of the acts of nineteen hundred and six, and chapter five hundred and ninety of the acts of nineteen hundred and eight, the office of supervisor of loan agencies, existing under authority of chapter seven hundred and twenty-seven of the acts of nineteen hundred and eleven, and the office of the insurance commissioner, existing under authority of chapter five hundred and seventy-six of the acts of nineteen hundred and seven, are hereby abolished. All the rights, powers, duties and obligations of said offices are hereby transferred to and shall here- after be exercised and performed by the department of banking and insurance established by this act, which shall be the lawful suc- cessor of said offices. "Section 46. The department of banking and insurance shall be organized in three divisions, — namely, a division of banks and loan agencies, a division of insurance, and a division of savings bank life insurance. Each division shall be in charge of a commissioner, who shall be known, respectively, as the commissioner of banks, the commissioner of insurance, and the commissioner of savings bank life insurance. "The division of banks and loan agencies shall include the functions heretofore exercised by the bank commissioner and the supervisor of loan agencies. The division of insurance shall include the functions heretofore exercised by the insurance commissioner. The division of savings bank life insurance shall consist of the body corporate known as the general insurance guaranty fund as now organized and existing under authority of chapter five hundred and sixty-one of the acts of nineteen hundred and seven, and acts in amendment thereof and in addition thereto, and the board of trustees of said corporation shall continue to exercise its functions as heretofore, except as is otherwise hereinafter provided. "The commissioners of said divisions shall act as a board in all matters concerning the department as a whole. "Section 47. The board of bank incorporation, so-called, ex- isting under authority of chapter two hundred and four of the acts of nineteen hundred and six and section four of chapter five hundred and ninety of the acts of nineteen hundred and eight, is hereby placed and shall hereafter serve in the department of banking and insurance. The said board shall hereafter consist of the treas- ON ADMINISTRATIVE REORGANIZATION 623 urer and receiver general, the commissioner of banks, and the com- missioner of corporations and taxations as estabHshed by this act. The board shall continue to exercise its functions as heretofore, but shall be considered a board of the division of banks and loan agencies. "Section 48. The board of appeal on fire insurance rates, existing under authority of chapter four hundred and ninety-three of the acts of nineteen hundred and eleven, is hereby placed and shall hereafter serve in the department of banking and insurance, and shall continue to exercise its functions as heretofore, but shall be considered a board of the division of insurance. "Section 49. The commissioner of banks shall exercise the functions of the bank commissioner and of the supervisor of loan agencies, as now provided by lav^. He shall also be a member of the board of bank incorporation, as heretofore provided. He shall be appointed by the governor, with the advice and consent of the council. The first appointment shall be for the term of one, two or three years, as the governor may determine. Thereafter the governor shall appoint the commissioner for the term of three years, shall fill any vacancy for the unexpired term, and may, with the consent of the council, remove the commissioner. He shall possess the qualifications and give the bond required of the bank com- missioner under chapter five hundred and ninety of the acts of nineteen hundred and eight, and shall receive such annual salary, not exceeding five thousand dollars, as the governor and council may determine. The commissioner may, with the approval of the governor and council, appoint and remove a deputy as supervisor of loan agencies, and may, subject to the civil service laws and rules, where they apply, appoint and remove such clerical and other assistants as the work of the division may require and, subject to the provisions of chapter two hundred and twenty-eight of the general acts of nineteen hundred and eighteen, and rules and regula- tions made thereunder, and to the approval of the governor and council, where it is required by law, fix the compensation of the said persons. "Section 50. The commissioner of insurance shall exercise and perform the functions of the insurance commissioner as now provided by law, and he, or a deputy designated by him, shall be a member of the board of appeal on fire insurance rates under chapter four hundred and ninety-three of the acts of nineteen hun- dred and eleven. He shall be appointed by the governor, with the advice and consent of the council. The first appointment shall be for the term of one, two or three years, as the governor may determine. Thereafter the governor shall appoint the commissioner for the term of three years, shall fill any vacancy for the unexpired term, and may, with the consent of the council, remove the com- missioner. He shall possess the qualifications and give the bond required of tlie insurance commissioner under chapter one hundred and eighteen of the revised laws and chapter five hundred and seventy-six of the acts of nineteen hundred and seven, and shall receive such annual salary, not exceeding five thousand dollars, as the governor and council may determine. The commissioner may appoint and remove, with the approval of the governor and council, a first deputy, who shall discharge the duties of the commissioner 624 REPORT OF JOINT LEGISLATRE COMMITTEE during has absence or disability, and such other duties as may be prescribed by the commissioner, an actuary and a chief examiner, and, subject to the civil service laws and rules where they apply, may appoint and remove such clerical and other assistance as the work of the division may require, and subject to the provisions of chapter two hundred and twenty-eight of the general acts of nine- teen hundred and eighteen, and the rules and regulations made thereunder, and to the approval of the governor and council, where that is required by law, may fix the compensation of such persons. "Section 51. The commissioner of savings bank life insurance shall be one of the board of trustees of the corporation known as the general insurance guaranty fund, designated by the governor. His term shall be that of his appointment as trustee. He shall act as president of the board of trustees of said corporation, and shall have general supervision and control of the work of the division: proz'ided, that the trustees may elect a vice president to act as president of the board in the absence or disability of the commis- sioner." By reference to the concluding part of Section 46, above quoted, it is seen that the commissioners of the divisions created exercise in their respective divisions the same functions that they exercised previously in the same governmental agencies and in addition "act as a board in all matters concerning the department as a whole." It seems that the general court made a minimum of changes in order to comply with the provision of the new constitution requiring the organization of the state government in not to exceed twenty depart- ments. To what extent the Massachusetts code will affect the work of the civil service commission in that state can not be clearly learned from the document itself. Sec. 9 of the code is as follows: "In all cases where the executive and administrative head of the department is vested with authority to establish within his depart- ment divisions, the establishment of such divisions shall be subject to the approval of the governor and council, except in cases where divisions are specifically provided for in this act." Section 11 contains two clauses that .seem very slightly related. The first of these provides that all salaried persons appointed by the governor with the advice and consent of the council may be required by the governor, with consent of the council, to give their whole time to the duties of the office. This really means little or nothing. The other clause is significant. Here it is: "The heads of divisions of departments established by or under authority of this act shall be exempt from the civil service law and the rules and regulations made thereunder." This means, of course, not only that the heads of all divisions pro- vided for in the act itself, but that the heads of all divisions hereafter ON ADMINISTRATIVE REORGANIZATION 625 created by the governor and heads of departments under this act shall be exempt from civil service requirements. While this provision would seem to curtail the authority of the civil service commission and exempt from the civil service rules and regulations subordinate positions in the different departments, amends had been made to some extent by law? previously enacted, which safeguard many of these positions by prescrib- ing a standard of qualifications for those appointed to them. There are some other interesting principles running through the new code, but as they do not directly concern matters of reorganization in the interest of efficiency and economy there is no occasion to review them here. MINNESOTA The efificiency and economy commission of Minnesota was created in October, 1913. It consisted of thirty men chosen by the governor and serving without pay. The funds necessary for general expenses were raised by private subscriptions. The commission was authorized to con- fer with public officials and private citizens in devising plans for pro- moting efficiency and economy in the administration of the state gov- ernment. A preliminary report was made to the governor under date of May 25, 1914. Following are the main features of the plan proposed : I. Reorganization of the executive service under the following heads: 1 . General administration of finance 2. Public domain 3. Public welfare a. Institutions b. Health 4. Education 5. Labor and commerce 6. Agriculture II. The merit system in the civil service III. The budget system of appropriating money The final report of the commission was made to the governor in November, 1914. This elaborates the main features of the preliminary report. It contains "the proposed bill for reorganizing civil administra- tion of the state of Minnesota". Following the bill are twenty-two pages of explanatory notes. A carefully prepared index concludes the report. Much praise has been given the commission for its survey and recommendations, but the bill which it proposed has not been enacted into law. On April 21, 191 5 a resolution was adopted by the general assembly of Minnesota creating a commission on reorganization of civil adminis- tration in that state. This commisison consisted of three members 40 626 REPORT OF JOINT LEGISLATIN'E COMMITTEE appointed by the governor, four by the lieutenant governor and four by the speaker of the house. All appointments were made from the member- ship of the legislature. The report of this commission appears in the appendix of the inaugural message of Governor Burnquist to the legisla- ture hi 19 1 7. It follows in general the recommendations of the efficiency and economy commission which preceded it, but it does not go so far in the recommendation of changes. The commission makes the additional recommendation that a constitutional amendment be submitted to the people limiting the membership of the state senate to fifty and of the house of representatives to not to exceed one hundred. In Minnesota the work of the two commissions has not led to im- portant legislation. The enactment, of a law providing for a state budget, however, was perhaps due to some extent to their recommenda- tions. NEBRASKA On April 16, 1913, the general assembly of Nebraska adopted a resolution providing for the appointment of a joint committee to consider the reform of legislative procedure and the budget. This committee con- sisted of three members of the senate and three members of the house. It was specifically directed to make a careful study of the methods of legislative procedure in other states and countries, including the prepara- tion of the budget, and to formulate a report and recommendations for the state of Nebraska. A small appropriation of $500 was made for the expenses of the committee. The report of the committee bears date of May 15, 1915. It is brief and contains the following recommendations : For immediate action : 1 . Bills. Form to be standardized ; a bill drafting division to be created. 2. Legislative publications. Journals and calendars should be printed. 3. Committees. Reduction in size and number, schedule of meetings, record of votes. 4. Employees. Reduction in number, election of chief. For future action : 1 . Constitutional amendment for unicameral legislature 2. Civil service reform. 3. Budget to be prepared by the governor. 4. Consolidation of offices. 5. Efficiency survey. The efficiency survey recommended in this report does not appear to have been made by the state, but at least one committee in 1914 and two governors at different dates, seem to have recommended consolidation of administrative agencies. In 1918 the republican party of Nebraska ON ADMINISTRATIVE REORGANIZATION 627 declared in favor of a reorganization of the state government and elected a governor pledged to this change. The civil administrative code passed by the legislature of Nebraska, approved April 19, 1919, is a voluminous document and including index covers 461 pages. It is much more ex- tensive than the Illinois code and seems to include a revision of all the laws under which the reorganized government of Nebraska is to operate. The general provisions of the code are an index to the character of the document and are sufficiently brief to be presented in this study. These provisions are as follows : "Be it enacted by the people of the state of Nebraska : Section i. Civil administration vested i>/ governor. The civil ad- ministration of the laws of the state is hereby vested in the governor. For the purpose of aiding the governor in the execution and administra- tion of the law, the executive administration work shall be divided into the several departments enumerated in Section 2 of this article. "Sec. 2. Executive and administrative departments. There are hereby created and established the following departments of the state government. The department of finance ; The departemnt of agriculture ; The department of labor; The department of trade and commerce ; The department of public welfare; The department of public works. "Sec. 3. Departmental secretaries. To aid the governor in carrying out the constitutional duties, vested in him as the supreme executive, each department shall have a departmental officer who shall be known as 'secretary', who shall, subject to the provisions of this act, and under the general direction of the governor, execute the power and discharge the duties vested by law in his respective department. Such officers shall be designated as follows : The secretary of finance, for the department of finance ; The secretary of agriculture, for the department of agriculture; The secretary of labor, for the department of labor; The secretary of trade and commerce, for the department of trade and commerce ; The secretary of public welfare, for the department of public welfare ; The secretary of public works, for the department of public works. "Sec. 4. Salaries and secretaries. The secretaries of the respective departments created by this article shall receive annual salaries in monthly or yearly periods as follows : The secretary of finance shall receive $5,000; The secretary of agriculture shall receive $5,000; The secretary of labor shall receive $5,000; The secretary of trade and commerce shall receive $5,000; The secretary of public welfare shall receive $5,000; The secretary of public works shall receive $5,000. 628 REroRT OF JOINT li-:gislative committee "Sec. 5. Assistants — appointed — salaries — tenns, etc. The gov- ernor shall, in each department, have power to appoint such deputies, assistants, employees and clerical help as shall be necessary or essential to the economical but efficient and proper enforcement and administration of the laws of the state, and shall at the same time fix the salaries of such appointees and prescribe their duties. The governor shall also have power to discontinue the service of any such secretary or employee when, in his judgment, the same is not longer necessary. Such appointee may be required to serve in one or more departments and may be transferred from one department to another from time to time as efficient but eco- nomical administration shall require. The governor shall confer with the secretaries of the several departments and the secretaries shall make rec- ommendations to the governor from time to time relative to appoint- ments, services, salaries and duties of the appointees for their re- spective departments. In providing for deputies, assistants, employees or clerical help, the total expenditures for the biennium shall not exceed the appropriation made by the legislature for said departments. "Sec. 6. Secretaries and appointees to devote their entire time to office. Each secretary, and each appointee in each department, shall devote his entire time to the duties of his office and shall hold no other office or position of profit. No appointee in any of the departments shall be a relative of any of the secretaries of departments created by this act. "Sec. 7. Secretaries — hoiu appointed. Each secretary of each de- partment created by this act shall be appointed by the governor, by and with the advice and consent of the senate. In any case of vacancy in such offices during the recess of the senate, the governor shall make a temporary appointment until the next meeting of the senate, when he shall nominate some person to fill such office ; and any person so nom- inated who is confirmed by the senate, shall hold his office during the remainder of the term and until his successor shall be appointed and qualified. If the senate is not in session at the time this act takes effect the governor shall make a temporary appointment as in case of a vacancy. "Sec. 8. Same — terjii of office. Each secretary whose office is created by this act shall hold office for a term of two years from the first Thursday after the first Monday in January next after the election of the governor and until his successor is appointed and qualified unless sooner removed by the governor. "Sec. 9. Same — oath of office. Each secretary and assistant in each department created by this act shall, before entering upon the duties of his office, subscribe and take the constitutional oath of office, which shall be filed in the office of the secretary of state. "Sec. 10. Same — bond. Each secretary, deputy and assistant in each departnient created by this act shall, before entering upon the dis- charge of the duties of his office, give bond, with security to be approved by the governor, not less in any case than ten thousand dollars, condi- tioned for the faithful performance of his duties, which bond shall be filed in the office of the secretary of state. "Sec. II. Secretary makes rules and rer/ulations for departnient. The secretary of each department is empowered to prescribe regulations, not inconsistent with law. for the government of his department, the con- duct of its employees and clerks, the distribution and performance of its business, and the custody, use and preservation of the records, papers, books, documents and property pertaining thereto. ON ADMINISTRATIVK REORGANIZATION 629 "Sec. 12. Department offices — branches. Each department shall maintain a central office in the capital at Lincoln, Nebraska, in rooms provided therefor. The secretary of each department may, in his discre- tion and with the approval of the governor, establish and maintain, at places other than the seat of government, branch offices for the conduct of any one or more functions of his department. "Sec. 13. Department offices — zvhen open and close. Each depart- ment shall be open for the transaction of business at least from eight o'clock in the morning until five in the evening of each day except Sun- days and days declared by statutory enactment or proclamation of presi- dent or governor to be holidays. "Sec. 14. Official seal of department. Each department shall adopt an official seal. "Sec. 15. Hours of labor. All secretaries, deputies, assistants and employees in the several departments shall render not less than eight hours of labor each day, Saturday afternoon, Sundays and days declared by statutory enactment or proclamation of the president or governor to be holidays excepted. "Sec. 16. Leaves of absence. Each secretary and appointee in the several departments shall be entitled during each calendar year to four- teen davs leave of absence with full pay. In special and meritorious cases where to limit the annual leav^ to fourteen days in any one cal- endar year would work peculiar hardship, it may, in the discretion of the governor, be extended. "Sec. 17. Payment for extra services — reports. No secretary or employee in the several departments, employed at a fixed compensation, shall be paid for extra services, unless expressly authorized by law. Each secretary of the department shall annually, on or before the first day of December, and at such other times as the governor may require, report in writing to the governor concerning the condition, management, and financial transactions of his department. "Sec. 18. Co-ordination among departments. The secretaries of departments "shall devise a practical and working basis for co-operation and co-ordination of work, eliminating duplication and overlapping functions. They shall, so far as practicable, co-operate with each other in the employment of help and the use of quarters and equipment. Sec. 19. Receipts by departments — paid to the state treasury. The gross amount of money received by every department, from whatever source, belonging to or for the use of the state, shall be paid into the state treasury, without delay, not later in any event than ten days after the receipt of the same, without any deduction on account of salaries, fees, costs, charges, expenses or claims of any description whatever. No money belonging to or for the use of the state shall be expended or ap- plied by any department except in consequence of an appropriation made by law and upon the warrant of the auditor of public accounts. "Sec. 20. Supplies — hozv purchased. Supplies for the several de- partments, except in cases of emergency and in case of perishable goods, shall be purchased in large quantities and contracts therefor shall be let to the lowest responsible bidder. Advertisements for bids for furnishing such supplies shall be published for at least three days in one or more English language newspapers, published in each of the five largest cities of the state determined by the then last preceding Federal census, and, also in one secular English language newspaper, selected by the depart- ment of finance, by competitive bidding in the same manner as it is herein 630 REPORT OF JOINT LEGISLATIVE COMMITTEE provided other contracts may be let, and designated as an 'official news- paper', which newspaper so selected shall continue to be the official news- paper for a period of one year from the time of its selection. The pro- posals shall be -publicly opened on the day and at the hour and place mentioned in the advertisement and any and all bids may be rejected and when rejected a readvertisement shall be made in the manner above provided ; providing that no specification prepared for proposals to bid as herein provided shall call for private brands or particular manu- facture. "Sec. 21. Foivers of departments — carry reciprocal duties. Whenever in this act power is vested in a department to inspect, examine, secure data or information, or to procure assistance from another de- partment, a duty is hereby empowered upon the department of which demand is made, to make such power effective. "Sec. 22. Powers — duties — rights, documents and property of existing offices to he transferred to department. Whenever rights, powers and duties, which have heretofore been vested in or exercised by any officer, board, commission, institution or department, or any deputy, inspector or subordinate officer thereof, are, by this act, trans- ferred, either in whole or in part, to or vested in a department created by this act, such rights, powers and duties shall be vested in, and shall be exercised by, the department to which the same are hereby transferred, and not otherwise, and every act done in the exercise of such rights, powers and duties shall have the same legal effect as if done by the former officer, board, commission, institution or department, or any deputy, inspector or subordinate officer thereof. All books, records, papers, docu- ments, property, real and personal, unexpended appropriations and pend- ing business in any way pertaining to the rights, powers and duties so transferred to or vested in a department created by this act, shall be delivered and transferred to the department succeeding to such rights, powers and duties. "Sec. 23. Reports — notices — papers — documents — to he given and served upon department heads — saving clause. Whenever reports or notices are now required to be made or given, or papers or docu- ments furnished or served by any person to or upon any officer, board, cornmission, or institution or deputy, inspector or subordinate thereof. This act shall not affect any act done, ratified or confirmed, or any right accrued or established, or any action or proceeding had or commenced in a civil or criminal cause before this act takes effect; but such actions or proceedings may be prosecuted and continued by the department having jurisdiction, under this act. of the subject matter to which litigation or proceeding pertains. "Sec. 24. Investigations — power to administer oath, summon and compel the attendance of zvitnesses. Each department created by this act shall have power through its secretary, any deputy or assistant or em- ployee, when authorized by the secretary, to make 'a thorough investiga- tion into all the books, papers and affairs of any person, firm or cor- poration when in the judgment of such department such examination is necessary to the proper performance of its duties and the efficient en- forcement of the laws, within the purview of its power and authority fixed by this act, in so doing to administer oaths and affirma^tions and to examine on oath or affirmation any person, officer, agent or clerk of any firm or corporation touching the matters which in the judgment of such department, ought to be inquired into and to examine and to sum- ON ADMINISTRATIVE REORGANIZATION 63I mon and by attachment compel the attendance of any person or persons in this state to testify under oath before such department or its secretary or any deputy or any assistant or employees thereof in relation thereto. "Sec. 25. Power of departments to administer lazus assigned to them. Except as otherwise provided by this act, each department shall have exclusive supervision, regulation and general control over the en- forcement, execution and administration of the laws relating to the several subjects and matters assigned in this act to the departments respectively." It will be noted that there has been considerable consolidation under this code and that unusually large powers are centered in the governor. The administrative departments are reduced in number to five; the gov- ernor is given authority not only to appoint the heads of these depart- ments, but also to appoint and fix the salaries of all "deputies, assistants, and clerical help". It is difficult to see how with this large authority the consolidation effected in the state government of Nebraska would relieve the governor of the importunities of office-seekers and an immense amount of petty detail that would tend to prevent his consideration of the larger problems of administration. It is not at all surprising, in view of this, that there should be oi> position to the new code in Nebraska. It has been opposed by a number of newspapers of that state and a referendum has been invoked against it, apparently without effect, as the petitions have been declared inade- quate. In answer to a letter of inquiry the following statement is made from the state capital of Nebraska, by one qualified to speak from a- knowledge of actual conditions there : "The Nebraska civil administrative code has now gone into efifect. There was a referendum filed but the position was taken that the petitions were not legal because the entire bill did not appear at the heading of each petition, and also that persons signing the petitions in many cases thought they were signing petitions against the prohibition amendment. The case of the petitioners against the secretary of state will come up shortly in the state supreme court. "I am sorry that I cannot send you printed matter giving opinions of those opposed to the code. The newspapers were used as the medium to get the opposition views before the people. The chief objections to the law were its unwieldiness ; its centralization of power in the governor; the taking over by the department of agriculture the present powers of the state board of agriculture, — a private organization receiving support from the state ; its use- lessness just at this time when a constitutional convention will be held next winter." As the civil administrative code of Nebraska covers over 461 pages, the difficulty of circulating it in full at the head of referendum petitions is readily apparent. 632 REl'ORT OF JOINT LEC.ISLATIX E COMMITTEE In an article contributed to The American Review of Reviews for March, 1920, Governor Samuel R. McKelvie, who. was elected on a platform jjledged to reorganization of the state government of Nebraska, and who is personally given chief credit for the creation of the new ad- ministrative code of that state, makes the following statements in regard to "results already achieved" : "In operation the civil administrative code in Nebraska has met the expectations of those who urged its adoption. At the end of the first five months of its operation, it had saved to the state over $50,000 in actual costs of administration. On this basis, it is fair to assume that the saving for the biennium will be over $200,000. In one division alone, the registration of automobiles, a saving of $8,000 per annum was effected in cost of administration. "But more important still — it so expedites the handling of the state's business that those requiring service receive it promptly, and the' tedious details which accompany the system of administra- tion under boards and commissions are largely eliminated." In his introductory arguments in favor of state governmental re- organization Governor McKelvie tells us that the movement is simply to fashion state government into the more perfect type of our national government. He says in part: "Briefly, it is simply a return to first principles, as embodied in the government of the United States, a republic the like of which has never been founded. In its origin it stood as a happy medium between two extremes — on the one hand, an autocracy with all power centered in one individual ; on the other hand, a pure dem- ocracy with direct action by all the people. It was indeed a repre- sentative form of government, which protected individual rights and provided for the economical and efficient administration of the country. The entire system consisted of three distinct and separate branches; executive, legislative, and judicial; the first two filled by popular vote, and the third by appointment." Governor McKelvie is an enthusiastic supporter of placing large appointive power in the hands of the governor. The new code, as al- ready pointed out, provides that the governor shall appoint all sub- ordinates, from janitor to heads of departments. His advice to the constitutional convention of his state, which was in session when he con- tributed the article from which quotation is made, is a plea, among other things, for a shorter ballot and larger powers of appointment. Here are his seven recommendations : "i. The executive department should consist of a governor, lieu- tenant-governor, and comptroller, to be elected. 2, The governor to be elected for a term of four years, and not subject to re-election. 3. The lieutenant-governor to be elected for a term of four years and to serve only in the event of the deatli or disability of the governor. ON ADMINISTRATIVE REORGANIZATION 633 A comptroller to serve as auditor and treasurer, to be elected for a term of four years, and not subject to re-election. He could either be elected by direct vote of the people or by the house of representatives. All appointments, aside from those having to do with the office of comptroller, should be made by the governor, with major appointments to be confirmed by the senate. The cre- ation of departments, and the grouping of activities with them, to be left to the legislature. The selection and term of service of minor employees to be subject to a limited civil service, the provisions of which the legislature should determine. _ There should be no boards, except those that are quasi-judicial, and quasi-legislative or having to do with education. Provisions may be made for the recall of any of these officers, or the appointees under them, upon the petitions of a given percentage of qualified electors." NEW JERSEY The governor of New Jersey, April i, 1912, approved an act creating a commission to report upon the advisability of reorganization and con- solidation of the different departments of the state government whose functions were interrelated. The commission was made up of two senators appointed by the president of the senate, two representatives appointed by the speaker of the house and three citizens appointed by the governor. On February 16, 1914, the committee reported that it had investi- gated about forty offices and departments and recommended reorganiza- tion that should save the state $146,811 annually. The general plan of organization recommended provided for consolidation of different depart- ments, boards and offices under a director for each new department with an unpaid advisory board. Specific recommendations were made for the standardization of salaries by the civil service commission and the standardization of stationery by the state house commission. The commission made an annual report in 191 5 with the following recommendations : 1 . Creating a department of conservation and development by con- solidation of the state geological survey, the Forest Park reser- vation commission, the state water supply commission and the state museum commission, the Washington Crossing park com- mission and the Fort Nonsense commission. 2. Creating a department of commerce and navigation by the con- solidation of the New Jersey ship canal commission, riparian commission, department of inland waterways and the inspectors of power vessels. 3. Creating a department of shell fisheries by the consolidation of the bureau of shell fisheries, the New Jersey state oyster commission, the oyster commission of Atlantic county, the oyster commission of Ocean county and the shark river com- mission. 634 REPORT OF JOINT LFX.ISLATIVE COMMITTEE 4. A reorganization of the board of health by the substitution of a director of health in the place of five paid commissioners and the addition of an advisory board. 5. Consolidating the state board of assessors and the state board of equalization of taxes and providing that the new board shall consist of six members, with the provision that the board can divide into courts of three for the purpose of hearing appeals, etc. 6. Transferring the engineers of the present department of the board of assessors to the board of utility commission, but in no way interfering with the work or revaluation and assess- ments now in charge of the engineering corps. 7. Providing that the new organization of the board of health may enforce state laws in local districts. 8. Creating a department of labor and industry, consolidating the department of labor and bureau of industrial statistics. The report for 1916 opens with the statement that many of the recommendations contained in the report of 1914 were carried into effect with satisfactory results. In the opinion of the commission the creation of new agencies in the state government should be confined to those activities that "cannot find consistent lodgment in some existing department." The report closes with the following suggestion : "Our commission, therefore, begs to renew its recommendations formerly submitted, either that this commission should be continued or that a permanent economy and efficiency commission should be created, composed of members who will serve without compensation and who have had experience in business enterprises. "Such a commission could be given authority to examine not only the field of state government, as yet untouched, but also to ex- amine the operations of those consolidations and reorganizations al- ready effected." It appears that in the state of New Jersey no systematic reorganiza- tion of the state government was effected or attempted. A number of changes were made, however, in the interest of efficiency and economy and the comment upon the work of the commission has been generally very favorable. State librarian of New Jersey, J. P. Dullard, in a letter under date of May 12, 1919, briefly summarizes the work of the commis- sion as follows : "Most of the practical eff^ect of the work of the commission is to be found in the enactment of a number of laws in 191 5. consoli- dating various state departments. These laws, which will be found in the Session Laws of New Jersey, are as follows : "Chapter 242 of the laws of 1915 creating a department of commerce and navigation. A consolidation of the following de- partment and boards : riparian commission, inland waterways, in- spection of power vessels, and New Jersey harbor commission, which latter commission absorbed the New Jersey ship canal commission. ON ADMINISTRATIVE REORGANIZATION 635 "Chapter 241 of the laws of 191 5 creating department of con- servation and development. A consolidation of the following de- partments : Forest Park reservation, state geological survey, Wash- ington Crossing commission, state museum, Fort Nonsense com- mission, state water supply commission. "Chapter 387 of the laws of 191 5 establishing department of shell fisheries. A consolidation of bureau of shell fisheries and the various oyster commissions of the state. "Chapter 244 of the laws of 191 5 creating state board of taxes and assessments. A consoHdation of the state board of assessors and the state board of equalization of taxes. "Others passed, which were more or less the result of the recommendations of the economy and efficiency commission, are as follows : "Chapter 28S of the laws of IQ15 reorganizing the state de- partment of health, chapter 40 of the laws of 1916 reorganizing and establishing the powers of the department of labor, chapter 12 of the laws of 1917 establishing the state highway department, a consolidation of three different departments having to do with the roads. Chapter 147 of the laws of 1918 creating a department of charities and corrections, involving a very considerable enlarge- ment of the powers of a former department of the same name. One of the active spirits of our economy and efficiency commission was Governor Edge* who at the time of the creation of the com- mission was a state senator, and it was largely through his influence and the experience acquired by him as a member of this commission that some of the above mentioned laws were passed, even after the commission went out of existence." NEW YORK STATE ADMINISTRATIVE REORGANIZATION (Excerpts from reports of Reconstruction Commission of New York, October 10, 1919) Movement prior to ipip As early as 1910 Governor Hughes in his annual message to the legislature recommended administrative reorganization and consolidation, which he said would "tend to promote efficiency in public office by in- creasing the efifectiveness of the voter and by diminishing the oppor- tunities of the political manipulators who take advantage of the multi- plicity of elective offices to perfect their scheme at the public expense." Furthermore, he believed that responsibility should be ""centered in the governor who should appoint a cabinet of administrative heads, account- able to him and charged with the duties now devolved upon elective state officers." Following this message a resolution to amend the constitution was introduced in the assembly of 1910 providing for the appointment of all state officers except the governor and the lieutenant-governor. A hot discussion ensued with the result that the resolution failed to pass. *Now United States Senator from New Jersey. 62^6 REPORT OF JOINT LEGISLATIVE COMMITTEE The movement toward consolidation was again revived in the election campaigns of 1912. In 1913 the legislature passed a bill establishing a department of efficiency and economy under a commissioner appointed by the governor and confirmed by the senate for a term of five years. The commissioner was authorized to study all branches of the state government and to make recommendations designed to promote the general conduct of the state's business. In 1914 this department in co- operation with the bureau of municipal research began the preparation of a report on the government and administration of the state for the constitutional convention which was to meet the following year. As a result of the combined efforts of these two agencies there was published in January, 191 5, a volume of more than seven hundred pages, entitled "Government of the state of New York : A survey of its organization and functions." This volume gave a minute description of the legislative, judicial and administrative organizations of the state government. It also set forth graphically all the agencies of the state, together with their functions, number of employees, salaries and other costs, and their organic relations or absence of relations. The report showed that there were one hundred and sixty-nine agencies, most of which had been created in recent years. It also pointed out that the; entire structure of the state government seemed to have "grown up from year to year, rather than to have been built according to any studied plan of scientific and economic needs." Numerous conflicts of authority and overlappings of jurisdiction were pointed out. One hundred and eight boards were shown to exist. "A number of them," said the report, "were created for similar purposes and a number perform functions for which there already existed at the time of their creation fully organized departments of the government. Some are elected by the legislature, some appointed by the governor, some are of ex-officio membership, some are paid, others are not paid." Upon the completion of tiiis joint undertaking the bureau of munic- ipal research was requested l)y the constitutional convention commission to prepare an appraisal of the existing organization of the state govern- ment. In compliance with this request the bureau issued a volume en- titled "The constitution and government of the state of New York" in which the existing structure and methods of the state government were subjected to careful and com[)rehensive analysis. The bureau also worked out a proposed plan of administrative reorganization which it laid before the committees of the constitutional convention. In 1914 both great political parties of the state seemed clearly to recognize the failure of the existing administrative system. The repub- lican platform of that year, framed especially with a view to constitu- tional revision, said : "We recommend a substantial reduction in the number of elective officers by the application of the principles of the short ON ADMINISTRATIVE REORGANIZATION 637 ballot to the executive officers of the state. To prevent the multi- plication of offices, we recommend that the various administrative functions of the state, so far as practicable, be vested in a limited number of departments. The present duplication of effort and expense in the public institutions of the state should be remedied by the establishment of a simpler and better organized system." The democratic platform of the same year declared: "There should be no divided authority or responsibility in executing and administering the laws of the state. The time has come to give the people control of their executive government. The responsibility should be centered in the governor. He should have the absolute power of removal. The various boards and com- missions should be made subject to the control of the governor." As a result of the agitation for administrative reform and reorgan- ization several plans were prepared and laid before the constitutional convention, which met in the summer of 19 15. After due consideration of these plans by the committee on the governor and other state officers, a proposed amendment to the constitution was submitted to the conven- tion for discussion. This amendment proposed to establish fifteen de- partments : Justice, Public works, Audit and control, Health, Education, Agriculture, Public utilities. Charities and corrections, Conservation, . Banking, Civil service, Insurance, State, Labor and industry. Taxation and finance. The heads of the department of justice and of the department of audit and control were to be the attorney-general and comptroller, re- spectively, elected at the same time and for the same term as the gov- ernor. The department of education was to be controlled by the regents of the university who were to appoint the chief administrative officer of the department. The department of public utilities was to consist of two commissions of five members each, appointed by the governor with the consent of the senate for terras of five years, and removable by the senate upon recommendation of the governor. The department of con- servation was to be under the direction of a civil service commission consisting of three members appointed by the governor with the consent of the senate for overlapping terms of six years. The remaining depart- ments were to be administered by single heads appointed by the gov- ernor with the consent of the senate and removable by him in his dis- cretion. After the adoption of this amendment, no new departments were to be created by the legislature but all new functions were to be as- signed to one of the existing departments. The, legislature was to pro- vide for the internal organization of the departments. 638 KEPOKT OF JOIXT LLIGISLATINE COMMITTKE The general principles set forth in this amendment had been dis- cussed before the committee on finance and the committee on governor and other state officers by such men as Ex-President Taft, President Lowell of Harvard and President Goodnow of Johns Hopkins. Follow- ing the introduction of the amendment into the constitutional convention, there were discussions of various phases of the proposed administrative reorganization. Mr. Elihu Root said that the existing system was an "invisible government" in which the political. boss ruled the state in spite of the legislature, the governor, and the other elective officers. He also said that men were appointed to office not for the service they would render the state but for the service they were to render to promote the power of political organizations. Such a system, he declared found "its opportunity in the division of powers, in the six-headed executive, in which, by the natural workings of human nature, there shall be oppofi- tion and discord in the playing of one force against the other, and so when we refuse to make one governor, elected by the people, the real chief executive, we make inevitable the setting up of a chief executive not selected by the people, not acting for the people's interest, but for the selfish interest of the few who control the party, whichever party it may be." The result of the discussions was a considerable modification of the plan presented to the convention by the committee on the governor and other state officers. The plan of administrative organization as finally adopted by the constitutional convention, provided for seventeen departments to exercise the civil, executive and administrative functions of the state. These departments were as follows : Law, Charities and corrections. Finance, Banking, Accounts, Insurance, Treasury, Labor and industry, Taxation, Education. State, Public utilities. Public works. Conservation, Health, Civil service. Agriculture, The heads of the {lc])artnK-nl of law and of llir (le])artnK'nl oi finance were to be the attorney-general and ilic ooni])trollc'r respectively, who were to be elected at the same time and for the same term as the governor. The head of the department of labor and industry was to be an industrial commission or commissioner to be provided by law, appointed by the governor with the advice of the senate. The department of education was to be administered by the university of the state of New York, the chief administrative officer of which was to be appointed by the regents of the university. The department of public utilities was to consist of ON ADMINISTRATIVE REORGANIZATION 639 two public service commissions, the commissioners to be appointed by the governor, by and with the advice and consent of the senate. The gov- ernor might remove any commissioner for cause after an opportunity to be heard. The department of conservation was to be under the direction of the conservation commission consisting of nine commissioners ap- pointed by the governor by and with the advice and consent of the senate with overlapping terms of nine years and serving without compensation. The commission was authorized to appoint and remove a superintendent and also to appoint his subordinates. The department of civil service was to be under the direction of a civil service commission consisting of three members appointed by the governor by and with the advice and consent of the senate for overlapping terms of six years. The remaining ten de- partments were to have single heads who were to be appointed by the governor and removable by him in his discretion. The reason given for the concurrence of the senate in the appointment of heads of the depart- ments of labor and industry, public utilities, conservation and civil serv- ice was because such departments performed both legislative and ad- ministrative functions. Only very general powers were prescribed for the several depart- ments. In some cases the prescribing of duties was left entirely to subsequent legislative action. In the case of the department of finance it was stated that the comptroller should exercise all powers and duties at that time devolving upon him except the powers of examination and verification of accounts, which duties were vested in the department of accounts. This plan of reorganization reduced the number of elective state officers from seven to four, leaving only the governor, lieutenant-gov- ernor, comptroller and attorney-general to be chosen by the voters. The secretary of state and the treasurer were to be appointed by the governor, and the office of state engineer and surveyor was to be abolished. The plan of administrative reorganization and consolidation pro- posed by the constitutional convention and embodied in the proposed constitution was submitted to the people in November, 191 5, and de- feated at the polls. Until the present there has been little attempt to revive the movement in New York for administrative reorganization. Principles of Plan of Administrative Organization and Budget (Proposed by Reconstruction Commission, October 10, 1919) The experience of other states in the union, the experience of the national government with a consolidated administration and a cabinet system and the recommendations of competent authorities lead us to the conclusion that retrenchment and responsibility in the government of the state of New York can be achieved only through : I . A consolidation of all administrative departments, commissions, offices, boards and other agencies into a small number of 640 REPORT OF JOINT LEGISLATIVE COMMITTEE departments, each headed by a single officer, except departments where quasi-legislative and quasi-judicial or in<5nectional and advisory functions require a board. 2. The adoption of the principle that the ^vernor is to be held responsible for good administration and to have the power to choose the heads of departments who e to constitute his cabinet and who are to be held strictly c. countable to him through his power, to appoint and remove and through his leadership in budget preparation. This involved among other things the reduction m the number of elective administrative officers to two : the governor and a comptroller to act as inde- pendent financial auditor. Although there are objections to the confirmation by the senate of nominations by the governor, we are of the opinion that this check has on the whole worked well and should be retained. 3. The extension of the term of the governor to four years and the careful adjustment of the terms of department heads with reference to the term of the governor. Excepting members of boards with overlapping terms, department heads should have the same term as the governor. 4. The grouping of related offices and work in each of the several departments into appropriate divisions and bureaus, responsi- bility for each branch of work to be centralized in an account- able chief. 5. A budget system vesting in the governor the full responsibility for presenting to the legislature each year a consolidated budget containing all expenditures which in his. opinion should be undertaken by the state, and a proposed plan for obtaining the necessary revenues — such a budget to represent the work of the governor and his cabinet. Incorporation of all appropri- ations based upon the budget in a single general appropriation bill. Restriction of the power of the legislature to increase items in the budget. Provision that pending action on this bill the legislature shall not enact any other appropriation bill except on recommendation of the governor. Granting to the governor the power to veto items or parts of items. Provision that special appropriation bills introduced after final action on the general appropriation bill shall secure the specific means for defraying appropriations carried therein. The only serious argument advanced against such a proposed re- organization and budget system is that it rjiakes the governor a czar. The president of the United States has administrative powers far greater than those here proposed to be given to the governor. The mayor of the city of New York appoints and removes all of the important depart- ment heads, and citizens know whom to hold accountable. The governor does not hold office by hereditary right. He is elected for a fixed term by universal suffrage. He is controlled in all minor appoint- ments by the civil service law. He cannot spend a dollar of the public money which is not authorized by the legislature of the state. He is subject to removal by impeachment. H he were given the powers here proposed he would stand out in the limelight of public opinion and ON ADMINISTRATIVE REORGANIZATION 64I scrutiny. Economy in administration, if accomplished, would redound to his credii Waste r -'J extravagance could be la;d at his door. Those v^ho cannot endure e medicine because it seems too strong must be content with waste uefficiency and bungling — and steadily rising cost of government. T c; system here proposed is more democratic, not more "royal" than that now in existence. Democracy dogs not merely mean periodical elections. It means a government held accountable to the people between elections. In order that the people may hold their govern- ment to account they must have a government that they can understand. No citizen can hope to understand the present collections of departments, offices, boards and commissions, or the present methods of appropriating money. A governor with a cabinet of reasonable size, responsible for proposing a program in the annual budget and for administering the program as modified by the legislature may be brought daily under public scrutiny, held accountable to the" legislature and public opinion, and be turned out of office if he fails to measure up to public require- ments. If this is not democracy then it is difificult to imagine what it is. The proposals here advanced are not partisan. Republican leaders and democratic leaders of the highest standing and widest experience have endorsed the principles upon which they rest. They have appeared in the progressive and socialist platforms. Every governor in recent years has made some recommendations along these lines, but the issue ha? never been placed squarely before the people. Departments Proposed by Reconstruction Commission The state government will be organized with the following depart- ments : Executive department. Department of audit and control. Department of taxation and finance. Department of attorney-general. Department of state. Department of public works. Department of conservation. Department of agriculture and markets. Department of labor. Department of education. Department of health. Departments of mental hygiene, charities and corrections. Public service commissions. Departments of banking and insurance. Department of civil service. Department of military and naval affairs. OREGON By concurrent resolution the general assembly of Oregon on Feb- ruary 20, 1917, provided for a commission of seven members, composed 41 642 REPORT OF JOINT LEGISLATIVE COMMITTEE of representative business men of Oregon, to study state administration with a view to consolidation and elimination of offices, boards and com- missions. The commission adopted the following title : "Consolidation commission of the state of Oregon". It was instructed to report to the legislature in 1919. The preliminary report was made to the legislative assembly in 1918. This details the plan of the commission and opens with a sum- mary of economies to be effected if the plan is authorized by law. It is estimated that the adoption of the plan would make possible a saving of $421,263.99 yearly. This does not take into account the reduction of clerical help and other economies which would, in the opinion of the commission, increase the annual saving to $500,000. In concluding this report the commission promises to submit a bill embracing the results of its findings and recommendations. The final report of the commission was submitted to the governor late in the legislative session of 1919. This report contains a bill follow- ing somewhat closely in general outline the administrative code of Illinois It provides for a complete reorganization of one hundred fifty boards commissions and other governmental agencies of the state under ten different department heads each responsible directly to the governor. In this report the commission states among other things : "We submit that there is a strong feeling throughout the state favorable to some well defined system of consolidation or reorgan- ization of our state departments and from the experience of many cities and not a few states throughout the United States, coordination of departments along the line here suggested has proved most satis- factory and has been the means of eft'ccting quite a large saving to the taxpayers. However, the greater efficiency to our state under this reorganization would in our judgment be of even greater benefit than the saving and expense. With this thorough reorganization of our state departments there would always be a place in which to throw any new bureau it might be found in the future necessary to estab- lish or a new place to do such new work and thus save the creation of any new bureau or department. "Might we not suggest for your consideration that since the ses- sion is quite well advanced and perhaps the members would not feel that they would have ample time to carefully consider the bill which we here recommend, that the same might be sul)mitted to a vote of the people at the next regular or special election? "We beg to call your special attention to the fact that the legis- lature of the state of Idaho now in session has just passed a similar bill reorganizing their state government even in a more complete way than is hereby suggested." The general assembly of Oregon does not seem to have acted upon the suggestion of the commission to submit its bill to a vote of the people. At this date no action has been taken to carry its comprehensive recommendation for reorganization into effect. ON ADMINISTRATIVE REORGANIZATION 643 PENNSYLVANIA The state of Pennsylvania by resolution approved July 25, 1913, created an efficiency and economy commission of three members to be appointed by the governor at salaries of $3,000 each. The duties of the commission were to investigate the number, character of duties and com- pensation of all persons in the employ of the state, and to ascertain what changes, if any, may be necessary to secure greater uniformity, economy and efficiency in the work of the various departments, branches, bureaus and commissions of the state. A report was made to the governor under date of Dec. 24, 1914, in which the commission set forth the subjects of its special investigation as follows : 1 . The acts of assembly creating and relating to the various de- partments, also rules and regulations pertaining to or relating to the same. 2. The name, compensation received and duties actually performed by each employe, and the necessity for such employment. 3. Whether or not the position was created by statute, or was temporary employment made by appropriation from session to session, or paid out of the fund commonly known as the con- tingent fund. 4. Obsolete departments, boards and commissions. 5. Duplication of work and conflict of authority. 6. Methods of centralization and improvement. This statement of the scope of its work is supplemented as follows : "It is universally understood in the business world that to com- mand ability, thereby bringing into business enterprises efficiency, it is necessary to provide compensation commensurate with the respon- sibility and duties imposed. This principle, however, is not to any great extent found in the administration of state governments. "Well regulated business enterprises in order to prevent waste and duplication of labor undergo a process of reorganization at least every decade, eliminating unnecessary divisions and departments and centralizing and consolidating others. Such a system is just as im- portant, if not doubly important, in the administration of the aflfairs of a commonwealth, the necessity for which is emphasized because of the establishment, bv the general assembly from time to time of new departments, boards and commissions." There was evidently no purpose on the part of the commission to radically reorganize the state government or seriously disturb the existing order of things. With the exception of a recommendation of the adop- tion of the civil service system for the state, there is nothing in the report to mar the serenity of the 5,152 office holders and employes of that commonwealth. Additional employes are suggested for a number of departments at comfortable salaries and the recommendation for in- creased appropriations occurs with such regularity through the report 644 ■ REPORT OF JOIMT LEGISLATIVE COMMITTEE that the efficiency commission must have concluded its labors to the general satisfaction of the office holders of that state. Just why it was not perpetuated has not yet been recorded. One department for all the multigraphing and addressing of the state is recommended in the interest of economy. The appendix to the report contains a list of all the state depart- ments and governmental agencies with reference to the acts creating the same and the name, position and compensation of each officer and employe. TEXAS At the third called session of the 35th legislature of Texas in 191 7 a resolution was adopted creating a legislative committee "To investigate departments of the state government and state institutions." This com- mittee consisted of ten members of the senate and ten members of the house. The work was divided among ten sub-committees. Under the resolution the committee was instructed to make recommendations in the interest of efficiency and economy. The report of the committee was filed February ist, 1918. The ten recommendations included changes for almost every department, division and bureau in the state government. ■ The more important of these sug- gested changes are readily inferred from the following estimate of sav- ings which would result if the recommendations of the committee were carried into effect :• Estima ted Savings 1 . The discontinuance in the senate of the positions of mailing clerk and notarial clerk and their as- sistants will save to the state $900, per month, while the legislature is in session, which is esti- mated as an annual saving of $ 1,000.00 2. The recommendations as to increases in fees ia the general land office will result in an annual gain of approximately 25,000.00 3. The discontinuance of the office of assistant at- torney general for the court of criminal appeals 5,000.00 4. The abandonment of the Grubbe vocational col- lege will result in a saving of $100,000 now avail- able to be spent for buildings, and an annual saving of 62,300.00 5. The repeal of the laws creating the new normals will result in an initial saving of $550,000.00 and an annual saving of 270,000.00 6. The transfer of the work of the industrial acci- dent board as recommended, will result in annual saving of 20,000.00 7. The abolishing of the warehouse and marketing dei)artment and the transfer of the duties of such department to a bureau of markets and ware- ON ADMINISTRATIVE REORGANIZATION 645 houses in the department of_ agriculture ; the abandonment in the department of agriculture of institute work, the division of plant patholog>% edible nuts, and live stock which is now being conducted at the agricultural and mechanical college, will result in an annual saving of _. 60,000.00 8. The transfer of the feed control from the agri- cultural and mechanical college of the depart- ment of agriculture will result in an annual sav- ino- of 20,000.00 9. The transfer of the foul brood work from^ the agricultural and mechanical college to the depart- ment of agriculture will result in an annual sav- ing of . 5,000.00 10. Combining the positions of the superintendent and storekeeper at the confederate home will re- sult in an annual saving of 1,000.00 11. The transfer of the quarantine service to the fed- eral government will result in an_ immediate saving of $210,000 and an annual saving of 30,000.00 12. The .abolishment of the state fire rating board and recommendations in regard to the fish and oyster commission will result in an annual sav- ing of ; 25,525.00 13. The elimination of the alphabetical list of the highway department " will result in an annual saving of $10,000 and the reorganization of that department as recommended will result in an^ an- nual saving of $20,000 aggregating the annual saving of 30,000.00 14. The passage of a law recommended to preserve the life of the railroad commission as a rate making body will save the people of Texas, from five to ten million dollars in freight rates and the elimination of the pipe line expert will result in a direct annual saving of 3,600.00 15. The passage of a new depository law will result in an annual gain to the state of at least 150,000.00 16. The formation of the purchasing and managing board to conduct an auditing system, to take over the work of the purchasing agent, state ex- pert printer, superintendent of the public build- ings and grounds, and inspector of masonry, to act as a board of control for all eleemosynary institutions will result in an annual saving of at least 7 . '. . • • 250,000.00 17. The consolidation of the reclamation department of the board of water engineers will result in an annual saving of 16,275.00 18. The consolidation of the pension department with the comptroller's department will result in an annual saving of r 6,000.00 19. The abolishment of the tax commissioner's office, as recommended will result in an annual saving of 4,544-0O 646 REPORT OF JOINT LEGISLATIXE COMMITTEE 20. The abolishment of the state revenue department as recommended will result in an annual saving of 13,650.00 21. Audit of the department of state resulted in net gain to the state of 9,711.95 22. Audit of the books of the superintendent of public buildings and grounds resulted in a net gain to the state of 2,212.00 General Summary of Saving and Gain Amount turned into state treasury by committee audit $ 11,923.95 Amount saved by transfer of state quarantine to federal control 210,000.00 Amount saved by repeal of appropriations for new normals 550,000.00 Amount saved by repeal of appropriation for Grubbe voca- tional school 100,000.00 Total immediate saving $871,923.95 Estimated annual saving by board of control operation. . . $250,000.00 Estimated annual saving by depository law operation 150,000.00 Estimated annual saving by department reform 598,894.00 Total estimated annual saving and gain $998,894.00 VIRGINIA By act approved March 16, 191 6, the general assembly of the state of Virginia authorized the creation of a commission on efficiency and economy to consist of one member of the state senate appointed by the president of the senate; two members of the house of representatives appointed by the speaker of the house, and two members appointed by the governor. The commission was charged "with the duty of making a careful and detailed study of the organization and methods of the state and local government of the commonwealth of Virginia and with reporting to the next general assembly of Virginia in what way the state and local government can be more efficiently and economically organ- ized and administered". The commission, in its report to the general assembly of Virginia, January 9, 1918, made the following recommendations: 1 . The introduction of a modern budget system. 2. Supervision of all accounts. 3. Standardization of expense accounts. 4. Uniform fiscal year. 5. Abolition of fees. 6. Uniform office hours. 7. Abolition of employment of special attorneys and inspectors. 8. The location of offices, scattered in different parts of the capital, in a single building. 9. Centralized supervision of the capital and state buildings. ON ADMINISTRATIVE REORGANIZATION 647 10. Collective purchasing. 11. State insurance of state property. 12. Establishment of civil service. 13. Complete reorganization of the educational system of the state. 14. The appointment of a commission to recommend revision of certain sections of the state constitution relating to educa- tion and report conclusions to the general assembly. The commission associated with itself in the work a "citizens co- operative committee" of ten members who seem to have acted in an advisory capacity. The commission justly complains of the inadequate appropriation made for the extensive work it was authorized to do. In fact, it seems that no systematic investigation was conducted for the simple reason that no funds were provided for such investigation. The report, which covers thirty-three pages, represents the judgment of the commission as to what changes should be eflfected, but this judgment under the circumstances could not be based upon a thorough investiga- tion of the various departments of state government. The following statement under the caption of "Needed Changes Obvious" is a summary of the conclusions of the committee : "In order not to divert the attention of the general assembly away from the more important changes which should be made in the interest of greater economy and efiiciency, the commission has con- cluded it best to offer detailed suggestions for supplying a few of the big, general and most pressing needs for the state government, rather than to' point out at this time the numerous specific departmental changes that should be made, and the number of imnecessary agencies that should be abolished. Many of these desirable changes will be suggested to the general assembly by a study of the graphical exhibits submitted with this report without having to have them pointed out by this commission." Much space in the concluding portion of the report is devoted to a criticism of the school system of the state, which, in the opinion of the commission could not be improved without revision of the state con- stitution. The report contains three charts which graphically exhibit the existing state government of Virginia, its various boards, commissions and their official agencies. Nb important legislation has resulted from the investigations of the commission. BIBLIOGRAPHY A bibliography on state administrative reorganization, prepared by direction of your committee, immediately follows this report. It is believed that this will be helpful to those wishing to make a further study of this subject. BIBLIOGRAPHY EFFICIENCY AND ECONOMY With Special Refer^'"'^" ' ^ ~^ate Government LIST OF REFERENCES BY C. B. GALBREATH General Allen, W. H. Efficient democracy. 1907. Childs, R. S. A state-manager plan. National Municipal Review. 1917. V. 6 : 659-663. Cleveland, F. A. Creating government efficiency. New Republic. 1916. V. 7: 326-328. Cleveland, F. A. Efficiency in public business. New Republic. 1916. V. 7 : 273-275 Cook, M. L. Scientific management of the public business. American Political Science Review. 1915. v. 9: 488-495. Crosby, W. W. Expert advice a real economy. American City. 1914. V. 11: 318-319- Banners, V. E. Making government efficient. Forum. 1914. v. 51 : 354- 364- Dawson, E. Invisible government and administrative efficiency. Amer- ican Academy of Political and Social Science. Annals. 1916. v. 64: 11-30. Efficiency government. Academy of Political Science. Proceedings. 1913. v. 3 : No. 2. Efficiency in public service. Nation. 1912. v. 94: 204-205. Efficiency in applied philanthropy and government. Century. 1907. v. 74: 646-647. Expert advice as a real economy. American City. 1914. v. 11: 1-2. Ford, H. J. Politics and Administration. American Academy of Po- litical and Social Science. Annals. 1900. v. 16:177-188. George, R. E. Increased efficiency as a result of increased governmental functions. American Academy of Political and Social Science. Annals. 1916. v. 64: 77-88. Gilbertson, PI. S. Public Administration. A new profession. Ameri- can Review of Reviews. 1-913. v. -47: 599-602. Glynn, M. H. Efficiency methods in government. Outlook. 1914. v. 106: 243-246. Goodell, J. M. Expert advice a rqal economy. American City. 1914. v. 11': 151-152. Hart, A. B. Experts in American government. (In Cyclopedia of American Government. 1914. v. i *: 698-700.) Howe, F. C. The rules of the expert. Outlook. 1912. v. loi : Q46- 953- Lowell, A. I,. Expert administrators in popular government. American Political Sci( ^ ^'^•- • ^913. v. 7: 45-62. 648 ON ADMINISTRATIVE REORGANIZATION 649 Meniam, C. E. Investigations as a means of securing administrative efficiency. American Academy of Political and Social Science, An- nals, 1912. v. 41 : 281-303. Wilson, W. Study of administration. Political Science Quarterly. 1887. V. 2: 197-222. State. Baker, M. N. Are we governed too much by state commissions? Eco- nomic World, 1917. V. 14: 450-451. Barnett, J. D. Reorganization of State administration in Oregon. Com- monwealth Review of the University of Oregon, v. i :54-7i- Barnett, J. D. Reorganization of state government in Oregon. Ameri- can Political and Social Science Review! 191 5. v. 9: 287-293. Barrows, D. P. Reorganization of state administration in California. California Law Review. 1915. v. 3: 91-102. Bates, F. J. Reorganization of state administration. American Political Science Review. 1915. v. 9:317-322. Beard, C. A. Reconstructive state government. The New Republic. 1915. V. 4 (Aug 21, 1915, pt. 2 of No. 42, p 1-16.) Bradford,- G. Reform of our state governments. American Academy of Political and Social Science. Annals. 1894, v. 4: 883-903. Buck, A. E. Administrative reorganization in state governments. National Municipal Review. 1919. v. 8: 637-667. Chase, H. S. Report to Doctor F. Goodnow, chairman and the mem- bers of the commission on efficiency and economy in the state govern- ment of Maryland, concerning inefficiency and extravagance in vari- ous departments and offices. 1916. Chase, H. Tr. Kansas general manager plan. National Municipal Re- view, 1918. V. 7: 384-387- • •. , „, Craig, C. P. Efficiency in state administration. Commercial West. 1915. V. 27: 11-29. Crenner, C. H. A survey of state executive organizations and a plan of reorganization. 1916. Croly, H. Problems of reconstruction. (In his The Promise of Amer- ican Life. 1909. p. 3^5-398-) ' ^,..,.^. Croly, H. State Political Reorganization. American Political Science Association Proceedings. 191 1. v. 8: 122-135. Davis, D. W. How- administrative reorganization is working in Idaho. National Municipal Review. 1919. v. 8: 615-620. Dodd, W. F. Proposed reforms, in state government organization. Americal Political Science Review, 1910. v. 4: 243-251. Dodd, W. F. The consolidation of government agencies in Illinois. National Municipal Review. 1917. v. 6: 413-414. Dodd, W. F. The Illinois Legislature of 191 7. American Political Science Review. 1917. v. ii: 711-717. Durand, E. D. The economy and efficiency commission of Minnesota. National Tax Association Proceedings. 1914. . p. 391-404. Efficiency and economy in state government. American Political Science ■Review. 1:914. v. .8: 63-64. Dykstra, C. A. The reorganization of state government in Kansas. American Pohtical Science Review. 1915. v. 9:264-272. Dykstra. C. A. The reorganization. of the administration of state insti- tutions in Kansas. 1917. National Municipal Review, v. 6: 505-506. 650 KKPORT OF JOINT LIX.ISLATIVE COMMITTEF Fairlie, J. A. Governmental reorganization in Illinois. American Po- litical Science Review. 191 5. v. 9: 252-257, Fairlie, J. A. Illinois — Civil administration reform; radical reorganiza- tion of state government. New York Evening Post. March 29, 1917. p. 9. Ford, H. J. Reorganization of state government. Academy of Political Science Proceedings, v. 3 : 30-36. Hemenway, H. B. The organization of the state executive in Illinois. Illinois Law Review. 191 1. v. 6: 1 12-125. Hines, W. D. Our irresponsible state governments. Atlantic monthly. 191 5, v. 115:637-647. Holcombe, A. N. The further reform of state government. (In his State Government in the United States. 191 6. p. 447-480.) Holcombe, A. N. The reformation of state government. (In his State Government in the United States. 1916. p. 447-480.) Horack, F. E. Administrative reorganization in Iowa. American Po- litical Science Review. 1915. v. 9: 258-263. Horack, F. E. Reorganization of state government in Iowa. Iowa Applied Historical Series. 1914. v. 2: No. 2. How far American states pay as they grow. Literary Digest. 1916. v. 53 : 645-647. Iowa. State Historical Society. Reorganization of state government in Iowa. Iowa Applied Historical Series. 1914. v. 2: No. 2. Illinois' reorganized state service. Survey. 1917. v. 37 : 663. James, _H. G._ The reorganization of state government. American Po- litical Science Review. 191 5. v. 9: 294-303. Kales, A. M. Principles of the commission form of government applied to the state. (In his Unpopular Government in the United States. 1914. p. 166-180.) Kales, A. M. Contemporary plans looking toward the union of the executive and legislative powers of state governments. (In his Un- popular Government in the United States. 1914. p. 181-192.) Kansas. A state manager at last. Equity. 1917. v. 19: 197-199. KaufYman, J. H. Financial condition of the state. Ohio Muni... League Proceedings*. 191 5. p. 27-30. Kelso, R. W. Functional public service. How Massachusetts has r-^- solidated her state departments. The Survey. August 2^, 1919. Lewis, H. T. Idaho sets its house in order. National Municipal Review. 1919. V. 8: 216-218. Lowden, F. O. Business Government. Saturday Evening Post. 1920. V. 192. No. ^y: 5, 165, 166, 169. Lowden, F. O. The budget system in Illinois. American Review of Reviews. 1920. v. 61. 295-298. Lowrie, S. G| The organization and duties of the Wisconsin state board of public affairs. 1912. McKelvie, S. R. A responsible form of government. Nebraska's new civil administrative code. American Review of Reviews. 1920. V. 61 : 295-298. Maltbie, M. R. Cost of government in city and state. Municipal affairs 1900. V. 4:685-597. Mathews. J. M. State boards and commissions. (In his Principles of American State Administration. 1917. p. 156-171.) Mathews, J. M. The reorganization of state administration. (In his Principles of American State Administration. 1917. p. 499-515.) ON ADMIXISTRATIVE REORGANIZATION 651 Moley, Raymond. State movement for efficiency and economy. 1917. Municipal Research, No. 90: 1-163. (Bibliography p. 152-163.) Moxey, C. C. The Delaware Survey. National Municipal Review. 1919. V. 8: 223-225. New York Bureau of Municipal Research,. The constitution and govern- ment of the state of New York; 1915. O'Neal, Ernest. Reorganizing state governments. 1918. Constitutional Review, v. 2: 199-2 11. Oregon, Economics of state departments. Commonwealth Review. 1916. V. I : 135-323- Reed, T. H. Government for the people. 1915. Chapter II. Requa, M. L. Wastefulness and 'inefficiency of governmental expendi- tures. 1917. Rowell, H. State political reorganization. The American Political Sci- ence Association Proceedings. 1911. v. 8: 140-151. State manager idea and better state government. Equity. 1918. v. 20. i-ii. Tax association plan of reorganization. Tax Payers' Journal. March 13, 1919. V. 3: 3-6. Tyng, T. S. Draft of a frame of government. Political Science Quarterly. 1912. v. 27: 193-214. U'Ren, W. S. State and county government in Oregon and proposed changes. American Academy of Political and Social Science, An- nals. 1913. V. 47: 271-273.' U'Ren, W. S. State political reorganization. The American Political Science Association Proceedings. 19LI. v. 8: 136-139. Waters, C. C. State commissions on economy and efficiency. Provi- dence, R. I. E. L. Freeman, 1915. (Rhode Island State Library, Legislative Reference Bureau; Bulletin No. 7, 1915.) Young, J. S. Administrative reorganization in Minnesota. American Political Science Review. 1915. v. 9: 273-286. STATE DOCUMENTS Alabama — Legislative Investigating Committee. Report 1915. Act to Create State Board of Control and Economy, approved Febru- ary 13, 1919. California — Commission on Efficiency and Economy. Report to governor. March 12, 1919. Colorado — Survey Committee of State Affairs. Special reports, 1917. A study of mental defectives in state institutions for minors, by W. A. Treadway. The administration of the common school system, by A. C. Monohan and Katherine M. Cook. A state home and training school for mental defectives, by Alexander Johnson. 652 KEl'ORT OF JOINT LEGISLATIVE COMMITTEE The Colorado tax commission and revenue system of Colo- rado, by R. M. Haig. A revision of the liighway laws of the state, by A. N. John- son. Publications. Special report 1916. Summary of findings and recommendations relating to the executive branch of the state government of Colorado as submitted to the survey committee of state affairs by its staff. Special reports 1917. Report on a survey of the office of governor of the state of Colorado. Issued February, 1917. The work of the Colorado tax commission by Pro- fessor Plobart M. Haig, of Columbia University. With a letter of comment by Professor E. R. S. Seligman. Report on the revenue system of the state of Colorado, by R. M. Haig. Report on a survey of the administration of public service, functions relating to regulation and super- vision of labor. The state board of land commissioners, by John B. Geijsbeek. Report on a survey of the office of auditor of state and of the office of public examiner. Report on a study of state finances and budget pro- cedure. Report on a survey of the office of state treasurer. Report on an inquiry into the administration and sup- port of the Colorado school system. C Bulletin of the U. S. Bureau of Education). Report on the care of dependents, delinquents and defectives, by Samuel W. Hamilton, Walter L. Tredway, Alexa"nder Johnson. Report on a survey of the department of game and fish. Report on a survey of the state auditing board. Report on a survey of the office of the state inspector of oils. Connecticut — Commission on the consolidation of state commissions and the re- organization of the public health laws. Report, 1915. Idaho — Administration Consolidation Law. Approved, February 19, 1919. ON ADMINISTRATIVE REORGANIZATION 653 Illinois — Efficiency and economy committee. Preliminary report, Jmie i8, 1914. Report, December i, 1914- Final report, 1915. The appendices to this report include the followmg mono- graphs by special investigators: Revenue and finance administration, by John A. Fairlie. The accounts of the state of Illinois, by George E. Frazer, C. P. A. Accounting administration for correctional institutions, by Spurgeon Bell. Charitable and correctional institutions, by James W. Garner. Educational administration, by John M. Mathews. Labor and mining agencies, by W. F. Dodd. Agricultural administration, by James W. Garner. Public health administration, by John M. Mathews. Supervision of corporations, by Maurice H. Robinson. Public Works, parks and buildings, byC. O. Gardner. Military administration, by Quincy Wright. Civil service laws, by A. C. Hanford. The secretary of state and law officers. Efficiency and economy commissions in other states, by A. C. Hanford. The civil administrative code of the state of Illinois, 1917. Iowa — Committee on Retrenchment and reform. Report of efficiency engineers with reference to heating plant at state house, filed in the secretary of state's office. May 21,1913. (not printed). Consolidation report of the efficiency engineers, filed in the secretary of state's office, March 24, 1914. (not printed). Preliminary report with recommendations. November 12, 1914. Report to the thirty-fifth General Assembly. (Printed in journals.) Senate Journal 1913: 1646-47. House Tournal 1913: 1932-33. Report of Quail & Parker, efficiency engineers, relatmg to the state department of agriculture, state fair management and passes. (Printed only in journals). Senate Journal 1913: 1649-1684. House Journal 1913: I935-I970- Report providing for reorganization of state government with notes to bill introduced. (Printed only in Senate Journal.) Senate Journal 1915: 443-459- ., ,\ ^ •, Second report. Resume of various reports filed by Ouail ^' Parker, efficiency engineers. (Printed only in Journals.) Senate Journal 1915 : 1716-24. House journal 1915: 1S23-24. 654 ■ KEPORT OF JOINT LKCISLATIVE COMMITTEE Statement of various expenses of retrenchment and reform com- mittee in expenditure of $10,000 appropriation. Submitted by Senator Chase. (Printed only in Senate Journal.) Senate Journal 191 5: 1442-44. Reorganization Bill. Senate file No. 519. Senate Journal 1915: 2127. Kansas — Efficiency and economy commission. Reports : Partial report, 1916. The penal, charitable and other institutions of Kansas. The state educational institutions. Economy and efficiency report of Senator J. D. Joseph, (Minority report, 1916.) State Board of Administration. Report, 1918. Business manager. Report, 1918. (In report of state board of administration, 1918, P 33-50-) Maryland — Commission on efficiency and economy. Report to commission on efficiency and economy by Harvey S. Chase, certified accountant, 1916. Massachusetts — Commission on efficiency and economy. Report, 1913, 1914, 1915- Report on the reorganization of boards and commissions having supervision and control of state institutions, Feb. 7, 1914. Report on functions, organization and administration of the departments in the executive branch of the state govern- ment, November, 1914. Report on budget procedure, May 2^, 1916. Supervisor of administration. Report, 1916, 1917, 1918. Recommendations relative to increases of salaries together with an outline of bills on consolidation of departments. (House 322) 1919. State board of labor and industries. A report on the reorgani- zation of the state board of labor and industries. (House 1017). Consolidation of departments, boards offices and institutions, 1919. Supplementary report on the consolidation of depart- ments according to the plan recommended in the annual report for the year 1918. (House 1357). Purchasing and distribution of office furniture, supplies, and equipment, 1919. The recommendations of the supervisor for the establishment of the position of Superintendent of Buildings to have charge of the purchasing and distribu- tion of office furniture, supplies and equipment. Up to the present time the sergeant-at-arms has done all this purchasing. (House 1378.) ON ADMINISTRATIVE RE(n 1916, igi?- ^ ^ tt it- ij (Second report, 1914, included in message of James t. li^ielder, Governor of New Jersey.) New York State — Department of efficiency and economy. Comparative analysis of appropriations. June 1913. Specifications recommended by advisory board of department of efficiency and economy to highway department. De- cember, 1913. . . Comparative tabulations of requests for appropriations, January, 1914. State budget report, March 1914. 656 REPORT OF JOINT LliCtSLATIVE COMMITTEE Annual report of department, January 1915. Five volumes as follows : Vol. I Budget report. Vol. II Organization and functions of the government of the state of New York. Vol. Ill Report on investigation of cost of providing free text books. \'ol. IV Report on investigation of state institutions : (i) Accounting methods, (2) Conditions disclosed by examinations, (3) Organization and adminis- tration of hospitals for the insane, (4) Problems of -construction, (5) Prisons and correctional in- stitutions, (6) Charitable institutions. Vol.. V Construction and maintenance of public highways. Reconstruction commission. Report 1919. Part I Proposed plan of retrenchment. Part II Organization of present and proposed depart- ment. Part III Administrative consolidation in other states. Part I\' The budget. Part V Salaries and pensions. Part VI State printing. Part VII Proposed constitutional amendments. Appendix A. Report of engineering advisory committee appointed by engineering council. Appendix B. List of present state departments, commis- sions and other agencies. Ohio — Joint committee on administrative reorganization. Preliminary report 1919. Field agents. Reports prepared under the supervision of Dr. L. D. Upson, Director of the Detroit Bureau of Governmental Research, by- Harrington Place Civil service. C. E. Rightor Budget commissioner Superintendent of banks and banking State insurance department Department of finance Department of building and loan associations C. E. Rightor and Henry Stefifens, Jr. Auditor of state Arch Man del Industrial commission Secretary of state State fire marshal State oil inspector Henry StefFens, Jr. Treasurer of state 42 ON ADMINISTRATIVE REORGANIZATION 65/ Reports by Dr. William H. Allen, Director of Institute for Public Service: Tenure of voluntary boards Need for rotary funds Ohio state archcxological and historical society One head for four in administering welfare institutions Citizen co-operation needed by director of welfare admin- istration Physical education for the blind and deaf Preventive education for sub-normals Opportunities for the Ohio board of administration that do not require reorganization Ohio commission for the blind Ohio soldiers' and sailors' orphans' home Board of clemency - Ohio board of state charities State department of health Tuberculosis sanatorium Bureau of vital statistics State leadership in Ohio education Ohio's state supported education _ Suggestions by Ohio's state faculties for Ohio s public education . , , r Suggestions bv county and city_ superintendents for im- proving Ohio's public education High spots in Ohio schools Ohio's state department of public instruction Incr'ease the salary of Ohio's state superintendent of public instruction Abolish state board of school examiners Examining boards belong in educational department State library service An art commission for Ohio Shall Ohio have a chancellor of education Representative state educational council Tax assessments for school revenues Possible forward steps in Ohio education without reorgan- izing the state department of education Unsettled educational problems in Ohio_ Ohio's state provision for teacher training Advertising the rewards of teaching Normal college or normal school Loan funds for students preparing to teach Shall the teaching profession be subsidized Ohio's county normal schools College credit for county normal work Slacker counties in teacher training Ohio's three universities Faculty organization Interchangeable credit Remunerative work by faculties Non-remunerative diversion of f acultv energy _ _ Annual reports and catalogues of Ohio educational insti- tutions 658 REPORT OF JOINT LEGISLATINE COMMITTEE Non-resident students in Ohio universities Ohio's need for junior colleges Combined normal and industrial department at Wilberforce university Ohio state university College of education Organization for research Graduate school and graduate work in Ohio state university Medical and near medical colleges. O. S. U. Finding positions for teachers and teachers for positions Reports by Gaylord C. Cummin, Institute for Public Service: Adjutant general's department State geologist Public utilities commission Department of public vi^orks State building commission Commissioner of soldiers' claims Superintendent of buildings State highway department Commissioner of securities State printing Proposed new penitentiary Report by S. H. Wolfe: Ohio's state insurance fvmd Reports by Dr. Don C. Sowers, Director, Akron Bureau of Municipal Research: Office of the governor State department of agriculture Ohio agricultural experiment station Tax commission Report by J. I. Falconer: State farms Reports by C. B. Galbreath : Shall the state insurance fund pay the cost of its admin- istration? Administrative reorganization in other states Bibliography on efficiency and economy with special refer- ence to state government Oregon — Consolidation commission. Report, 1918. Final report, 1919. Pennsylvania — Efficiency and economy commission. Report, 1914. Wisconsin — The state board of public afTairs of Wisconsin Reports submitted to the legislature : (i) Survey of the university of Wisconsin. (2) Survey of the normal schools. (3) Survey of the high schools. (4) Survey of the rural schools (1913 legislature.) (5) Investigation of the feasibility of a central board of control for all public educational institutions. ON ADMINISTRATIVE REORGANIZATION 659 (6) Investigation of the efficiency and cost of state print- ing. (7) State receipts and expenditures 1903-1914. (8) State budget. . . Report submitted to the civil service commission: (i) Departmental organization and efficiency of state em- PublicationsTssued by this board, other than those addressed to the legislature: . „ • i *• „ ( 1 ) Co-operation among farmers ; especially in marketing. (2) Agricultural co-operation. (a) Co-operative Hve stock breeding. (b) Co-operative cow-testing. (c) Co-operative creameries and cheese factories. (d) Co-operative live stock shipping. (e) Co-operative fruit growers' association. (f) Co-operative ware-houses. (g) Co-operative elevators. (h) Mutual telephone companies. (3) Co-operative marketing. (4) Municipal markets. (5) The marketing of Wisconsin cheese. (6) The problem of rural credit or farm finance. (7) State loans to farmers. (a) In other countries. (b) In the United States. (c) History of, in New York, New Jersey and Wis- consin. (8) The Budget. , • i:- i ^ (a) Budgetary practices and procedure in England, Germany, France, Switzerland, Belgium, Canada and in Congress and the forty-eight states of the United States. (b) A plan for Wisconsin. Publication issued by the department of agricultural economics University of Wisconsin, covering investigations conducted by that department at the request of this board. (i) Marketing and price of Wisconsin cheese. (2) Marketing of Wisconsin potatoes. (3) Farm credit in Wisconsin. INDEX Accounting — Department of, IIG. Accounts — Bureau of, 140. Adjutant general's department — Report on, 107. Administration, board of — Opportunities that do not require re- organization of, 531. Administrative organization of Ohio state government — Chart of, as at present, opposite page 4; chart of as proposed, op- posite page 6. Administrative reorganization in other • states — Report on. 575. Administrative reorganization, joint committee on — Preliminary report of, VII; resolu- tion proposed by, XII. Agriculture — Report on state department of, 83. Agricultural experiment station — Report on, 101. Alabama — Administrative reorganization in, 577. Allen, Dr. William H. — Reports by, 183, 191, 195, 305, 307, 315, 321, 325, 326, 327, 329, 331, 333, 337, 342, 361, 360, 374, 385, 391, 395, 399, 400, 401, 406, 410, 422, 429, 436, 440, 447, 451, 455, 463, 467, 469, 480, 481, 487, 488, 494, 496, 499, 514, 518, 519, 523, 552, 556, 564. Allen, Dr. William H. and Rosenbluth, Robert — Report by, 531. Arbitration, 268. Archaeological and historical society, Ohio state — Report on, 331. (Condensed.) Art commission for Ohio — Report on, 333. Auditor of state — Report on, 110; comments by, 550. Automobiles — Division of, 134. B. Banks and banking, superintendent of — Report on, 172. Bibliography on efficiency and economy with special reference to state gov.ern- ment — Report on, 648. Blind, the — Physical education at school for, 514; commission for, 518. Blind, state school for, 544. Boiler inspection — Division of, 262. Boiler rules — Board of, 263. Bowling Green normal school — Report on, 374, 378. Budget commissioner — Report on, 43. Building and loan associations, depart- ment of — Report on, 178. Building commission, state — Report on, 238. Buildings, superintendent of — Report on. 218. California — Admiiiistrative reorganization in, 579. Catalogues and reports, annual — Report on, 401. Cell, double — In penitentiary and reformatories, 537. ■ • • (661) 662 Chancellor of education, shall Ohio have ? — Report on, 487. Charities, Ohio board of — Report on, 523. Citizen co-operation needed by director of welfare administration — Report on, 564. City superintendents — Suggestions by. 337. Civil service — Report on, 59. Claims — Division of, 249. Clemency, Ohio board of — Report on, 552. College credit for county normal work- Report on, 480. College of education — Report on, 455. Colorado — Administrative reorganization in, 585. Commission for the blind — Report on, 518. Commissioner of securities — Report on, 160. Commissioner of soldiers' claims — Report on, 108. Commitments to institutions, 535. Connecticut — Administrative reorganization in, 586. Corporation division, 132. County normal schools — Report on, 469; college credits for work in, 480. County superintendents — Suggestions by, 337. Cummin, Gaylord C. — Reports by, 107, 108, 151, 160, 198, 213, 218, 238, 240, 301, 566. Dairy and food division, 86. Deaf, the — Physical education at school for, 514. Delaware — Administrative reorganization in, 586. Denney, Dean J. V., O. S. U. — Letter from, 355. Education — Possible forward steps in Ohio with- out reorganization, 369. Education, college of — Report on, 455. Education, department of — Possible forward steps in Ohio without reorganization, 369. Education, public — Suggestions for improving, 337, 342. Education, state leadership in — Report on, 305. Education, state supported — Report on, 307. Educational council, representative state — Report on, 329. Educational department — Examining Jjoards belong in, 361. Elections — Bureau of, 129. Employment offices — Division of, 267. Examining boards belong in educational department — Report on, 361. F. Faculties — Remunerative work by, 395; non- remunerative diversion of energy, 399. Faculties, Ohio State — Suggestions by, 342. Faculty organization — Report on, 391. Fair administration — Bureau of, 84. Falconer, J. I. — Report by, 94. Farms, state — Report on, 94. Feeds and fertilizers — Bureau of, 89. Field investigators — Names and brief sketches of, 2; summary of recommendations of, Film censorship — Department of, 268. Finance, department of Report on, 140. INDEX 663 Fire marshal, state Report on, 293. Fish and game — Bureau of, 89. Galbreath, C. B.— Reports by, 290, 575, 648. Geologist, state — Report on, 240. Girls' industrial school — Conditions in, 504. Governor — Report on office of, 39. Graduate school and graduate work in Ohio state university — Report on, 422. Inventory of property, 117. Investigation and statistics — Department of, 265 ; division of, 266. Investigators — Names and brief sketches of, 2 ; summary of recommendations of, 3. Iowa — Administrative reorganization in, 604. J. Junior colleges, Ohio's need for — Report on, 385. K. Kent normal school — Report on, 374, 378. H. Hammond, Professor M. B., O. S. U. — Letter from, 356. Health, state department of — Report on, 183; letter from com- missioner of, 188. Horticulture — Bureau of, 90. I. Idaho — Administrative reorganization in, 587. Illinois — Administrative reorganization in, 590. Income and taxation — Bureau of, 140. Industrial commission — Report on, 242. Industrial school for boys, 546. Insane, state hospital for, 548. Inspection — Department of, 257. Inspection and supervision of public offices — Bureau of, 124. Institutional discipline and work, 543. Insurance department, state — Report on, 164. Insurance fund, Ohio's state — Report on, 273; shall it pay cost of its administration? 290. Interchangeable credit for work in Ohio schools — Report on, 400. L. Lands, supervision of — School, 120; ministerial, 120; cus- tody of records of, 120. Leadership in Ohio education — Report on, 305. Library service, state — Report on, 327. Live stock industry — Bureau of, 85. Loan funds for students preparing to teach — Report on, 467. M. Mandel, Arch — Reports by, 127, 242, 293, 298. Markets — Bureau of, 91. Massachusetts — Administrative reorganization in, 614. Mediation and arbitration — Division of, 268. Medical and near-medical colleges, O. S. U.- Report on, 436. Medical care at institutions, 540. Miami university — Report on, 374, 378. Mines — Division of, 264. Minnesota — Administrative reorganization in, 625. 664 Motor vehicles — Bureau of, 141. N. ■ Nebraska — Administrative reorganization in, 626. New Jersey — Administrative reorganization in, 633. New York^ — Administrative reorganization in, 635. Non-remunerative, diversion of faculty energy — Report on, 399. Non-resident .students in Ohio universi- ties- Report on, 406. Normal college or normal school ? — Report on', 447. Normal schools, Ohio's county — Report on, 469. Ohio's state insurance fund — Report on, 273; shall it pay cost of ; . .its administration? 290. Ohio state university^ Report on, 374, 878, 410; -use, non- use and partial use of buildings of, 411, 414,. 417, 418, 419; grad- uate school and -graduate work in, 422 ; medical . and near medical colleges in, 430. Ohio university — Report on, 374, 37& Oil inspector, state — Report on, 298. One head for four in administering welfare institutions — -Report on, 499. Opportunities for the Ohio board of administration that do not require reorganization — Report on, 531, Oregon — Administrative reorganization in, 641. Orphans' home, 556. Parole, 534. Penitentiary, 545. ' - Penitentiary, proposed, new — Report on, 566. Physical education at the schools for the blind and the deaf — Report on, 514. Place, Harrington — . ; Report by, 59. Preventive education as lo sub-nor- mals — Report on, 519. Printing, state-— Report on, 151. Probation and parole, 584. Proposed new penitentiary — Report on, 566. Public education-^ Suggestions for improving, 337, 342. Public instruction, state department of — Report on, 315. Public works, department pf — Report on, 213= Public utilities commission — Report on, 301. Purchasing — Bureau of, 143. Purchasing department, state, 137. ■■■" ■' R. " - - Recommendations, summary of — ■ Report on, 3. Reformatory for men, 545. Reformatory for women, 536,. 547. Remunerative work by faculties — Report on,. 895. Reorganization (administrative) in other states — • Report on, 575. Reports and catalogues, annual — Report on, 401.- Research, organization for-^ Report on, 429. Rightor, C. E. — Reports, by, 43, 140,-164, 172, 178. Rightor, C E, and Steffeiis, Henry, Jr.— Report by, 110. Kosenbluth, Robert nnd Allen, Or. Wil- liam H. — Report liy, 531. K'otary. funds, need for-- Report on, 490. 66: S. Salary of superintendent of public in- structions- Report on, 321. Scliool examiners, state board of — Report on, 326. Sciiooling for prisoners, 537. Scientific investgations at institutions, 540. Secretary of state — Report on, 127. Securities, commissioner of — Report on', 160. Slacker counties in teacher training — Report on, 481. Soldiers' -and sailors' orphans' home ^ Report on, 556. Sowers, Dr. Don G.— Reports by, 3, 39, 83,. 101, 146. State charities, Ohio board of — Report on, 523. State farms — Report on, 94. State geologist — Report on, 240. State highway department — Report on, 198. State House — Inspection of, by representative of industrial commission, 225 ; of de- partment of state fire marshal, 232 ; of state health department, 235. State insurance fund, shall it pay the cost of its administration? — Report on, 290. State library service — Report on, 327. State printing — Report on, 151. Statistician — In office of auditor of state, 121. Statistics and elections — Bureau of, 129. Steam engineers — Division of, 265. Stefifens, Henry, Jr. — Report by, 144. SteiTens, " Henry, Jr., and Rightor, C. K — Report by, 110. Sub-normals — Preventive education as to, 519. Subsidy — For teachers, 463. Suggestions for improving Ohio's pub- lic education — Report on, 337, 342. Superintendent of buildings — Report on, 218. Superintendent of public instructiofi, in- crease salary of — Report on, 321. Tax assessments for school revenues — Report on, 325. Tax commission — Report on, 146. Taxation — Bureau of, 140. Teacher training, state provision for — Report on, 440 ; slacker counties in, 481. Teachers — Finding positions for, 451. Teachers — Finding teachers for positions, 451. Teaching, advertising the rewards of — Report on, 447. Teaching profession, shall it be subsi- dized ? — Report on, 463. Tenure of voluntary boards — Report on, 494. Texas ■ — .Administrative reorganization in, 644, Treasurer of state — Report on, 144. Treasury — Bureau of, 142. Tuberculosis sanatorium — Report on, 191. U. Universities, Ohio's three — Report on, 374 ; non-resident stu- dents in, 406. University buildings — Use, non-use and partial use of, 382, 383, 384, 411, 414, 417, 418, 419. 666 Unsettled educational problems in Ohio — Report on, 488. Upson, Dr. L. D. Reports prepared under direction of, 43, 59, 110, 127, 140, 144, 164, 172, 178, 242, 293, 298. Utilities commission, public — Report on, 301. V. Virginia — Administrative reorganization in. 646. Vital statistics, bureau of — Report on, 195. W. Welfare administration — Citizen co-operation needed by di- rector of, 564. Welfare institutions, one head for four in administering — Report on, 499. Wilberforce university, combined nor- mal and industrial department at — Report on, 481. Wolfe, S. H.— Report by, 273. Woman's reformatory, 536, 547. Workmen's Compensation — Department of, 247. Workmen's compensation fund — Report on, 273. Workshops and factories — Division of, 257. W Ub^Z«