UNIVERSITY OF CALIFORNIA LOS ANGELES SCHOOL OF LAW LIBRARY Useful Reference Series No. 9 LAW, LEGISLATIVE AND MUNICIPAL REFERENCE LIBRARIES LAW, LEGISLATIVE AND MUNICIPAL REFERENCE LIBRARIES AN INTRODUCTORY MANUAL AND BIBLIOGRAPHICAL GUIDE BY JOHN BOYNTON KAISER, B.L.S. LIBRARIAN OF THE TACOMA PUBLIC LIBRARY Member of the American Political Science Association and Ameri- can Library Association ; formerly Assistant State Libraria?i in charge of Legislative Reference Work, Texas State Library ; and Departmental Librariafi, Economics and Soci- ology, the University of Illinois Library. BOSTON THE BOSTON BOOK COMPANY 1914 Copyright, 191-1 By the boston BOOK COMPANY r The RiierdaU Press, BrookUne. Moss.. U.S.A. and n. e>. K. 770231 Contents. Chapter Page Preface vii-xii I. Law Libraries 1-65 Topical Outline 1-7 Text 7-65 IL Legislative Reference Libraries . . . 66-233 Topical Outline 66-67 Text 68-233 IIL Municipal Reference Libraries . . . 234-343 Topical Outline 234-237 Text 237-343 Appendix 345-433 Index 445-467 PREFACE. The present text aims to provide for several possible groups of readers an introductory manual and biblio- graphical guide to the materials and methods of three types of related special libraries. The first section of the book deals with a kind of special library as old as the word itself, but a kind which has received slight attention in professional literature, and one which is only just awakening to its possibilities for aggressive and scientific service, the law library. The second and third sections deal with recent developments in library activi- ties, the legislative reference library and the municipal reference library. The law library must provide the facts of existing law for those who must apply it as it is, the judge, the prac- titioner of law, and law student. Legislative and munic- ipal reference libraries aim to supply one factor in the solution of the problem of intelligent legislation by pro- viding in addition to existing law the facts of compara- tive experience, both to be used by law-makers as a basis for more intelligent and scientifically planned legislation. Some idea of the present extent of these three library activities is gained from the following figures. In a list of law libraries and law departments of libra- ries where the law collection is considerable or important, published by the American Association of Law Libraries in 1912, five hundred and thirty-four such libraries are credited to the United States and one hundred to Canada. The list is not complete. vni Preface Already thirty-four states have legislative reference libraries, or bureaus, or lay claim to doing to some extent legislative reference work. Further interest in the subject is shown by the fact that Congress has for sev- eral years been considering the feasibility of a national legislative reference bureau and that numerous govern- ment documents have appeared on this subject, including a special report by the Librarian of Congress, committee hearings, and favorable reports by standing committees of both the Senate and the House. The American Bar Association appointed a special committee to investigate these bureaus and it has issued an important report favoring their establishment. The American Political Science Association has a similar committee and devoted one session of its annual meeting — December 31, 1913 — at Washington, D. C, to a discussion of legislative reference bureaus. Through only the most obvious sources in print it is learned that there are o^■er seventy-five municipal refer- ence libraries, or bureaus, or other agencies definitely interested in municipal research work. This figure takes no account of the hundreds of progressive public libraries, civic organizations, and commercial bodies indirectly interested or capable of being interested in municipal reference work through their existing interest in civic betterment and municipal improvement generally. The National Municipal League has had a committee on Municipal Reference Libraries for a number of years and university faculties of political science are more and more becoming sponsors for such agencies. The part of the text dealing with law libraries aims to give to the law student some knowledge of the use of his tools which is now given in law schools, if at all, at various Preface ix unrelated points in a curriculum naturally emphasiz- ing facts of law rather than sources of law, and to give to the law student who prefers the literary side of his profession an elementary knowledge of law library methods. To the library school student it aims to give a general notion of the materials with which he must be familiar if he plans to enter law library work. It is hoped the law librarian will find in it a convenient cumu- lation of certain heretofore scattered information par- ticularly of a bibliographical nature or of use in certain of the strictly technical library details of his work. The sections on legislative and municipal reference work record the history and development of two very practical and useful phases of modern library activity. The materials and methods employed in these two receive fuller treatment than those same topics receive in the first section. Graduates from universities who have emphasized political science in their study are more and more being attracted into these two types of libraries as investigators. They admit being hampered by a lack of knowledge of library technique and biblio- graphical methods. Library school graduates are becom- ing more and more in demand as cataloguers, reference workers, and directors of such libraries. In most cases their professional training has not emphasized the stand- ard literature nor the sources of current information relating to the work to which they are called. Legis- lators themselves are demanding information before they act and public opinion is seeking education. The text is planned to supply some want of each and to be a bibliographical guide to those already actively engaged in legislative and municipal reference libraries and research bureaus. X Preface Special attention may perhaps be called to certain matter offered in the appendix. The problems suggested for use in the classroom were given to the Seniors at the University of Illinois Library School and were creditably handled. They may prove suitable to test the ability of students of political science and law to handle the same questions with which workers in law, legislative, and municipal reference libraries expect to be con- fronted. The texts of laws relating to legislative reference bureaus and other bill-drafting agencies should prove of definite value to legislators contemplating the creation of such bureaus or agencies elsewhere, or the revising of existing laws on these subjects. The bibliographies enable anyone to go deeper into the subjects to which they relate than can the present text and note many articles which afford the means of convincing any not already convinced of the common sense of the legislative reference movement. It may be said that the municipal reference laws, ordinances, and bibliographies in the third section of the appendix should answer the same pur- pose in regard to municipal reference work. The book is based on lectures on these three subjects gi\en before the Senior Class of the University of Illi- nois Library School, one of the two library schools that ha\e made the college degree an entrance requirement. In the revision and re-writing of them the text has been substantially enlarged, though it is quite obvious that no topic has received exhaustive treatment. Footnotes have been added for the convenience of those who may care to go further in various directions. To the usual difficulties encountered in all biblio- graphical work and text-book writing were added certain Preface xi others due specially to the character of the work. The last two sections of the book relate not only to sub- jects still in the formative period so that neither functions nor methods are yet crystalized, but they relate to sub- jects so extensive in scope — and what field may present- day legislation not enter? — that obviously the text can touch upon only a small portion of the topics legiti- mately within the field of present discussion. The subject-matter of the first section is undergoing a transi- tion; such matters as cataloguing, classification, and subject headings in law library work have not received the same consideration accorded these same subjects in other fields of library endeavor. In the arrangement of topics a number of arbitrary decisions were necessary, the most important relating to the classification of materials for discussion. A group- ing by form was decided upon as against a grouping by subject-matter, an arrangement seeming to offer less objection than the latter. Lists of illustrative titles are necessarily limited, therefore all the more open to criti- cism. Numbers of "just as good" illustrations may exist, but it is believed that those cited are all worth the space allotted them. It is part of the pleasant duty of an author gratefully to acknowledge the assistance rendered him by the con- tributions to his work of time, labor, thought, and scholarship on the part of generous friends and friendly critics. The writer is specially indebted to Mr. James IngersoU Wyer, Director of the New York State Library and Library School, and to Professors John A. Fairlie and Walter F. Dodd, of the Political Science Faculty of the University of Illinois, for much patient criticism and many suggestions relating to both arrangement and xii Preface treat ment of the text and for a reading by each of much of the entire manuscript. For assistance in reading proof cordial thanks is extended to Mrs. Eleanor G. Karsten, secretary to the librarian of the Universit>' of Illinois. To the several contributors of data in the appendix in particular, Miss Grace Sherwood of the Rhode Island State Library's Legislative Reference Department, Miss Irma A. Watts of the Pennsylvania Legislative Reference Bureau, Professor Chester Lloyd Jones of the University of Wisconsin, and James McKirdy of the Pennsylvania Legislative Reference Bureau, special thanks are due for their courteous and valued co-operation or permission to use certain •materials. To the members of the staff of the Library of Congress, the New York Public Library, the Wiscon- sin Legislative Reference Department, and many other institutions, and to the many who must go unnamed but who by correspondence and suggestion have added much to whatever of value there is here offered, grate- ful acknowledgment is returned. John Boynton Kaiser. May 1, 1914. CHAPTER I. LAW LIBR.\RIES. Topical Outline. 1. General. (a) Xeed. Law books a lawyer's tools. (b) Types of Law Libraries. 1. State. 2. Court. 3. Government Department. 4. Association. 5. School. 6. Privately owned. (c) Types of Problems. 2. Kinds of Material: General. Statutor\- and non-statutory- law; written and unwrit- ten law; common law, case-law, court-made law; equity. (a) Court Reports and Aids. I. Court Decisions. 1. Official Regular Series. 2. Unofficial Reports b\- Private Individuals, e.g., The Xational Reporter System. 3. Selected Decisions: Important Cases on Miscellaneous Subjects, e.g., (a) Lawyers Reports Annotated (L.R.A.). Law, Legislative Reference and (b) The "Trinity": American Decisions (100 vols.), American Reports (60 vols.), American Stale Reports (140 vols, to Nov. 1913.) (c) American and English Annotated Cases. (d) English Revised Reports. 4. Selected Cases on a Particular Subject, e.g., (a) American Bankruptcy Reports. (b) American Corporation Cases. (c) American Xegligence Reports. (d) American and English Railroad Cases, New Series. 5. Certain Law Periodicals are practically advance sheets of Reports for a locality, e.g., N. Y. Law Journal (Daily). 6. Quasi-judicial Decisions and Opinions. A. Federal. (a) Interstate Commerce Commission Decisions. (b) Commissioner of Patents Decisions. (c) Decisions of the Department of the Interior and General Land Office in Cases Relating to Public Lands. (d) Comptroller of the Treasury: Treasury Decisiotis. (e) Comptroller of the Currency. (f) Attorney General's Opinions. (g) Judge- Advocate General of the Army. B. State. e.g., New York Department Reports. Municipal Reference Libraries 3 II. Aids to Court Reports. 1. Digests. 2. Tables of Cases. 3. Citation Books. e.g., SheparcTs Citations. Taylor's Citations (N. Y.) III. Briefs of Counsel. IV. Trials. (b) Constitutions.Treaties, and Statute Law. L Constitutional Convention Proceedings. 2. Annotated Constitutions. 3. Treaties (All are Federal). 4. Statutes: (a) Congressional Acts; Slip laws, session laws, statutes at large, compiled statutes, revised statutes, codes. (b) State Laws. Slip laws, session laws, compilations, revi- sions, codes. (c) Text Books. \. General. 2. Local. (d) Encyclopedias and Dictionaries. 1. Encyclopedias. e.g., American and English Encyclopedia of Law. 2. Dictionaries, e.g., Words and Phrases, Bouvier's. (Note: Court definitions are valuable.) Law, Legislative Reference and (e) Periodicals, Society Proceedings. L Regular Legal Periodicals. e.g., Harvard Law Review, Columbia Law Review, Green Bag, Central Law Journal, etc. 2. Bar Associations' Proceedings. e.g., National, State, County, City. 3. Indexes to Legal Periodical Literature. (a) Jones, L. A.: Index to Legal Periodi- cal Literature; v. 1 to 1887, v. 2, 1887- 1899, V. 3, 1900-1909. (b) Index to Legal Periodicals and Law Library Journal, \. 1- , 1908- , pub- lished quarterly, cumulates annually. (f) Government Documents. (National, State, Local.) I. National. 1. Official Court Reports: Series. 2. Decisions and Opinions of Administrative Officers: Series. 3. Reprints of Single Decisions and Collected Decisions not in Series. 4. Laws, Journals, Bills. 5. Miscellaneous Compilations. e.g., Thorpe's Constitutions, Moore's Digest, Malloy's and Charles' Treaties, Anti-Trust Decisions. II. State. Court Reports, Administrative Decisions, Laws, and Journals. III. Municipal. Charters, Ordinances, Council Proceedings. Municipal Reference Libraries 5 (g) Legal Miscellany. American Association of Law Libraries Pro- ceedings, Legal Biography, Legal Bibliog- raphy, Legal Directories, etc. L Legal Bibliography. (a) General. (b) Law Library Catalogues. (c) Dealers' and Publishers' Catalogues. (d) American Statute Law. (e) Canadian and Latin-American Law. 2. Directories. 3. Handling of MateriaL (a) Acquisition. 1. Purchase. Dealers' and Publishers' Trade Cata- logues, Bibliographies, and Law Library Catalogues. 2. Exchange. (a) State Reports. 3. Gift. (a) Government Documents. (b) Classification. ^ . • ^-c There is no generally accepted standard, scientific classification of legal literature. {Cf. Dewey, Cutter, Library of Congress, etc.) Law books fall into pretty well defined classes and no detailed classification system with involved notation is generally deemed necessary. Shelf marks are useful on material which does not readily fall into a well defined group. Exceptions: Some believe in classifying the law library including text books, e. g.. Dr. Wire, of the Worcester County Law Library, Worcester, Mass. The N. V. State Law Library Classification. Law, Legislative Reference and (c) Cataloguing. A dictionary catalogue following in general the regu- lar rules of cataloguing. Cataloguing of legal literature a special field and should have special study. (C/. A. L. A. Catalog Rules.) (d) Shelf-arrangement. For United States material prefer the state as unit with reports, statutes, local texts, etc., grouped by states; or L L Court Reports: State. (a) Arrange alphabetically by states, then chronologically (numeri- cally) ; or, (b) Arrange alphabetically by cus- tomary way of citing them, i.e., by names of reporters. IL Court Reports. (a) English. (b) Federal. (c) Special Series. 2. Briefs of Counsel. 3. Trials. 4. Statute Law: Alphabetically by state, then chronologic- ally. 5. Text-Books: (a) Alphabetically by authors; or (b) Alphabetically by subjects, then by authors. 6. Periodicals. Usually alphabetically by title. 7. Bar Associations' Reports. Alphabetically by locality. 8. Legal Miscellany. Special methods. Municipal Reference Libraries 7 (e) Loans. (f) Method of Citing Law Books and Legal Abbreviations. 4. Legal Works in a General Library. (a) Nature of the Usual Inquiry. (b) Types of Books and Periodicals Needed. LAW LIBRARIES. 1. General. (a) The Need. A prominent attorney in the state of New York, counsel for one of the largest branches of the state gov- ernment, has furnished adequate and expert testimony in regard to the need for law libraries. He says: "There is no class of men, professional or otherwise, so dependent upon books as the lawyers. There is no library of what- soever kind or nature which so directly pertains to the interests which it is designed to serve, as the law library."^ And, lawyer-like, Mr. Gilbert is not speak- ing without good authority, for the courts - have decided that a lawyer's books are his necessary tools and may not be taken from him and sold by an order of the court issued to enforce the payment of a judgment against him as a debtor. 1 Frank B. Gilbert, "The Law Library," in American Library Association Papers and Proceedings, 1907, p 92. ^ Fowler x.Gilmore, 30 Tex. 432; Lambeth v. Milton, 2 Robinson (La.) 81; Brown v. Hoffmeister, 71 Mo. 411; Equitable Life Insur- ance Soc. of United States v.Coode, 101 la. 160. 8 Law, Legislative Reference and (b) Types of Law Libraries.' Aside from the private library for private use there are six principal types of law libraries, namely: (1) State, (2) Court, (3) Government Department, (4) Association, (5) School, and (6) Privately owned but for public use. (L) The state law library may be a distinct organi- zation, as the "West Virginia State Law Library," or a section of the state library, as in New York State. And, by broadening the sense in which the term state is used, there may be put into this classification the provincial law libraries of Canada and elsewhere, and the national law libraries or law divisions of national libraries, such as the Law Division of the Library of Congress. (2.) A court library may serve as a state law library as is the case, for example, in Texas and Ohio, where there are the supreme court libraries officially under the jurisdiction of the supreme court, whose marshal is actively in charge of the library's affairs but which are open to the public and cater to the needs of all the bar as well as the supreme bench. In some instances court libraries are restricted to the use of the judges of a particular court, in which case they are located in study or consultation rooms. (3.) Government department law libraries are rapidly taking a place of increasing prominence and may be found in national, state, and city offices. The leader of this type is the library of the Department of Justice at Washington. Among the states, department law ' For a "List of Law Libraries in the United States and Canada," see Law Library Journal 5: 35-51, July-Oct. 1912. This gives the location, name, librarian, and number of volumes of law libraries and law departments of general libraries when the law collection is large. Municipal Reference Libraries 9 libraries are found in the offices of the attorney general, the secretary of state, and the counsel for other state departments such as the executive office or the state education department. In cities, the office of the city solicitor or corporation counsel will frequently have a library of no mean proportions. (4.) By the fourth or association type are meant libraries maintained by the membership of local bar associations, city, county, etc. There are many examples of this type of law library supported largely, if not entirely, from the annual dues and initiation fees of the members of the associations who alone are privileged to use the library. In some cases part of the expense of administration is borne by the local courts, and, as a rule, anyone having occasion to use the library may secure the privilege by becoming a member of the bar association or local law library association which main- tains it. The leading example of this type is the library of the Association of ihe Bar of New York City. (5.) School libraries may be in independent law schools, or in the law departments of colleges and uni- versities. In the latter case they may be under distinct management or may be a part of the college or univer- sity's library system, centrally administered.^ (6.) Privately owned libraries exist which are public to the extent of permitting others to use them on the payment of a fixed charge. The owner may be an indi- vidual or a firm and the purpose may be to afford better facilities than the local law library, or, the undertaking may be a commercial undertaking purely. * Cf. J. H. Arnold, "Growth of the Harvard Law Library" (L. L. J. 5: 17-25, July-Oct. 1912). 10 Law, Legislative Reference and (c) Types of Problems. The law library presents two classes of problems: (1) those which are common to practically all types of libra- ries; (2) those which arise from the fact that the publi- cations contained in a law library differ both in form and subject-matter from those in a general library, thus giving rise to variations from the normal procedure usually followed in handling other library material. That is, the special problems are caused by the special kind of material dealt with. These problems are discussed in the pages devoted to the "Handling of Material," the third division of the Law Libraries discussion. The problem of reference or research work in the law library is less troublesome than might be supposed, for sucii work is usually done by the patron himself and will not be treated at length in the present instance. The later discussions of the kinds of material found in the law library are intended to indicate in general to what use the materials can be put. Beyond this a single specific example of special law reference work must suffice as an illustration, and it is perhaps unnecessary to add, that if attempted on anything more than a small scale, such work should be done only by one thoroughly at home in the literature of the law. The lawyer of today has been called a "case lawyer," and, more often than not, his object in coming to the law library is to find a case decided by a court of last resort which presented a set of facts similar to those his client has brought him. When such a case is found, and the law there applied was similar to the law that must be applied in his case, the lawyer has found an authority and a precedent which he will use in arguing his own case. To find precedents is, therefore, one problem. Municipal Reference Libraries 11 But to find suitable precedents requires a thorough knowledge of the numerous guides or aids which make possible a rapid survey of the 17,000 or more volumes of case-law now available in the English language alone. These guides, or aids, consist of digests, indexes, tables of cases, citation books, text books, etc., and greatly facilitate the labor, not only of finding where a particular case or a series of cases on a particular subject may have been published, but also to what extent it has been approved or disapproved by text-writers or other courts. 2. Kinds of Material. Law in its technical sense may be divided into statutory law and non-statutory law, or, as is sometimes done, into written law and unwritten law. Statute law signifies the positive enactments of law-making bodies, such as parliaments, congresses, and legislatures, and is termed written law because the idea in the law has been ex- pressed in definite, positive language. Non-statutory law is law that has not been enacted by any law-making body. The term unwritten law in the present case is really a misnomer and a fiction. It simply indicates the fact that this non-statutory law is made up largely of ancient customs of unrecorded origin which have received judicial sanction and affirmance and have been made formal law by the decisions of courts of justice. The decisions themselves are now written and the term un- written is still applicable only in the sense that the mental concept of the rule of law has never been put into words and expressed in positive and defi-nite language by a legislative body. The unwritten law of English speaking countries, as opposed to statute or written law, is often termed "Com- 12 Law, Legislative Reference and mon Law," and the division is made, therefore, into Common Law and Statute La•v\^^ Using the phrase common law in a broad sense, this grouping is proper, but it should be observed that restricting the term com- mon law to its narrow-er and perhaps more technical meaning, unwritten law must be said to be made up of both common law and equity. The most important sources of common law are the ancient customs and usages of England adopted in assert- ing legal rights and in the prohibiting and punishment of legal wrongs which have been transmuted into actual law by having been recognized, accepted, and applied as such by courts of justice in rendering decisions. This is sometimes termed case-law or court-made law. Equity as a branch of jurisprudence, which developed contemporaneously with common law, may be defined as that branch which seeks to protect existing rights by keeping them intact or by preventing foreseen injury to them, rather than inflicting punishment for their infringement and awarding compensation for damage and wrong done.® 'For further explanation of the terms Common Law and Statute Law, Written Law and Unwritten Law, sec W. C. Robinson, Ele- mentary Law (Bost. 1910) sees. 5, 7-11; \V. D. Clark, Elementary Law, sees. 27-39 (X. Y. 1909); Sir Courtenay Ilbert, Legislative Methods and Forms (Oxford, 1901), p. 1-19; \V. M. GvAAiiTt, Elements of English Law (N. Y. 1912?) p. 7-32, and Sir Frederick Pollock, The Genius of the Common Law, N. Y. Col. Univ. Pr. 141 p., 1912. 'In its origin equity was in theory an appeal from common law procedure and precedents to the "conscience and equity of the king himself speaking by the mouth of his chancellor." For example, the right of injunction was one of the first principles recognized by equity for b>- it wrongdoing could be legally prevented, not merely prohibited or compensated. Similarly it was applied to cases involv- ing the correction of mistakes and accidents, the discovery of fraud, enforcing the specific performance of contract, and so on. Common law courts did not concern themselves with such matters and they were left to a separate court, called the High Court of Chan- Municipal Reference Libraries 13 (a) Court Reports and Aids. I. Court Decisions. People disagree. They take their disagreements to court to have them settled according to law. Courts determine what the law is, strictly speaking, they do not make law. Court decisions have to d»with statute law, common law, and equity. They may interpret, construe, or determine the validity of statutes. Courts may promulgate judicial decrees declaring that to be law which theretofore had become merely an established custom. In -some cases their main duty is to apply acknowledged law and settle disputes. When there exists no statute controlling the question under considera- tion then the common law is invoked and former decisions of courts arising under an identical or analogous state of facts are looked to as judicial guides or aids, or the principles of equity are applied. A decision in the former eery, which thus supplemented the work of the so-called comrnon law courts. In more recent times, however, the anomaly of having two systems of courts administering distinct branches of juris- prudence has been largely done away with by granting to one sys- tem both common law and equity jurisdiction. This change took place in England as a result of the Judicature Acts of 1873 and 1875 (36 and 37 Vict. c. 66) which remodeled the entire English court system. In the United States the Federal courts and some of the state courts have had from the beginning both common law and equity jurisdiction. The states have administered equity in three different ways. In some there are separate courts of chancery for this pur- pose; in others the same court may sit as a court of equity on one case and as a common law court on another; where there is "code procedure" the same court may apply the rules of both law and equity in the same case. For further discussions of equity, see W. L. Clark, Elementary Law (N. Y. 1909), p. 39-44; W. G. Miller, The Data of Juris- prudence (Edin. & Lond., 1903), p. 381-386; A. T. Carter, A Historv of English Legal Instittitions (Ed. 4, Lond., 1910), p. 158- 169, 185-191; J. W. Salmond, Jurisprudence (Ed. 2, Lond. 1907), p. 34-38; also G. T. Bispham, Principles of Equity (Ed. 8, 1909) ard F. VV. Ma.\\\dind, Equity (Cambridge, 1909). 14 Law, Legislative Reference and case becomes one of the body of decisions which make up the common law itself. The decisions of courts of last resort, that is of courts of final and supreme authority in a given jurisdiction, as well as the decisions of certain inferior courts are published in various series^ L In the United States there is an official regular series of reports for the supreme or highest court in each state and for many of the federal courts. These federal courts include the United States Supreme Court, the the United States Circuit Courts of Appeals, United States Circuit Courts,^ United States District Courts, ^ For a full discussion of the reports of the various Federal and State courts of the United States, see Brief Making and the Use of Law Books, second edition, edited bv Roger W. Cooley, p. 21-59. (West Pub. Co., St. Paul, Minn., 1909.) The reports of English courts are discussed and listed in the same volume, p. 59-79. An older authority covering much the same ground, but including with the Americanand English the Irish, Scotch, and British Colonial reports, is C. C. Soule's Lawyers' Reference Manual, 1883, p. 1-162. Publishers' catalogues sometimes contain checklists of these re- ports. Good e.xamples are T. H. Flood's Catalogue of Law Books, Chicago, 1910 (p. 109-165, including the United States, Federal and State, English, Irish, Scotch, British Colonial, and Canadian), and the Lawyers' Co-operative Publishing Company's Where to Look for the Law, ed. 10, Rochester, 1911 (p. 179-209, American only). A more extended historical sketch of law reports and law reportmg will be found in J. W. Wallace's The Reporters, published at Phila- delphia in 1855 and in Sir Frederick Pollock's A First Book of Juris- prudence (Ed. 2. Lond. 1904), p. 286-312. For a survey of English courts, their history ami jurisdiction, see A. T. Carter, A History of English Legal Institutions, Ed. 4, Lond. 1910, chapters VI-XIX; or, a shorter account in W. L. Clare, Elementary Law, N. Y. 1909, p. 313-319. The latter includes the courts of the United States. For a special study of the courts of an American state, see Henry W. Scott, The Courts of the State of New York, tlieir History, Develop- ment, and Jurisdiction, . . . 506 p., X. Y., Wilson Pub. Co., 1909. » These were abolished Jan. 1, 1912; see Public Laws of the U. S. 1910-1911, chap. 231, p. 1167. Municipal Reference Libraries 15 the Court of Claims,^ Court of Customs Appeals, Com- merce Court,i° and the Court of Private Land Claims from 1891 to 1895. For a discussion of the decisions of other government officials rendering decisions of a semi- judicial nature see section 6, below. The majority of these volumes of reported court decis- ions, or "court reports," as they are generally styled, are referred to by the name of the reporter preparing them. In the United States the courts have an official reporter who prepares the court's decisions for publica- tion. It was formerly the custom to name the report after him, as, for example, Dallas' Reports, CrancJis Reports, for the volumes of the United States Supreme Court Reports for 1790-1800 and 1801-1815, respectively. At present, however, in almost all series of federal and state reports the volumes are consecutively numbered and are cited by the volume number and name of the state as, 17 Illinois, or, for federal reports, 220 U. S. The origin of the custom of citing reports by individual names is found in the fact that in England court reports have always been privately published by individuals. "Official" court reporters have not been named though some published reports have been "authorized" by the courts. The same is true of some of the early American ' A sovereign state cannot be sued without its own consent. Certain claims, however, among them those arising out of alleged breaches of contract, are allowed a hearing in the Court of Claims whose decisions are mandatory on the disbursing ofiEicer of the Treasury and merely advisory on matters specially referred to it by Congress. In some of the states there are similar state courts. For the further functions of a Court of Claims, see F. J. Goodnow, Principles of the Administrative Law of the United States, N. \ . 1905, p. 387-390. 10 Mar. 4, 1913, appropriations ended, and the court went out of existence some months later when Congress refused to allow the deficiency appropriation asked. 16 Law, Legislative Reference and reports where the publication was "authorized" but the work done by a private individual before the days of ofificial court reporters. Since 1865 the main series of English court reports have been prepared and issued by the Council of Law Reporting. Brief -making, Pollock's First Book, and Wallace's The Reporters, already mentioned, give interesting accounts of the English method of court reporting. Further details of the modern English system, by the Council of Law Reporting, will be found in "English Law Report- ing," an address by Sir Frederick Pollock made before the American Bar Association in 1903, and published in its proceedings for that year as well as in the Law Quarterly Review}^ The question of abbreviations used in citing reports and of their use elsewhere in legal writing will be referred to again. ^2 2. Among non-ofificial but important series of reports should be named first the National Reporter System pub- lished by the West Publishing Company of St. Paul. This series, established in 1879, reports all the decisions of both federal and state courts of last resort and certain others, to be mentioned. The states are grouped and one "reporter" covers several neighboring states, taking its name from the locality it represents. The National Reporter System now consists of seven state reporters, namely, the Atlantic, Northeastern, Southeastern, North- western, Southwestern, Pacific, and Southern; the Supreme Court Reporter covering decisions of the United States Supreme Court beginning with volume 106 of its Reports "Vol. XIX, p. 451, el seq. " p. 59-60, post. Municipal Reference Libraries 17 in 1882; the Federal Reporter reporting decisions of the United States Circuit Courts and United States District Courts since 1880, all cases in United States Circuit Courts of Appeals, and, recently, the Commerce Court's decisions; and the New York Supplement ior the Supreme and lower courts of record of New York since 1888. These volumes are all issued in advance sheets much ahead of the official reports and later, revised and cor- rected, in bound volumes. Another important nonofficial series is the Lawyers' Edition of the United States Reports published by the Lawyers' Co-operative Publishing Company, Rochester, New York. In this series several regular volumes make one "book" of the series. Advance sheets are issued before the final volumes. English Reports, Full Reprint is the title of a series begun in 1900 which proposes to reprint all English cases from 1307 to 1865 in 153 volumes. The set now numbers 139 volumes. It should, perhaps, be repeated that all the English court reports are reported non- ofiticially and would properly be discussed at this point if it were the purpose of this little manual to include a full discussion of English reports. That, however, is left to the authorities cited earlier in the footnotes. 3. Other series are of selected decisions on miscel- laneous subjects. The following may be named as prominent examples: (a) The Lawyers' Reports Annotated, 70 volumes 1888-1905, Q.ndLawyers Reports Annotated, New Series, 1906 to date. The cases selected involve new principles, the new application of old principles to changed con- ditions, or include valuable discussions of practically useful points. Extensive annotation often of much historical as well as present value is a feature. 18 Leiw, Legislative Reference and (b) The so-called "Trinit\-" made up of The American Decisions, 100 volumes, American Reports, 60 volumes, and American State Reports, 140 volumes. The latter title changed in 1912 to American Annotated Cases and the volumes are lettered A, B, C, etc., for each \'car. X'olume 1913D has appeared. The separate sets cover respectively 1760-1869, 1869-1887, and 1887 to 1912. The cases selected are from the decisions of state courts and the principle of selection is that the cases are of "para- mount importance and general value" everywhere in the United States. (c) The American and English Annotated Cases, a series begun in 1906, and reproducing only- cases of importance and general value, includes Canadian and now numbers 19 volumes. (d) Examples of English series are English Ruling Cases and the Revised Reports, the latter edited by Sir Frederick Pollock, a series begun in 1891, and republishing cases decided since 1785 which are still of prac- tical value and use. 4. Another type of selected decisions is that having a special field of the law for its subject-matter. Illus- trations of this are: (a) American Bankruptcy Reports, 1899-. (b) American Corporation Cases, 18QS-1887. lOv. (c) Americafi Negligence Reports, 1896-. (d) American and English Railroad Cases, New Series, 1896-. (e) American Electrical Cases, 1872-1903. 8v. (f) Municipal Corporation Cases, 1900-1904. llv. Municipal Reference Libraries 19 Similar to this is the single volume work termed a "case-book" which is a collection of leading cases on a single subject often planned for use in law schools as a text book. Examples are McClain's Cases on Constitu- tional Laiu, Thayer's Cases on Constitutional Law, and Gray's Cases on Property^ 5. Certain law periodicals are practically advance sheets of reports for a locality as the daily New York Law Journal. 6. Quasi-judicial Decisions and Opinions. A. Federal. There are numerous government boards, commissions, and officers exercising judicial or semi-judicial functions whose published decisions or opinions resemble court reports and in many cases are final authority on the legal questions involved. The subject-matter of the decisions is in most instances indicated sufficiently for present purposes by the titles of the series. For further details reference must be had to the Congressional Direc- tory, the federal law establishing the board, commission, or office, and to the series of reports and opinions themselves. Examples of such decisions and opinions are: (a) Interstate Commerce Commission Decisions. (b) Commissioner of Patents Decisions. (c) Decisions of the Department of the Interior and General Land Office in cases relating to public lands. "The American Casebook Series, edited by James Brown Scott and published by the West Publishing Company is a standard series of such books. 20 Law, Legislative Reference and (d) Comptroller of the Treasury: Treasury Decisions. This is an official publication of the decisions of the various courts, boards, and officers, including the Court of Customs Appeals" and the Board of United States General Appraisers, having juris- diction in cases arising under the customs and revenue laws of the country. '^ (e) Comptroller of the Currency: Digest of National Bank Decisions. (f) Attorney General : Opinions. (g) Judge-Advocate General of the L'. S. Army: Opinions. In several instances digests of these opinions and decisions have been prepared, notably in the case of the Attorneys-General for which there is a Digest of Official Opinions of Attorneys-General, two volumes, covering in the first Opinions volumes 1-16 (1789-1881) and in the second vols. 17-25, (1881-1906) of the Opiwiow^. These were published in 1885 and 1908, respectively. Another recent example is the Digest of Opinions of Judge Advocates General (1862-Jan. 31, 1912) issued by the War Department in 1912. B. State. Among the states certain administrative officers exercise similar functions and render decisions which have the effect of law on the questions involved. This authority is found in the state law creating the office in question and consequently is not necessarily common " Recently (191 1) the Court ot Customs Appeals started a separate series of its reports. '^ See further William E. Hotchkiss, The Judicial Work of the Comptroller of the Treasury, 164 p., Ithaca, I'Jll (Cornell Studies in History and Political Science, v. 3). Municipal Reference Libraries 21 to the same officials in different states. Public service or utility commissions, railroad commissions, depart- ments of health and of public instruction, boards of equalization and boards of arbitration, and various other branches of state governments are usually vested with such authority within certain limits. The decisions of these authorities are usually published as a part of their annual or biennial reports, not separately, except in the case of public service commissions whose decisions, as in New York, may reach several volumes a year. New York is the only state where all such quasi- judicial decisions are published in a single series and in its New York Depart- ment Reports, presenting both in advance sheets and later in a definitive edition the decisions of all state departments which have final jurisdiction in any direction. New York is setting a unique example. II. Aids to Court Reports. As reports accumulate, two or three or more a year from each of the states, others from federal and foreign courts, obviously some digest, index, or key becomes necessary in order that their contents may be readily accessible. 1. Digests. A digest of court reports somewhat resembles in its purpose the index of a book or the subject catalogue of a library. It presents under topics or subjects, alpha- betically arranged, brief statements of the propositions of law found in the series of reports digested. Almost all important series of reports, official and nonofficial, federal and state, on one subject or on many, have their digests. 22 Law, Legislative Reference and The Cetitury Digest, or, as its label title reads, the A nieri- can Digest: Century Edition, is the most important of these publications and has been called the most ambitious and important law publishing enterprise ever under- taken. In one alphabet of fifty volumes it digests all American case law, both state and federal, from 1658 to 1896. The Decennial Digest, or American Digest, Decennial Edition continues this from October, 1896 to September, 1906, in twenty-five volumes. About two volumes a year and monthly advance sheets bring this to date.'^ Current Law, a continuing publication, issued in two volumes to the year and covering the case law decided during the year, maybe classed as a "digest." The leading similar work for English cases is Mews' English Case Law Digest, covering the period from the earliest reports to 1897. Two supplementary volumes cover 1898 to 1907. 2. Tables of Cases. A table of cases is an alphabetical list by the names of the parties involved of all the cases reported or cited in a particular book or series of books. Its purpose is to enable a person at a glance to find out where a particu- lar case has been reported, or, to show whether the book in hand reports or discusses a given case. In this connection the last four volumes of the Decennial Digest must be especially mentioned. They contain a complete table in one alphabet of all American cases from 1658 to 1906, covering both the Century " For a full and satisfactory explanation of the American Digest system and the Key-number system used in connection with it see the West Company's American Digest Manual, a pamphlet of thirty- eight pages describing the effective use of their "Key-number sys- tem." An additional help in the use of their digests was published in 1912 under the title Descriptive Word Index. Municipal Reference Libraries 23 Digest and the Decennial Digest, and make an index by title to about 725,000 cases. Volume 16 of Mews' Digest forms a table of cases for English reports coming down to the end of 1897. 3. Citation Books. Citators or citation books enable one to trace all references or citations to a given case from the time it was decided to the present. Its history and value as an accepted authority or precedent may thus be followed step by step. These books have been published for many of the states and for certain other sets of reports. The student meeting such a book for the first time should give careful attention to the explanation of its use found in the preface as it is a unique type of publica- tion of great value when properly understood, but one which has often proved a temporary stumbling-block to the uninitiated. As examples there are : Shepard's Citations (1 vol. to a state). Taylor s Citations (New York), Rogers' Citations (Illinois). L. R. A. Cases as Authorities. Citator (separate editions for various states). III. Briefs of Counsel. By briefs of counsel (briefs and points, or cases and points) are meant the arguments and other printed papers presented by attorneys in cases before the courts. These papers are obviously of great value and a number of the larger law libraries preserve in bound volumes those presented before the United States Supreme Court and the highest court of the states in which they are. 24 Law, Legislative Reference and The New York State Law Library at Albany has secured since the fire a very unusual set of United States Supreme Court briefs covering the last forty years and other valuable sets will be found in the Harvard University Law School Library, the Library of Congress, Law Division, in the library of the Bar Association of the City of New York, in the L'nited States Supreme Court, and in the office of each justice of the court. Columbia LIniversity now receives the current briefs of Chief Justice White's set. IV. Trials. Accounts of famous trials which received marked public attention in their day and age or which were of peculiar interest to either the lawyer or the layman have been published in large numbers. In many in- stances single volumes are devoted to one case. In addition there are noted collections of causes celebres which are coming more and more to occupy a prominent place on the shelves of the largest of law libraries. Vol- ume two of the catalogue of the Harvard University Law School Library devotes two hundred and forty-six pages to trials in the English language only, which are in that library. In some cases narratives of trials may take on an ofificial aspect as is seen particularly in impeachment pro- ceedings against judges or legislators where the full official stenographic report is ordered printed. (b) Constitutions.Treaties, AND Statute Lavv.'^ L Constitutional Convention Proceedings. While not law these discussions are most valuable as showing the original intent of the framers of a '' C/. supra. Brief Making, p. 11-17; Clark, sees. 40-5.'i; Robin- son, sees. 12-16 and his eitations. Municipal Reference Libraries 25 constitution and assist courts in deciding cases where an interpretation of the constitution is sought. 2. Annotated Constitutions. The constitution is the fundamental law of any country and statutes must be made in conformity to it. Anno- tated signifies in this case having notes from text books and legal decisions which explain or interpret the different sections of the constitution. 3. Treaties: They are all federal. In addition to their use in the relations between nations and in settling questions of citizenship, . federal treaties are frequently consulted by the administrative officers of states bordering foreign governments and should be available in the law library of the capital. The Governor of Texas has occasion to become familiar with our treaty with Mexico, not only on account of border depreda- tions, and the unsettled conditions of affairs in that country, but also because the question of extradition of prisoners is constantly arising. Similarly, our treaty with Japan had to be brought forcibly to the attention of the people and legislators of the State of California, and it is still an unsettled question whether or not Cali- fornia has usurped power which can only be exercised constitutionally by the federal government. The latest compilation of treaties is Senate Document No. 357 of the 61st Congress, 2d session, (serial no. 5646), two volumes, 1910, containing the treaties, conventions, international acts, protocols, and agreements between the United States of America and other powers from 1776 to 1909, complete as originally negotiated and as sub- sequently altered, if alterations were made. A third 26 Law, Legislative Reference and and supplementary volume was issued in 1913 as Senate Document 1063, 62d Congress, 3d Session, covering treaties and other international acts from January 1, 1910 to March 4, 1913. The compilation was made by Mr. Garfield Charles. It includes, in addition to treaties in force, those treaties and other agreements ratifications of which had been advised by the Senate but which had not been put into force up to the date of the publication of the volume. There is now in preparation still another volume of treaties to be mentioned in this connection. It is entitled Acts, Treaties, Proclamations, Decisions, and Opinions, relating to and Lists of Officials in the Non-con- tiguous Possessions of the United States and also in Cuba and Santo Domingo. It will appear as Sen. Doc. 173 of the 63d Congress. Current treaties are published by the LTnited States Government in the Session Laws, Statutes at Large, the numbered Treaty Series ^* of the Department of State, occasionally in the Congressional set of government documents as was done in the case of the amended arbitration treaties with Great Britain ^^ and France,^' and at irregular intervals in compilations of treaties in force. 4. Statutes. (a) Congressional Acts. The Acts of Congress are first published for the public as slip laws — that is a separate printing of each law which, if short, occupies merely a single "slip" — then as '* Published in limited quantity and supplied by the Department only in reply to specific requests for particular treaties. " Published with Senate amendments in 62d Cong. 2d. Sess. Sen. Doc. 476. A list of all arbitration treaties submitted to and acted upon by the Senate was published as Sen. Doc. 373, same Congress. Municipal Reference Libraries 27 session laws (i.e., a paper bound volume containing the laws of each session of Congress and sometimes called pamphlet laws) ; later as the Statutes at Large, volumes containing the laws of all sessions of one Congress. There are usually two volumes, called parts, to the Statutes at Large, of each Congress. The second includes the latest treaties. An index to the Statutes at Large has been issued in two volumes covering in volume 1 the years 1873-1907 and in a second though really preliminary volume the years 1789-1873.20 All the laws in force at any one time are found in com- pilations or revisions known as the Compiled Statutes or Revised Statutes, and the Statutes at Large, Session Laws, and slip laws issued subsequent thereto. The statutory law covering a particular field is often published separately and is termed a code, e.g., the Penal Code, although "A 'code,' to confine the term to its more proper meaning, is a systematic statement of the law intended to include all or practically all legal rules concerning the subject treated." ^^ (b) State Laws. The laws of each of the states are printed in forms analogous to those just enumerated. A number pub- lish slip laws;" all issue session laws (called statutes in 20 Volume 1 of this Index Analysis of the Federal Statutes was prepared by G. W. Scott and M. G. Beaman; the second volume by M. G. Beaman and A. K. McNamara. For reviews see Amer. Pol. Set. Rev. V. 3, p. 621-23 and v. 5, p. 650-51. -» W. F. Dodd in Cyc. of Amer. Gov't. (D. Appleton Co., in press.) ^ Slip laws are published by Alabama, Arkansas, California, Con- necticut, Indiana, Massachusetts, New Jersey, New York, Ohio, Oregon, Pennsylvania, the Philippine Islands, and \'irginia. 28 Law. Legislati\e Reference and one or two instances). The states do not now publish so-called statutes at large, although in the early days a few did. For the states, also, there are compilations, oflScial or private, of the laws in force at a particular time. Com- pilations and revisions omit the laws that have been re- pealed. Their subject-matter is usually well classified and systematically arranged, often alphabetically by subjects. Laws omitted by mistake from official com- pilations may be in\oked in court, their existence proved and their rules applied, but laws omitted from official revisions which specifically repeal all former law, are lost forever unless the legislature re-enacts them. This is because revisions are re-enactments of the state laws as a whole. Compilations often have valuable anno- tations citing cases where the laws have been interpreted or construed by the courts. The term code is loosely used, and has various mean- ings. Generally, when applied to state law, it means the statutory law covering a particular field; e.g., the Penal Code, Civil Code, Code of Criminal Procedure, etc. Codes also are both officially and privately issued, though no "code," properly so-called, may be prepared unofficially. (c) Text Books. Text books or treatises have been published on all phases and branches of the law. They are exceedingly numerous and of varying authority, the authority de- pending upon their authorship. What they say is not law ; it is the writer's opinion of what the law is, and an exposition and interpretation of it. Even the best of text books are but "trustworthy evidence" of what the Municipal Reference Libraries 29 law really is.^^ The law itself is found only in treaties, constitutions, decisions, and statutes. There are two main classes of textbooks: 1. General. Under this head may be classed general treatises such as Clark's Elementary Law, Walker's American Law, Blackstone's Commentaries, "Coke on Littleton," and special treatises on particular subjects, for example, Cooley on Torts, Tiedeman on Real Property, Russell on Crimes, etc., etc.^^ Here, too, may be classed the numer- ous works on international law and constitutional law, many of them avowedly text books of the ordinary type, but others reaching far beyond and almost touching the commanding authority of the law itself, as is evidenced by the place they held in the esteem of contemporary jurists and the position still accorded them by present- day legal writers, both judges and commentators. 2. Local. This refers to text books discussing the law in general or some particular field of law as applied in a definite community; e.g., Fletcher on Illinois Corporations, Sears on Corporations in Missouri, etc. " In the Paquette Habana, 175 U. S. 677 (Scott's Cases, p. 19), Mr. Justice Gray says: "... where there is no treaty, and no con- trolling executive or legislative act or judicial decision, resort must be had to the customs and usages of civilized nations; and, as evidence of these, to the works of jurists and commentators, who by years of labor, research and experience, have made themselves peculiarly well acquainted with the subjects of which they treat. Such works are resorted to by judicial tribunals, not for the specu- lations of their authors concerning what the law ought to be, but for trustworthy evidence of what the law really is." " The Hornbook Series of over 35 vols, is a well-known series of American law school text books. (West Pub. Co., St. Paul, Mmn.) 30 Law, Legislative Reference and (d) Encyclopedias and Dictionaries. 1. Examples of legal encyclopedias are the American and English EncyclopcBdia of Laic, Second Exiition, thirty- two volumes. 1905, with its five-volume Supplement 1905-1908, and Cyclopedia of Law and Procedure, forty volumes, 1901-1912, with its separate volume of ^««o/a- tions (1913) and its Index and Concordance (1913), known as "Cyc." The former covers substantive law only, the latter both substantive and adjective law. L'nder its 440 main titles there is thus presented an encyclopedia to practically the entire field of law. 2. Law Dictionaries: These define legal terms and phrases, including foreign law terms, particularly from the Latin and French, so frequent in English law. Examples are John Bouvier's Law Dictionary, two vol- umes, 1898; H. C. Black's Dictionary of Law, last edition 1910; and Words and Phrases Judicially Defined, eight volumes, 1905. Among the dictionaries of special terms may be named Williamson's Dictionary of French Legal Words and Phrases (Sweet & Maxwell, Lond., 1912), and E. Hilton ]a.cksons Law-Latin, edition three, Washington, 1910, for translating law-French and law-Latin into English. The first of these is a small work of rather limited value for translating difiicult and technical law- French into English. A bibliographical list of the prin- cipal law dictionaries in English and foreign languages will be found in the introductory pages of Henry C. Black's Dictionary of Law. ^^ Definitions of terms are often given in court decisions and are thus particularly valuable as showing how the courts actually understand and use them. **West Pub. Co., St. Paul, 1910. Municipal Reference Libraries 31 (e) Periodicals, Society Proceedings. 1. Regular Legal Periodicals. e.g., Harvard Law Review, Green Bag, Cen- tral Law Journal, etc., etc. They contain articles, book reviews and book notices, notes on important current decisions and sometimes references to legal articles in other peri- odicals, both legal and general. A list of the important law reviews of England, Canada, and the United States is represented by the list of periodicals indexed which appears at the beginning of each issue of the Index to Legal Periodicals and Law Library Journal. 2. Bar Associations' Proceedings. Associations of members of the legal profession are called bar associations. These associations are national, state, county, or city. Their proceedings contain valu- able discussions of various legal problems and down to 1899 have been indexed in the following publication. Park, Orville A. An Index to the Publications of the Various Bar Associations of America. . . . 86 p. Atlanta, Frank- lin Printing & Publishing Co., 1899. Jones' Index cited below also covers bar associations' reports and with the appearance of volume 3 will make available a new store of important discussions. At this point it might not be going too far afield to consider in connection with these legal periodicals and the proceedings of legal societies, the journals devoted to political science and the proceedings of the more important political science associations. However, as they are more likely to deal with proposed or desired legislation rather than actual law it is more fitting to con- sider them in this work in the later discussion of the materials of the legislative reference library. 32 Law, Legislative Reference and 3. Indexes to Legal Periodicals.-* (a) Jones, L. A. Index to Legal Periodical Literature. 3v. 1888-1914 (?). V. 1 to 1887; v. 2, 1887-1899; v. 3, 1900-1909 .^^ Bar associations' reports and legal articles in general magazines are indexed as well as the strictly legal periodicals. Volume 2 includes numerous ref- erences to articles on political science, economics, and sociology. (b) Index to Legal Periodicals and Law Library Journal, v. 1-, 1908-. This index, published quarterly with annual cumulations, covers 5.5 journals and the legal articles in the leading general magazines. It contains an author list, and a subject index using the subject headings of the West Publishing Company's "Digests." From 1901 to 1908, in volumes 15 to 21 the Harvard Law Review published an "Annual Index to Legal Articles." Both Case and Comment and the Green Bag offer each month a list of articles of interest to members of the legal profession. In the latter publication a brief summary accompanies the titles. And, it should be noted further that the regular indexes to general magazines, such as Poole's, the Readers' Guide, the Annual Library Index, and the Magazine Subject-Index are guides to the legal articles occasionally appearing in the general magazines they index. The fact that bibliographies often contain references to periodical articles as well as books may bear mention in this connection. ^^ See "Available Published Indices to Legal Literature" in A. L. A. Bui. V. 1, p. 252-54, July, 1907; "Report on the Index to Legal Periodicals," in A. L. A. Bui. v. 4, p. 754-50, Sept. 1910; also "Index to Legal Periodicals," in L. L. J. v. 3, p. 16-18, Oct. 1910. " Vol. 3, The Boston Book Company, 1914, in preparation. Municipal Reference Libraries 33 (f) Government Documents. The term "public document" has had a varied career from the standpoint of exact definition. Several times it has been the concern of the national Congress and pre- sented difficulties not easily settled even there.^^ The generally accepted definition promulgated by the Office of the Superintendent of Documents is: "Any publication printed at Government expense or published by authority of Congress or any Government publishing office for division among Members of Congress or distribution to Government officials or to the public, shall be considered a public document." Adopting this definition it will be observed that there are certain public documents which must find their way even into a library limiting its acquisitions to strictly legal material. Of the publications already considered the official Reports of federal courts, discussed on p. 14-16 and the so-called semi-judicial decisions and opinions, p. 19-20, fall within the definition of public documents. Of the first group, the Reports of the United States Supreme Court are officially issued by the court reporter and must be sold to the public at a price not to exceed $1.75 per volume.^^ They are printed by the Banks Law Publishing Co., New York, under an agreement between the company and the reporter. The Reports of the United States Circuit Court of Appeals are sold for $5.00 by the Lawyers' Co-operative Publishing Co., Rochester, New York. ' U. S. Superintendent of Documents Checklist of United States lie Documents, 1789-1909. Ed. 3. Wash. 1911. (See Intro. 28 Public p. vii.) ^ Public Laws of the U. S. 1910-1911, chap. 231, sec. 226; p. 1153. 34 Law, Legislative Reference and The Circuit Court and District Court decisions are reported privately and appear in the Federal Reporter '° which also contains the decisions of the Circuit Court of Appeals and the Commerce Court.'^ Court of Claims Reports are made to Congress; the decisions are published by the Superintendent of Docu- ments and sold to individuals at prices ranging from $.40 to $1.75 per volume. The decisions of the Court of Customs Appeals were until recently published in the Treasury Decisions, volumes of which sell at $L25 to $L50 and are obtain- able from the Superintendent of Documents. The new series of separate reports of this court may be obtained from the same officer at $1.00 per volume. The second group — the semi-judicial decisions and opinions — are all received by depository ^^ libraries free of cost and in some cases may be obtained from the issuing office without charge. All may be purchased from the Superintendent of Documents, Washington, D. C, at a reasonable price, noted in the various price lists issued by him.^^ Single decisions, particularly if of *" See p. 17, infra. *i Also published separately in U. S. Attorney-General: Cases Brought in the Cemmerce Court, Wash. 1912. (62d Cong. 2d Sess. S. Doc. 789.) ^ See p. 93, and 93 note 47 infra. 33 (a) Inter. S. Comm. Comm. Decisions, price list 25, $1.5(>-$2.00. (b) Commr. of Pat. Decisions, price list 29, Sl.00-S2.00. (c) Decisions of Dept. of Int. & Gen. Land Off. price list 20, $1.75-52.50. (A two- volume Digest to volumes 1 to 40 has recently been published.) (d) Compt. of Treas. Treas. Decisions, price list 37, $1.25-$1.50. (e) Compt. of Cur. Dig. of Nat. Bank Decisions, current 1912, $.65 (Mo. Cat.) (f) Attorney-General: Opinions: Write for price. (g) Judge- Advocate-General: Digest of Opinions, 1862-1912, $1.50. Municipal Reference Libraries 35 much general interest, are often published in the Con- gressional documents quite apart from any series of reports such as have been named, and are usually ordered printed by a resolution of the Senate or House. Instances of this are the decisions in the Standard Oil Case and the American Tobacco Company Case which were published as Senate documents 34 and 40, respectively, of the sixty-second Congress, first session. Collected decisions may occasionally be published in the same manner apart from any regular series of court reports. Examples are the decisions of the Commerce Court noted above and the Condensed Report of the Findings of the Court of Claims in all the French Spoliation Claims that have come before it, printed for the use of the Committee on Claims of the House, 1912. Additional types of legal publications are found in the federal government documents. These include, of course, the federal laws themselves — the slip laws, session laws, statutes at large, and revised statutes — , the Journals of the House and Senate and the bills introduced into both Houses, although these may be obtained from members only. Compilations such as Thorpe's Constitutions,^^ Moore's Digest of International Law,^^ the federal treaties,^^ the Anti-trust Decisions, ^"^ '* F. N. Thorpe, Federal and State Constitutions, Colonial Charters and Other Organic Laws of the States, Territories and Colonies. 7 v. Wash. 1909. (59th Cong. 2d Sess. H. Doc. 357: Serial nos. 5190- 94.) ^ J. B. Moore, Digest of International Law. 8v. Wash. 1906. (56th Cong. 2d. Sess. H. Doc. 551: Serial nos. 5202-06.) ^^ U. S. Foreign Relations, Committee on (Senate) Treaties, Con- ventions, International Acts, Protocols, and Agreements between the United States and other Powers, 1776-1909, compiled by W. M. Malloy. 2v. 1910. (61st Cong. 2d Sess. S. Uoc. 357: Serial no. 5646), also — Treaties, Conventions, International Acts, Protocols, and Agree- ments Between the United States of America and other Powers: Supple- 36 • Law, Legislative Reference and are all valuable additions to law libraries. Numerous other publications might be added to the list, but those gi\'en ser\'e as examples. Compilations of federal, state, and foreign laws often issued by some government office will be considered in another connection and the whole subject of public documents will receive further treatment where the subject recurs in the discussion of legislative reference work. The reports of state courts when \iewed as state public documents would rank as the most important state publications from a law library point of view. The opinions of the state attorney-general, state railroad commissions' reports, quasi -judicial decisions of admin- istrative officers, compilations of the laws of a state on a particular subject, and the legislative journals are state documents of value to the law library. Of municipal documents, charters, ordinances, and city council proceedings are the most important in this connection. Here again fuller discussion must be re- served in regard to these documentary materials until the subjects recur in the later discussions of legislative and municipal reference work. (g) Legal Miscellany. Under this con\enient term may be grouped several useful types of legal publications not readily classified ment,1913, to Senate Document 357, Sixty-first Congress, Second Session, compiled by Garfield Charles, v. 3, 443, viii p. Wash. 1913. (62d Cong. 3d. Sess. Sen. Doc. 1063.) — Acts, Treaties, Proclamations, Decisions, and Opinions, relating to and Lists of Officials in the Non-contiguous Possessions of the United States and also in Cuba and Santo Domingo. (63d Cong. S. Doc. 173.) — Compilation of Treaties in Force. 1904. (Serial no. 4622.) " U. S. Attorney-General. Federal Anti-Trust Decisions, compWed by J. A. Finch. 4v. Wash. 1912. (61st Cong. 2d Sess. S. Doc. Ill: Serial nos. 6100-03.) Municipal Reference Libraries 37 elsewhere. It would include collective and individual biographies of lawyers, jurists, and statesmen, legal his- tory, essays, legal bibliography, legal directories, and the Proceedings of the American Association of Law Libraries. In the limited space allowed for these topics only legal bibliography and legal directories will receive particular attention. L Legal Bibliography.'^ (a) General. Among the important titles in this class should be named : Bibliographie Generale et Complete des Livres de Droit et de Jurisprudence publics jusqu'au 24 Octobre , 1910. xxxiii, 183 p. Paris, Marchal et Godde, 1911. (Has an alphabetical subject and author index). ^ At the joint session of the Bibliographical Society of America, the National Association of State Libraries, the American Associa- tion of Law Libraries, and the Special Libraries Association, held June 28, 1912, during the Ottawa Conference of the American Library Association, several papers of interest and value in connec- tion with the subject of legal bibliography were presented. They appear in part in the Law Library Journal part of the Index to Legal Periodicals and Law Library Journal in the issues of 1912-1913. The titles are: "Legal Systems of Canada, with a list of Statutes and other Legal Papers of the Province of Quebec," by Dean Walton of McGill University Law School. "Present Status of Legal Bibliography," by Dean Wigmore of Northwestern University Law School. "Bibliography of International and Foreign Law . . . ," by Ed- win M. Borchard, formerly Law Librarian of the Library of Congress. "Books of the Beginning," by Miss Margaret C. Klingel^mith, Librarian of the Biddle Law Library of the University of Pennsyl- vania. "Bibliography of Canadian Law," by Professor Magoun of McGill University. The proceedings of the American Association of Law Libraries for 1912 and 1913 contain other papers of interest to law librarians which will appear in the Law Library Journal. 38 Law, Legislative Reference and Borchard, Edwin ^L Guide to the Law and Legal Literature of Ger- many. Wash. 1912. The first of a series of Guides to Foreign Law to be issued by the Library of Congress under the direction of Mr. Borchard, formerly Law Librarian. For a review of this number see Library Journal, July, 1912, p. 405-06 (vol. 37, no. 7). The second of the series entitled. The Bibliography of Inter- national Law and Continental Law, appeared early in 1913. It is a critical commentary on the bibliographic material avail- able in these fields in whatever form published. Titles cited briefly in the text appear in full in the footnotes with complete details of imprint. Brief Making and the Use of Law Books, Ed. 2. Edited by Roger \V. Cooley. West Pub. Co., St. Paul. 1909. (First edition edited by Nathan Abbott, 1906.) Clarke, John. Bibliotheca legum; or, Complete Catalogue of Common and Statute Law-Books of the United Kingdom. New ed. Lond. 1819. Hicks, Frederick C. Aids to the Study and Use of Law Books, a selected List, Classified and Annotated, of Publications relat- ing to Law Literature, Law Study, and Legal Ethics. 129 p. N. Y. Baker, Voorhis &'Co., 1913. A handy bibliographical guide composed chiefly of annotated titles of books and articles about law books. Chapters I and IX note references on "Law Study" in the United States and in England, and "Legal Ethics," respectively. Entries are num- bered consecutiv-ely throughout the book from 1 to 226. Journal of the International Institute of Legal Bib- liography, American edition, ed. by Edwin M. Borchard, Law Librarian of the Library of Congress. This is known as the Bibliography of Legal Science Sind is pub- lished monthly in five languages by the Bibliographischer Zentralverlag, Berlin. The entries give full name, title, place, date, a brief descriptive resume of the contents where not sufficiently indicated by the title, publisher, size, and price. Municipal Reference Libraries 39 In quoting titles the language of the original is followed. It is $5 a year to members and $6 to non-members of the Institute. A systematic table of contents appears in each issue classi- fying the entries under the following headings: 1. General. 2. History of Law and Jurisprudence. Biography. 3. Philoso- phy. Science. 4. Comparative Jurisprudence and Ethnolog- ical Jurisprudence. 5. Civil (Private) Law. (i. Organization of Courts. 7. Civil Procedure. Bankruptcy. Non-conten- tious Jurisdictions. 8. Criminal Law. 9. Criminal Pro- cedure. 10. Execution of Criminal Sentences. 11. Crimi- nology. 12. Constitutional Law. 13. Administrative Law. 14. Ecclesiastical Law. 15. Colonial Law. 16. International Law. Law of Nations. Marvin, J. G. Legal Bibliography; or, Thesaurus of American, English, Irish, and Scotch Law Books, with some Continental Treatises, Observations upon their various Editions and Authority (and) a List of Abbreviations. Phil. 1847. Muhlbrecht, Otto. Wegweiser durch die neuere Litterature der Rechts- und Staatswissenschaften fiir die Praxis bearbeitet. 2 v. Ed. 2. Beriin, 1893-190L .V. 1, to 1892; v. 2, 1893-1900. This is a classified list with an alphabetical index. The bibliographical details given include prices. Volume 1 contains 34,000 titles and 48,000 names in the index. It has been called the most com- prehensive bibliography of jurisprudence and political science and is especially useful for foreign law. It is continued by Miihlbrecht, Otto. Uebersicht der gesammten Staats- und Rechts Wissenschaftlichen Litterature. Berlin, 1900- date. Published bi-monthly but with an annual index; entries are numbered consecutively from January to December each year. The first number appeared in 1868. The separate issues have the title Allgemeine bibliographic der staats- und rechtswissenschaften, Uebersicht der auf diesen gebieten im deut- schen und ausldndischen Buchhandel neu erschienenen lilteratur. Soule, Charles C. Lawyer's Reference Manual of Law Books and Citations. BosL. 1883, 1884. 40 Law, Legislative Reference and Stammhammer, Josef. Bibliographie der Social Politik. 2 v. Jena, 1896- 1912. This is an author Hst with a subject index. It includes books, pamphlets, and periodicals in various languages, with emphasis on the German, government publications and analy- tical references. There is no annotation but the entry con- tains full bibliographical details. Townes, J. C. Law Books and How to Use Them. 191 p. Austin, Tex., 1909. A partial legal bibliography. 17 p. Wigmore, J. H. Preliminary Bibliography of Modern Criminal Law and Criminology. Chicago, 1909. (North- western L^niversity Law School, Gar\' Library of Law. Bulletin no. 1). An author list of 100 pages followed by lists of serials arranged alphabetically under country, 6 pages, and a list of government, congresses', societies', and institutions' reports, proceedings, and other publications, 20 pages, arranged by countries. (b) Law Library Catalogues. Catalogues of Law Libraries are among the best bibli- ographical sources and a list of those useful in this connection would be too extensive for inclusion here. The following are worthy of special mention. 1. Association of the Bar, New York City. 1892. 2. Chicago Law Institute. 1902. (Annual Supps.) 3. Comite de Legislation, Paris. 1879; 1889; 1902. (These rank among the most important Cata- logues of comparative law.) 4. Gray's Inn. 1900. 5. Harvard University Law School. 2 v. 1909. (.•\n author list with subject index to follow.) Municipal Reference Libraries 41 6. Incorporated Law Society, London. 189L Supp. 1891-1906. 1906. 7. Indiana State Library. 8. Law Library Association of Saint Louis. 1895. 9. Library of Congress. Law Division. Printed catalogue cards now available for its collection. 10. Lincoln's Inn. 1859. Supps. 1862; (1867?); 1890. 11. Maryland State Law Library. 1895. 12. Massachusetts State Library. Catalogue of the Laws of Foreign Countries in the State Library. . . . 1911. 1911. 13. Massachusetts State Library. Hand-list of Legislative Sessions and Session Laws, Statutory Revisions, Compilations, Codes, etc., and Constitutional Conventions of the United States and its Possessions, and of the Several States to May, 1912. 1912. Not a full catalogue but a comprehensive check- list covering not only items in the state library, but all discoverable titles pertinent to the list. (See p. 43-44, post.) 14. Michigan State Law Library, 1896. 15. Middle Temple. 1880. 16. New York State Law Library. 1856. Subject-index 1882; Supps. 1893; 1904. 17. Ohio Supreme Court Library. 1910. 18. Pennsylvania State Library. 1899. 19. Reichsgericht. Leipsic, 1882; 1890. (Mimeographed Supps.) 20. Reichsjustizamt. Ed. 3. Berlin, 1909. 21. Reichstag Library. 3 v. 1896. 22. San Francisco Law Library. 1888. 23. Signet Library, Edinburgh. 2 v. 1871-72. 24. United States Department of Justice. 1904. (c) Dealers' and Publishers' Catalogues. Dealers' and Publishers' Catalogues and lists of pub- lications have their place in a list of legal bibliographies. 42 Law, Legislative Reference and A s.hort list of prominent dealers follows; the list is representative and in no sense to be considered a "select" list. 1. Baker. Voorhis & Co. N. V. 2. Banks Law Publishing Co. N. Y. 3. Bancroft-Whitney Co. San Francisco. 4. Boston Book Co. Boston. 5. Callaghan & Co. Chicago. (3. Carswell & Co. Phil. & Toronto. 7. T. H. Flood & Co. Chicago. 8. Kelly & Son. London. 9. Lawyers' Co-operative Pub. Co. Roches- ter. 10. Little, Brown & Co. Boston. U. Martinus Xijhoft. The Hague. 12. Stevens & HaNTies. London. 13. Stevens & Sons. London. 14. Sweet & Maxwell, Publishers. Catalogue of Modern Law Books. Lond. 1895. (First ed. bv Herbert G. Sweet, 1883; this compiled by \V. H. Maxwell). 15. . Catalogue of the more important British and Colonial Law Books pub- lished during the last Twelve Years, with a list of Current Periodicals and a full Index of Subjects; a Supplement to (their) "Catalogue of Modern Law Books." Lond. 1904. Reprinted annually, with additions to date. 16. West Pub. Co. St. Paul. 17. Wildy & Co. London. (d) American Statute Law. The bibliography of American statute law is a sub- ject that has received increasing attention in recent years. It has been much discussed in the proceedings of the American Association of Law Libraries particularly Municipal Reference Libraries 43 in connection with the attempts of certain large insti- tutions to complete sets of state session laws. No com- plete bibliography ^^ is yet published, but there are in print several check-lists so carefully prepared and approaching completeness so nearly that the lack of a comprehensive bibliography with full bibliographic de- tails is rarely felt. The best lists of session laws, statutes, and so forth for the American states and the United States will be found in the Catalogue of the United States Depart- ment of Justice Library, Washington, 1904; the Cata- logue of Harvard University Law School Library, two volumes, 1909; and particularly in the Handlist of Legislative Sessions, and Session Laws, Statutory Revisions Compilations, Codes, etc., and Constitutional Conventions of the United States and its Possessions and of the several States to May, 1912, prepared by Charles J. Babbitt under the direction of Charles F. D. Belden, librarian of the Massachusetts State Library, Boston, 1912. This Handlist of American Statute Law is a compre- hensive volume of six hundred and thirty-four pages in which the states and possessions of the L'nited States are arranged alphabetically. For each state the data given include: (1) Historical (brief statements noting changes of government, chronologically arranged). (2) Bibliography (giving the name of the state legislative body, the name applied to the session laws, and the title of any previous bibliography of the state laws) . (3) Session Laws (arranged chronologically). '9 Cf. Charles J. Babbitt. "Stumbling Blocksand Pitfalls in Session Laws." (L. L.J.b: 25-35 July-Oct. 1912.) 44 Law, Legislative Reference and (4) Statutes (compilations, revisions, digests, codes; arranged chronologically). (5) Constitutional Conventions, Constitutions, etc. (chronologically arranged and preceded by a state- ment giving the date of the constitution in force, 1912). An appendix (p. 623-631) furnishes a bibliography of the tribal laws, treaties, etc., of the American Indian tribes with the United States arranged alphabetically by the name of the Indian tribe, then chronologically. There is a tvvo-page index, p. 633-634. Bibliographies of American Colonial laws will be found in A. R. Hasse's Materials for a Bibliography of the Pub- lic Archives of the Thirteen Original States,*'^ and in the Pennsylvania Historical Societ>-'s volume entitled the Charlemagne Tower Collection of American Colonial Laws *'^ The Massachusetts Handlist of American Statute Law mentions in the data preceding the list of laws for each state any bibliographies of Colonial laws that may be available. Certain committees of the American Association of Law Libraries have published reports both interesting and valuable in this connection; for example, the "Re- port of the Committee on the Bibliography of American Statute Law" ^2 and the "Report of the Committee on Reprinting Session Laws."^' Attention may be called also to the Bibliography of Statute Law of Southern States, parts I-III, by Theodore Lee Cole, in the Publications^"^ of the Southern History Association, Washington, D. C, 1897. In addition there is for Texas C. \V. Raines' Bibliography of Texas, being a ** American Historical Association Annual Report, 1906, v. II, p 239-50 1. " 29K p. Phil., 1890. »L.L. J. 3:29 jg. "76. 4:31-35. «» 1: 61 sq. Municipal Reference Libraries 45 descriptive List oj Books, Pamphlets, and Documents relat- ing to Texas in Print and Manuscript since 1536, including a Complete Collation of the Laws, zvith an introductory Essay on the Materials of early Texas History}'^ Appendix number one contains "Conventions and Constitutions relating to Texas, and the Collation of the Laws of the Republic and State, all in chronological Order." ^^ (e) Canadian and Latin-American Law. A "Bibliography of Canadian Statute Law" has appeared in the Law Library Journal}'^ The report of the committee of the American Asso- ciation of Law Libraries on securing Latin-American Laws contains a preliminary list of such laws.*^ 2. Directories. Legal directories contain lists of lawyers by locality and often brief abstracts of the important laws of various states and countries. In some the rating or local standing of an attorney is indicated by a symbol. Owners of directories may obtain keys interpreting these symbols. Martindale's American Law Directory, annual, is a prominent example. 3. Handling of MateriaL (a) ACQUISITION.49 The first step in a book's library history is its acquisi- tion, often a more difficult procedure than one would « xvi, 268 p. Q. Austin, 1896. (Well annotated.) « P. 227-46. ^' 1: 61 sq. and 2: 65-75, by W. G. Eakins. ^sSeeL. L. J. 3: 22-26. *^ For general discussions of the work of a library's order depart- ment the reader is referred to the files of the Library Journal, Public Libraries, the A. L. A. Bulletin, Dr. Arthur E. Bostwick's American Public Library (Chap. XI), the A. L. A. Manual of Library Economy , pre-print of chap. XVII (by F. F. Hopper) and the bibliographical references, p. 25-29, of the last named source. 46 Law, Legislative Reference and suppose even when sufficient funds are available. The difficulty may be that the book is old and out of print, or, may be due to lack of full bibliographical informa- tion in regard to it, such as the lack of the author's full name, the exact title, the publisher's name, the place of publication, date, or edition. 1. Purchase. A large proportion of a law library's books will be acquired by purchase and a representative list of dealers in and publishers of legal literature will be found on p. 42 above. The trade catalogues of these and other dealers, bibliographies, and law library catalogues,^" including particularly a depository catalogue of the Library of C-ongress,^^ are the sources for ascertaining the full biblio- graphical information that may be needed in order to supply a dealer with a proper description of the book desired. 2. Exchange. Some law libraries are in a position to receive a large amount of material by exchange. This is particularly true of state law libraries or law divisions of state libra- ries in whose hands the distribution of the state's official court reports, session laws, and compiled statutes is often placed. Even when this function is reserved for the office of the Secretary of State the law library is usually the ultimate recipient in such exchange relations between Secretaries of State. *" Cf. sees. 2. g. 1. a-€ (Legal Bibliography). " The Library of Congress is depositing in a number of libraries a complete set of its printed catalogue cards. Such a catalogue is known in library piirlance as a "depository catalogue." Municipal Reference Libraries 47 3. Gift. Law libraries, as other such institutions, are often beneficiaries receiving valuable gifts particularly in the shape of private libraries bequeathed by prominent lawyers and judges. Government documents form another important class of gifts to which attention is called in another place.^^ (b) Classification. The law itself has been classified by many writers, but it is not so with legal publications. There is no generally accepted standard, scientific classification for the material to be cared for in law libraries. One or two use the Cutter system, general libraries often try to apply the Dewey system to their legal works, and occa- sionally libraries have worked out systems of their own. The reason for this lack, not felt in most branches of library work, is that law books fall naturally into a few pretty well defined groups and no elaborate classifica- tion involving a detailed system of notation is generally considered essential. So it is that classification numbers, book numbers, and shelf marks, in fact notation of any kind, can readily be dispensed with, though a shelf mark of some kind is useful on material which does not readily fall into a well-defined group, for example, a book of miscellaneous essays, a volume of anecdotes, and the book which may properly be classed as either a trial or a biography, and so on. In some law libraries all such material of a gen- eral, miscellaneous, or indefinite character would be thrown with text books and called as a group simply "general." »2 p. ig-20, 33-36, supra; also p. 91-128; 261-88, post. 48 Law, Legislative Reference and The argument regarding classification in a law library relates almost entirely to text books. The question is: Should these be arranged alphabetically by authors or should all text books be arranged in groups according to subjects, that is, classified? And, if classified, should there be a few large groups or numerous smaller divi- sions? Further, shall these groups themselves be ar- ranged alphabetically or in some other arbitrary fashion? Those who argue for a simple alphabetical arrangement of law text books by author claim these advantages: 1. That a book can be found and delivered to the inquirer in shorter time, i.e., convenience, particularly where free access to shelves is allowed. 2. That as law text books are always somebody's treatise on something they invite the author arrange- ment, i.e., naturalness. They claim that a classified system is objectionable because : 1. You cannot place a book on two subjects in two places. 2 Attendants must be educated to the classification. 3. It is unnecessary where a subject catalogue is used. 4. Where the arrangement is alphabetical by sub- jects confusion will result because different people will call the same subject by different names. The most strenuous advocate of classification in law libraries is Mr. Wire of the Worcester County (Massa- chusetts) Law Library. He names the following advan- tages of such a system : L It keeps books on one subject together. 2. It keeps editions of one author together. (So should an author arrangement.) Municipal Reference Libraries 49 3. It answers ninety-five per cent of calls for books by showing what books you have on a given sul^ject." 4. It makes it unnecessary for one person to keep in his own mind what books there are on a particular sub- ject. 5. It puts law libraries in line with other libraries from the standpoint of scientific progress. Mr. Wire regards it as a scientific necessity. The gist of the matter was intimated above. The books in law libraries naturally fall into a few well defined groups, or classes, and no notation is needed to show into which group a given book falls except in occa- sional instances. In actual practice text books are more often arranged alphabetically by authors than by a system of classification. Although there are some advantages to a classified arrangement of text books, a good subject catalogue so supplements the author arrangement that classification is not essential. Both methods can be made to work well with good catalogues as guides, but the author arrangement is preferred by the majority.^* It should be noted that the arrangement of topics in the discussion of the materials in a law library presented in this text is an arrangement of materials for the pur- pose of discussion, not an arrangement made with a view to proposing a method of actually grouping and shelving the concrete materials themselves. This ar- rangement of topics, however, may suggest a grouping of materials somewhat similar. " This high percentage would hold good in very few libraries. "On this subject of classification consult V\^ J. C. Berry, "Law Classification Under the Author Arrangement." A. L. A. Bui. v. 1: p. 257-58 and G. E. Wire, "Subject Classification of Text Books." A. L. A. Bui. V. 1 : p. 258-60. 50 Law, Legislative Reference and A recent and satisfactory' system of classification for large law libraries is illustrated by the one adopted in the Law Division of the new New York State Library given below. Law Classification. (New York State Law Librar>'.) L Court reports, including digests, tables of cases, and citation books, grouped as follows: 1. American, arranged alphabetically by states, (a) The West Publishing Company System. 2. English, Irish, and Scotch, in one collection, arranged alphabetically by method of citation. 3. Canadian, first the Dominion, followed by the provinces in alphabetical order. 4. British colonies and possessions other than Canada. (This collection is at present small, and the final shelf arrangement has not yet been worked out. It will prob- ably be arranged in the same order as the British colonies and possessions are grouped in the "Colonial list.") 5. Series (generally annotated) : (a) of selected cases on all topics, and (b) of selected cases on certain topics. II. Collections of records and briefs in the following courts: 1. Supreme Court of the United States. 2. New York Court of Appeals. 3. Appellate Divisions of the New York Supreme Court. 4. Inferior New York appellate courts. III. Statute law. These fall into the same groups as are given above for the court reports, except that for this country, simply for the sake of convenience, the latest compilation or revision and suc- ceeding session laws for each state are shelved together as a separate collection. IV. City charters and ordinances, arranged alpha- beticallv bv cities. Municipal Reference Libraries 51 V. The journals, debates, addresses, etc., of con- stitutional conventions, including the constitu- tions proposed by them. VI. Legal periodicals. VI L Publications of legal societies. VIII. Trials. IX. General collection. The bulk of this collection consists of text books, encyclo- pedias, dictionaries, and, in general, works not falling definitely into I to VIII above, arranged alphabetically by author, editor, or title. From time to time certain books on the same subject will be taken from this section and a separate classifi- cation established for them. Section X represents one such separation which has already been made. X. "The literature of the law." Legal history, biography, essays, bibliography. (c) Cataloguing. Law libraries are coming more and more to regard the dictionary card catalogue not only as well adapted to their needs, but as a real necessity. The Law Division of the Library of Congress is printing cards for the books in its collection and these may be purchased by other libraries. The debated question as to whether a printed book catalogue is to be preferred to a card catalogue will not be discussed here further than to say that the card catalogue should come first, then, if resources are available have a printed catalogue also. Its usefulness will be great, reaching far beyond the four walls of the library it catalogues, as is illustrated by the printed catalogue of the Harvard Law School Library. By a dictionary catalogue is meant a catalogue in which books will be found listed under the author, under the subject, and when deemed necessary, under the title also. The cards are then filed in alphabetical order, author, subject, and title cards in one alphabet, just as the words are arranged in a dictionary. Some libraries 52 Law, Legislativ^e Reference and may prefer to file all author and title cards in one alphabet and the subject cards in another just as a matter of physical convenience in using the catalogue. There is a deal of material on the subject of cataloguing books in professional library literature and information on the general subject need not be repeated in this instance. Law library cataloguing is, however, a difficult branch of the general subject and has its special rules. Aids to cataloguers in determining correct author entries are the A. L. A. "Code," the printed cards of the Library of Congress, the printed catalogues of law libraries," especially the Harvard University Law School Library Catalog, and legal bibliographies.^^ Aids in assigning subject headings are less numerous and the matter is less settled than the question of author entry. Considerable assistance may be received from the increasing number of printed cards of the Library of Congress which note the subject headings there used and especially from Hupper's tentative list of these subject headings." It is hoped during the coming year to sup- plant this "tentative list" by a definitive list of subject headings and cross references for law library catalogues which will be the result of experience in the Library of Congress with the tentative list and of co-operation with a special committee appointed by the American Associa- tion of Law Libraries. Printed catalogues, indexes to legal publications, the standard headings of the West Pub- "See p. 40-41, supra. '* See p. 37-40, supra. " R. H. H upper, Tentative Headings and Cross-references for a Subject Catalogue of American atid English Law. Wash. Gov't. Ptg. Office. 1911. Municipal Reference Libraries 53 lishing Company's Digests, ^^ and the volume of headings ^' and sub-heads used in compiling the Index Analysis of the Federal Statutes, and particularly this Index Analysis ™ itself will all prove of value at one time or another. The A. L. A. Subject-headings will be suggestive in some cases. As more and more law libraries are coming to feel the need of a card catalogue to their collections they meet the problem of whether or not the printed cards of the Law Division of the Library of Congress should be used wherever available. The objection has been raised that there is too much information furnished on these cards, with the result that users of them who are not librarians become confused and unable to find what they are after. The same criticism has come from public libra- ries in certain instances also. While this result must be admitted as true in many cases, still the writer favors the use of these printed cards. The objection can be overcome by providing, in ^^ West Publishing Co., ^Iwimcan Digest main Heads and Subdivi- sions of Classification Scheme ; a logical A nalysis of the Law for the use of Indexers and Digest Makers comprising an Explanation of the Scheme, the Digest Headings with their main Divisions and Sub- divisions, and Scope-notes. Ed. 4. 130 p. St. Paul. 1904. The "Scope-notes" defining headings will be particularly valuable to the cataloguer untrained in the law. Brief definitions of the more general legal terms will be found also in Brief Making (supra), p. 303-433 (Appx. I. "Main Heads of the Law Defined"). ^'U. S.-Library of Congress-Law Division. Headings and Sub- headings for the Index to the Federal Statutes. Wash. 1906. ^G. W. Scott and M. G. Beaman. Index Analysis of the Federal Statutes . . . V. 1, 1873-1907 . . . General and Permanent Law in the Revised Statutes of 1873 and the Statutes at Large, 1873-1907, {vols. 18-34). Wash. 1908. M. G. Beaman and A. K. McNamara. Index Analysis of the Federal Statutes {General and Permanent Law), 1789-1873. \Vash. 1911. 54 Law, Legislative Reference and addition to these full entry cards demanded by exact bibliography, "short title" cards and others bearing the popular citation or catch title and omitting most of the detailed bibliographical information found on the printed cards. Such cards as these might file in the regular catalogue or, for convenience, might form a separate so- called "short title" or "citation" catalogue. If the law library keeps a file of the briefs of counsel, that is, the arguments of attorneys and other printed papers in Supreme or Appellate Court cases, a card index or catalogue by the title of the case is essential, unless these briefs are bound into volumes, numbered and paged to correspond to the printed volumes of the reported decisions.^^ (d) Shelf-arrangement. No hard and fast rules can be laid down for the exact arrangement of all the material to be shelved in a law library. There are certain generally accepted methods of arranging some of the larger groups of this material which may be mentioned. Taking up first the legal publications of the various states of the United States it may be said that the arrangement preferred considers the state as unit and not the form of pul)lication to be handled. The result- ing arrangement is that the session laws, revised statutes, codes, etc., court reports, digests, and local treatises of one state are shelved together in that order and that the collections of state material thus formed are shelved alphabetically by states. *' On cataloguing in a law library-, see further E. D. Adams, "Con- structing a Catalogue," Latt^ Library Journal, v. 3: p. 35-38; J. O. Emtrich, "Recent Experiments in Cataloguing the Alleghany County Law Library,"!,. L. /. v. 3: p. 41-44. Municipal Reference Libraries 55 Another plan is based on the form of the material as the unit and for the more important groups would result in the following arrangement: 1. Court Reports: I. State. (a) Arrange all state reports alphabetically by states; then in numerical order when num- bered, or chronologically if not numbered. (b) In states where the reports are better known by the name of the reporter editing them, especially for the earlier years, the sub-arrangement under state may be alpha- betically by the common way of citing them, i.e., by the reporters' names. In the case of New York State they would be arranged as Barbour, Cowan, Hill, Johnson, Taylor, Wendell. In Massachusetts as Gray, Pick- ering, etc. This latter method, however, is becoming less necessary and less used because the states are in many instances going back and assigning numbers to the volumes of the earlier reports heretofore known by the reporter's name.®^ II. Other Court Reports. (a) English. The reports of the English courts before 1865 are all known by the (unofficial) reporters' names and should be arranged alphabetically by them. Since 1865 they have been numbered in series, each series being known by the name of the court whose decisions it reports. The suggested arrangement would be alphabetically by series and within each series numerically. ^'^ See p. 15, supra. 56 Law, Legislative Reference and (b) FederaL The reports of United States federal courts may pre- cede those of the separate states with the United States Supreme Court Reports arranged chronologically or numerically, and the circuit and all other reports arranged alphabetically by the reporters' names. Or, this group may take its alphabetical place under the "U" in the general group of state reports. (c) Special Series. Special series have no exact place that can be definitely assigned in a general and merely suggestive scheme such as this. They would naturally be shelved a little apart from but convenient to other reports. Inferior courts which must receive slight attention in this introductory work, including circuit, probate, and other courts, in many instances print volumes of decisions which must be shelved with due regard to other such material. Obviously, the way to learn how best to arrange a law library in detail is not to read how in a book but to go into one already well arranged and get the benefit of the visual impression. 2. Briefs of Counsel. The make-up of these volumes composed of the printed papers filed before courts will determine the method of shelv^ing within the series. Within a set volumes will be arranged numerically either by a con- secutive number arbitrarily assigned, or, if bound and paged to correspond with the volumes of printed reports, in the same order that the reports themselves have been given. Briefs of counsel should be shelved together in sets even when the papers making up the individual Municipal Reference Libraries 57 volumes are arranged and paged corresponding to the volume of reports which they supplement. 3. Trials. The volumes in a separate group of collected trials would be arranged alphabetically by the compiler or editor of the collection or, by the title if usually so cited. Individual trials, like individual biography, should be arranged alphabetically by the names of the individual. 4. Statute Law. The arrangement of laws themselves present certain difficulties. The latest compilation or revision with the session laws down to date for all the states should be readily accessible on open shelves. Laws may be placed alphabetically by states and chronologically within each state group. Sets of session laws are often separated from codes, revisions, and compilations. 5. Text-Books. As previously noted, text-books will be arranged alpha- betically by authors as a rule, though they may be classi- fied and then arranged by authors. When classified an alphabetical arrangement of subjects may be adopted or some other arbitrary grouping. 6. Periodicals. These are usually arranged alphabetically by titles. A larger division by the language in which printed may be desirable in the largest libraries. Some periodicals which are nothing but advance sheets of court reports may be shelved with the reports. 7. A separate group of bar associations' reports would arrange alphabetically by the name of the asso- ciation and chronologically within each group. 58 Law, Legislative Reference and 8. Legal Miscellany. Of the "legal miscellany," so-called, bibliographies and catalogues of libraries and dealers would naturally be placed in the librarian's office arranged by author and dealer. There should be separate collections of biography, collective and individual. The term text-book may be interpreted broadly enough to permit the shelving within that collection of all mis- cellaneous material not obviously falling into some other definite class. ^^ (e) Loans. Loaning books from a law library is often prohibited by some rule of the governing board. More often the privilege is restricted to judges, state or local officers, and specially privileged persons. The regulations governing the loaning of books will depend on whether the library is an adjunct of a court or has some official relations. Generally speaking, restricted circulation is feasible where the librarian has the right to recall a book when needed. Certain books, like the local statutes, reports, and other material likely to be called for at any moment by a court or others cannot be loaned, at least not out- side the building the library is in. The loan record should be simple, an author record and usually a borrower's record, as attorneys and state officers will often ask what books are charged to them and expect an immediate and complete answer. Such a list is also a convenience in recalling loans. It is well to "See further L. H. Sage, "Arrangement of Law Books," inA. L. A. Bui. V. 2: p. 296-98. Sept. 1908; summary in Library Work. Jan. 1909, p. 191. Municipal Reference Libraries 59 file the slips noting the author and title of books loaned by the date taken if there is a fine system applicable to overdue books. Patrons of a law library are more strict than others in demanding a receipt for books returned — a characteristic which others could well copy. (f) Citing Law Books and Legal Abbrevia- tions. Law publications are cited in great numbers in all legal writing and almost always by short abbreviations. Many of these become familiar by reason of their fre- quent appearance, but the novice must know where they are explained and some of the abbreviations met are unintelligible both to the legal bibliophile and the seasoned practitioner of the law. Too many sources wherein these are explained cannot be known by the law librarian. Contrary to the usual custom elsewhere the volume number is given first in citing court reports; then the name of the reporter or the state or jurisdiction issuing the report, and last the paging. Thus, 10 Johnson 246; 11 Mass. 81; 33 111. 78; signifying volume 10 of John- son's New York Reports, volume 11 of the Massachusetts Reports, and volume 33 of the Illinois Reports. Laws are cited similarly. The following is a brief list of books in which explana- tions of legal abbreviations will be found. A much longer list appears in Frederick C. Hicks' Aids to the Study and Use of Law Books, 1913. 1. Amer. &' Eng. Cyc. of Law. Ed. 2. v. 1, p. 102-161. 2. Black, H. C: Law Dictionary. Ed. 2. 1910. p. 1235-1314. 60 Law, Legislative Reference and 3. Bouvier, John: Law Dictionary. New ed. Bost., 1897. p. 9-50. 4. Brief Making and the Use ofLawBooks. Ed. 2. 1909. p. 435-557. 5. Decennial Digest, v. 21, p. vii-xvi. (Pre- ceding the table of cases). 6. T. H. Flood & Co.: Catalogue of Law Books. 1910. p. 166-196. 7. Ohio Supreme Court Law Library Catalogue. 1910. 8. Soule, C. C: Lawyers' Reference Manual. 1883. p. 345-497. 9. Sweet & Maxwell's Lawyers' Reference Book. 1907. p. 32-57. 10. U. S. Dept. of Justice Catalog. 1904. p. v-xlvii. 4. Legal Works in a General Library. (a) Nature of the Usual Inquiry. The inquirer in a law library usually wants a definite book or has a definite situation in mind and wishes to know the law as applicable to this situation. So it may be with the inquirer seeking legal information in the general library, but, in this latter case, it is perhaps more often a general knowledge of legal principles from a cultural or philosophical point of view rather than a practical knowledge of the law as applied to a given set of facts that will be sought. (b) Types of Books and Periodicals Needed. It is therefore a debatable question whether the pub- lic library should make any attempt to secure the tech- nical legal treatises which are the every-day tools of the practicing lawyer and the text-books of the student of law. Factors in determining local policy in this regard will be the availabilitv of such works elsewhere in the Municipal Reference Libraries 61 community, the size of the public library, its book- purchasing budget, and the local demand for legal text- books in the public library. A policy justified in one place may not be justified in another. The A. L. A. Catalog 1904, and the ^. L. vl. Catalog 1904-1911 will be found exceedingly helpful in making a selection of the politico-legal works definitely suited to the needs of the public library. The sections par- ticularly referred to are those on Law (classes 340-347), Administration (350-354), and certain divisions of the Political Science section (classes 320-329), such as Suffrage (324), Legislative Bodies (328), and Political Parties (329). The reviews and notices in legal and political science journals as well as the A. L. A. Booklist will serve as useful guides in making additions. Three recent series of legal publications may receive special mention in this connection, being suited to the needs certainly of the large public libraries. They are The Continental Legal History Series translated and pub- lished under the auspices of the Association of American Law Schools, ^^ The Modern Legal Philosophy Series, under the same auspices, ^^ and The Modern Criminal Science Series, translated and published under the aus- pices of the American Institute of CriminalLaw and Criminology.^^ These three series, each of which attempts to put into the hands of English readers the most authori- tative works in the field selected, will occupy, when com- pleted, a unique and enviable position in the historical literature of jurisprudence, the philosophy of law, and modern criminology. The following lists of titles " Pub. by Little, Brown & Co., Boston, 1912 . •^ Pub. by The Boston Book Co., Boston, 1912 . «« Pub. by Little, Brown & Co., Boston. 1911 . 62 Law, Legislative Reference and included indicate the scope of these enterprises and the weight of authority represented in both authors and translators. The Continental Legal History Series: Bar, Ludwig von. Historv of Continental Criminal Law, tr by Thos. S.'Bell. 1913. (v. 6.) Brissaud, Jean. History of French Private Law, tr. by Rapelje Howell. 1912. (v. 3.) History of French Public Law, tr. bv James W. Garner. (Ready in 1914.) (v. 9.) Calisse, Carlo. History of Italian Law, tr. bv John Lisle. (Ready in 1915.) (v. 8.) Engelmann, Arthur. History of Continental Civil Procedure, with a chapter by E. Glasson, tr. by Robert W. Millar. (Ready in 1914.) (v. 7.) Esmein, A. History of Continental Criminal Procedure, with chapters by Francois Garraud and C. J. A. Mitter- maier, tr. by John Simpson. 1913. (v. 5.) Hijbner, Rudolf. Historv of Germanic Private Law, tr. by Francis S. Philbrick. (Ready in 1914.) (v. 4.) Huvelin, Paul. History of Continental Commercial Law, tr. by Ernest G. Lorenzen. (Ready in 1915.) (v. 10.) Manson, Edward., ed. Great Jurists of the World from Papinian to von Ihering. 1912. Tarde, Gabriel, Raoul de la Grasserie, and others. The Evolution of Law in Europe, (v. 11.) Wigmore, John H., ed. General Survey of the E\'ents, Sources, Persons, and Movements of Continental Legal History. (Various translators.) 1912. (v. 1.) Municipal Reference Libraries 63 The Modern Legal Philosophy Series: Berolzheimer, Fritz. The World's Legal Philosophies, tr. by Mrs. R. S. Jastrow, 1912. (v. 2.) Fouill6e, A., and others. Modern French Legal Philosophy, tr. by Joseph L. Chamberlain and Mrs. E. F. Scott. 1913. (v. 7.) Gareis, Karl. The Science of Law, tr. by Albert Kocourek. 1911. (v. 1.) Ihering, Rudolf von. Law as a Means to an End, tr. by Isaac Husik. 1912. (v. 5.) Kocourek, Albert, ed. Selected Essays in Modern Legal Philosophy. (v. 9.) Kohler, Josef. The Philosophy of Law. 1912. (v. 12.) Korkunov, N. M. General Theory of Law, tr. by W. G. Hastings. 1909. (v. 4.) Miraglia, Luigi. Comparative Legal Philosophy, tr. by John Lisle. 1912. (v. 3.) Stammler, Rudolf. The Theory of Justice, tr. by Frederic S. Spiegal. (v. 8.) Tourtoulon, P. de. Philosophy in the Development of Law, tr. by Robert L. Henry, (v. 13.) Vanni, L The Positive Philosophy of Law, tr. by John Lisle. (Ready in 1914.) (v. 6.) Vecchio, G. del. The formal Basis of Law, tr. by John Lisle. 1913. (v. 10.) Wigmore, John H., ed. The Scientific Basis of Legal Justice. (To be selected.) (v. 11.) 64 Law, Legislative Reference and The Modern Crinmial Science Series: Aschafifenburg, Gusta\ . Crime and its Repression, tr. by Adalbert Albrecht. (V. 9.) Bernaldo de Quiros, C. Modern Theories of Criminality, tr. by Alphonso deSalvio. 191L (v. L) Bonger, W. A. Criminality and Economic Conditions, tr. by Henry P. Horton. (v. 7.) Ferri, Enrico. Criminal Sociology, tr. by Joseph L Kelley. (V. 5.) Garofalo, Raflfaelle. Criminology, tr. by Robert W. Millar, (v. 8.) Gross, Hans. Criminal Psychology, tr. bv Horace M. Kallen. IQIL (v. 2.) ' Lombroso, Cesare. Crime, its Causes and Remedies, tr. by Henry P. Horton. (y. 3.) Saleilles, Raymond. The Indiyidualization of Punishment, tr. by Mrs. R. S. Jastrow. 191L (v. 4.) Tarde, Gabriel. Penal Philosophy, tr. by Rapelje Howell. 1912. (v. 6.) There is a legitimate doubt as to the wisdom of attempting a list of legal periodicals appropriate as a first choice for either the small law library or the general public library. Opinions naturally differ and between certain periodicals of the first class no choice can prop- erh' be made on a merit basis, limited resources only making selection a necessity. Among the most desir- able journals would be classed the American Journal of International Law, the American Law Review, Central Law Journal, Columbia Law Review, Green Bag, Harvard Municipal Reference Libraries 65 Law Review, the Journal of Criminal Law and Criminol- ogy and, in every case, the local state law review. Journals relating to the legal side of certain lines of business may properly find their way into the general reading-rooms of the larger public libraries, such as, for instance, the Insurance Law Journal. Putting aside the question of how desirable legal text- books or periodicals may be in the public library, it can be stated definitely that each such library owes it to its clientele to have on hand the federal and state laws in force to date, including the latest compilation or revision with subsequent session laws, and the latest compilation of local ordinances with the later action of the city council shown by annual volumes and advance sheets of council proceedings, minutes, or acts in whatever form published. For the United States as a whole this would mean the presence of the Compiled Statutes or the Federal Statutes Annotated, with supplements, the subsequent Statutes at Large, Session Laws, and when possible, the slip laws. 66 Law, Legislative Reference and CHAPTER IL LEGISLATIVE REFERENCE WORK. Topical Outline. 1. Origin and Development. (a) The Problem of Intelligent Legislation. (b) The Legislative Reference Bureau one Factor in its Solution. (c) The Origin and Development of the Legislative Reference Movement. 2. The Materials. (a) Legal and Documentary. L Existing Law and its Judicial Interpreta- tion: Constitutions, treaties, statutes, court decisions. 2. Proposed Law. Bills and constitutional amendments. 3. Public Documents, (a) National. L Bibliographical Statement. 2. The Congressional Set and Illus- trative Documents. 3. Departmental Publications and Compilations of State Laws in Federal Documents. 4. Indexes, Check-lists, and Sources for Current Information, 5. Foreign Documents. (b) State. 1. Bibliographical Statement. 2. Illustrative Documents. 3. Indexes, Check-lists and Sources for Current Information. Municipal Reference Libraries 67 (c) Municipal. 4. Parliamentary Law and Precedents. 5. Brief of Counsel. (b) Books. (c) Serial Publications. Periodicals, society proceedings, etc. 1. General. 2. On Comparative Legislation. (d) Miscellaneous Pamphlets. (e) Correspondence. (f) Clippings. (g) Bibliographical Aids. Bibliographies, indexes, etc. 3. Handling of Material. (a) Staff Organization and the Division of Labor. (b) Acquisition. L Sources to be watched for notices of new material. 2. Actual Acquisition. (a) Gift. (b) Exchange. (c) Purchase. (c) Classification. (d) Cataloguing. (e) Shelving and Filing Methods. 4. Preparing for a Legislative Session. (a) Work During a Session. L Reference Work. 2. Bill-drafting and Legislative Procedure. 5. Qualifications of a Legislative Reference Libra- rian and Opportunities for Training. 6. Present Success and Support. 7. Future Possibilities, Co-operation, and Exten- sion. 68 Law, Legislative Reference and LEGISLATIVE REFERENCE WORK. 1. Origin and Development. (a) The Problem of Intelligent Legislation. Some six years ago a series of discussions at the annual meeting of the American Political Science Asso- ciation on the general topic The Making and Revision of Law began with a statement of the "Problem of Intelli- gent Legislation ^ " by Professor Ernst Freund of the University of Chicago. Professor Freund stated his prob- lem as follows : "Given a legislature of average ability, fairly represent- ati\'e in character, not exempt from political bias or pop- ular prejudice, but willing on the whole to act according to the best of its lights, such a legislature as we now have, and shall have for many years to come: how can it be enabled to perform its task more creditably and most efficiently ?" Realizing that this question has always engaged the attention of legislative bodies — "their attention far more that that of the people at large" — he inquires "Why, after a hundred years' experience and experi- ments, a satisfactory solution has not been found, and why it is that only now the subject is beginning to arouse popular attention and interest?" In his own answer to this question he points out numerous contributing and co-operative causes, to which attention may be called with profit in the present in- stance. After inheriting English Common Law, English conser\^atism toward it was lacking; in practice laws were passed, their defects in opei ation observed ; then and ' American Political Science Association Proceedings, 4: 69-79. (1907.) Municipal Reference Libraries 69 not until then were changes proposed; thus too little foresight and study preceded the original enactment of laws. Again, industry developed enormously; allied interests combined; employers organized; employees organized. Powerful agencies to resist legal regulation were established. On the other hand, but contributing to the same result, American legislatures lack permanency and are made up largely of inexperienced men, men who are compelled to attempt during one short legislative session to render expert judgment on a thousand bills involving a far greater number of intricate, complex, and technical subjects. In the progress of law-making as developed in this country Professor Freund finds three prominent defects which the legislatures themselves are in a position to remedy. First, there is a lack of individual responsibility upon members. They may introduce any number of bills, assuming responsibility for neither content nor form. His several remedies suggested for this first defect include a limitation on the number of bills allowed each member, a statement of the interests instigating the introduction of a measure, the presentation of an ex- planatory memorandum with each bill, the publication of bills before introduction, and a freer exercise of the executive veto power. The second of the three defects is the lack of expert advice, advice both as to content of legislation — that it may better reflect community needs in the light of comparative community experience — and advice as to the correct legal form of the proposed laws. Instead of being the result of special study by specially trained experts, legislation too often reflects vague and unnatural 70 Law, Legislative Reference and beliefs and popular prejudices. More often this result has been due to the lack of opportunity, time, and facilities for study than it has to any intentional slighting of obligations. It is this lack of opportunity, time, and facilities that can and should be remedied. Further, errors in legal form arc due in no small part to the variety and uncertainty of constitutional limitations, and to the absence of expert draftsmen, quite as much, perhaps, as they are due to a failure to observe known rules and to the use of ambiguous phraseology. Yet, these also are preventable causes which unfortunately operate all too frequently to produce undesirable results. The legislative reference library was first created and the legislative reference movement has since developed as a definite though partial remedy for this second defect. (b) The Legislative Reference Library. The main purpose of legislative reference work, is then, the improvement of legislation. It is a conscious and conscientious effort to furnish at least one of the essen- tially necessary factors in a correct and unbiased solution of the problem of intelligent legislation. Legislative reference work seeks to provide members of legislatures, state officers, and those of the public at large interested in law-making with the data of existing law and com- parative experience to the end that legislation may henceforth represent the actual needs of the people as made known through careful sur\'eys of social and economic conditions, well grounded theories, and through the adaptation to these conditions of existing law to whatever extent comparative experience shows it to be properly adaptable. It further endeavors to improve legislation from the standpoint of legal form. Laws when passed should Municipal Reference Libraries 71 conform to the requirements of the constitution of the state and of the nation, and should be free from technical, legal inaccuracies, containing, however, all that is con- stitutionally and legally essential. The third defect Professor Freund considers under the head lack of principle. By principle is meant "the permanent and non-partisan policy of justice in legis- lation, the observance of the limits of the obtainable, the due proportion of means to ends, and moderation in the exercise of powers which by long experience has been shown to be wise and prudent, though it may be tem- porarily inconvenient or disappointing in the immediate results." Constitutional limitations lay down certain principles of legislation; but alone they are not able to accomplish all that is desired. Voluntary restraint is politically more valuable than constitutional restraint. In legislation which concerns important economic and social interests, the general principles of such laws are being worked out with some care; but as to the legal and judicial aspect of legislation there has been as yet no such body of principles established in a scientific manner. For this defect, legislation based upon expert advice may also be expected in the course of time to bring some remedies. Some of these same defects, with others — such as the lack of responsibility of political parties, the lack of uniformity in the parliamentary practice of the several state legislatures, lobbying, the abuse of the committee system, and so on — have received adequate exposition in the writings of numerous other students of govern- ment, for example, Professors Paul S. Reinsch,^ and ^ Paul S. Reinsch, American Legislatures and Legislative Methods, 337 p. N. Y. Century Co. 1907. (American State Series.) 72 Law, Legislative Reference and Chester Lloyd Jones.' But with these or other contribut- ing causes which combine to make difficult this problem of intelligent legislation the present text has no further immediate concern. It is primarily concerned at this point with the part the legislative reference library may play in supplying the second shortcoming of the three found in this process of law-making, namely, the lack of expert advice. More particularly, the main purpose of this text is to discuss the material which goes into such a library, its content, acquisition, and technical treat- ment largely with a view to making known sources of information. Bill-drafting, the science of expressing in proper lan- guage according to the requirements of the constitution and the law, the content of intended legislation, is, how- ever, not given present consideration except incidentally, law-making from the standpoint of legal form being the subject of other treatises to which reference is made in due course.^ (c) Origin and Development of the Legisla- tive ReferExNCE Movement. When and where it first became apparent that there was this definite "problem of intelligent legislation" can hardly be stated with any degree of exactness. State libraries themselves were originally created with a view to providing a reference library, mainly legal, for the use of the members of the state government, including the Executive, the administrative officers, and the mem- bers of the legislature. The modern idea of library ' Chester Llovd Jones, Statute Law Making in the United States, 327 p. Boston Book Co. 1912. Cf. further, "Faults in State Legislation and Proposed Remedies," in Charles A. Beard's American Government and Politics, p. 540-46. * See appendix, Inbliography and p. 17.5-8.5, 208-12, infra. Municipal Reference Libraries 73 service did not really develop, however, until the last quarter of the nineteenth century and even then, with one or two notable exceptions, did not receive an enthu- siastic backing from state libraries. Except in the case of Massachusetts, New York, and perhaps a few other states, the state library was not at this time an active agent of library progress. Library work was poorly done. Politics exerted too great an influence in appointments; the library executive was too frequently not in sympathy with his work, or at best was a collector lacking the additional qualifications of the administrator. Insuffi- cient appropriations hampered those who otherwise could have gone ahead, and collections of books and documents remained inadequate and uncatalogued. Though, as has been indicated, the possibilities in the situation had occurred to but few librarians, at least one had a definite appreciation of them. This was made evident by the appointment by Melvil Dewey, the Director of the New York State Library, in 1890, of a legislative reference librarian, to be exact, a legislative sub-librarian, in the state library at Albany. By this action 1890 became the date when the movement to establish so-called legislative reference libraries and to do "legislative reference work" as a partial solution of this problem of intelligent legislation assumed definite shape and first received formal recognition.^ The principal task allotted to the first appointee, Mr. A. B. Shaw, and to his successors for a number of years, was the preparation and publication annually of a classified summary of and index to the general legislation * Cf. Robert H. Whitten, "Two Decades of Comparative Legisla- tion" in the A. L. A. Bui. v. 3: 296-98; an extract of this appears in 62d. Cong. 1st Sess. S. Document 7, p. 6, also in 62d Cong. 3d Sess. S. Report 1271, p. 40. 74 Law, Legislative Reference and of the several states, a piece of work since enlarged in scope but which from the beginning has held first place as a tool in the study of comparative state legislation. Wisconsin followed eleven years later developing new methods and new ideas with rapidity and success, the credit for which belongs to Dr. Charles McCarthy, still at the head of the enterprising and progressive depart- ment in that state. Since then thirty-two additional states have under- taken this work on varying scales.® Some have followed New York and have created a legislative reference divi- sion in the state library under what may perhaps be termed the doctrine of implied powers, that is, without special legislation. These are California, Connecticut, Iowa, Kansas, Massachusetts, Montana, Oregon, and Washington. By specific legislation other states have created a division in the state library for doing this work, as is instanced by New Hampshire, Michigan, Rhode Island, South Dakota, Texas, and Vermont.'^ A return to the original idea underlying the establishing of state libraries, or perhaps it should be called a new emphasis on this idea, is seen in the change which was made in the California State Library after a few years of experimenting with a separate legislative reference di\ision. In May, 1913, their attitude was expressed in the following language: "Two years ago we abolished the legislative reference department as such, because we have found that such a department attempting to gather material on subjects which may come up for legislation must necessarily dupli- cate much of the material contained in a library the size • See Apx., p. ;i84-S.5. ' Sjee Apx., p. 347-79, for texts of laws. Municipal Reference Libraries 75 of this one. Our idea is that a large library is essential to any sort of reference work. We have a legislative reference librarian, it is true, but during the sessions of the legislature the whole staff of the state library may and as a matter of fact is put upon phases of legislative reference work. During the session of the legislature which has just closed, we had opportunity to try out this plan. This session was the longest in the history of the state, more bills were introduced and more were finally passed than ever before. The state library was called upon for greater service than ever. We feel highly pleased with the record which the library made during this session, and are more thoroughly convinced that legislative refer- ence work can be carried on more satisfactorily through the library as a whole than it can through a separate department." In this connection it should be said that in several other instances state libraries, without creating or having created for them a separate division and without any additional appropriation, are attempting legislative reference work in some degree. Perhaps it would be better in describing their work to say, as another has suggested, that it is really general reference work on subjects of legislation and not legislative reference work in a strict and more exact sense of the term.^ And, judging from what one enterprising state ^ accomplished for a number of years without an appropriation, all are not going as far in this direction as energy and the spirit of public service could make possible. In this group doing at least general reference work on subjects of legislation would come the state libraries of Illinois, « C/. C. B. Lester, "The Present Status of Legislative Reference Work." A. L. A. Proceedings, Kaaterskill Conference, 1913, p. 199- 202. ' Rhode Island. 76 Law, Legislative Reference and Kentucky, Maine, Minnesota, Mississippi, New Jersey, and Virginia though not all are subject to the criticism just made. Whether the activity in this direction is an indication of a more general though natural return to the original idea back of the founding of state libraries, or whether it is due to the more or less competitive influence of the numerous efficient and well-developed legislative reference bureaus, cannot easily be determined. In still other states legislative reference work is carried on by other agencies. An Alabama law of 1907 put the work in the hands of the Department of Archives and History. The Indiana department was under the state library by the original law of 1907, but in 1913 became a separate organization with the title Bureau of Legis- lative and Administrative Information. Pennsylvania has had a similar experience. In April, 1909, there was created a legislative reference bureau in the Pennsylvania State Library. Two years later the original law was amended and the bureau put under its own administration with enlarged powers and duties. The term of the director was changed from "during good behavior" to four years, but he remained an appointee of the Governor. Although the bureau is regarded as, and for all practical purposes actually is, an independent organization, yet by the letter of the law it is still the legislative reference bureau of the Pennsylvania State Library.^" The Nebraska department was organized in 1906 as a part of the Nebraska State Historical Society, but in 1911 a separate Nebraska Legislative Reference Bureau was created by law to be affiliated with the Department of Political Science and Sociology and with the College " See apx., p. :i.58-61. Municipal Reference Libraries 77 of Law of the University of Nebraska and placed under the rules and regulations of the Board of Regents of the State University. The University of Washington at Seattle, in its Ex- tension Division, has recently established a Bureau of Municipal and Legislative Research and thus becomes one of the small but increasing number of state univer- sities which are seeking to put their specialists in govern- ment and administration and their specialized library facilities at the disposal of state and municipal officers. In Colorado the State University, located at Boulder, sent a member of the Political Science faculty to Denver during the last session of the legislature who successfully inaugurated a legislative reference bureau at the State House. The University of Arizona at Tucson is another institution said to be making definite plans in this direction. Illinois since 1907 has made biennial attempts to establish by an act of legislature some agency for doing legislative reference work. An independent bureau at Springfield, a division of the state library, a legislative and administrative reference bureau at the University of lUinois in Urbana, and a joint legislative commission empowered among other things to conduct a legislative reference department, have been proposed at various times. The last three proposals all came before the 1913 session; the final one, advanced for the first time at this session, was adopted in modified form. The bureau provided for Illinois is composed of the Governor, the chairmen of the Senate and House Appro- priations and Judiciary committees, five members who shall serve without pay, and a secretary. The secretary is the executive officer and shall receive a salary not 78 Law, Legislative Reference and exceeding So, 000 per year. Both the secretary and the other members of the bureau's working staff are selected by the governing board according to the law. Various sums were proposed for the work of the bureau, but the amount carried by the appropriation bill as passed was 825,000 per year for the first biennium. Of this amount one half was vetoed by the Governor who struck out the words "per annum" in the bill, leaving $25,000 to be expended in two years as the bureau should see fit. From the full text of the law it will be seen that several new features await development. Not only shall the bureau supply information as to existing law and comparative legislative experience, and aid in bill- drafting, but it shall establish a budget system in the handling of state appropriations and shall place before members of the legislature each week during sessions an accurate statement of the present status of all pending legislation. In North Dakota, Wisconsin, and now in Ohio, the work is part of that assigned to the library commission. In the first state there is a legislative reference "bureau" established by the Public Library Commission; in the second a "department" which is a part of the Wisconsin Free Library Commission. In Ohio the law of May, 1910, which had established a "legislative reference and information department" in the state library was changed in January, 1913, so that there is now an independent legislative reference department, nominally under the direction and supervision of the state board of library commissioners. In some states the library commission, as in others the state librar\^ is trying to render assistance to members of the legislature without any special facili- ties or funds and without having created any special Municipal Reference Libraries 79 department to perform this service. Missouri and New Jersey illustrate this. In Maryland the legislative reference department of the City of Baltimore is authorized by the city charter to collect information relating to subjects of proposed state legislation as well as to serve the interest of those officially connected with the Baltimore city government. There is also on foot a movement to establish an agency which shall serve the national Congress in the same manner that state legislative reference bureaus are now serving state legislatures. At the third session of the sixty-second Congress, bills were introduced by Senator La FoUette ^^ and Senator Owen ^- on this subject. The former would create an independent Legislative Drafting Bureau and also a Legislative Reference Divi- sion of the Library of Congress; the latter sought "to establish the Legislative Reference Bureau of the Library of Congress and the Congressional corps of legislative investigators, and to maintain them until July 1, 1914." Accompanying the report ^^ of the Senate Committee on the Library relative to these bills are the committee hearings held February 4, 1913." In two appendixes appear the Letter from the Librarian of Congress trans- mitting special Report Relative to Legislative Reference Bureaus ^^ and the Hearings before the Committee on the " S. 8337. »2 S. 8335. " 62d Cong. 3d Sess. S. Rept. 1271. " Senator Owen's proposal to have at least ten professors of Social Science at the head of as many departments of this Congressional Legislative Reference Bureau is but one of the many interesting points brought out in the Hearings. '* 62d Cong. 1st Sess. S. Doc. No. 7. This contains Congressman Nelson's bill, with alterations suggested by Dr. Putnam, Librarian of Congress. 80 Law, Legislative Reference and Library of the House of Representatives February 26, and 27, 1912. These hearings were held on various house bills ^® that had been introduced. The occasion was notable because of the appearance of Mr. Bryce before the committee, not as British Ambassador, but as author of the "American Commonwealth," a scholar and states- man, ready to put his unique knowledge of British par- liamentary procedure at our disposal. He discussed particularly the office of parliamentary counsel, the occupant of which is the government's bill-drafting expert, and he indicated clearly the definite value to the government of having in its service a man of such expert knowledge and experience in framing legislation, whose tenure of office is secure and free from political influence. Up to the present time no bill to create a national bureau has passed Congress, but committees of both houses, after careful investigation, have strongly urged their passage." 2. The Materials. (a) Legal and Documentary. As the improvement of legislation is the aim of legis- lative reference work, existing law must first be examined before any improvement in legislation can be attempted. But to achieve improvement additional data, the product of experience with existing law under known conditions, must be studied and applied. The complexity and multiplicity of subjects which the legislation of today is made to cover would make it appear that at least '« 62 Cong. 1st Sess. H. R. 18720, 31356, 4703. " 62d Cong. 3d Sess. S. Report 1271 and H. Reports 1533 and 1534; also 63d Cong. 1st Sess. S. Report 73. Favorable action during the present Congress is not at all unlikely. Municipal Reference Libraries 81 theoretically a spacious library, unlimited in scope, is the best laboratory for this work. Actually, however, it is the carefully selected library offering the latest and the best in convenient and compact form that renders service most effectively. At the same time the work should be carried on within easy reach of the full resources of large collections in the fields of law, political and social science, history, and economics. The law library, whose resources have already been characterized, is obviously a strong ally of the legislative reference bureau and indeed all of its collections will serve their turn in illuminating some point bearing on proposed legislation. In recalling these resources a difference in purpose must be borne in mind. The lawyer must apply the law as it is and find precedents consistent with and interpreting this law, to the end that his client may secure justice; the legislator deals with existing law as a basis for change, as a malleable or workable substance, a mere frame-work of the law that is to be. 1. Existing Law and its Judicial Interpretation. Constitutions, treaties, statutes, court decisions. It has already been noticed ^^ that existing law is found in constitutions, treaties, statutes, and decisions, and that the latter not only put the common or unwritten law into positive language but frequently judicially interpret, apply, and determine the constitutionality of enacted statutes. State constitutions are available as a rule in a number of separate sources for each state. They are generally found at the beginning of all editions of the revised or compiled statutes, in the legislative manuals or state ^^ Ante, p. 13-29. 82 Law, Legislative Reference and "blue books," and are frequently issued in separate pamphlets by the secretary of state. Occasionally they are published in book form with extensive annotations and exhaustive citations to decisions interpreting almost every phrase in the constitution. Good examples of annotated constitutions, or, as they might almost be called, treatises on the constitutional law of the separate states are Walter McElreath's Treatise on the Constitution of Georgia ^^ and Henry G. Snyder's Constitution of Okla- homa.-^ In the Llnited States government documents the state constitutions have nearly all been published at one time or another, generally about the time of admission, and may be found in the collected documents. In the case of the recently admitted states, they can still be obtained as separates. The printing of the constitution of Arizona as Senate Document 798 of the 61st Congress 3d Session (1911) is an instance. In addition, local state histories or school civics books are quite likely to contain this fundamental document of state government. While all these sources should be known to the legislative reference librarian, the annotated editions and the pamphlet editions will be found most useful and best suited to the needs of the ready reference library. The latest compilation of state constitutions is Francis Newton Thorpe's work, entitled Federal and State Consti- tutions, Colonial Charters and other Organic Laws of the States, Territories, and Colonies now or heretofore forming the United States of America, published by the govern- ment printing office at Washington, as 59th Congress 2d Session, House Document 357 (serial nos. 5190-94). » 700 p. Atlanta. 1912. »" 521 p. Kansas City, Mo. 1908. Municipal Reference Libraries 83 This compilation supersedes the earlier, well-known Charters and Constitutions (1600-1878) of Benjamin Perley Poore,^^ the New York Constitutional Convention Manual which contained in two volumes the constitu- tions of the several states as existing in 1894,^2 and Frank- lin B. Hough's American Constitutions, 1871.^^ Valuable as it is, Thorpe's compilation should not be used indis- criminately by historical students without first noting the errors pointed out by Professors Jameson and Dodd in their reviews in the American Historical Review ^'^ and the American Political Science Review?^ A list of omissions from Thorpe has been made by Alfred Z. Reed in his Territorial Basis of Government under the State Constitutions; Local Divisions and Rules for Legislative Apportionment, published as volume forty of the Columbia University Studies.-^ More recently some comparative summaries or digests of state constitutions have appeared which deserve atten- tion. These are the Digest of State Constitutions ^^ pre- pared for the use of the Ohio Constitutional Convention of 1912 by a committee of the Municipal Association of Cleveland and edited by T. H. Newman, then state librarian of Ohio, and State Constitutions, Comparative Provisions, a collection of twenty-eight pamphlets in which the provisions of the various state constitutions are compared with similar provisions in the Michigan Constitution of 1850. These were prepared by the "2v. Wash. 1877. ^ 2 V. Albany. 1894. " 2 V. Albany. 1871. "v. 15: 153-55. «v. 4: 135-38. 2* See his "Bibliographical Note," p. 242-50. " 271 p. Columbus, Ohio. 1912. 84 Law, Legislative Reference and legislative reference department of the Michigan State Library for the Constitutional convention of 1907. Another source for the comparison of analogous provi- sions in state constitutions is Frederic J. Stimson's The Law of the Federal and State Constitutions of the Lnited States,^ 1908, supplementing in Book IIP^ that part"" of his earlier work, American Statute Law, which presents the same data to 1887. Tendencies in the development of state constitutions to 1887 were considered in Henry Hitchcock's American State Constitutions.^^ Professor James Quayle Dealey's Our State Constitutions,^"^ 1907, is a comparative discussion of various provisions and does not present texts. The proceedings or minutes of constitutional conven- tions and the debates, frequently published in full, throw valuable light on the original intent of the framers and aid in a proper interpretation of the final form of the document. The legislative reference library has shown itself of great value to constitutional conventions and should have the proceedings of similar bodies in its col- lections. A partial list of these proceedings appears in the "Bibliography" of the Ohio Digest of State Con- stitutions^^ already mentioned. A more extended list appears in the list of "Authorities" ^^ in Thorpe's collec- tion. 28 Bost. Boston Bk. Co. 1908. 2' Book III: "The State Constitutions digested, annotated, and compared with the Federal Constitution." '"v. I. p. 1-114. " Putnam, N. Y. 61 p. ^ Supp. to the Annats of the American Academy of PoHtical and Social Science, March, 1907. 98 p. " p. 249-52. "v. I. p. xv-xxxv. Municipal Reference Libraries 8S The United States Constitution has, of course, been pubHshed innumerable times and is easily available. It appears in practically all the state legislative manuals and is found with copious citations to Supreme Court decisions and carefully indexed in the Senate Manual ^ and "House Manual," both frequently reissued and brought down to date for the use of the members of Congress.^^ The dates of the ratifications of the Con- stitution and its several amendments appear in the Senate Manual after the text. There is a separate index to the Constitution in the Senate Manual. Even in libraries aiming primarily to aid legislation affecting only state governments the constitutions of foreign countries obviously have an important place and attention may therefore be called to the following compilations. Dodd, Walter Fairleigh. Modern Constitutions, a Collection of the F'unda- mental Laws of twenty-two of the most important Countries of the World, with Historical and Biblio- graphical Notes. 2 V. Chicago, University of Chi- cago Press, 1909. These two volumes present in English the constitutions of the following countries with amendments through 1906 and notes of constitutional changes during 1907: v. 1. Argentine Nation, Australia, Austria, Hungary, Austria-Hungary, Belgium, Brazil, Canada, Chile, Denmark, France, Germany; V. 2, Italy, Japan, Mexico, Netherlands, Norway, Portugal, Russia, Spain, Sweden, Switzerland, and the United States. A general bibliography with each title briefly evaluated precedes the whole. For each country the data given are: Summary statement of its constitutional history (about one page); a selected critical bibliography (about one page); text of the constitution with occasional footnotes. 35 Cf. ed. of Feb. 15, 1909, p. 183-306. '* It is frequently published separately, the latest government printing being The Constitution of the United States as Amended to May, 1913. (63d Cong. 1st. Sess. S. Doc. 12.) 86 Law, Legislative Reference and Dareste de la Chavanne, F. R. and Dareste, P. Les Constitutions Modernes, Recueil des Constitu- tions en Vigueur dans les divers Etats d' Europe, d'Amerique et du Monde Civilis6, traduit sur les Textes et accompagn^es de Notices Historiques et de Notes Explicatives. Ed. 3. 2 v. Paris, Augustin Challamel, 1910. This contains the text in French of the constitutions or other organic laws of over forty different governments, includ- ing many of the smaller European states, and historical and bibliographical notes for numerous other countries, the several states of the United States, Central America, and the British Colonies. It is the best general collection and still fairly up-to-date; a general bibliography of collections of the texts of constitu- tions follows the preface. The order of topics relating to each constitution: (1) Historical notes, (2) Text, (3) Bibliography. A table of contents to each volume is given at the end; volume two contains also a geographical index, and an analytical index. Occasional titles are annotated and entries in bibliog- raphies are chronologically arranged. Rodriguez, Jose Ignacio. . . . American Constitutions, a Compilation of the Political Constitutions of the Independent Na- tions of the New World with short Historical Notes and various Appendixes. 2 v. Washington, Govern- ment Printing Office, 1906-7. A collection of the constitutions of all the independent countries of North, Central, and South America and the three republics of the Caribbean Sea, — Dominican Republic, Haiti, and Cuba. All are given in English, Spanish, and the language of the original when other than these. "Unfortunately sorne of the English translation is inaccurately done, and certain of the constitutions have not been revised to the date of publication. The collection is, however, a necessary work for the study of Latin-American constitutions." ^' " W. F. Dodd, op. cit. v. 1, p. xx. Municipal Reference Libraries 87 Carranza, Arturo B. Digesto Constitucional American. 2 v Buenos Aires. 1900-01. "A convenient collection of Spanish-American constitutions " (Dodd.) New York (State) — Constitution Convention, 1894. The Convention Manual . . . Foreign Constitu- tions ... by George A. Glynn, Compiler. Pt. 2, Vol. 3, 439 p. Albany, The Argus Co., 1894. Includes Argentine Republic, Belgium, Empire of Brazil, United States of Brazil, Colombia, Ecuador, France, Germany, Honduras, Japan, Mexico, Prussia, Switzerland, and Venezuela! Additional collections of constitutions are listed in Dareste's bibliography, ^^ but the most important and one or two more valuable historically than currently have been named. New constitutions are published occasionally in the Supplement to the American Journal of International Law, a. supplement devoted entirely to the republication of official documents of international interest. Treaties to which the United States is a party, it will be recalled, are available to March 4, 1913, in the two volume compilation by Malloy,^^ and supplementary third volume by Garfield Charles. Current treaties and conventions appear in the Treaty Series of the Depart- ment of State, in the Statutes at Large, and unofficially in the Supplement to the American Journal of International Law. The best sources on the treaty-making power are Charles Henry Butler's The Treaty-making Power of the United States,^*^ Samuel B. Crandall's Treaties, Their Making and ^ Dareste, op. cit. 1 : xxi-xxiii. '» C/. ante, p. 25-26, 35-36 note 36. « 2 V. New York. 1902. 88 Law, Legislative Reference and Enforcement,'^^ Edward S. Corwin's National Supremacy; Treaty Power versus State Power ^"^ and Moore's Digest of Internatiotial Law.*^ Hershey's chapter on "Inter- national Treaties" in his Essentials of International Public Law ^ is supplied with copious footnotes and a select bibliography. No matter how available the resources of a good law library may be, the legislative reference bureau will appreciate its own complete collection of American statute law. This would comprise the Compiled Statutes, or Federal Statutes Annotated, Statutes at Large, Session Laws and slip laws to date, for the federal government, and the latest revision or compilation with session laws, and slip laws when issued, to date, for each of the separate states. Court decisions most frequently needed in this work are those judicially interpreting enacted statutes and those determining the constitutionality of important laws. The various series in which these are published need not be restated and the volumes themselves need not occupy space in the legislative reference library. Their place is the law library unless exception is made for a duplicate set of the local state reports. The advance sheets, separate prints, or first newspaper notices of important decisions may well be kept in the vertical files or pamphlet boxes with other material bearing on the same subject. So placed they will frequently meet a definite need which may have arisen long before the bound volumes are available. *^ N. V. 1904. {Co\umbia.\]m\QTs\ty Studies in Hist. Economics and Public law, v. 21, no. 1.) « N. Y. Holt. 1913. «Vol5,hap. 17. ** Chap. 20. N. Y. Macm. 1912. Municipal Reference Libraries 89 2. Proposed Law. Bills and constitutional amendments. A bill is the draft of a proposed law as introduced into the legislature. The draft does not become a law until passed by both houses and signed by the speaker of the house, president of the senate, and the governor. Bills may become law without the governor's signature, pro- vided they are not vetoed within a certain number of days. A copy of each bill and resolution introduced into the state legislature should be kept in the legislative reference bureau. They should be bound into volumes by sessions with a complete table of contents and index in each volume. A continuous series of such volumes will be of value not only to the political historian as a record of attempted legislation and therefore as a partial index to economic and social conditions, but it will have added value to the legislator as a record of experience. By careful study of these bills he will be enabled to model new measures the better, avoiding the errors of the past and adopting those features which have been tested by experience and found satisfactory. For purposes of comparison a selection should be made from the current bills of other states, and a system of exchange can be arranged with advantage ; the criterion of selection being that the bill covers a subject already or soon likely to be under consideration, or one which ought to be receiving consideration by the legislature. Occasionally bills introduced into Congress may be secured for like reasons or because of general public interest attaching to them. In many states there is published either officially or privately at regular intervals, during the session of the 90 Law, Legislative Reference and legislature, some synopsis of the proceedings of each house, and from this can be ascertained what bills of local interest have been introduced elsewhere. Proposed constitutional amendments should be as carefully preserved as bills, for proposed changes in the organic law of a state are as significant for the political historian and the legislator, perhaps more significant, than proposed changes in the statute law. The study of a rejected amendment or bill, especially if the reasons for the rejections are known, may result in a new draft more worthy of general acceptance. Bound files of these important records have not in the past been preserved in many states. At present more are attending to it and the office doing the work is generally the state library or the legislative reference bureau. The original official copies of enrolled bills are kept on file in the office of the secretary of state and of course could not be subjected to frequent handling, such as they would receive in a legislative reference library, without serious results. Bills are printed separately when favorably reported by the committees to which they are first referred. In cases where there is merely a minority report favoring the bill it is printed when so ordered. In addition bills as introduced, amended, and as finally passed are some- times printed in the journals of the legislature, or may be embodied in the reports of committees which have had them under consideration. They are most likely thus to appear in conference committee reports or in the report of the committee on enrolled bills. ''■^ ** This procedure is not at all uniform in the several states. See also p. 212-17 post. Municipal Reference Libraries 91 3. Public Documents. (a) National. 1. Bibliographical Statement. For a full discussion of the publication, distribution, reference value, and technical library treatment of United States Government documents consult James Ingersoll Wyer, United States Government Documents (78 p. Albany, N. Y., 1906: N. Y. State Lihrsiry Bulletin 102, Library School 21); a scholarly monogi^ph of funda- mental importance, now out of print but worthy of re- printing in spite of later publications. In Elfrida Ever- HART, A Hand-book of United States Public Documents (320 p. H. W. Wilson Co., Minneapolis, 1910), more attention is paid to the organization of the government departments and a larger number of individual publica- tions are considered; nothing is given regarding the treatment of documents in libraries and the citations of "authorities" at the ends of chapters lack important bibliographical details. United States Superintendent of Documents, Checklist of United States Public Documents, 1789-1909 (Ed. 3. 1707 p. V. I, Washington, 1912). A valuable introduction defines the term "Public Documents" (see page 33, infra), presents a careful review of all cata- logues, indexes, and check-lists previously issued, explains the classification of documents adopted at the ofifice of the Superintendent of Documents, the serial number,^^ the present method of publication and distribution, the *8 For other explanations of the practice of assigning a consecutive "serial" number to all volumes in the Congressional Set consult Wyer (1906), p. 38, and Everhart, p. 17-18. 92 Law, Legislative Reference and withdrawal from the Congressional Set as distributed to depository libraries of annual department reports and certain other documents. The first table, pages 3-169, lists the documents, through the sixtieth Congress in serial number order (01-5561). The main body of the book is a list of departmental publications arranged by the Documents Office classification. At the end appears an alphabetical list of the departments, bureaus, divisions, offices, commissions, committees, etc., represented by classes in the preceding pages of the Check-list with page reference to the complete list of the publications of each department. A second volume to form a subject index is being prepared. J. L W'yer, United States Government Documents in Small Libraries (Ed. 3 rev. 28 p. A. L. A. Chicago, 1910), presents the essentials of government document acquisi- tion, selection, arrangement, and cataloguing from the small library point of view; particularly valuable in reference work for its lists of recommended serials and single documents. In this connection attention should be called to the public documents section of the A. L. A. Catalogue 1904 (p. 367-372), a selected list of the documents of most importance to small libraries compiled by Alice B. Kroeger. Alice Bertha Kroeger, Guide to the Study and Use of Reference Books, (Ed. 2 rev, 147 p. A. L. A, Publishing Board, Boston, 1908), p. 93-97 discuss United States government documents giving references to readings on the subject, and a well-annotated list of the various indexes and catalogues. In the Supplement 1909-1910 to the Guide, compiled by Isadore Gilbert Mudge (24 p. A. L. A. Chicago, 1911), p. 19-20 are devoted to government documents. Municipal Reference Libraries 93 Public Documents. The legislative reference library which is part of a state library will have at its disposal practically all the publications of the United States government as all state and territorial libraries are designated depositories to which the Superintendent of Documents sends one copy of all documents he is authorized to distributed^ The documents most useful in its work would naturally be assigned to the legislative reference department and there classified and catalogued like other publications. If the main library does not care to assign its depository volumes to the department, duplicate copies can be obtained in most instances. The Superintendent of Documents will usually supply copies on request in such cases though occasionally extra copies must be pur- chased even by libraries. If the publication desired is issued by a bureau or a department, a request to the issuing office will generally get it though now such requests are forwarded by the issuing ofifice to the Super- intendent of Documents for fulfillment. The depart- ment thus controls its own mailing list though the actual physical distribution is done at the document ofifice, an arrangement entered into at the suggestion of the Presi- dent's Commission on Economy and Efificiency.''^ 2. The Congressional Set and Illustrative Docu- ments. For a number of years the terms "depository set," "sheep set" and "Congressional Set" were used inter- changeably, each referring to the same set of documents, though each had a special significance. *' For a full explanation of the depository plan consult Wyer (1910), p. 5-7, and Everhart, p. 5-7. *^ Cf. its Report Relative to Centralization of the Distribution of Government Publications. U. S. 62d Congress, 2d. Sess. Sen. Doc. 293. 94 Law, Legislative Reference and In the first place, the set was composed of "all docu- ments ordered printed by Congress and of no others," hence the appropriateness of the term congressional; secondly, the volumes were bound in full sheep; and, lastly, of the sheep-bound congressional sets, 500 of the "usual number" (1682) printed by congressional authori- zation were set aside for distribution by the Superinten- dent of Documents to libraries designated by members of Congress for that purpose, and therefore termed depository libraries/^ The annual reports of departments, etc., though made to Congress, have been withdrawn from the so-called "Congressional Set" made up of the Senate and House Journals, Senate Reports, Senate Documents, House Reports, and House Documents. In the last four of these series the documents are numbered consecutively through all the sessions of one Congress. Documents in the Congressional Set will be sent on request by members of the Senate and House, usually by the Superintendent of Documents — who may also sell at cost — and can almost always be obtained promptly by addressing impersonally the "Senate Document Room" or the "House Document Room," Washington, D. C. Separate bills can be obtained only on application to members of Congress, and committee hearings on application to the committees which conducted the hearings. Beginning with the sixtieth Congress not only were department and bureau reports taken out of the Con- gressional Set, but the documents making up the set were bound in a durable cloth instead of the sheep binding used theretofore. At the same time the practice of binding a number of miscellaneous documents into a «a. Wyer (1906), p. 11-13. Municipal Reference Libraries 95 bulky volume was changed so that now single docu- ments of any size are bound separately, and consequently can be classified and shelved with other publications on the same subject. Beginning with the documents of the sixtieth Congress also, the serial number was no longer affixed to volumes coming from the Documents Office. It may, however, be learned from a "schedule of volumes," published by the Superintendent of Docu- ments at the close of each session in the Documents Index. In a number of cases the privilege of being a desig- nated depository library to which practically all the publications of the government are sent has proved a burden. In view of repeated requests from librarians, where such is the case, that they be allowed to select those documents most suitable for their libraries and be not compelled to handle the whole output of the government printing office, the Superintendent of Docu- ments has recently sent out a classified and annotated list from which depository libraries may select for future receipt only such documents as they care to preserve. The list is on sheets with ten titles to the sheet, each of which is printed in catalogue form and lined to catalogue card size. When checked and returned to the Docu- ments Office, a card file mailing list will be made from the returned slips. This is a definite step forward both in government and library economy. It is impossible to indicate at all adequately in a few brief paragraphs the immense value in reference libraries of the great output of the government printing office. In the annual reports and special publications of the administrative offices and scientific bureaus of the government, practically the whole field of social, pohtical, and natural science, in theory and in practice, is covered, 96 Law, Legislative Reference and most of the publications being the work of experts in their special fields. The general characteristics of these publications are set forth in the works of Wyer and Everhart. Of the series now comprising the Congressional Set, the Senate Reports are the reports of Senate committees on public and private bills and resolutions. They are usually brief, though not always, and frequently reprint the bill being reported upon in the form approved by the committee. The reports on public bills, numbered consecutively, are printed and distributed in advance sheets, and later accumulated in a series of volumes which form part of the serially numbered Congressional Set.*" House Reports are, similarly, the reports of House committees on pending legislation. The Senate Documents now include only publications ordered printed by the Senate and are mainly the results of investigations authorized by a Senate resolution, into various subjects of interest to the Senate as a law- making body. The inclusion prior to 1907 of depart- ment and bureau publications in the Senate Documents greatly enlarged their bulk over what it now is.*^ Among recent important Senate Documents the following may be named as representing a type of value to state law-making bodies and consequently to the legislative reference library. ^ Cf Everhart p. 20. " Certain documents not deemed of general interest are no longer bound into the depositor^' volumes, but are found only in the volumes sent to the Senate and House libraries and to the Librar>' of Con- gress. For an explanation of this plan, see the Monthly Catalogue of the Superintendent of Documents for January, 190S, p. 263- 72, February, 1910, p. 373-78 and the preface to the Document Index for the sixtieth Congress, first session. Municipal Reference Libraries 97 Agricultural Credit. Europe. U. S. Senate. Agricultural Co-operation and Rural Credit in Europe, Information and Evidence secured by the American Commission. . . . 916 p. Wash. 1913. (63d. Cong. 1st. Sess. S. Doc. 214.) An exhaustive and elaborate document covering Italy, Egypt, Roumania, Hungary, Austria, Russia, Germany, Bel- gium, Holland, Denmark, Norway, Spain, France, England, Wales, Scotland, and Ireland. Agricultural Credit. Germany. U. S. Senate. Agricultural Credit and Co-operation in Germany: Report to the British Board of Agriculture and Fisheries of an Inquiry into Agricultural Credit and Agricultural Co-operation in Germany, with some notes on German Live-stock Insurance, bv J. R. Cahill. 474 p. Wash. 1913. (63d Cong, ist Sess. S. D. 17.) Includes laws, documents, and a bibliography in an appendix. Cost of Living. U. S. Senate. Cost of Living in American Towns. 533 p. Wash. 1911. (62d Cong. 1st Sess. S. D. 22.) An exact reprint of the report of an inquiry by the Board of Trade of London into working class rents, housing, retail prices, together with rates of wages in certain occupations in the principal industrial towns of the United States of America. There are separate reports for New York, Atlanta, Augusta, Baltimore, Birmingham, Boston, Brockton, Chicago, Cin- cinnati, Cleveland, Detroit, Duluth, Fall Riv^er, Lawrence, Louisville, Lowell, Memphis, Milwaukee, Minneapolis, New Orleans, Newark, Patterson, Philadelphia, Pittsburgh, Provi- dence, St. Paul, St. Louis, and Savannah. 98 Law, Legislative Reference and Cost of Living. U. S. Senate. Investigation relative to Wages and Prices of Commodities. 4 v. Wash. lOlL (61st Cong. 3d Sess. S. D. 847.) Volumes 1-2 comprise the report and hearings; volumes 3-4 present statistics of wages and prices in the United States and abroad and an index. Criminology. U. S. Senate. Man and Abnormal Man including a Study of Children in connection with Bills to Establish Labo- ratories under Federal and State Governments for the Study of Criminal, Pauper, and Defective Classes, with Bibliographies, by Arthur McDonald. 780 p. Wash. 1905. An extensive collection of criminological and psychological data with bibliographies of the separate phases of criminality and other topics. Election of Senators. U. S. Senate. Papers relating to the Election of Senators by direct Vote of the People. 91 p. Wash. 1908. (60th Cong. 1st Sess. S. D. 512.) Includes speeches, documents, a list of principal speeches and reports made in Congress in recent years and an abstract of laws relating to the election of Senators in the United States. Immigration. U. S. Senate. Report of the Immigration Commission. 42 v. Wash. 1911-1913. (61st Cong. 2d Sess.) Volumes 1-2 are abstracts of the reports and the Commis- sion's recommendations; v. 3, Statistics, 1819-1910; v. 4, Emmigration Conditions in Europe; v. 5, Dictionary of Races or Peoples; v. 6-25, Immigrants in Industries, pts. 1-25; V. 26-27, Immigrants in Cities; v. 28-38, Various Sociological and Anthropological Studies; v. 39, F'edcral and State Legisla- tion; V. 40, Other Countries; v. 41, Recommendations of Societies; v. 42, Index. A veritable encyclopedia. Municipal Reference Libraries 99 Inheritance Tax. U. S. Senate. Digest of the Principal Features of the Laws of Great Britain, France, and Germany together with an Outline of Inheritance Taxation in the United States and a Collection of Judicial Decisions relating thereto. Wash. 1909. (61st Cong. 1st Sess. S. D. 114.) Social Conditions, Washington. U. S. Senate. Reports of the President's Homes Commis- sion ... on Improvement of existing Houses and Elimination of Unsanitary and Alley Houses, on Social Betterment, and on Building Regulations . . . with Resolutions and Recommendations. 381 p. Wash. 1909. (60th Cong. 2d Sess. S. D. 644.) Relates specifically to the District of Columbia, but is of great value and general application elsewhere; covers occu- pational diseases, and includes a practical treatise on personal hygiene; a valuable document too little advertised. Women's Labor. U. S. Senate. Reports on Condition of Woman and Child Wage- earners in the United States. 19 v. Wash. 1912- 1913. (61st Cong. 2d Sess. S. D. 654.) Separate volumes are devoted to selected industries such as Silk (v. 4), Glass (v. 3), Men's Ready Made Clothing (v. 2), Cotton Textiles (v. 1), etc.; and to special topics such as History of Women in Industry in the United States (v. 9), in Trade Unions (v. 10), Infant Mortality and its Relation to the Employment of Mothers (v. 13), Juvenile Delinquency and its Relation to Employment, and the Beginnings of Child Labor Legislation in certain States.^- '^ The states treated are Massachusetts, Rhode Island, Connecti- cut, Vermont, New Hampshire, Maine, New York, New Jersey, Pennsylvania, Delaware, Maryland, Ohio, North Carolina, South Carolina, Georgia, and Alabama. 100 Law, Legislative Reference and The numerous and valuable publications of the National Monetary Commission which have cov- ered the field of money and banking at home and abroad so thoroughly were published as Senate Documents of the sixty-first Congress. A list of these publications was issued by the Commission. The banking legislation of foreign countries is considered in the \olumes devoted to the banking systems of the particular countries dis- cussed. The German Imperial Banking Laws edited by Dr. R. Koch, together with the German Stock Exchange Regulations form a separate treatise of three hundred and thirty pages.'^ A Digest of State Banking Statutes ^* through the legislative sessions of 1909 is included in the set. The House Documents form a similar series to those of the Senate, being numbered consecutively for each Congress. They comprise a miscellany of valuable publications on subjects deemed of interest to the House as a law-making body. From the recent volumes of importance the following are typical of what may be of special value in a legislative reference library. National Budget. U. S. House. The Need for a National Budget, Message from the President of the L'nited States transmitting Report of the Commission on Economy and Effi- ciencv on the Subject of the Need for a National Budget. 568 p. Wash. 1912. (62d Cong. 2d Sess. House Document 854.) Contains historical and descriptive data, discussions of the constructive recommendations of the Commission, a pro forma budget and supporting documents, with appendixes of laws, a " 61st Cong. 2d Sess. S. D. 574. 330 p. Wash. 1910. " 61st Cong. 2d Sess. S. D. 353. 746 p. Wash. 1910. Municipal Reference Libraries 101 bibliography of congressional inquiries into the conduct of the business of executive departments other than by standing committees, 1789-1911, and answers to a questionnaire on budget methods and procedure in foreign countries. Thirty- nine foreign countries are represented. In the Proceedings of the Academy of Political Science (3: N. Y., 1912) Mr. Frederick A. Cleveland discussed, "The Budget as a Means of Locating Responsibility for Waste and Inefficiency: What the President is Trying to do by Way of Budget Making for the National Government." This was reprinted by the President's Commission on Economy and Efficiency. Tariff Laws. U. S. House. Tariff Acts passed by the Congress of the United States from 1789-1909, including all Acts, Resolu- tions, and Proclamations modifying or changing those Acts. 1040 p. Wash. 1909. (61st Cong. 2d Sess. H. Doc. 671.) Full texts are given of all acts and proclamations in chrono- logical order. A separate index to each of thirty-seven impor- tant acts and an additional index to miscellaneous acts are provided enabling the tariff levied on any class of material from 1789 to 1909 to be easily ascertained. 3. Departmental Publications and Compilations of State Laws in Federal Documents. Among the regular and special publications of sepa- rate government offices which do not appear in the Congressional Set a great number are naturally valuable for their discussions, or their compilations of laws, on subjects which are within the province of state legisla- tion. In fact, practically all offices at some time fur- nish information useful in this connection. Agriculture, education, civil service, labor, corporations, railroads, forestry, taxation, public health — in what separate states are not these questions of prime importance? The Yearbook and Farmers' Bulletins of the Depart- ment of Agriculture — in the latter series a compilation 102 Law, Legislative Reference and of state game laws appears annually ; the Annual Reports of the Civil Service Commission; the important special reports of the Bureau of Corporations ^* on the Beef Industry, Transportation of Petroleum, Petroleum In- dustry, Cotton Exchanges, Tobacco Industry, Trans- portation by Water in the L^nited States, the Steel Industry, Lumber Industry, Water Power Development in the United States, on Cotton Tare, and the Inter- national Har\'ester Company ; the report on the System of Taxing, Manufacturing, Mercantile, Transportation, and Transmission Corporations in the various States ; *' the Annual Reports of the Commissioner of Labor each devoted to a single topic such as Convict Labor (1905), Strikes and Lockouts (1906), Labor Laws of the United States (1907), Workmen's Insurance and Benefit Funds in the United States (1908), in which "statutory regu- lations" are given," Workmen's Insurance and Compen- sation Systems in Europe (2v., 1909), Industrial Education in the United States (1910), containing the laws relating to industrial education,^^ and a selected bibliography of industrial education ;^^ the Bulletin of the Bureau of Labor Statistics now issued (since Bulletin 100) in sev- eral separate series,^ Bulletin 111 being "Labor Legisla- tion of 1912" with a tabulation of the principal features ^* See "Reports Issued by the Bureau" in its Annual Report, 1912, p. 17-22. "Part 1, "New England"; 2, "Middle Atlantic"; 3, "Eastern Central"; 4, "Western Central." " p. 756-87. '* Chap. xvi. '' Chap. xvii. *" The separate series are "Wholesale Prices," "Retail Prices and Cost of Living," "Wages and Hours of Labor." "Women in Industry," "Workmen's Insurance and Compensation (including Laws)," "Con- ciliation and Arbitration," "Labor Laws of the United States," "Foreign Labor Laws" and "Miscellaneous Series." Municipal Reference Libraries 103 of all state workmen's compensation laws and a detailed index to all state labor legislation through 1912 as recorded in the 1907 compilation and subsequent Bul- letins — all these represent but a few of the government departments' publishing activities of definite value in legislative reference work. In addition, special attention should be called to the bibliographies issued by the Library of Congress, both those published separately ^^ and those appearing at " Library of Congress Bibliographies in the fields of Political Science and Economics published separately are: Anglo-Saxon Interests. 1903. -. Ed 2. 1906. Arbitration, Industrial. 1903. Arbitration, International. 1908. Banks and Banking. 1904. . First and Second Banks of the U. S. 1908. — ■ — . Guaranty of Bank Deposits. 1914. Boycotts. 1911. Budget, Foreign Countries. 1904. Cabinets. 1903. Capital Punishment. 1912. Child Labor. 1906. Chinese Immigration. 1904. Colonization. 1900. . Ed. 2. 1900. Commission Government. 1913. Conservation. 1912. Constitution, U. S. 1903. Consuls. 1905. . Ed. 2. 1914. Cost of Living. 1910. . Additional References. 1912. Currency. 1908. Deep Waterwavs. 1908. Eight Hour Day. 1908. Elections (Corrupt Practices). 1908. Employers' Liability. 1906. . 1911. Far East. 1904. Federal Control of Commerce and Corporations. 1903. . Ed. 2. 1904. . Recent Works. 1907. . Ed. 3. 1913. . Special Aspects and Applications. In press. 104 Law, Legislative Reference and intervals in Special Libraries^- compiled with the co- operation of the various state and legislati\e reference libraries. Many typewritten or mimeographed bibliog- Fourteenth Amendment. 1906. Government Ownership. 1903. Railroads. Immigration. 1904. . Ed. 2. 1905. . Ed. 3. 1907. Impeachment. 1905. . Ed 2. 1912. Income Tax. 1907. (and Inheritance Taxation). . Additional References. 1911. Initiative. 1912. Insurance. 1906. . Ed. 2. 1908. Insurance, Workmen's. 1908. Iron and Steel in Commerce. 1907. Labor and Strikes. 1903. Monetary Question. 1913. Municipal Affairs. 1906. Negro Question. 1903. . Ed. 2. 1906. Occupation of Philippines. 1903. . 1905. Parcels Post. 1911. Pensions. Old Age and Civil Service. 1903. Political Parties. 1907. Postal Savings. 1908. . Additional References. 1914. Primary Elections. 1905. . Additional References. In preparation. Railroads in their Relation to the Government . . . with appen- dix on the Northern Securities Case. 1904. . Ed. 2. 1907. Railroads, \'aluation and Capitalization. 1909. Railroads, Government Regulation in Foreign Countries. 1905. Reciprocity. 1902. . Ed. 2. 1910. . With Canada. 1907. . Additional References. 1911. Recognition in International Law. 1904. Representation, Proportional. 1904. . New Issue. 1914. Senators, Election of. 1902. . Popular Election of. 1904. . Additional References. 1911. Subsidies, Mercantile Marine. 1900. Municipal Reference Libraries 105 raphies are prepared in addition and are kept in the files of the Library. . Ed. 2. 1903. . Ed. 3. 1906. . Additional References. 1911. Sugar. Economic Aspects. 1910. Supreme Court. 1909. Tariff. British. (Chamberlain's plan). 1904. . Ed. 2. 1906. Tariffs. Foreign Countries. 1906. Trusts. 1900. . Ed. 2. 1902. . Ed. 3. 1907. . Ed. 4. In preparation. Wages. 1914. Wool with special reference to the Tariff. 1911. See also Borchard, p. 38. " Lists in Special Libraries have appeared as follows: Cigarette Smoking. Sept., 1911. City Planning. May, 1912. Commerce Court. Dec, 1912. Compulsory Voting. Mar., 1912. Drinking Cup. May, 1911. Fire Prevention. Feb., 1913. Motion Pictures. Sept., 1912. Open Shop. Oct., 1911. Pardoning Power. Feb., 1912. Pensions for Mothers, Motherhood Insurance, etc. Nov., 1913. Preferential Voting. April, 1912. Public Service Rates. Dec, 1911. Scientific Management and Efficiency. May, 1913. Short Ballot. June, 1911. Societies, State, Municipal and other Government Officials. Jan., 1912. Special Libraries. Oct., 1912. State Charities. April, 1911. Trading Stamp Business. Nov., 1912. Train Crew Legislation. June, 1913. A pamphlet entitled, "Publications of the Library Issued Since 1897," dated January, 1914, is available for a complete list of Library of Congress Bibliographies and other publications. A "Supple- mentary List: Bibliographies contributed by the Library to Pub- lications of other Departments or Institutions" has also been pub- lished, 1913. See also H. H. B. Meyer, "Division of Bibliography of the Library of Congress as a Clearing- House for Bibliographical Information," in Special Libraries, September-October, 1913, p. 151-52. 106 Law, Legislative Reference and Of the Bureau of Education's publications the follow- ing 5i3ded. Lond. 1912. ^ In his Statute Law Making in the United States, Bost. 1912, p. 15-20. Municipal Reference Libraries 131 play a less important part in legislative reference work, though occasional recourse may be had to them. The arguments found in them will aid the legislator materially in shaping his own arguments before his colleagues, but the opinions of courts carry more weight of actual authority than the papers prepared preliminary to the final court decision. (b) Books. Books, aside from laws in force and court reports, play a less important role, as far as numbers are concerned, in legislative reference work than might be expected. Those that are of definite value and of frequent use are indeed relatively few and compose a small proportion of the printed materials kept in the legislative reference library. The materials forming the bulk of such a library are documentary in character or are excerpts from mag- azines and society proceedings, pamphlets, and so forth. Indeed, the director of one bureau goes so far as to say that only a "small fraction" of the subject-matter that comes before them is treated in books at all, and that it is of very little value to place a general work before the average legislator. Among the books which will be found necessary are, first, the general reference books appropriate to any library aiming to supply current information on public affairs. This would include, of course, the standard encyclopedias and year-books, periodical indexes to general, legal, and miscellaneous journals, and current events, newspaper indexes, statistical compilations, and the special encyclopedias on political science, political economy, and social reform, such as Lalor, Con- rad, Palgrave, Elster, and Bliss. 132 Law, Legislative Reference and The other books which have a special place on the shelves of a legislative reference library are compilations and digests of laws, legal works on statutory construction and bill-drafting, treatises on current political move- ments and tendencies, party organization and machin- ery, political platforms, the standard works on federal and state government and administrative law, and^ as far as possible critical studies of the actual effect of laws in force offering constructive suggestions for improving conditions by new legislation. Two factors will determine whether the legislative reference library will attempt to purchase books in other fields. One will be the policy and resources of the state library and the relation it bears to the legislative refer- ence library; the other, the policy of the legislative library in catering to the needs of the other state de- partments or in attempting to create a demand in those departments by having on hand the special literature of value to the employees of the state engaged in such work as engineering, highway construction, public health, scientific agriculture, the control of public util- ities and valuation of public service corporation proper- ties, the control of municipal accounting, institution management, penolog>% charities and corrections, and so on through the multifarious and specialized activities of state administrative offices in the present day. It is impractical, if not impossible, to attempt here any complete list of books of value in legislative reference work, and occasions may be frequent when the demand of the moment will be satisfied by some book entirely beyond the scope even of the several types of books mentioned as most likely to be called for. There may be, however, some slight illustrative value in offering a few select lists of books in certain fields. Municipal Reference Libraries 133 A list of books on statutory construction and bill- drafting is given in the appendix.^s Illustrative titles on current political movements, party organization, machinery and platforms, and a few of comparative value as records of experience with active legislation follow. Comparisons of Laws and Experience with Legislation. Ashby, A. W. One Hundred Years of Poor Law Administration in a Warwickshire Village. 188 p. Oxford, Claren- don Press. 1912. (In Oxford Studies in Social and Legal History, Volume III with Lodge, E. C. The Estates of the Archbishop and Chapter of Saint- Andre of Bordeaux under English Rule.) Boyd, James Harrington. Workmen's Compensation and Industrial In- surance. 2 vols. Indianapolis. The Bobbs-Merrill Co. 1913. "The first complete presentation of the subject show- ing the underlying causes; explaining the effects on both the employer and employee, setting forth the methods, pro- cedure and the results in actual practice; and including a full text of the statutes in force January 1, 1913, in Germany, England and the several states of America." Broadhead, Henry. State Regulation of Labor and Labor Disputes in New Zealand. 227 p. London. Whitcombe and Tombs, Ltd. 1908. An analysis of the law; a description and a criticism. Commercial Laws of the World. Boston. Boston Book Co. 1912-. Davenport, Charles B. State Laws Limiting Marriage Selection: Ex- amined in the Light of Eugenics. 66 p. Cold SpringHarbor, L. I. 1913. «8 p. 397-401. 134 Law, Legislative Reference and Deploige, Simon. The Referendum in Switzerland. . . . 334 p. Lon- don. Longmans. 1898. Frankel, Lee K. and Dawson, Miles M. Workingmen's Insurance in Europe. 433 p. N.Y. Charities Publication Committee. 1911. A comparative study of great value covering insurance against industrial accidents, sickness, death, invalidity, old age, and unemployment; summary of laws, statistics and bibli- ography. Gibbon, L G. Medical Benefit; a Study of the Experience of Germany and Denmark. 290 p. London. P. S. King & Co. 1912. Haggard, H. Rider. Rural Denmark and its Lessons. 335 p. N. Y. Longmans. 1911. Hutchins, B. L. and Harrison, A. (Mrs. F. H. Spence). A History of Factory Legislation, with a Preface by Sidney Webb. Ed' 2. 298 p. London. P. S. King and Son. 1911. An English treatise of comparative significance; contains bibliography. Jelf, Ernest Arthur. The Corrupt and Illegal Practices Preyention Acts, 1883 and 1895, with Notes of Judicial Decisions and with short introductory Chapters on Election Peti- tions under these Acts, Election Contests under these Acts and the Parliamentary Common Law of Agency. 218 p. London. Sweet and Maxwell, Ltd. 1905. Kelley, Florence. Some Ethical Gains through Legislation. 336 p. N. Y. The Macmillan Co. 1905. National Committee for Mental Hygiene. Summaries of Laws relating to the Commitment and Care of the Insane in the United States. 297 p. N. Y. 1912. Municipal Reference Libraries 135 Pic, Paul. Traits E16mentaire de Legislation Industrielle. 1206 p. Paris. Arthur Rousseau. 1912. "A very thorough, painstaking review of the history and status of labor legislation in all the important countries of the_ world. . . . The scientific evolutionary viewpoint is maintained throughout; the author sees clearly and states his conclusions fearlessly." Solon DeLeon. Russell Sage Foundation — Division of Education. A comparative Study of Public School Systems in the Forty-eight States. 32 p. 1913. Singer, Berthold. Copyright Laws of the World. 196 p. B. Singer Chicago. 1909. . Patent and Trademark Laws of the World . 539 p. B. Singer. Chicago. 1911. Trade Mark Laws of the World and Unfair Trade. 685 p. B. Singer. Chicago. 1913. Whitin, E. Stagg. Penal Servitude. 162 p. N. Y. National Com- mittee on Prison Labor. 1912. Appendixes contain the Report on the House of Correction, Jessup, Maryland, and prison labor in State party platforms, in governors' messages, and state laws. Whitlock, Brand. On the Enforcement of Law in Cities. 95 p. Indianapolis. Bobbs-Merrill Co. cl910. '13. Wise, B. R. The Commonwealth of Australia. 348 p. Bos- ton. Little, Brown and Co. 1909. Part III: p. 247-343. "Legislation." The Business of Government. Baldwin, Simeon E. The American Judiciary. 403 p. N. Y. Cen- tury. 1905. 136 Law, Legislative Reference and Beard, Charles A. American Government and Politics. 772 p. N. Y. Macmillan. 1910. "Bibliographical note," p. 755-59. A select list. . Readings in American Government and Politics. 620 p. N. Y. Macmillan. 1910. Brooks, Robert C. Corruption in American Politics and Life. 309 p. N. Y. Dodd, Mead & Co. 1910. Bryce, James. The American Commonwealth. 2v. N.Y. Mac- millan. 1911. Dougherty, J. Hampden. The Electoral System of the United States. 425 p. N. Y. Putnam's Sons. 1906. Fairlie, John Archibald. The National Administration of the United States. 247 p. N. Y. Macmillan. 1905. Finley, John H. and Sanderson, John F. The American Executive and Executive Methods. 352 p. N. Y. Century. 1908. Fish, Carl Russell. The Civil Service and Patronage. 280 p. N. Y. Longmans. 1905. Authorities, p. 252-66. Foltz, El Bie K. The Federal Civil Service as a Career. . . . 325 p. N. Y. Putnam. 1909. Good now, Frank J. The Principles of the Administrative Law of the United States. 440 p. N. Y. Putnam. 1905. Authorities, p. 465-68. Haines, Lynn. The Minnesota Legislature of 1909: a History of the Session, with an inside View of Men and Meas- ures. 127 p. (Minneapolis, cl910.) Municipal Reference Libraries 137 — . The Minnesota Legislature of 1911 128 p (Minneapolis). 1911. (Rev. in Annals of Amer Acad, of Pol. &Soc. Set. v. 44: 147, November, 1912.) The Senate from 1907 to 1912. 63 p. Bethesda, Md. "The story of the stewardship of those United States Sena- tors whose terms expire March third, nineteen thirteen" (Kev. in Annals 44: 147-48. November, 1912.) Hichborn, Franklin. Story of the California Legislature of 1909. 296 p. San Francisco. James H. Barry Co. 1909. . Story of the California Legislature of 1911 348 p. 1911. (Reviewed in Amer. Pol. Sci. Rev. 6: 648-49; "Mr. Hich- born has done a tremendous public service to California in the publication of these volumes, and has pointed the way of escape to other states sufTering from similar conditions." B. E. H.) Howe, Frederic C. Privilege and Democracy in America. 315 p. N. Y. Scribner's. 1910. McCall, Samuel W. The Business of Congress. 215 p. N. Y. Col Univ. Press. 1911. Ostrogorski, M. Democracy and the Party System in the United States, a Study in Extra-Constitutional Govern- ment. 469 p. N. Y. Macmillan. 1910. Bibliographical note, p. 457-61. Reinsch, Paul S. American Legislatures and Legislative Methods. 337 p. N. Y. Century. 1908. . Ed. Readings on American State Government. 473 p. N. Y. Ginn. cl911. Wilson, Wood row. The State. Elements of Historical and Practical Politics. 656 p. N. Y. D. C. Heath & Co. 1898. 138 Law, Legislative Reference and Political Parties. History, Organization, Machinery, Platforms. Belloc, Hilaire and Chesterton, Cecil. The Party System. 226 p. London. Stephen Swift. 1911. Concerns England. Jones, Chester Lloyd. Readings on Parties and Elections in the United States. 354 p. Macmillan. N. Y. 1912. McKee, T. H. National Conventions and Platforms of all Politi- cal Parties, 1789-1905; Conventions, Popular Elec- toral Vote, also the Political Complexion of both Houses of Congress at each Biennial Period. Ed. 6. 418-33 p. Baltimore. Friedenwold. 1906. Party Platforms are printed in the World's Almanac, Tribune Almanac and Political Register (N. Y.), Tribune Almanac (Chicago), in the newspapers at the time of adop- tion and are usually given in full or in summary form in the various cyclopedic yearbooks or annuals for the years cover- ing a political convention or campaign. The parties themselves also issue yearbooks or campaign books containing the plat- form and other campaign literature. For the platforms of state parties, local state almanacs or newspaper almanacs, local campaign books, or the newspapers must be consulted. Macy, Jesse. Party Organization and Machinery. 316 p. N. Y. Century. 1912. An appendix contains the Direct Primary Law of California and the Rules and Regulations of the Democratic Republican Organization of New York. 1904. . Political Parties in the United States, 1846-1861. 333 p. N. Y. Macmillan. 1900. Ray, P. Orman. An Introduction to Political Parties and Practical Politics. 493 p. N. Y. Scribner. cl913. Discusses the Democratic, Republican, Progressive, and Socialist Parties and platforms, 1912; nominating methods Municipal Reference Libraries 139 campaigns and elections and the practical politics of the "Party in Power." At the end of each chapter appear Questions and Topics and a Bibliography. Chap. XX on "Remedies for Legislative Evils," discusses "Legislative Reference Libraries," p. 446-48. Woodburn, James Albert. Political Parties and Party Problems in the United States. 314 p. N. Y. G. P. Putnam's Sons. cl903. Current Political Movements and Tendencies. Beard, Charles A. An Economic Interpretation of the Constitution of the United States. 330 p. N. Y. Macmillan 1913. Beard, Charles A. and Shultz, Birl E. Documents on the State-wide Initiative, Referen- dum and Recall. 394 p. N. Y. Macmillan. 1912. Commons, John R. Proportional Representation. 363 p. N. Y. Macmillan. 1907. Goodnow, Frank J. Social Reform and the Constitution. 365 p. N. Y. Macmillan. 1911. (American Social Progress Series) . Howe, Frederic C. Wisconsin, an Experiment in Democracy. 202 p. N. Y. Scribner's. 1912. Bibliographical note, p. 193-96. McCarthy, Charles. The Wisconsin Idea. 323 p. N. Y. Macmillan. 1912. Bibliographical note, p. 307-17. McLaughlin, Andrew C. The Courts, the Constitution, and Parties: Studies in Constitutional History and Politics. 299 p. Chicago, University of Chicago Press. cl912. 140 Law, Legislative Reference and IVIerriam, C. E. Primary Elections. . . . 308 p. Chicago. Uni- Aersity of Chicago. 1908. Bibliographical note, p. 289-95. Munro. William Bennett, ed. The Initiative, Referendum, and Recall. 365 p. N. Y. Appleton. 1912. Ransom, William L. Majority Rule and the Judiciary, an Examination of current Proposals for Constitutional Change affecting the Relation of Courts to Legislation, with an Introduction by Theodore Roosevelt. 183 p. N. Y. Scribner's. 1912. Squier, Lee Welling. Old Age Dependency in the United States, a Complete Survey of the Pension Movement. 301 p. N. Y. Macmillan. 1912. Wilcox, Delos F. Government by all the People or the Initiative, Referendum and the Recall as Instruments of Democ- racy. 324 p. N. Y. Macmillan. 1912. Wilson, Woodrow. The New Freedom. 294 p. N. Y. Doubleday, Page & Co. 1913. (Rev. in Annals v. 49: 257-58, September, 1913). Criminology and Penology. Brockway, Zebulon Reed. Fift>- Years of Prison Service. 437 p. N. Y. Charities Publication Committee. 1912. Currier, Albert H. The Present Day Problem of Crime. 179 p. Boston. Richard G. Badger, The Gorham Press. 1912. Municipal Reference Libraries 141 Parmelee, Maurice. The Principles of Anthropology and Sociology in their Relations to Criminal Procedure. 410 p N. Y. Macmillan. 1908. Quinton, R. F. Crime and Criminals. 1876-1910. 259 p. N. Y. Longmans. 1910. A detailed study of English criminals, prison administration, and criminal reform. . The Modern Prison Curriculum, a General Re- view of our Penal System. 276 p. London. Mac- millan and Co. 1912. On punishment, reclamation, and the treatment of minor crime; contains the Prevention of Crime Act, 1908. There are also certain series of books of such a nature that practically all titles in the series are worth having in a library interested primarily in legislation and the underlying causes therefor. "The American State Se- ries," edited by W. W. Willoughby, published by the Century Company, "The Citizens Library of Economics, Politics and Sociology," edited by Richard T. Ely, and "The American Social Progress Series," published by the Macmillan Company, are examples. The "Debaters' Handbook Series" of the H. W. Wilson Company, now of White Plains, N. Y., is specially useful with its selected articles on the merits and demerits of proposed solutions of public questions and its conven- ient bibliographies. This series now comprises twenty- two books. Debater's Handbook Series. "Capital Punishment," by C. E. Fanning. 1913. 2d ed. 239 p. Bibl., p. 24. "Central Bank," by E. C. Robbins. 1910. 182 p. Bibl., (5)-13. 142 Law, Legislative Reference and "Child Labor," by E. D. Bullock. 191L 196 p. Bibl., p. 20. "Commission Plan of Municipal Government," by E. C. Robbins. 1912. 3d ed. 180 p. Bibl. (15)-29. "Compulsory Arbitration of Industrial Disputes," by L. T. Beman. 1911. 50+ 115 p. Bibl. (23)-50. "Compulsory Insurance," by E. D. Bullock. 1912, 266 p. Bibl. 35. "Conservation of National Resources," by C. E. Fan- ning. 1913. 153 p. Bibl. (11)-15. "Direct Primaries," bv C. E. Fanning. 1911. 3d ed. 145 p. Bibl. 20 p. "Election of U. S. Senators," by C. E. Fanning. 1912. 2ded. 116 p. Bibl. (11)-16. "Emplovment of Women," bv E. D. Bullock. 1911. 147'p. Bibl., 18 p. "Enlargement of U. S. Navy," bv C. E. Fanning. 1910. 3d ed. 138 p. "Federal Control of Interstate Corporations," by E. M. Phelps. 1911. 200 p. Bibl. (15)-26. "Free Trade Versus Protection," bv J. E. Morgan. 1913. 186 p. Bibl. (19)-29. "Government Ownership of Railroads," bv E.M. Phelps. 1912. 179 p. Bibl. (21)-31. "Income Tax," by E. M. Phelps. 1911. 2d ed. 147 p. Bibl. (9)-29. "Initiative and Referendum," by E. M. Phelps. 2d ed. 1911. 164 p. Bibl. (11)-31. "Municipal Ownership," by J. E. Morgan and E. D. Bullock. 1911. 219 p. Bibl. (15)-24. "Open versus Closed Shop," by E. C. Robins. 2d ed. 1912. 194 p. Bibl. (13)-21. "Parcels Post," by E. M. Phelps. 2d ed. 158 p. 1st ed. 1911. 142 p. Bibl. (13)-21. "Reciprocity," by E. C. Robins. 1913. 222 p. Bibl. (15)-22. Municipal Reference Libraries 143 "Trade Unions," by E. D. Bullock. 1913. 262 p. Bib., p. xi-xxvii. "Woman Suffrage," by E. M. Phelps. 2d ed. 1912. 162 p. Bibl. (17)-37. (c) Serial Publications, Periodicals, Society Proceedings, etc.^^ 1. General. The extent to which the legislative reference library should attempt to maintain unbroken files of periodicals and society proceedings will naturally be influenced by the availability of such material in the state library and the facilities offered by other local collections. Available funds are also a factor in this question as they are in most. It seems obvious, however, that a fairly large number of journals should be regularly searched for discussions or items of news pertinent to the work immediately before the library. For purposes of discussion these may be divided into two groups: publications to be examined each issue for news notes and special articles, and publi- cations for which subscriptions should be entered, irre- spective of the fact that the subscription may dupHcate one from the state library. Among those regularly examined though not neces- sarily subscribed for would be general weekly periodicals such as the Nation, Outlook, Independent, Collier's National Weekly, and t\v& Literary Digest; monthlies like the Atlantic, Century, Everybody s, Forum, Harper s, 8^ For full bibliographical details of the periodicals mentioned, consult the "List of Periodicals Indexed" in the Readers' Guide and Readers' Guide Supplement, in the Annual Magazine Subject-Index, in the Index to Legal Periodicals and Law Library Journal, the list of "Periodicals — Library, Book Trade and Kindred," in the American Library Annual and Walter's Periodicals for the Small Library (Chi- cago A. L. A. Publishing Board, 1913). 144 Law, Legislative Reference and McClures, North American Review, Review of Reviews, Scrihners and the World's Work. Certainly subscrip- tions would be entered for many of those if they were not already easily accessible. A list of the journals of a more restricted scope which should be scanned each issue would include such things as La Follettes Weekly, the Public, Educational Review, Banker s Magazine, Muni- cipal Engineering, Engineering Magazine, Municipal Journal and Engineer, Public Service, American Federa- tionist, the important law journals not taken by the library, and the organs of the interests and trades to be affected by proposed legislation. In case the copy examined of any of these periodicals named contained an article needed the single issue might be purchased and the article clipped, or a reprint of the article might be obtained from the writer. In some cases important articles might be catalogued in the regular catalogue and thus definitely located, though the article itself might not be immediately secured. Judgments will differ even more on any list of peri- odicals and society proceedings for which separate subscription should be entered. At least two distinct types must be received; those which bear upon actual or proposed legislation or conditions necessitating legislation and those which make a special point of calling attention currently to new books, documents, and articles which the legislative reference librarian may wish to secure. In the first group would come the American Political Science Review, the Annals of the American Academy of Political and Social Science, the Proceedings of the National Conference of Charities and Corrections, the Amer- ican Economic Review, the Journal of Political Economy, Municipal Reference Libraries 145 the Political Science Quarterly, the Proceedings of the American PoUtical Science Association, the Proceedings of the Academy of Political Science in the City of New- York,^" the Proceedings and Addresses of the National Education Association, the Delinquent, the Quarterly Journal of Economics, the National Tax Associations, Annual Conferences on State and Local Taxations, the Sur- vey, the Journal of the American Institute of Criminal Law and Criminology, the Proceedings of the National Prison Association, the Child Labor Bulletins of the Na- tional Child Labor Committee, £gMt/>' Series, the American Law Review, Harvard Law Review, Central Law Journal, and the local state law review. This first group includes several, such as the American Political Science Review, American Economic Review, and Survey, which are particularly useful in directing attention to current publications in addition to the value of their own contributed discussions. In this same general class, though illustrating a type of publication perhaps not usually thought of in connec- tion with legislation, would come the publications of certain learned societies, university "studies," and so on, of which occasional numbers would have a special bearing on matters of legislative concern. The Carnegie Foundation would illustrate the kind of institution meant. In the Seventh ^^ Annual Report of the President and of the Treasurer of the Carnegie Founda- tion for the Advancement of Teaching appears a notable discussion of the pension problem now prominent in educational circles in a number of states. The other reports and bulletins of the Foundation are extremely ^^ Each number devoted to a separate topic; i.e.. Vol. 3, no. 4, July, 1913. "The Caged Man," a summary of existing legislation in the United States on the treatment of prisoners. 136 p. 91 1912. 146 Law, Legislative Reference and valuable and bear on many phases of state education and particularly the standards that should be set. Any state having within its borders a medical school con- demned in the Foundation's Bulletin Number Four on "Medical Education in the United States and Canada"^^ or any of the "Sham Universities" exposed in the seventh annual report^^ should set about righting con- ditions by stringent legislation. Among university studies containing frequent con- tributions in the field of legislation are the Columbia University Studies in History, Economics, and Public Law, and the Johns Hopkins University Studies in Historical and Political Science. In the second group, valuable primarily in this con- nection for their news, notes, and index features, would come Special Libraries, the Publishers Weekly, the A.L. A. Booklist, the Book Review Digest, the Cumulative Book Index, the Readers Guide to Periodical Literature, the Readers Guide Supplement, Current Events Index, Quarterly Index to the New York Times, the Index to Legal Periodicals and Law Library Journal, the Annual Magazine Subject-Index, the Library Journal, Public Libraries and the American Library Antiual. This last is no longer the "Annual Poole.'' It now indexes no magazines but is specially valuable for its "Index to Dates of Current Events," list of "Bibliographies Pub- lished during the Year," "Directory of Publishers and Booksellers," as well as its other features. With the titles named in these several groups of serial publications, should be associated those previously named in connec- tion with the go\ernment documents such as the bulle- tins of state and federal bureaus of labor, health, edu- " 1910. 93 1912, p. 154-63. Municipal Reference Libraries 147 cation, and so on, and those sources which note the ap- pearance in print of these bulletins and other publica- tions, like the Monthly Catalogue of the Superintendent of Documents and the Monthly List of State Publica- tions of the Library of Congress. 2. Comparative Legislation. The publications devoted strictly to comparative legis- lation have been reserved till now for separate dis- cussion, but it will have been observed that among the periodicals already mentioned many keep in close touch with the laws enacted relating to activities in which they are specially interested. The American source for comparative foreign law in- formation is the Annual Bulletin of the Comparative Law Bureau of the American Bar Association. This has been issued on July first of each year since 1908, and has remained under the general editorship of Mr. William W. Smithers of Philadelphia, Secretary of the Bureau, since the beginning. In the list of officers and managers of the Bureau and of the editorial staff of the Bulletin, appear the names of the leading authorities in foreign law resident in the United States, each editing the sec- tions devoted to the country of his specialty. The foreign correspondents, actual practitioners of the law and noted names in their respective countries, give added weight to the already authoritative contributions to the Bulletin. The Comparative Law Bureau has the following objects: 1. The publication of an annual Bulletin, containing the titles of legislative enactments of foreign gov- ernments, and reviews of foreign law books and periodicals published during the preceding twelve months. 148 Law, Legislative Reference and 2. The translation into English and publication of foreign fundamental laws. 3. The translation into English of particular foreign laws and the preparation by specialists of legal opinions upon questions arising thereon. 4. The holding of an annual conference to discuss com- parative law generally, and to provide more thorough means by which foreign laws can become available to American lawyers. 5. The prosecution of special lines of research in for- eign legislation and the preparation of English translations of the results thereof for the benefit of American lawyers and students. 6. To maintain a list of correspondents at home and abroad representing high legal attainments re- specting every considerable nation and every system of laws. 7. To gather materials and information so thoroughly as to afford real aid to practicing lawyers, teachers and students upon the subject of foreign juris- prudence generally, including the widest practicable bibliography. Its membership is made up of members of American Bar Association, state and local bar associations, law schools, law libraries, institutes of learning, and other organized bodies. After preliminary data giving the names of officers, objects, editorial staff, necrology, and so on, each issue of this Annual Bulletin notes the location of the principal foreign law collections in the United States, presents a list of foreign codes now accessible in English, an editorial miscellany, brief notes on private international law. and several substantial special articles on numerous phases of foreign law. The second and larger portion of each number is devoted to a review of "Foreign Legislation, Jurispru- Municipal Reference Libraries 149 dence and Bibliography." Countries are considered in an alphabetical order, and for each country is offered as a rule a very brief summary of the important legislation of the preceding year, notes on important legal decisions, and a bibliography of the important legal publications — codes, treatises, and noteworthy articles — that have appeared during the year. Under the name of Latin America, the separate countries comprehended are arranged alphabetically, and do not take their alphabeti- cal places in the general list. A bibliography of the leading articles on foreign law which have appeared in legal periodicals the past year, with book reviews making a separate group, and several short reviews of current legal publications complete each issue. Valuable as this Bulletin is as the only American pub- lication dealing exclusively with comparative foreign law, its usefulness could be greatly enhanced by pre- senting more extended reviews of foreign legislation than is now the case. Its list of "Principal Foreign Law Collections in the United States," while serving a useful purpose, would be greatly increased in usefulness if some rough idea were given of the general scope and size of the individual collections by a brief note regarding each one. According to the Law Librarian of Congress the best collections of foreign law in the United States are at Harvard, at the Gary Library of Northwestern University Law School, Chicago, and at the Library of Congress. Mr. Borchard considers them of approximately equal rank. From the list in the Bulletin, however, no notion could be gleaned of the relative merits of any of the collections. Another criticism suggests itself in connection with the list of "Foreign Laws Translated," under which those 150 Law, Legislative Reference and now accessible in English are listed. The latest list (1913) of two pages, preserves no order consistently, lacks all bibliographical details, has no annotation, and under "Foreign Laws" includes such titles as Criminal Psy- chology by Gross, the other titles in the Modern Criminal Science Series, and Leading Cases on Hindu Law by Aiyar. Any list so miscellaneous as this should have a broader title, a classification, full bibliographical details, and descriptive notes. In Great Britain and on the Continent several so- cieties for studying comparative legislation had been in active operation before the foundation of the American Bureau in 1908. Their valuable journals are here characterized^^ in the order of their initial appearance. Societe de Legislation Comparee. Annuaire de Legislation Etrangere. (1870-), v. 1-, Paris, 1872-. "... The oldest and best known publication in thib field. It attempts to cover all countries but actually confines itself principally to the German and Latin countries of Conti- nental Europe. The legislation of the British Colonies, of the United States, and of the countries of South and Central America is very inadequately treated." (Dodd.) No refer- ences are made to French legislation. Each countr>^ is considered separately and the full text of important laws is given in French. Each volume is provided with a table of contents, text, chronological table of laws cited, and an analytical index which indicates whether the law indexed is fully transcribed, analyzed, or merely men- tioned in the text. The section devoted to notes on legislation in foreign coun- tries published in the Bulletin Mensuel of the Society supple- ments the comparative legislation data of the Annuaire. w The characterizations are based on an article by Prof. W. F. Dodd entitled "An Index of Comparative Legislation" {American Political Science Review, 1 : 62-75) and on an examination of files of 6uch of the titles as have been available. Municipal Reference Libraries 151 Society de Legislation Comparee. Bulletin Mensuel, 1869 . v 1 P^rlc 1872 . ' ^^"^' The Bulleiin contains in addition to lists of members and the proceedmgs of the society and its several sections lists of books received by the society, current legislation and legisla tive tendencies m various countries, and notes on new books Principally at the request of the foreign members of the Society It began the publication in 1882 of ^nAnnlaLde Legislation frangaise, volume one covering 1881 which it hav continued to date This last publication furni'shes the texts oHaws passed in France, Algiers, Tunis, and the French Colo- Internationale Vereinigung fur Vergleichende Rechts- wissenschaft und Volkswirtschaftslehre Jahrbuch. V. 1 , 1895 , Berlin, 1896 . "Does not attempt to publish texts of laws, and its reviews cover economic as well as legal matters. Although it attempts to review the legislation of all countries, it actually summarizes ;uln-f- uV , • ^^ European countries, and hardly touches the British Colonies and Spanish American republics, its treat- ment of Great Britain and the United States is slight, but its reviews of the legislation of the Slavic countries are superior to those of any other publication." Arranged alphabetically by ITcl TbJdd ) ' ^°"'^*'"'^^ ^^^^'■^' y^^""^ 'ate •" appear- Society of Comparative Legislation (London). Journal, v. 1 , 1896 . London, 1897 . Series 1 in two volumes, 1896-1897; series 2 (New Series). 1899 . Two numbers of the Journal constitute a volume. Each number contains authoritative contributed articles on various subjects, usually discussions of the laws of a particular country in a single field, and "notes" on matters of current interest- among these, "Comparative Law in the Blue-books" is a regular teature. Each year one of the numbers contains in addition an annual review of legislation. That for 1910 appeared in the May, 1912, Journal. This Review has a separate table of contents and detailed subject index. It consists of an intro- duction calling attention to the specially important legislation ot the year and summary statements (not the text) of laws passed in the separate countries and their constituent states or provinces, with special emphasis on Great Britain and the British Colonies. 152 Law, Legislative Reference and Institut de Droit Comparee. Revue, v. 1 . Brussels, 1908 . The Italian Institute Guiridico della R. University di Torino is working somewhat along the same line and similar work in Spain is represented by the fol- lowing : Giron, Vicente Romero and Noreno, Alejo Garcia. Coleccion de las Instituciones Politicas y Juridicas de los Pueblos Modernos. Madrid. Series I in 13 volumes "gives full texts in Spanish of the codes and principal laws in force in the countries of Europe. A second series, of which only two volumes have been pub- lished,'^ will give similar texts for North and South America." An annual appendix or Complemento to the Coleccion was begun in 1895 under the title Anuario de Legislacion Uni- versal of which nineteen volumes have been published.'^ Two volumes per year, one for American countries covering Latin America fully but neglecting the United States and Canada, the other giving the new laws and codes of European coun- tries. "The European volumes are very good for the most important countries of Continental Europe, Portugal, and the smaller states of Southeastern Europe, but Great Britain is inadequately treated and the British Colonies are hardly touched." Full texts usually given. (Dodd.) Since 1897 current Spanish laws have appeared in the Anuario de Legislacion y Jurisprudencia Espanolas.^'' The same publishers issue the Revista de los Tribunales y de Legislacion Universal, a weekly journal in three parts, part one containing a Cronica legislativa universal, part three being devoted to Spanish legislation. (Published by Editorial G6ngora, Apartados de Correos, nom. 152; San Bernardo, 50; Madrid). More recently another Spanish society has come into this field with its monthly publication, as follows: Institutd I bero- Americano de Derecho Positivo Com- parado. -Revista de Legislaci&n L'niversal v Jurisprudencia Espaiiola. 1908 . An important journal, suspended for a time, but now assured of government support which will permit an increase in usefulness and influence.'* "• None of later imprint than 1905. 9* The latest covers 1904. '" The latest was published in 1905. '* Cf. Annual Bulletin of the Comparative Law Bureau of the Amer. Bar. Assn., July 1, 1913, p. 107-8. Municipal Reference Libraries 153 Next to these publications dealing with comparative foreign legislation, almost if not entirely to the exclusion of other subjects, should be mentioned another type of publication to which recourse for foreign law data may occasionally be had with profit, though it does not devote itself strictly to this subject. Examples are the Revue Genirale du Droit, de la Legislation et de la Jurisprudence en France et a L'Etranger^^ and the Revue de Droit International et de Legislation Comparee}'^^ Other publications represent comparative legislation in a more restricted sense by covering a single field of law though following its development in all important countries. Such a publication as the Bulletin of the In- ternational Labor Ofiice now published in German, French and English is typical. It offers extracts and frequently the full texts of both national and inter- national labor legislation. Another is the Annuaire International de Legislation agricole, volume one of which covering the year 1911 was published by the International Institute of Agriculture in Rome during 1912. Limiting the term still further till it represents only discussions of American State Legislation, there should be named the American Labor Legislation Review issued quarterly by the American Association for Labor Legis- lation in New York City. One of these quarterly bulle- tins is an annual review of labor legislation throughout the states in which an analysis by subjects Is followed by a topical index by states. The proceedings of the society appear in the series and occasionally numbers are devoted to a single subject, such as that for June, 1912, on "Industrial Diseases," which contains also a " Paris, Fontemoing et C*^ 4 Rue le Goff. "» Bruxelles, Bureau de la Revue, 35 Place de I'lndustrie. 154 Law, Legi^ti\'e Reference and forty-eight page bibliography. In June, 1911, the topic was "Coanfort, Health and Safety in Factories," die first one hundred pa^es secure uniform legislation on a number of subjects is advancing witii e3.zr. annxtal conference --second Conference was largely taken up in the consideration of the proposed amendments to the Negotiable Instruments Law, the draft of an act on the subject of Marriages in Another State or Countr>- in the E\-asion or Molation of the Laws of the State of Domicile, the third tentative draft of an act to make uniform the Law of the Incorporation of Business Corporations, the draft of a Workmen's Compensation Act, the discussion of the uniform Part- nership Act. the Torrens System of Registration of Land Titles, and the Report of the Committee on the Situs of Real and Personal Property- for Purposes of Taxa- tion." In the proceedings published each year are foimd a list of the commissioners composing the conference, lists of committees, reports of both standing and special committees, and the addresses delivered at each con- ference. The address of the President usually re\-iew5 the pro- gress of uniform state legislation and notes the results of the recommendations of the Conference. In the re- ports of the committees are frequentiy found drafts of uniform laws as recommended bv these committees. Each 156 Law, Legislative Reference and year the Proceedings are published separately in full and in the annual volume of Reports of the American Bar Association with which the Commissioners on Uniform State Laws meet.^"^^ Closely associated with the movement for uniform state laws is another movement which may prove even more effective. That is the attempt being made more and more to produce drafts of so-called model laws for the several states. Uniform legislation is almost im- possible in any considerable number of states as the legislative amendments and varying court interpreta- tions of "uniform" laws have shown. Model laws, how- ever, appear to some a far more desirable goal than uniform laws under our present system of separate state authority and local, independent interpretation of legislative intent. Two illustrations of suggested "model" laws follow. Fire Marshal Association of America. Suggestive State Fire Marshal Law. 13 p. Xo\'. 7, 1912. National Board of Fire Underwriters. Suggested State Laws. Transportation and Carriage of Explosives. 4p. Sept. 1912 Manufacture, etc. of Explosives. 10 p. Sept. 1912. Manufacture, etc. of Matches. 4 p. Sept. 1912. State Fire Marshal Law. 10 p. Dec. 1911. ">' The Proceedings may be obtained from the President, Charles Thaddeus Terry-, 100 Broadway, N. Y., or Clarence N. Woolley, Secretary. The general field of the work covered by the Confer- ence is indicated in the following list of committees appointed for 1912-13: 1. P2xecutive committee. 2. Commercial Law. 3. Wills, Descent and Distribution. 4. Marriage and Divorce. 5. Convey- ances. 6. Depositions and Proof of Statutes of other States. 7. Insurance. 8. Congressional Action. 9. Appointment of New Com- missioners. 10. Purity of Articles of Commerce. 1. Uniform Incor- poration Law. 12. The Torrens System and the Registration of Land Titles. 13. Banks and Banking. 14. Publicity; and Special Municipal Reference Libraries 157 In the discussion of this whole subject of comparative legislation the publications of the government of the United States, the separate states, and of foreign governments in the field of comparative legislation, taken up earlier in the text, must not be forgotten. (d) Miscellaneous Pamphlets. No small value will at times attach to pamphlets as among them may be found brief summary statements of laws or accounts of attempts to apply them. Reprints of articles and of papers read before societies, and argu- ments showing the views of an individual or of an asso- ciation are frequently issued in this form. The four titles following illustrate useful examples of compilations of laws so published. Baldwin, William H. The present Status of Family Desertion and non- support Laws. 39 p. Wash. IQIL A paper delivered at the National Conference of Charities and Corrections, Boston, Mass., June 10, 1911, discussing the laws as in force at the end of 1910 and presenting the uniform law of the Commissioners on Uniform State Laws. Committee of Fifty, Illinois. How the Uncared-for Epileptic fares in Illinois — Colony Care the Remedy — a Plea for Immediate Legislative Action — How You can Help. 48 p. 1913. Includes a map showing states that have colonies, statis- tics regarding existing state colonies and a bibliography, 3p. Committees on Vital and Penal Statistics; Child Labor Legisla- tion; Compensation for Industrial Accidents; Situs of Real and Personal Property for the Purposes of Taxation; To Co-operate with the American Institute of Criminal Law and Criminology; A Uni- form Law Relating to Boilers and Their Inspection; Expert Testi- mony in Criminal Proceedings; Legislation Relating to the Use of the Flag; Computation of Time. The President's address of 1912 on "Progress of Uniform Legislation," is the latest review of this kind in print. (In American Bar Ass'n. Reports, 37: 1094-1113.) 158 Law, Legislative Reference and Hardy, Rives B. A Digest of the Laws and Practice of all the States of the Union in Reference to the Employment of Con- victs. 17 p. Richmond, 19n. Terry, C. T. Digest and Analysis of the Motor Vehicle Laws of the various States, Territories and Federal Districts of the United States. 22 p. American Automobile Association, 1911. Contains a model automobile law. (e) Correspondence. Just as printed books play a relatively small role in legislative reference work, so that of correspondence is unexpectedly important. Through this medium is sought information regarding what investigations may already have been conducted on questions that come up locally for the first time, information of a bibliographical character from libraries, institutions, and individuals most likely to possess it, and, perhaps most valuable of all, the opinions of experts on the working out of certain administrative policies and their advance criti- cism of proposed laws. Postage is therefore no inconsid- erable item in a legislative reference bureau's budget. By correspondence also is revealed the splendid spirit of co-operation and mutual helpfulness among the various bureaus which is no small factor in the efficiency and success of all. (f) Clippings. Special libraries of many types have found it of dis- tinct advantage to maintain files of clippings from news- papers, magazines, and society proceedings, and on occasion have not hesitated to pull to pieces bound books. Municipal Reference Libraries 159 classifying the portions needed with the other literature in the library on the specific topic treated in the excerpt. That this is recognized as a procedure peculiarly appro- priate to the legislative reference library is made specially clear in the Report to Congress on Legislative Reference Bureaus, by Dr. Putnam, Librarian of Congress. He says : "A legislative reference bureau goes further. It under- takes not merely to classify and to catalogue, but to draw off from a general collection the literature — that is, the data — bearing upon a particular legislative project. It indexes, extracts, compiles. It acquires extra copies of society publications and periodicals and breaks these up for the sake of the articles pertinent to a particular subject. It clips from newspapers; and it classifies the extracts, the compilations, the articles, and the clippings in scrapbook, or portfolio, or vertical file in such a way that all material relating to that topic is kept together and can be drawn forth at a moment's notice. To printed literature it often adds written memoranda as to fact and even opinion as to merit which it secures by correspondence with experts." An important question arises in connection with clippings. Should the library undertake to do its own reading and clipping or should it rely upon a clipping bureau for all or part of this work? Two important contributions have recently been made toward a solution of this question, both carry weight and are of present interest. The first is a report of the committee investi- gating the use and methods of handling and filing news- papers made to the Special Libraries Association at the Kaaterskill Conference, 1913.^"^ Merely the conclusions of this illuminating report will be given. It concludes thus: 1"^ Printed in Special Libraries 4: 157-161, Sept.-Oct., 1913; also reprinted separately. Jesse Cunningham, Librarian, School of Mines, Rolla, Mo., Chairman of the Committee. 160 Law, Legislative Reference and "L This investigation shows that the chief source of cHppings is independent reading and cHpping by the institutions themselves. The service of the clipping bureau seldom meets the needs and for scientific and technical purposes is almost valueless. The needs of each institution are better satisfied when the clipping and collecting is done by the institution's staff who are thoroughly familiar with the demands to be met. "2. The Dewey decimal classification and its various expansions is most widely used. The alphabetical ar- rangement by subjects following the headings of the Readers' Guide to Periodical Literature ranks alongside the Dewey and has many advocates. "3. The manila and card board mounts with the clip- pings pasted on them in such a way as to allow binding and shelving with other material on the same subject seems a satisfactory method of filing. Large and valu- able pieces are bound as books. Vertical files have their advocates and are used extensively. "4. The Dewey decimal system of classification pro- vides its own relative index. The alphabetical arrange- ment by subjects is self-indexing and there is the Readers' Guide in addition. Full cataloguing of clippings is ideal, but expensive. "5. The ephemeral character of the material requires constant elimination, {sic.) "6. Clippings may be used the same as books and are often required to supplement printed books which are out of date as soon as published. For debate work and legislative reference they have great value. "7. The advantages claimed for clippings are their up-to-dateness, timeliness, small cost, convenience to send by post, flexibility, compactness, and they are very fre- quently the only material to be had on a subject when it is alive. A leading disadvantage is, the material is not entirely reliable, often being found inaccurate and sometimes entirely wrong and misleading. The labor and cost of arranging is great. They arc difficult to index and the tendency is to accumulate too much dead material." Municipal Reference Libraries IGl The other contribution to the discussion is an exposi- tion of the methods of the cHpping bureau itself,^"' a de- fense of its work, and a plea for fairness in passing judgment. The Hbrarian is charged "with failure to analyze the work of acquiring and storing information," a work "partly manual and partly mental. The clipping bureau is qualified to do much of the manual labor, some of the mental. What it is competent to do, it does at a great saving of cost." The greatest obstacle in the way of harmonious relations with customers, Mr. Luce finds, is their "tendency to appraise our product item by item rather than in the mass. . . . Each of our readers must try to bear in mind the wants of a great many persons. To pass careful judgment on each of 20,000 clippings a day that are sent out, would slow down the work so that prices would have to be much raised. . . . So in the long run we find it cheaper to send out many clippings that greater exercise of discrimination would reject. This is taken into account in the scale of charges. So we think it fair for the customer to pass judgment on the value of the service as a whole." The mechanics of clipping bureau work are detailed in a way which shows clearly that the winnowing should be left to the specialist, and Mr. Luce's claim is that "a single nugget in a cradle-full of gravel may far more than repay the whole cost." He pleads for a mutual understanding of each other's needs and difficulties, urges co-operation by all concerned, and the broad re- quest rather than the specific, as the latter may be lost sight of in the thousands of topics watched while the wholesale order will catch the specific items as well. '"^ Robert Luce, President of the Luce Clipping Bureau, on "The Clipping Bureau and the Library." (In Spec. Libs. 4: 152-57; Sept.-Oct., 1913. 162 Law, Legislative Reference and The two studies desen'e careful consideration from all interested. (g) Bibliographical Aids (Bibliographies and Indexes). The number of bibliographical aids which might be consulted with profit at one time or another in the legislative reference library is already great and is constantly growing greater. New ventures in biblio- graphical work are adding variety as well as numbers to this form of undertaking, and many such undertak- ings can be made of direct use in legislative reference work when the original purpose was one quite apart from this. Some of the bibliographical aids which received con- sideration^^^ in the discussion of law libraries are of equal value in the present connection. Mr. Borchard's "Guides to Foreign Law," the Bibliography of Legal Science, and Wigmore's Preliminary Bibliography of Criminal Law and Criminology are examples. Again, earlier pages of the present text have considered the bibliographical aids to be used with federal and state documents, the value of periodicals as sources of bibliographical information on current literature, and the serial indexes to periodical literature generally, all of which have distinct value from the present point of view. A summary statement of the principal types of bibli- ographical aids of value to the legislative reference library might be made in the following form. L Bibliographies Issued Separately. e.g., Farnam, Henry W., comp. Bibliography of the Department of Economics and Sociology of the Carnegie Institution of Wash- ington. 17 p. Wash. 1912. "•* p. 37-45, supra. Municipal Reference Libraries 163 Harvard l^niversity. A Guide to Reading in Social Ethics and allied Subjects; Lists of Books and Articles selected and described for the Use of general Readers. 265 p. Cambridge. 1910. Classified, annotated, and indexed. Stammhammer, Josef. Bibliographic der Social-Politik. 2v. Jena. 1896- 1912. Vol. 1 published in 1896, vol. 2 covers 1895-1911 and supple- ments vol. 1. An alphabetico-classed list, exceedingly com- prehensive, including magazine articles and separates. Talbot, Winthrop. A Select Bibliography of recent Publications on Helpful Relations of Employers and Employed. 112 p. Cleveland. 1912. A classified and annotated list with separate author and subject indexes; a very useful bibliography but bearing some evidence of careless revision. United States Catalog: Books in Print, 1911. 2837 p. H. W. Wilson, Minneapolis. 1912. An author, subject, and title catalogue of about 150,000 American books in print January 1, 1912, and of all American books published since January 1, 1905. Includes govern- ment documents of general interest and lists bibliographies under the proper subject headings with the sub-head, "Bibli- ography." Library of Congress printed catalogue card num- bers are attached to entries. Supplemented by the next item. Cumulative Book Index, Fifteenth Annual Cumu- lation; Author, Title and Subject Catalog in one Alphabet of Books published in 1912. Minneapolis, H. W. Wilson. 1913. Compiled by Marion E. Potter and Emma L. Teich. 2. Bibliographies in Books. e.g., Frankel, Lee K. and Dawson, Miles M. Workingmen's Insurance in Europe . . . with the Co-operation of Louis I. Dublin. 477 p. N. Y. Charities Publication Committee, 1911. "Partial Bibliography," p. 437-42. 164 Law, Legislativ^e Reference and Jones, Chester Lloyd. Statute Law Making in the United States. 327 p. Best. Boston Book Co. 1912. "A selected list of books on statute law," p. ix-x. King, Clyde Lyndon, ed. . . . The Regulation of Municipal Utilities. . . . 404 p. N. Y. D. Appleton. 1912. "A Selected Bibliography," p. 387-391. 3. Bibliographies in Periodicals. Some periodicals are themselves bibliographies. e.g., A. L. A. Booklist, Chicago. A monthly annotated guide to current books, published by the American Library Association and seeking primarily to aid the smaller libraries in book selection. Bibliography of Social Science, v. 1-8, 1905-12. Chicago. The Journal of the International Institute of Social Bibli- ography, issued monthly in English, German, French, Italian, Russian, and Hungarian. Superseded January, 1913, by the Bibliographic der Sozial- wissenschaften herausgegeben im Auftrage des Reichsamt des Innern. (Berlin.) Book Review Digest Jan. 1906 , v. 1 , Minne- apolis. A monthly publication cumulating quarterly and yearly; contains extracts from reviews in about forty-five American and English journals. Cumulative Book Index. v. 1 , Minneapolis. 1898—. A monthly publication cumulating quarterly and yearly; a dictionary catalogue of books published, supplementing each month the United States Catalog. Publishers' Weekly, v. 1 , New York. 1872 . A book-trade periodical containing a list of the books of the week with descriptive notes by the publishers; cumulates monthly, quarterly, and annually. The leading political and economic journals and many others offer bibliographical data in the shape of reviews and notes of current publications and events, and usually present, in addition, a separate bibliography Municipal Reference Libraries 165 of current literature in their respective fields. The jour- nals given illustrate this in the sections or departments specified. American Academy of Political and Social Science. Annals, v. 1 , Philadelphia. 1890 . In each issue, which covers a single subject, is a "Book Department," containing "notes" on a considerable numl>er of recent publications and longer "Reviews" of about ten new books. American Economic Review, v. 1 , Princeton, N. J. 1911 . Gives "Reviews and Titles of New Books," "Documents, Re- ports and Legislation," and "Periodicals" (abstracts). American Journal of Sociology, v. 1 , Chicago. 1893 . Contains "Reviews," "Recent Literature: Notes and Ab- stracts," and "Recent Literature: Bibliography." The American Political Science Review, v. 1 , Baltimore. 1896 -. Contains "Notes on Current Legislation," "Current Municipal Affairs," "News and Notes: Persona! and Bibliographical," "Book Reviews," "Recent Government Publications of Political Interest," and "Index to Recent Literature, Books, and Peri- odicals." The Economic Journal, v. 1 , London. 1891 . Contains "Reviews," "Notes and Memoranda" (including notes of British government documents), and "Recent Periodicals and New Books." The Journal of Political Economy, v. 1 , Chicago. 1892 . Contains "Notes" and "Book Reviews and Notices." National Municipal Review, v. 1 , Philadelphia. 1912 -. Sections on "Notes and Events" cover I. Government and Administration, 11. Functions, III. City Planning and Improve- ment, IV. Politics, V. Conferences and Associations, VI. Educa- tional and Academic, VI I. Social and Miscellaneous. Other sections are "Department of Legislation and Judicial Decisions;" "Department of Reports and Documents," part I, Critical and Interpretive, part II, Bibliographical; "Book Reviews." 166 Law, Legislative Reference and Political Science Quarterly, v. 1 , Boston. 1886 . Contains "Reviews," "Record of Political Events" (June and December issues), "Book Notes" (March and September). Quarterly Journal of Economics, v. 1 , Cambridge, Mass. 1886 . "Reviews," "Notes and Memoranda," and "Books Received." Revue de Science et de L6gislation Financi^res. v. 1 , Paris. 1902 . Contains "Bulletin Bibliographique" and "Index Bibliogra- phiquc." Revue des Sciences Politiques. v. 1 , Paris. 1885 . Contains "Bibliographic" made up of Comptes rendus critiques, Analyses, and Ouvrages envoyes d la redaction. Revue Economique internationale. v. 1 , Bruxelles. 1904 . The section on "La Vie Scientifique" contains Revue des Livres. Each number contains a monthly fascicule of the Bibliographia Economica Universalis characterized as a Repertoire Bibliogra- phique des Travaux Relativs aux Sciences Economiques et Sociales (Livres, Memoires, Articles de Revues). Special Libraries, v. 1 , Indianapolis. 1910 , Usually contains a separate bibliography on some current public affairs question, a list of recent bibliographies, and a list of recent references to various public affairs topics. One of the best sources for current bibliographical informa- tion on public utilities, rates, valuation, etc. What bibliographies have been published during a given year or whether or not a bibliography of a given subject is in print can best be learned by consulting the bibliographies of bibliography like Courtney's Register of National Bibliography,'^^^ the list furnished each year in the Annual Library Index, the United States Catalog under the particular subject, sub-division ''Bibliography ' and the Cumulative Book Index. Bibli- ographies published by libraries are indexed each year in the Bulletin of Bibliography }^^ The cumulated index to volumes 1-3 of Special Libraries is particularly valu- »»» 3 V. Lond. Constable, 1905-191L For additional titles see Kroeger Guide and Supp. '»« See p. 321, post. Municipal Reference Libraries 167 able in this connection as so many important bibli- ographies are noted in each issue. 4. Indexes to Documents. e.g., Cf. The indexes to federal and state documents, p. 109-13, 114, 125-28 iw/m. 5. Indexes to Books. Indexes to single books frequently serve a double purpose. They reveal the subjects treated of in the book itself and at times surprise the searcher with a bit of unexpected and welcome information. The index may also reveal the fact that a much needed title has been quoted from in the text in hand to an extent satisfying present needs; or, it may reveal a citation, recourse to which leads to the whereabouts of important information. These facts are obvious, but in the hurry of ready refer- ence work are apt to be overlooked. e.g., The index to Beard and Shultz Documents on the State-wide Initiative, Referendum and Recall reveals the presence of the "Iowa Commission Govern- ment Law" provisions on these subjects, and the fact that the initiative and referendum provisions of the Oklahoma constitution have been upheld by the Oklahoma Supreme Court, The index to Reinsch's Readings on American State Government reveals the presence of Senator Bourne's long speech on "Popular Government in Oregon" which, in turn, notes the votes for and against meas- ures submitted to the people from 1904 to 1908. Analytical indexes to sets of books and to miscella- neous writings have their special uses. e.g., A. L. A. Index; an Index to General Literature. Ed. 2 enl. 679 p. Bost. [A. L. A. Publishing Boardl. 1901. 168 Law, Legislative Reference and Annual Library Index, 1892-, N. Y. Publishers' Weekly, 1893-. Through 1910 this contained each issue an index to parts of books, essays, etc., supplementing the A. L. A. Index. This publication, formerly known as "the annual Poole," because of its index to magazine articles no longer indexes either periodicals or books. It provides, however, an annual "Index to Dates of Current Events," "Necrology of Writers," list of "Bibliographies Published," "The Year in Books," ''Peri- odicals," "Organizations," "Select List of Libraries in the United States and Canada," "Leading Libraries of the World," "Private Book Collectors," "Directory of Publishers," "Direc- tory' of Booksellers." Readers' Guide to Periodical Literature, v. 1 , Minneapolis. 1901 . In each issue indexes some fifteen to twenty books of gen- eral interest, including those dealing with political ques- tions, books usually of a more or less composite nature. 6. Indexes to Periodical and Society Proceedings. ^°^ Among the publications of this type should fall in- dexes to single sets of periodicals and society proceedings and the general indexes to magazine literature. e.g., American Academy of Political and Social Science Publications. 52 p. Philadelphia, 1912. American Economic Association. Publications . . . General Contents and Index of Volumes I to XI, 1886-1896. 52 p. N. Y. Macm. American Political Science Association. Classified List of Papers . . .1905-March, 1913. 23 p. 1913. Covers the Proceedings and the American Political Science Review. 107 p'or extended lists of indexes to periodicals, society proceedings, and in special fields consult Kroeger's Guide, p. 8-15; Supplement 1909-1910 by Mudge, p. 7-8. For recent discussions of periodical indexes see "History- of Indexes to General Periodicals" in Readers' Guide, 13: (Preface pages), June, 1913; and H. W. Wilson's "Peri- odical Indexes — A Reply," in Lib. Journal 38: 591-92, Oct., 1913. Municipal Reference Libraries 169 Jahrbiicher fiir Nationalokonomie und Statistik . . Register Band 1-75 und Supfolementhcft 1-21 bear- beitet von Dr. F. Wissowa. 296 p. Jena. 1902. . Gencralregister zu Band 76-95 . . . 1901- 1910 bearbeitet von Peter Schmidt. 213 p. Jena 1912. Quarterly Journal of Economics. Index of Authors and Subjects, Volumes 1-25, 1886-1911. p. 771-815. Cambridge. August, 1911. Annual Magazine Subject-Index, v. 1 , Boston. 1908 . Formerly issued quarterly in the Bulletin of Bibliography, the Boston Book Co. Index to Legal Periodicals and Law Library Journal. V. 1 , Chicago. 1907 . Published quarterly by the American Association of Law Libraries. Industrial Arts Index, v. 1-, Minneapolis. H. W. Wilson, 1913-. A new and apparently successful venture in fields hitherto unexplored; makes available articles on legislation affecting trades. Readers' Guide to Periodical Literature, 1900-. V. 1 . Minneapolis. 1901 . Issued monthly with quarterly and yearly cumulations. Readers' Guide to Periodical Literature Supplement, March, 1913-. v. 1 .Minneapolis. 1913 . "An index to general periodicals not now indexed in the Reader's Guide and which are subscribed for by large libraries. . . Issued bi-monthly omitting July, each issue fully cumulated." 7. Indexes to Newspapers and Dates of Current Events. In addition to their value as a key to particular newspapers, newspaper indexes in referring to news by dates may be used in connection with any representative paper. The New York Daily Tribune formerly published a yearly index but this ceased in 1906. The London Times 170 Law, Legislative Reference and has published an index since 1817 which is still kept up quarterly. Beginning with 1913 the New York Times has issued a quarterly index. A number of state libraries or library commissions maintain indexes to local news, some of which have occasionally been printed. Massachusetts, California, Texas, and Wisconsin are illustrations. Recent general indexes are: Index to Current Events, v. 1, Wisconsin Library Commission. Madison. 1907-1908. Based on the Milwaukee papers; the first part covers general news, the second Wisconsin only. Index to Dates of Current Events, v. 1-, R. R. BowkerCo. N. Y. 1912-. Monthly with annual and semi-annual cumulations. The annual cumulation appears also in the American Library Annual, noted above. Street's Pandex of the News, 1908; a Cumulative In- dex and Digest of the Newspapers of the United States, ed. and comp. bv Arthur I. Street. 343 p. Pandex Co., Chic. 1909. No more published. The digest feature was specially helpful and more developed than in the other indexes.'"* 3. Handling of MateriaL (a) Staff Organization and the Division OF Labor. ^*^ Primarily, of course, the amount of financial support to be counted upon is the paramount factor in determin- 108 In connection with bibliographies and indexes the reader is referred to p. 31, 32, 37-4."), 109-13, 114, 12.5-2S, supra. 109 The best available data in print on organization will be found in J. David Thompson's "Report to the Committee on Existing Agencies for rendering Expert Assistance to Members of Legisla- tures." Appendix B, p. 24-39 of this committee's Report to the American Bar Association, 1913; in Dr. Putnam's Report on Legis- lative Reference Bureaus (S. D. 7, 62d Cong. 1st Sess.); in the Hear- ings held by both the Senate and House Committees which con- sidered the various proposals before Congress, and in the several articles on library technique in legislative reference libraries listed on p. 428, post. Municipal Reference Libraries 171 ing staff organization and the division of labor in a legislative reference library. Next comes the question of duties assigned by law. If bill-drafting is specifically made a duty of the legis- lative reference bureau this fact necessarily plays an important part in the question of organization. The legislative reference bureaus in Illinois, Indiana, Michigan, Nebraska, New Hampshire, North Dakota, Ohio, Pennsylvania, South Dakota, Texas, Vermont, and Wisconsin are expressly authorized by statute to render assistance to members of the legislature in the drafting of bills. i^" In California, Connecticut, Massa- chusetts, and New York drafting agencies exist which are directly connected with the legislature itself and have no connection with the state library or with a legislative reference library. ^^^ The new California law establishing a "legislative counsel bureau" specifically provides, however, that "the material ... of the state library shall be made available to said bureau" and, while creat- ing a drafting bureau almost exclusively, will permit of any library work that might be deemed advantageous to the primary purpose of the bureau. Concrete illustration of the present organization of two or three of these reference and drafting bureaus may be useful in addition to the text of the legal re- quirements regarding organization found in the formal legislation establishing them.*^^ The reorganized Bureau of Legislative and Adminis- trative Information of Indiana has as its permanent staff a Director, Librarian, Assistant Librarian, Statis- 11" See laws in apx., p. 347-379. Ill See laws in apx., p. 347—379. 1" See apx., p. 347-349. 172 Law, Legislative Reference and tician. two stenographers, and one assistant. The mu- nicipal reference work of the bureau is in charge of Pro- fessor Frank G. Bates of the I'niversity of Indiana. In addition to this permanent force it is planned to have, during the next session of the legislature, at least two attorneys, several additional stenographers, and what- ever extra assistance may at the time appear necessary. The director states that the duties of the members of the staff are not definitely fixed and may overlap a little. "Our procedure," he writes, "is to do the thing which immediately needs to be done even if you have to take the whole force from their work to do it." In the division of labor the time of the director is given over largely to general work, planning, and special research. The librarian does the cataloguing and considerable research, and is aided by the assistant librarian whose special task is to keep in touch with organized activities in the field of public affairs. The statistician does research work, prepares special bulletins, and handles the bill- drafting. The attorneys will have the duty of examin- ing legislation and passing judgment upon it from the standpoint of form. Each staff member is also assigned various publica- tions and is expected to watch other sources for informa- tion pertinent to the needs of the bureau. A board consisting of the Governor, the State Librarian, the Presidents of Indiana and Purdue Universities and one additional member appointed by the Governor, con- trols the bureau, appoints the director, and fixes his salary and tenure. The director appoints the remainder of the staff and fixes their compensation. The bureau also is authorized to furnish to municipalities informa- tion relating to any phase of local government on a Municipal Reference Libraries 173 request from local officials. An appropriation of $13,500 is available annually while $2,500 additional was made available April 1, 1913, for organization work. The bureau is located in the State House at Indian- apolis, convenient to the State Law Library, the State Library, and the legislative halls. Mr. John A. Lapp, director of the bureau, has recently organized a "Public Affairs Information Service" which distributes to its forty co-operating libraries and other institutions information in regard to current publica- tions, and current undertakings of all sorts relating to public affairs. The information is supplied by the co- operating agencies, by clipping bureaus, and by special research on the part of the Indiana bureau. A number of mimeographed bulletins have been sent out and the service bids fair to become the leading co- operative agency among legislative and municipal reference libraries and research bureaus. Mr. Lapp as director of this bureau and manager of this service, as managing editor of Special Libraries, an associate editor of the National Municipal Review, and an active member of both the American Political Science Association and the National Municipal League, is taking advantage of a unique opportunity to render permanently valuable service in American public affairs movements. The Legislative Reference Library of Wisconsin is a department of the Wisconsin Free Library Commission. This commission consists of the State Superintendent of Public Instruction, the Secretary of the State His- torical Society, the President of the University of Wis- consin, and two others appointed by the Governor. It conducts also a Library School, a Traveling Library 174 Law, Legislative Reference and Department, and a Department of Library Extension and Visitation. Each department has its chief. The executive officer of the commission is its Secretary. The legislative reference library is internally com- posed of two departments, at least during sessions of the legislature. One is the library proper and the other the bill-drafting department. Both are under the direct super\^ision of the chief of the legislative reference library-, Dr. Charles McCarthy, who has complete con- trol of the entire staff. All members of the staff, in- cluding stenographers, are responsible, however, to the first assistant, who directs the work done in the general office. The cataloguing and regular library work proceed very much in the same manner as in any other library. Two assistants devote their time almost ex- clusively to cataloguing and classifying, though when it becomes necessary every member of the department may be put to work at reference questions. Two other members of the staff devote their time almost exclu- sively to reference work. The time of one person is given over entirely to clipping and pasting magazine and newspaper articles which have been previously marked by the chief or his first assistant. A large amount of copying is done of laws and papers which cannot be obtained in duplicate. Between sessions of the legislature reference w'ork is done for members wishing to study various questions or for those who are interested in the general legislative movement throughout the country-. During sessions the main strength of the department is devoted to the reference work which comes up in connection with the drafting of bills, or at the request of various members who wish to prepare themselves for committee work Municipal Reference Libraries 175 or for debates upon the floor. All of the work which is done in the department, either by the cataloguers or by the reference department, is reviewed by the chief or his assistant before it is handed to the one who made the request. This is to produce a minimum of error and a maximum of uniformity. ^^' The work of the bill-drafting department during a session of the legislature has been even more systemati- cally arranged, as is shown in the following description prepared by the library itself in response to numerous inquiries. The opening paragraph relates again to the strictly referehce library work involved. "An Outline of the System used in the Bill Drafting Department of the Legislative Reference Library of Wisconsin During the Session of 1913. "Dr. Charles McCarthy is librarian and chief of the whole department. The department is divided during the legislature into two parts — one, the library proper, and the other the bill drafting department. The library staff consists of Mr. McCarthy as librarian, an assistant librarian and three (or more) library assistants, and two or more young men who are engaged in research work along some special line. In addition to these people engaged solely in library work, there are clerks, stenog- raphers, and apprentices on the staffs. "At all times men of the faculty of the University of Wisconsin co-operate with us and come and offer sug- gestions, criticisms, or give any help which it is within their power to give, when they are requested to do so. "' Based on an account furnished by Miss Clara A. Richards, assistant to the chief. 176 Law, Legislative Reference and None of them, however, are upon the pay-roll of the librar>-. "The Bill Drafting Department during the last session consisted of Mr. McCarthy as chief, a head draftsman, and three assistant draftsmen, all of whom were expe- rienced lawyers; a chief clerk and two assistant clerks, who also acted as proofreaders, and four regular stenog- raphers, and during the rush season some who served temporarily, and an errand boy. The connection be- tween the two departments is direct, but the work is conducted in separate apartments. The library section obtains any material which the bill drafters may want of a comparative nature, or any historical and biblio- graphical data. In fact it does any reference work which may come up in connection with the bill drafting. Similar work is done for any member of the legislature, who may wish to know the history of any legislation or the economic movement which would lead to the necessity for any special legislation. "The relation between this department and the legis- lature is wholly voluntary', and no legislator comes here for assistance except at his own desire. When, however, he does come, he is required to present a signed state- ment of the matter which he wishes to be incorporated in the bill which he wishes to have drafted. When he comes to the bill drafting department he is met by the chief clerk, who takes his request, sees that it is properly signed, and fills out a blank of instructions. For the convenience of the department, there are two blanks, one printed on white paper and the other on green paper. These blanks "* are almost identical except in color. •" See fig. 1. Municipal Reference Libraries 177 Name Brown , Sen. J. Number 60 Date Received Feb. 2 Date Wanted Feb. 11 Instructions Copy Criticise Draft v^ ' Draftsman Riley Stenographer Proof Reader Remarks Sunday Work Fig. 1. (This sheet remains in file and shows who has bill.) Number 60 Date Received Feb. 2 Date Wanted Feb. 11 Instructions Copy Criticise Draft y Draftsman Riley (signed by Draftsman) Stenographer F.E.R. (signed by stenog. ) Proof Reader P. M. (signed by Proof Readers) Remarks Fig. 2. (This record sheet is always attached to Instruction Blank and remains with drafts and copies of bill.) 178 Law, Legislative Reference and For convenience sake we will number the white slip Fig. 1 and the green slip Fig. 2. The date of receipt is stamped upon them and the name of the person desiring to have the bill drafted is placed upon the white slip which is numbered Fig. 1, but not upon the green slip, which we will refer to as Fig. 2. On both of them the subject of the bill is sketched in, the time wanted is indicated, and whether or not it is to be merely copied, criticised, or drafted. The white slip is now placed in a vertical folder in a Globe Wernicke tiling case. The green slip is handed to the draftsman to whom it has been assigned, with his name written on it, and when he is through with it and hands it to the stenographer, the stenographer's name is inserted, and when she is through with it, the proofreaders sign the slip, so that a complete history of the progress of the bill through the department may be found on slip Fig. 2. When the bill is ready for delivery, the green slip, or Fig. 2, is pinned to the original instructions. Fig. 3, which were signed by the legislator, and placed with the white one, which bears his name, in the filing case. In this way, the legislator's name is kept out of the whole transaction, and only in case a draftsman needs to consult the legislator, does any employee other than the clerk know whose bill is being drafted. "The utmost secrecy in regard to these bills is main- tained by those who are employed in the department, for the relation between the legislator and the depart- ment is regarded as strictly confidential. In order to maintain this relationship, when the legislator comes in with a request for a bill, he is assigned a number and his name is written upon a card, Fig. 4, bearing this number Municipal Reference Libraries 179 INSTRUCTIONS Amend 4060 d so as to eliminate coffees, teas and spices (Signed) '^..-..^^o*'^ (Signed by Legislator) Fig. 3. 60 Brown, Sen. J, Sunday Work O Fig. 4. (Check card when bill is delivered.) 180 Law, Legislative Reference and on tlie upper left hand corner. These names are filed alphabetical!) . The pockets in the Globe Wernicke file are numbered consecutively and the bills as they are drafted are numbered to correspond with the number which has been assigned to the member when he made a request for that bill, and placed in a pocket bearing a corresponding number. Even though the same member should appear three or four times in the course of one morning with a request for bills, he will not be assigned the same number, but each time he makes a request he will be given a number and a new card will be filed under his name in the alphabetical list, and upon each card there will be a catch-word title which will mean very little to anyone who might be tampering with the file wMth a desire to find out what bills this man might have in the process of drafting. It will be seen that the only connection is the number which is arbi- trarily assigned to him when he comes to the depart- ment, and the number on the pocket in which his bill is inserted. For the convenience of the clerks the file is divided into different sections; one for "Bills to be Drafted," one for "Bills in the Process of Being Drafted," and one for "Bills to be Delivered." As the bill pro- gresses from time to time the pocket is moved from one section to another. An official copy of every bill which is sent out is kept, together with the instructions and slips upon which is the history of the bill in the depart- ment. There are certain forms which are given to the draftsmen to follow. (See figs. 5 and 6.) Municipal Reference Libraries 181 A BILL To amend section 4060 d of the statutes, relating to works of necessity or charity. The people of the state of Wisconsin, represented in senate and assembly, do enact as follows: SECTION 1. Section 4060 d of the statutes .^.s amended to read: Section 4060 d See 1911 Stat. R. SECTION 2. This act, etc. Fig. 5. (Filled out by draftsman.) RULES FOR THE DRAFTING ROOM 1. No bills will be drafted in the Reference Room. A separate Drafting Room and a separate force have been provided. 2. No bill will be drafted, nor amendments prepared, without specific detailed written instructions from a member of the Legislature. Such instructions must bear the member's signature. 3. The draftsman can make no suggestions as to the contents of the bills. Our work is merely clerical and technical. We cannot furnish ideas. 4. We are not responsible for the legality or constitution- ality of any measures. We are here to do merely as directed. 5. As this department cannot introduce bills or modify them after introduction, it is not responsible for the rules of the legislature or the numbering of sections either at the time of introduction or on the final passage. Legislative Reference Department. Fig. 6. 182 Law, Legislative Reference and "The member receives three copies of his bill after it is drafted, which are inserted in a large envelope. Fig. 7, upon the outside of which is typewritten the title of the bill. On the inside of the flap of the envelope is the number of the pocket in the file from which the bill was taken. This is merely for the convenience of the people in this department in case any confusion should arise in the future in regard to that bill. He has one bill for his own purposes and two which he submits at the time the bill is introduced. Care is taken that the paper and envelopes should correspond with those in use in the legislature. Ever>' effort is made to send work out of the department in as perfect condition as possible. The stenographers are instructed to exercise the utmost care in their work and every bill, no matter how short it may be or how long it may be, is very carefully proofread. "The greatest care, naturally, is taken to keep the sec- tion numbers straight when bills are being drafted, so that two bills will not create the same section number. A card index is made as bills are drafted, showing the sections created, the sections repealed, the sections re- numbered and the sections amended. On each card there the numbers of the bills which affect that particular section are also given. This is kept up not only for the bills drafted in the department, but also for all bills introduced in the legislature. In this way the possi- bility of sending out a bill with an incorrect section number is reduced to the minimum. In this connec- tion, in order to reduce the possibility of making a mis- take of this sort, the department and revision clerks work together very harmoniously throughout the session." Municipal Reference Libraries 183 c o 1 ■H (7 to 03 • 01 +-> «w (/J CO T1 ■t-> o CO >5 r. +-> X. (-4 td CD u o 6 7. o o +-> •H ■t-> t-l o •H n O cd CO «) r-\ C/) < O Hearings . . . on various Bills proposing the Establishment of a Congressional Reference Bureau, Feb. 2t>-27, 1912, p. 49. »• Ibid. p. 56. Municipal Reference Libraries 185 Pennsylvania law which are unique. It is provided in this case that the director shall be well versed in legis- lative procedure and parliamentary practice and shall be ex-officio adviser to the General Assembly. This has resulted in his occupying in the House of Representa- tives a position quite similar to that of Clerk at the Speaker's Table in Congress. As a result the bill-drafting and reference work of the bureau during sessions of the legislature fall primarily to the assistant director and his staff. The director, who is appointed for four years by the Governor, is also designated custodian of the law library and of the legislative documents therein. With the approval of the Governor he appoints the staff consisting of an assistant director, a research clerk, two stenographers, a cataloguer, and a messenger. In addi- tion employees of the State Library shall be assigned for work in the legislative reference bureau at his re- quest. During sessions, and for one month prior thereto and immediately following, three additional search clerks, five stenographers, and a record clerk may be appointed. The total biennial appropriation is $41,200. Salaries of the permanent staff amount to $15,100, annually, ranging from $900 to $5,000 per year. Where bill-drafting is not required by law as a function of the legislative reference bureau, reference and research work on subjects which are before the legislature con- stitute its major activity in most cases, though in New York State the publication of the Yearbook of Legis- lation is the most important undertaking. Among bureaus of this class, when available funds are compared, the Rhode Island State Library stands in the first rank 186 Lciw, Lgislative Reference and of those rendering useful ser\ice to members of the legislature and state ofiFicials generally. The organization of this type of bureau is the usual organization of a library staff in which general administrative work, technical library work such as cataloguing and classi- fication, and reference or research work are done by separate individuals where the size of the force permits such a division of labor and by each of the staff to some degree where numbers and means are limited. In the more recently established bureaus the trend in organization seems to be toward an emphasis on bill- drafting, away from general state library supervision, and toward academic affiliations, though all recent additions to the ranks do not give evidence of these tendencies. The later proposals for a congressional bureau at Washington contain fewer detailed provisions regard- ing organization than those first made, the concensus of opinion being that, if such a bureau were established and placed in good hands, a year's experience under a "lump sum" appropriation would be none too long on which to subsequently authorize the details of work by specific legislation, if indeed specific legislation were at all to be considered advisable. An itemized estimate of the probable organization and expense of a congressional bureau was submitted by Congressman John M. Nelson of Wisconsin during the hearings on this question in February, 1912. As given below this estimate represents the result of going over the matter most carefully with the Librarian of Congress and others who would probably be involved in the administration of the bureau when put into operation. Municipal Reference Libraries 187 Estimate of Expense of a Congressional Legislative Reference Bureau. i'" Chief of bureau $7,500 Assistant chief 4,000 4 expert draftsmen, at $5,000 each 20,000 2 experts, at $2,500 each 5,000 Chief of indexes and digests and editing 3,000 1 assistant 2,000 4 assistants, at $1,800 7,200 2 assistants, at $1,500 3,000 Chief translator 2,500 2 translators, at $1,800 3,600 1 translator 1,500 2 catalogues, at $1,500 3,000 2 high-grade stenographers, at $1,500 3,000 4 stenographers, at $1,200 4,800 4 stenographers and copyists, at $900 3,600 6 clerks, at $900 5,400 4 clerks, at $720 2,880 2 messengers, at $840 1,680 4 junior messengers, at $480 1,920 Special, temporary, and miscellaneous service 5,000 Purchase of material 20,000 Stationery and supplies 4,000 Equipment 5,000 Travel, transportation, postage, telegrams, and incidentals 6,000 $125,580 (b) Acquisition. 1. Sources to be Watched for Notices of New Material. A complete statement of sources to be watched for notices of new material of value to the legislative refer- ence library would necessitate a renaming of practically all the various titles that have previously been mentioned in the discussion of materials appropriate to such a collection as is under consideration. Particularly does this apply to the sources named in connection with the "' From p. 80 of Hearings before the Committee on the Library, House, . . . on various Bills proposing the Establishment of a Con- gressional Reference Bureau, Feb. 26 and 27, Wash. 1912. 114 p. The total of these figures is incorrectly given in the Hearings as $126,500. 188 Law, Legislative Reference and discussion of document indexes and lists of current docu- ments, periodical and society proceedings or organs, to journals of the book-trade,- dealers' announcements, bibliographies, and the daily press. A brief list of the most useful guides to current publications would include the following, all of which have received earlier mention in other connections. American Political Science Review. Bulletin of the Public Affairs Information Service. Congressional Record. Monthly Catalogue oi the Superintendent of Documents. National Municipal Review. Special Libraries. State Publications of the Library of Congress. Survey. 2. Actual Acquisition. Material is actually acquired by gift, exchange, or purchase, the bulk of the material being obtained by the first method. (a) Gift. Though there has been some tightening of the strings in a few instances, it is still very properly possible for a library to secure practically any federal or state govern- ment document without charge, particularly if the request is reasonable and the reason therefor accompanies the request. Organizations, especially those championing some cause or advocating some reform, are usually generous in the distribution of literature, and the same may be said for individuals who have published desirable pamphlets or who have issued reprints of special articles. In this connection it may not be out of place to note the difference in effect on many a donor between a form post-card acknowledgment of a gift and a personal Municipal Reference Libraries 189 though brief note of thanks. The form card has its place; let it keep to it. (b) Exchange. Exchange as a means of acquisition is of course depend- ent upon the quantity of exchangeable commodities in hand, though it should be said to the credit (in this case) of many large libraries that their readiness to gamble in futures has frequently proved a boon to many smaller institutions which are forever likely to find a large balance on the debit side of the ledger. (c) Purchase. Purchases will include books, periodicals, certain society transactions, some documents, and some laws. The methods of purchasing to the best advantage and the ways and means of trade bibliography and library order work are without the scope of the present treatise and can be found thoroughly covered elsewhere."^ (c) Classification. The practice in legislative reference libraries is to classify material closely, to be as specific as may be in assigning classification numbers, thereby bringing to- gether material on separate phases or aspects of several topics. Take the case, for example, of public utilities regulation. A general library not specializing in this field would find one or two classification numbers suffi- cient. The legislative reference library, however, may have occasion to collect separately everything available on valuation, on legal gas rates in cities, or methods of computing electricity charges, on depreciation, and so on. "8 Cf. Franklin F. Hopper, "Order and Accession Department" (preprint of Chap. XVII of A. L. A. Manual of Library Economy) and its bibliography. Chicago, 1911. 190 Law, Legislative Reference and While there is general agreement on this principle of classification there is no agreement as to what system permits its application most effectively from the legis- lati\e reference library point of view. The Dewey decimal classification has been adopted in a modified or rather an expanded form to a greater extent than any other system. As printed even in the eighth edition of 1913 it is not sufficiently subdivided for adoption unaltered on such subjects as are handled in this work, though the ninth edition may be expected to improve in this regard even more than did the eighth over the one previous. It should be said that this latest edition (the eighth) has received such enlargement in the sections devoted to internal relations of the state with groups and indi- viduals, suffrage, legislation and law making, labor, wages, and the condition of the laboring classes generally that it is much more serviceable for legislative reference purposes than any heretofore. Local adaptations of the decimal classification as worked out in the bureaus in Wisconsin and Indiana are working satisfactorily in their respective bureaus. The Wisconsin expansion has been adopted by several other similar institutions and is more generally known than the Indiana, but neither has been printed, a fact which will delay the general adoption of either and is much to be regretted by those interested. To print would, however, involve hea\y expense, and a printed classification could not so easily be adopted to the many new aspects and subjects of present day legislation as a system less permanently established. Attention should also be called to the "Whitten" classification used in the New York State Legislative Municipal Reference Libraries 191 Reference Bureau and in the Yearbook of Legislation issued by the State Library. It was printed as No. 22x in the series of Legislation Bulletins in 1903 and, though much enlarged since that date, has not as yet been reprinted. Each issue, however, of the Index of Legislation is so thoroughly indexed that recourse to the classification scheme is unnecessary unless one is •attempting to trace, through the series of annual indexes, the legislation on a subject not covered by the volume in hand. This system has been adopted in certain other bureaus, for example in Rhode Island, where it is applied to manuscript material on subjects of legislation and to manuscript compilations of laws. The only disadvantage of adopting this system, if an up-to-date revision were available, would be in a bureau which was a division of a state library having its other collections classified by some other scheme. The library of the New York Public Service Com- mission, First District, where Dr. Whitten is now in charge, employs for its purposes a classification of subjects under broad subject headings, alphabetically arranged, with subheads arranged on a similar plan. The Bureau of Railway Economics has found the Library of Congress classification suited to its needs. This latter has the advantages of being up-to-date, in print (though some of it is printed as manuscript), and of being indexed. Its detailed plan for the arrangement of official docu- ments is probably the best available for a large document collection, but neither this nor the elaborate arrangement of United States documents advocated by the office of the Superintendent of Documents ^^^ is needed in a legis- lative reference library which classifies closely by subject '" Cf. Checklist, 3d ed. 1912. 192 Law, Legislative Reference and without regard to form. As a whole, however, the Library of Congress classification could be adopted to ad\anlage in legislative reference work and unless previous familiarity of the classifiers and stafT with some other scheme or the previous adoption of some other system in the general library are arguments outweighing other considerations, the Library of Congress system may well be used.^^" (d) Cat.JlLoguing. Cataloguing for legislative reference work follows the same general principles which cataloguing for other uses entails. Differences are largely differences of emphasis. In the present case emphasis will be on subject rather than authorship, on careful cross referencing from one subject to another, and on the value of annotation on the catalogue card, particularly in regard to the com- parative data or known bias of a given publication. The most thorough discussion of cataloguing in legis- lative reference work that has yet appeared w'as presented by Miss Ono Mary Imhoff before the Special Libraries Association at the Ottawa Conference, 1912. ^^^ Miss Imhoff would make simplicity and clearness the key- notes of such work. She would abandon as superfluous the accession, gift, and withdrawal books, statistics of books catalogued, and all accessory records which take time to make, but do not aid in making available sources of information. Joint author cards, series, and title cards are the exception. Continuation cards are *^ On classification and cataloguing in special libraries, particu- larly legislative reference libraries and similar bureaus, see Special Libraries, v. 1: 18-20, 44-46, 5S-G0, 73-7.5 and v. li: \-A, 140-54. '-' Found in Spec. Libs. 3: 149-.54, Sept., 1912; in A. L. A. 5m/- letin, 6: 23S-45. July, 1912 and reprinted as a separate, 7 p. by the American Library Association. Municipal Reference Libraries 193 useful for added editions, and for annual publications cards with printed columns of dates are helpful. Con- tents, notes, dates, and for clippings and excerpts, exact source, are specially valuable. A note should state whether bills have become laws. Make many analytics; use popular as well as technical words in subject headings; be generous with guide cards. Geographical subheads are most useful. Geographical divisions as main heads should be used sparingly. Helps to cataloguers in assigning subject headings to legal works, mentioned earlier, will be useful to the cataloguer in a legislative reference library. But says Miss Imhoff, "the economic necessity for law precedes the legal expression. . . . Since a legislative reference library is busied with the process of law making, rather than with the interpretation or administration of law, the trend will be toward the economic headings rather than the legal." Her illustration is well in point. "Eminent Domain" is a legal term that will have its place in the main body of the catalogue. It will find more frequent application, however, as indicating a legal aspect of an economic problem in such headings as "Rail- roads," "Street Railways," "Telegraphs," and "Tele- phones," with each of which it may appear as a subhead. The list of subject headings as well as the detailed classification scheme employed in the Wisconsin Legisla- tive Reference Bureau is available in typewritten form and is the best guide for this semi-technical side of the work. To catalogue or to classify with intelligence and judg- ment requires, however, far more than a knowledge of formal ways and means, and a study of advocated methods must be followed by much supervised practice to produce satisfactory results. 194 Law, Legislative Reference and Card catalogue records in legislative reference work should cover more ground than the actual possessions of the small working library maintained in most bureaus. The records for a single bureau may indeed be divided into groups, either temporarily or permanently, of separate catalogues for materials in other local libraries, for material in libraries located in other cities; of the special knowledge of the local people — professors, officials, and various experts. Material of comparative value may receive separate treatment and a card index to important correspondence may be of great use. In some cases material kept in vertical files and closely classified is not catalogued at all, the close classification with a minute subject index being deemed sufificient. Additional records of like nature will include indexes to bills, which should indicate the final disposition of the bill, indexes to local state documents, laws, and legal decisions; cumulative indexes to session laws on special subjects, to governors' messages, especially veto messages, and various temporary records on special subjects. Ways of noting the exact status of a bill during passage are considered later. ^" (e) Shelving and Filing Methods. Books shelve with little difficulty. Pamphlets in stiff binders do likewise. Various types of pamphlet boxes are made to accomodate other pamphlets, mounted clippings and excerpts; or, such material may be filed vertically in drawers. The arrangement of material on shelves and within boxes, or drawers, is determined by the classification system. >« p. 216, post. Municipal Reference Libraries 195 Practice differs materially on these points. In Rhode Island compilations of laws are placed in Gaylord binders and filed vertically in drawers. The Decimal Classi- fication is applied. In the main collection boxes are used for pamphlets. A file of tan boxes contains yearly publications; brown, bulletins and series; red, miscel- laneous. Certain pamphlets are filed vertically without binders in press board trays, special color labels being attached. At Albany the vertical filing system is employed on a large scale though some pamphlet boxes are used on the shelves. Dr. Whitten in the Public Service Commis- sion Library follows a similar plan. At Indianapolis and at Madison pamphlet boxes receive the bulk of loose material though in both vertical files are used for certain classes, such as bills, manuscripts, etc. The pamphlet box used by Mr. Lapp is designed locally and is an improvement on many other forms now in use. Its principal advantages are strength, a hinged front held up by a hinged and overlapping cover, and a ring to be used in pulling the box forward on the shelf when con- sulting its contents. 4. Preparing for a Legislative Session. The work of preparing for a legislative session is mainly of two kinds. First, every effort possible is made to ascertain what subjects are likely to come before the legislature for consideration. Second, everything of value on these subjects from the standpoint of pro- posed legislation is hunted out, secured, and made as accessible as possible. There are several avenues of approach to this first matter. The best is the legislator himself and a number 196 Law, Legislative Reference and of legislative reference libraries make it a point to com- municate with each member of the legislature at some time before the opening of a session with a view to ascer- taining subjects in which he is personally interested and which he is planning to bring up for action. The new Vermont law given in the appendix requires the revisers of bills to gi\e each member of the legislature formal notice that they are in session and ready to receive drafts of proposed bills for revision. In Wisconsin a circular along the following lines is sent out to members of the legislature. Dear Sir: The Wisconsin Legislature of 1901 author- ized the Wisconsin Free Library Commission to conduct a Legislative Reference Department, and to gather and index for the use of members of the legislature and the executive officers of the state such books, reports, bills, documents and other material from this and other states as would aid them in their official duties. . . . Much of value to the student of state affairs has been collected. We desire to make such material of the utmost use and wish >'ou to call upon us for any aid we can give in your legislative duties. If you will inform us of any subjects you wish to in- vestigate, as far as we have the material, time and means, we will tell you: 1. What states have passed laws on any particular subject. 2. Where bills for similar laws are under discussion. 3. What bills on any subject have been recently introduced in our legislature. 4. Where valuable discussions of any subject may be obtained. As far as possible, with our limited force and means, we will send you abstracts of useful material and answer any questions pertaining to legislative matters. It is not our province to convince members of the legis- lature upon disputed points. We shall simply aid them Municipal Reference Libraries 197 to get material to study subjects in which they are in- terested as public officials. Make your questions definite. Our work is entirely free, non-partisan, and non-political, and entirely confidential.' Next to the legislator himself the other state officers, departments, and institutions will be the best sources of information for they will be demanding reforms, in- creased appropriations, and amendments to laws which will immediately afifect their work. Other sources of importance that will aid in predicting subjects of legislation to be proposed are: 1. Laws and bills of recent legislatures. These indi- cate to some extent the trend of legislation. 2. Laws of your own state recently declared uncon- stitutional are likely to be reintroduced in amended form avoiding the previous unconstitutionality. 3. Governors' messages generally review the progress in state government in recent years and always recom- mend definite matters for legislative action. 4. Campaign speeches frequently promise what reforms the candidates will favor when elected to office. 5. The demands or platforms of political parties contain definite statements as to what these parties will attempt when in power. 6. The demands of special organizations can fre- quently be learned in advance, i.e. of organized labor, civic associations, and commercial organizations. They appear in the daily press, local organs, or will be stated on request. 7. The progressive legislation of other states will be a further clue for measures likely to be introduced locally. The "trend of legislation" is summarized in such publications as the New York Annual Review of 198 Law, Legislative Reference and Legislation, the American Political Science Ranew, Poli- tical Science Quarterly, the annual "Review of Labor Legislation" issued by the American Association for Labor Legislation, and the bulletins of the United States Bureau of Labor Statistics. With these sources of information at hand the next step is to secure and make accessible comparative and critical data consisting of existing law and explanations, criticisms, and suggestions as to its operation and im- provement. The subjects to receive attention first will naturally be those submitted by members of the state legislature and by state boards and officers. Dr. McCarthy has admonished legislative reference library workers at this point as follow^s: '-^ "... Work for all you are worth on those topics, send out thousands of circular letters to experts on these topics, subscribe to clipping bureaus if necessary to secure critical data from the public at large. Gather statistics ahead. Carefully search books for significant and con- cise statements; if to the point, copy or cut them out and index them. Go through the court reports and get the best opinions, (c) Get hold of libraries or individuals or professors in other states with whom you can corres- pond. Speed in getting things to a committee or an individual is absolutely necessary. Do not fail to use the telegraph. Get material, facts, data, etc., and get it quickly and get it to the point, boil down and digest. I can say again, the legislator does not know much about technical terms; avoid them, make things simple and clear, (d) Employ if you can during the session a good statistician. He can be of great service in dealing with '" Wis. Liby. Commission. Circular of Information, no. 6, p. 7-8. 1908. Municipal Reference Libraries 199 financial bills, in estimating accidents from machinery, or in gathering statistical data of any kind. He should be a man who can work rapidly, accurately and to the point. Throughout all of this work it is absolutely necessary to get all material absolutely upon the points at issue, (e) Make arrangements with all libraries in your city and libraries elsewhere for the loan of books or other material. You should have every sort of an index in your library as well as catalogues of any of the libraries with which you are corresponding. (/) A correspondence clerk and some helper to paste clippings, mount letters, etc., are necessary, especially during the legislative session, (g) Keep your place open from early in the morning till late at night. Do everything in your power to accommodate those for whom you work." It is not enough to merely collect material. The interval between sessions should be utilized in compiling, digesting, and briefing data on public questions of legis- lative interest. If the results of such work can be pub- lished, so much the better. (a) Work During a Session. 1. Reference Work. During a session of the legislature all legislative reference libraries are occupied in doing so-called "refer- ence work" or research work, on subjects of legislation. Some do this with a view to placing before both the legislator and their bill-drafting department the neces- sary data on whch to base legislation ; others aim merely to provide the legislator himself with facts, laws, and comment. There are other calls, however, on the reference de- partment than those first thought of in connection with 200 Law, Legislative Reference and law-making. Members delivering speeches often need ammunition additional to the formal arguments pro or con. For example, the writer recalls some research he was obliged to undertake in order that a democratic member might be able to combat the claim that civil serv'ice laws were purely a Republican party measure. Fortunately for the legislator civil service laws proved to have been a plank in both platforms for sufficient time to satisfy the immediate objection. At another time, in connection with this same law, information was sought respecting the feasibility of the "grand- father" clause as a constitutional obstruction to possible race competition for state offices in the South. Authorities supplied to legislators examining in- terested witnesses at committee hearings may have the effect of testing the witness both as to his reliability and his knowledge. Zartman's Fire Insurance in the hands of a chairman of a House committee investigating discrimination in fire insurance rates has proved of immense value in this way. Legislators are popular as speakers at all public gather- ings and the legislative reference library feels the effect in no small number of instances. Suppose, as is quite likely to happen in this day, the legislative reference library were called upon by a member for whatever assistance it might render him in preparing a minimum wage law. Tiie matter would go to the reference department. In the collection of materials on this subject which the reference department would make should be found the existing minimum wage laws of Massachusetts, Wisconsin, Minnesota, Colorado, Michigan, New York, Ohio, California, Washington, Oregon, Nebraska, and Municipal Reference Libraries 201 Utah, and the amendment to the Ohio constitution permitting a minimum wage law in that state. From these alone the legislator would see that he has a choice of fixing wages by statute, as in Utah; of creating an Industrial Welfare Commission with power to investi- gate the conditions of women's labor in any occupation and to issue mandatory orders relating to wages, as in California, Oregon, and Washington; of establishing a Minimum Wage Commission which may appoint advisory wage boards and whose orders are either man- datory, as in Minnesota, or merely advisory — at least unenforceable — as in Massachusetts and Nebraska; or, finally, he may follow Wisconsin and grant to an existing agency, in this case the State Industrial Com- mission, full powers to investigate, act, and enforce decrees. These laws ^^^ would be supplemented by printed dis- cussions as far as they are available relating to the operation and results of these laws, by correspondence with those whose duty it is to apply them, and the opin- ions of those affected by their application. 124 California, 1913, Chap. 324. Colorado, 1913, Chap. 110. Massachusetts, 1912, Chap. 706, amended 1913; Chap. 69, 673 (see also Chap. 330). Michigan, 1913, Chap. 290 (appointing an investigating commis- sion). Minnesota, 1913, Chap. 547. Nebraska, 1913, Chap. 211. New York, 1913, Chap. 137, 467. Ohio, 1913, p. 654 (appointing an investigating commission). Oregon, 1913, Chap. 82. Utah, 1913, Chap. 63. Washington, 1913, Chap. 174. Wisconsin, 1913, Chap. 712. These citations are taken from the General Information Bulletin of the Progressive National Service Legislative Reference Bureau. They are found analyzed in the Amer. Labor Legislation Rev. Oct. 1913. p. 434-47. 202 Law, Legislative Reference and Foreign laws needed to complete such a collection are the British Trade Boards Act of 1909, effective January- 1, 1910, ^-^ the British Coal Mines (minimum wage) Act of March 29, 1912; ^^e ^j^g Victoria (Australia) Factories and Shops Act of October 6, 1905, (Consolida- tion Act), with amendments of December 12, 1905, December 23, 1907, March 2, 1909and January 4, 1910; 127 the Queensland Factories and Workshops Act of De- cember 28, 1900, and the Wages Board Act of April 15, 1908; the South Australia Consolidation Act of December 21, 1907, and the Factories Act of December 23, 1908; the Industrial Disputes Act of April 24, 1908 for New South Wales; the Industrial Conciliation and Arbitration Acts of West Australia of February 19, 1902 and December 21, 1909; and the Commonwealth Conciliation and Arbitration Acts for the Common- wealth of Australia of December 15, 1904, December 13, 1909, and the 10th of August 1910. Similar laws in New Zealand were codified into a Compilation Act (no. 82) in 1908 under the title "An Act to consolidate certain enactments of the general assembly relating to the settlement of Industrial Dis- putes by Conciliation and Arbitration." This has since been twice amended, namely by acts of October 16, 1908 and December 3, 1910. On December 20th, 1911, German>- passed a law effective April 1, 1912. The German text is available in the Deiitscher Reichsanzeiger for December 30, 1911 and has been discussed at length in the Bulletin of the International Labour Office v. 7, nos. 11—12, p. liii sq. and published in English in the '=* 9 Edw. 7, Chap. 22. '=« 2 Geo. V, Chap. 2. "' CJ. Barthelemv Raynaud Versle Salaire Minimum (Paris, 1913), p. 463-478. Municipal Reference Libraries 203 same source v. 7, no. 1, p. 7-13. It is known as the Home Work Act. Lastly, there is for Roumania the "Act Relating to Agricultural Contracts," dated 23rd December, 1907 — 5th January, 1908, which, among many other matters, creates District Commissions to determine the min- imum rate of wages lawful in agricultural contracts.^^* The texts of these foreign laws, if not available in the official publications of their governments, will be found in nearly every instance in the Bulletin of the Inter- national Labour Office, and, in French, in the elaborate treatises of Raynaud and Boyaval.^^g Many of them have, of course, been reprinted elsewhere, most fre- quently by the Departments of Labor of various govern- ments and particularly by our own. Other secondary sources frequently contain them. For example the British Trade Boards Act of 1909 appears in Hayes' British Social Politics, and in Snowden's A Living Wage. For these secondary sources, and for lists of official investigations which have both preceded and followed the passage of these laws in nearly all cases, the reference library must rely upon the existing bibliographies i^** 128 Sec. 65(a). Bui. of Int. L. Off. (Eng. Ed.) v. 5: 141-48; 1910. 129 See page 205, 206. 130 Boyaval, Paul. La Lutte contre le Sweating-System, le Minimum legal de Salaire; I'Exemple de I'Australasie et de I'Angleterre. 718 p. Paris, Felix Mean. (1912?). Bibliography occupies p. 634-708 and covers books, articles, official documents, investigations, and legislation in all important countries. McDowell, Mary. The Minimum Wage. Bibliography (in Life and Labor 3: 152-153, May, 1913). Thirty-seven references largely to American periodical literature; includes a few English references and some to bills before American legislatures. 204 Law, Legislative Reference and of the minimum wage question, supplemented by further investigation through channels well known to reference library research workers. Opposition to the minimum wage may be expected by anyone proposing such a measure and a familiarity with the objections that have already been made to such laws will make its proponents foreanned to meet them as they arise. The existing bibliographies have not grouped matter on the negative side of the question. A few references given here may therefore prove con- venient to anyone whose limited time precludes indi- vidual investigation. IVIixiMUM Wage Bibliographies. Boyaval, Paul. La Lutte contre le Sweating-system, le Minimum L6gal de Salaire; I'Exemple de I'Australasie et de I'Angleterre. 718 p. Paris, F61ix Alcan. 1912. (?) Bibliography covers p. 637-708; of these pages 650-54 are devoted exclusively to the minimum wage question while the National Anti-Sweating League (London). A short Bibliography of Sweating and . . . the Legal Mini- mum Wage. Lond. 1906. New York (City) Public Library. The .Minimum Wage. A preliminary List of Selected Refer- ences. 9 p. N. Y. 1913. Prepared primarily a? a working List for the New York State Factory Investigating Commission and first published in the libraries Bulletin for August, 1913. A straight author list of American and foreign material in the New York Public Library. A larger classified and annotated list planned for future issue. Nichols, Egbert Ray. Intercollegiate Debates, v. 2. 833 p. N. Y. c. 1912. Bibliography, p. 545-46. Raynaud, Barthelemy. Vers le Salaire Minimum, fitude d' ficonomie et de Legis- lation Industrielles. 518 p. Paris. 1913. Contains no separate bibliography but the extensive foot- notes answer the same purpose. An exceedingly thorough and up-to-date treatise. Municipal Reference Libraries 205 other pages relating to the "Sweating-system" contain scattered references to it. McDowell, Mary. The Minimum Wage (a Bibliography). (In Life and Labor, May, 1913, p. 152-53: vol. 3, no. 5.) National Anti-Sweating League (London). A Short Bibliography of "Sweating and a List of the Principal Works upon, and references to, the Legal Minimum Wage." 24 p. Lond. 1906. New York (City) Public Library. The Minimum Wage : A Preliminary List of Selected References. 9 p. N. Y. 1913. Compiled by Dr. C. C. Williamson of the Division of Eco- nomics and Sociology. A larger list is announced for later publication. Nichols, Egbert Ray, Ed. Intercollegiate Debates (Volume II): A Year Book of College Debating. . 833 p. N. Y. 1912. Minimum Wage Bibliography p. 545-46. Negative References. Boyaval, Paul. La Lutte contre le "Sweating-system," le Minimum L6gal de Salaire; I'Exemple de I'Australasie et de I'Angleterre. 718 p. Paris, Felix Alcan. 1912. (?) "Difficultes et Objections," p. 218-41. Broadhead, Henry. State Regulation of Labour and Labour Disputes in New Zealand, a Description and a Criticism. 230 p. Christchurch, N. Z. p. 56-74 and 215-17, especially. Written by the Secretary of the Canterbury Employers' Association and member of the Canterbury Conciliation Board. Brooks, Sidney. The Minimum Wage and its Consequences. Liv.Age V. 273: 370-72 (Ser. 7, v. 55). 1912. Reprint from the Outlook (London). 200 Law, Legislative Reference and Brown, H. LaRue. Massachusetts and the Minimum Wage. {Annals of the Amer. Acad. 48: 13-21, July, 1913.) Especially pages 16-19. Charity Organization Reinew (London). V. 1 (N.S.): 5-6 V. 4 " : 10-19. (Helen Bosanquet's review of Webb's Industrial Democracy.) V. 15 (N. S.): 227-230. (A review of "J. M's." pam- phlet on "A Scheme for a National Minimum Wage and the Extermination of Poverty.") Laughlin, J. L. Monopoly of Labor. {Atl. Mo. 112: 444^53, Oct. 1913.) Lee, Joseph. What the Minimum Wage means to Workers ; a Criti- cism. {Sun>ey 31 : 156-157, Nov. 8, 1913.) McSweeney, Edward. The Case against the Minimum Wage . . . before the fifth meeting of the Executive Council, 1911-1912, Massachusetts State Board of Trade, Feb. 14, 1912. 23 p. Bost. 1912. Marks, Marcus M. The High Minimum Wage; the Evils of Artificial Classifications of Labor. Gassier' s Mag. 25:227-230. 1904. Nichols, Egbert Ray, Exi. Intercollegiate Debates (Volume H). 833 p. N. Y. Hinds, Noble & Eldredge. 1912. The minimum wage. p. 455-546; negative speeches p. 509- 545. Perils of the Minimum Wage. Century. 84: 311-313. 1912. Raynaud, Barth61emy. Vers le Salaire Minimum. Paris, Librairie de la Soci6t6 du Recueil Sirey. 518 p. 1913. "Les Objections actuelles contre le Minimum se Salaire," p. 352-366. Municipal Reference Libraries 207 Snowden, Philip. The Living Wage. 189 p. Hodder & Stoughton, Lond. 1913 (?). Chap. XIV. "Some Objections and Difficulties," p. 157-164. Women's Industrial Council. The Case for and Against a legal Minimum Wage for Sweated Workers. London, 1909. The relation between low wages and commercialized vice is dis- cussed in the several investigations of women's and child labor and in the reports of most vice commissions. Arguments on both sides of the minimum wage controversy may be obtained from such reports. In the British Parliamentary Debates preceding the passage of the Trade Boards Act, 1909, numerous negative speeches can be found. Some of these are referred to and others reprinted in Carlton Hayes' British Social Politics (Ginn, Boston, 1913), chapter \T "Sweated Labor," p. 217-262; the British Act of 1909 occupies p. 247-262. Further research will reveal additional matter in the official journals of labor organizations, in investiga- tions of labor conditions, in vice commission reports, in the publications of employers' associations such as "The Annual Address" ^^^ of the President of the Canter- bury Employers Association, Christchurch, New Zea- land, the National Retail Dry Goods Association^^'- and the Charity Organization Society of London, England, the Ohio State Grange and the American Federation of Labor. Correspondence with legislators who have intro- duced measures in the various states will indicate from which direction opposition may be expected. And so the research might go on almost ad infinitum. Just here enters in the personal equation of the charac- ter, judgment, and intelligence of the head of the legis- lative reference bureau. From such a collection of "1 1902. 122 Cf. also Prof. M. B. Hammond, "Judicial Interpretation of the Minimum Wage in Australia," in Amer. Econ. Rev. 3: 259-286, June, 1913. 208 Law, Legislative Reference and materials as has been outlined he must select the best and give his patron the benefit of whatever abilities he may possess as a result of special training, experience and research. Bibliographies are more useful to librarians than to legislators who need specific data. While all the data should be at the disposal of the legislator, the librarian should first go over it, and if time permits, pre- sent him with a summary of legislation, digests of opinion on the merits of the question, and the results of investi- gations elsewhere, with pertinent comments on the opera- tion of the laws already in force. The legislator should then present a rough draft of his bill to the bill-drafting branch of the library which will, with the co-operation of the legislator, the reference division, and the drafters, finally evolve a measure that will ser\e fairly satisfactorily as a basis for criticism. This bill may then be sent to interested parties, lawyers, judges, labor organizations, and professors of economics, political science, and law for criticism and comment. With these comments in hand it will again be considered by the legislator and the bill-drafters and eventually a model bill may be expected. 2. Bill-drafting and Legislative Procedure. Bill-drafting is a science; successful bill-drafting an art. Its technique involves skill in the use of words and phrases and in their proper juxtaposition. It involves a knowledge of constitutional and statutory provisions relating to form. It involves, further, and in the same person, a thorough understanding of the conditions making necessary proposed legislation and an ability to fit means to ends. Municipal Reference Libraries 209 Mr. Thomas I. Parkinson of the Legislative Drafting Bureau at Columbia University read before the Academy of Political Science in 1912 a paper on "Legislative Drafting" which points out most clearly the difficulties in this field and emphasizes the important part the drafter himself must play in determining not only lan- guage and form but actual policy, a matter which many have thought of as strictly within the province of the legislator himself and himself only. After enumerating by way of illustration a few of the innumerable matters of detail that must be considered in drawing up a satis- factory workmen's compensation law — Shall it apply in all employments or in specified employments? To all injuries or specified injuries? How shall compensa- tion be computed, and on what basis and under what conditions? What procedure shall determine contro- verted questions and what administrative organization shall be responsible for the proper enforcement of the law, etc., etc. — Mr. Parkinson makes his point thus: "The foregoing are frequently described as matters of policy with which the drafters should have nothing to do: they are solely for the legislator. Theoretically, this is true. If all these questions were carefully weighed and decided by the legislator there would be nothing left for the drafter but to put the legislative decision into language. Practically, however, the great majority of these questions of policy do not occur to the legis- lator until the drafter in the detailed statement of the legislative intent uncovers the numerous instances to which the legislative intent has not been applied." As has been intimated earlier, a detailed study of the technique of bill-drafting is beyond the set limits of this text, the main purpose of which is to emphasize the 210 Law, Legislative Reference and "library side" of the topics treated. Moreover such a subject demands, and has received elsewhere, separate treatment as a special field of endeavor and should not occupy a subordinate place in a general discussion of libran.- ways and means, though a good special library is indispensible to success in this field. A list of author- ities on bill-drafting and statutory construction is given in an appendix, and the reader is referred to them for elaborations of the subject. The bare enumeration of some of the difficulties involved will complete present consideration of it. Some of the difficulties involved in bill-drafting and some of the difficulties resulting from poor bill-drafting are suggested in the following brief statements. Statutes are too frequently practically unenforceable because of the use of general terms where executive officers need specific rules. The converse is also true in some cases. Ambiguous terms and words variously defined lack precise, legal definition. Mere copying of legislation elsewhere, without knowledge of its success or failure in operation, often leads to serious results, and ignorance of existing laws to absurd inconsistencies. Failure to become familiar with constitutional and statutory' limitations that have been placed on legis- lation, to recognize clearly the distinction between the subject of a bill and its purpose, and to apply to the synthetic process of bill-drafting the results of previous analytic work in statutory- construction, all tend toward poor and inefficient law-making. In actual drafting a preliminary rough outline showing the purport, relative importance, position, and logical sequence of bill sections is indispensable. Short sen- tences and brief sections make for clearness. A title Municipal Reference Libraries 211 to state clearly the purpose of the bill should be written after the bill itself is completed. Definitions of terms may well occupy the first, rather than the last, section of a law, and too great care in the matter of diction cannot be exercised. Other verbal matters of importance are questions of tense, the use of the affirmative or negative form, provisos (for which a separate section is advised), preambles (generally advised against) and repeal clauses. Special considera- tion and care are required in the case of criminal and penal statutes, amendments, and general revenue measures. A wise and timely note of warning has been sounded in regard to the drafting of new legislation in the field of Private Law by one ardently in sympathy with every good effort for social progress, service, and betterment, by means of Public Law. It comes from the pen of John W. Patton, now Professor Emeritus at the Univer- sity of Pennsylvania Law School and is given under the admonitory caption "Festina Lente." ^^^ Professor Patton concludes his admonition thus: "Legislative action, however, should be based upon demonstrated need, careful study of the proposed remedy in substance, of its constitutionality, of the meaning of every word used in a proposed act; with a careful examination of existing decisions as well as statutes. Knowledge of law as well as of the English language is required, and the pen of one who thinks he has a facility for legislative expression should indeed 'make haste slowly.' This caution should also be observed in accordance with the statement in Broom's Legal Maxims No. 150, So "' In Penn. Law Rev. 59: 203-214, Jan., 1911. 212 Law, Legislative Reference and likewise with respect to matters which do not affect existing rights or properties to any great degree, but tend principally to influence the future transactions of mankind, it is generally more important that the rule of law should be settled than that it should be theoreti- cally correct.' " Professor Patton has added in a letter to the writer: "It is sad to have humane and beneficial aims fail because of imperfect drafting." Even these few hints of a general nature, brief and incomplete as they are, will serve to indicate at least a portion of the difficulties in bill-drafting and a few of the reasons why caution, skill, and trained practical intelli- gence are needed in formulating measures destined to become a part of the law of the land.^^ The various steps in the progress of a bill through the legislature "^ should be intimately known to all members of a legislative reference department for at least two reasons. They may be called upon at any moment for '^ This discussion of bill-drafting is based freely on Mr. Thomas I. Parkinson's paper on "Bill-drafting" alluded to, found in the Publications of the Academy of Political Science, v. 3, No. 2, p. 142-54 and Mr. James McKirdy's paper on the same subject read at the annual meeting of the National Association of State Libraries, Ottawa, 1912. Both are available as separates and the latter is accompanied by a bibliography. These are two of the best short general articles available; Mr. Lapp's and Mr. Bruncken's "Hints" (see p. 397— iOl apx.) relate strictly to Indiana and California. '^ C/. Paul S. Reinsch, American Legislatures and Legislative Methods (N. Y. Century, 19K)7), especially Chap. VI, "Procedure in State Legislatures"; also Chester Lloyd Jones, Statute Law Making in the United States (Boston, Boston Bk. Co., 1912), "Legislative Procedure," p. 15-20; Ernest L. Bogart, "Financial Procedure in Legislatures" in Reinsch, Readings on American State Government (Boston, Ginn & Co., 1911), p. 56-Gl; and John H. Finley and John F. Sanderson, The American Executive and Executive Methods (.\. Y. Century, 1908), Chaps. V, "The Executive and the Legis- lature" and VI, "The Veto and Approval of Bills." Municipal Reference Libraries 213 information regarding the exact status of a bill; they may also be called upon to amend or redraft a bill, or section, at any stage during passage and must conse- quently know not only the status of the bill on which they are to work, but the rules of procedure and parlia- mentary practice applicable to the bill at that stage in order that all work done shall be consistent there- with. Legislative procedure differs markedly among the several states, and to a degree not anticipated by the average citizen. That improvement is quite possible in not a few cases is well proved by Professor Jones' com- ments referred to in the note. That this is appreciated in some states is evidenced by the fact that in Nebraska at present a comprehensive investigation is under way concerning comparative parliamentary law and legis- lative procedure in this country with a view to apply- ing its results to an improvement in the Nebraska situation. There is a certain amount of routine in the passage of a bill through any Jegislature which has much in common with the routine in all, and, very briefly the history of a bill is about as follows: ^''^ At a time set for such matters a member of the legis- lature, on obtaining the floor, asks leave to introduce a bill. On receiving permission from the presiding officer so to do, the bill is sent by a page to the clerk who reads the bill by title only, after which a "first reading of the bill" is announced by the presiding officer. In some states i" the bill is at once referred to "•* It should be kept clearly in mind there are numerous excep- tions to the procedure here outlined. "' i.e., Texas. 214 Law, Legislative Reference and a standing committee for consideration and recommen- dation. If reported upon unfavorably by the committee, that usually ends the matter. If reported upon favorably it is next printed, unless ordered otherwise by the legislature, and at a later date is "brought up on second reading" i.e., is read aloud in full by the clerk, and after debate and possible amendment is voted upon by the assembly acting as a committee of the whole. The vote is on the question of the adoption of the report of the committee which has considered the bill, and results, if favorable, in the bill being passed to engrossment and third reading. In this instance, to engross means to copy in full as passed on second reading with all amend- ments in their proper place. Some states require engross- ing to be done on the typewriter, others in long hand. On third reading, when most states require the bill to be read aloud again in full, no amendments can be offered without unanimous consent of the members pres- ent. A final vote is then taken on the bill and if passed it is sent to the other branch of the legislature where a similar procedure occurs. After passage in both houses it is returned to the house of origin to be enrolled — written, typewritten, or printed, as the law may require, in full as passed, — receives the signature of the Speaker of the House, the President of the Senate, and goes to the Governor for his approval and signature, or his veto by a veto message returning the bill to the house of origin. Bills often provoke much debate and are frequently amended many times. When the two houses cannot agree on important bills, conference committees are appointed representing each house. Municipal Reference Libraries 215 Agreement is usually effected by compromises and the report of the conference committee is generally accepted and adopted by both houses. The Governor is usually allowed a fixed number of days after the close of a legislative session in which to sign all bills; at the expiration of this time bills unsigned become law automatically in some states and in others have the same status as bills vetoed. Many of the states, perhaps most, follow a slightly different procedure at the start and authorize, or at least permit, a second reading of the bill by title only immediately after the first reading, and follow this second reading by reference to committee. As has been intimated earlier it is difficult to give in a brief statement even such details of this process of law making as are generally applicable and the devia- tions possible and frequently resorted to, though a definite routing is prescribed, make such a narrative seem almost fruitless. The problem of keeping close track of the progress of a bill through the legislature is solved in some states by having published either officially or through private enterprise a weekly bulletin presenting in cumulated form the action taken on all bills. A daily record is of course kept by the journal clerk in his books and can be consulted if occasion demands, though it is not an easily accessible record and could not be generally re- sorted to. Advance sheets of the journals published daily contain the information needed but of course not in cumulated form, and they remain unindexed. To provide for themselves a daily cumulative record is a problem which some legislative reference bureaus have attempted by using what is termed a "bill-travel 216 Law, Legislative Reference and card," somewhat similar to the filled-in sample given below.''* 1. (In the House) H.B. No. 24. Subject: Minimum Wage Introduced by: Jones, A. B. 1st Rdg: 1/7,13 Comm. Ref: Labor Comm. Rpt. (un) favorable, (not) amended 1/12, 13. 2d Rdg: 1/14-13 Rpt. (not) adopted: l/14-13ord. (not) print: (not) amended: Rptd. Engrossed: 1/16-13. 3d Rdg: 1/25-13 Passed 1/25-13 Signed 2/16-13. Printed in full as passed: 1/26-13. Sent to Gov. 2/18-13 Effective: July I, 1913. App. 2/25-13. Vetoed : 2. (In the Senate.) H.B. No. 24. Subject: Minimum Wage Red. from H: 1/27-13 1st Rdg: 1/27-13 Comm. Ref: Labor. Comm. Rpt: (un)favorable, / (not) amended: 1/31,13 2d Rdg: 2/7-15 Rpt. (not) adopted:/ Reprinted:/ / (not) amended 3d Rdg: 2/14-13 Passed: 2/14-13 Signed: 2/16-13 On these two cards can be indicated the "travel" of a bill in both houses. In front of the "No." at the top '« Matter in italics is that supplied from day to day in long hand ; other matter is printed. Municipal Reference Libraries 217 of each card would be placed an "H. B." or an "S. B." and following the "No." the number of the House Bill or Senate Bill, whichever is being followed. In the space following each printed item is placed the date of the action taken; paging of the journal cannot usually be given as the paging of the advance sheets and of the final form will differ. Action taken is indicated by checking or underlining the appropriate words. The sample offered would need some modification wherever used, but indicates a possible form of record. These cards would be filed numerically in two series, House Bills and Senate Bills. A subject index referring to bills by number and a personal index for each member showing what bills he has introduced should supplement this numerical file. 5. Qualifications of a Legislative Reference Libra- rian and Present Opportunities for Train- ing. 139 The educational qualifications desirable in the head of a legislative reference bureau have most appropri- ately been stated as a background of history, political science, political economy, and sociology with the addi- tion of some constitutional law, legislative procedure, and 1^^ See M. S. Dudgeon, "The Scope and Purpose of Special Libraries" in Spec. Libs. 3: 129-133; also his "The QuaHfications of Legislative and Municipal Reference Librarians," in Spec. Libs. 2: 114-115, June, 1911; testimony of Dr. McCarthy, Speaker Clark, Mr. Bea- man, and Mr. McKirdy before the House Committee of the Library (62 Cong. 3d Sess. S. R. 1271, especially pages 104, 107, 114, 115, 122, 123, 128); J. David Thompson's Report (see note p. 170), p. 36-38; James McKirdy, Bill-Drafting (21 p. Harrisburg, 1912) discusses the ideal draftsman; cf. also Spec. Libs. 2: 32, 86; The Wisconsin Free Library Commission Instruction in Library Administration and Public Service (12 p. Madison, 1912), and the "Wisconsin Library Commission Training Class," in Liby. Jr. 38: 640-41, Nov. 1913. 218 Law, Legislative Reference and both the theory and practice of municipal and state government. That- training and experience in library methods are regarded not only as desirable but as essen- tial qualifications for this office is made clear in all discussions of the subject in print, and is particularly shown by the emphasis put on library science in the few places where formal instruction in legislative refer- ence work is given. To those who have engaged in this work no arguments on this point are required, and it is interesting to note that when such instruction was proposed in one library school, the legislative reference librarian, who was to conduct much of the work, insisted on even more so-called library technique being included than the school authorities had thought necessary. The formal training of this legislative reference librarian had included graduate work and teaching in political science but no library science. The director of another legislative reference bureau has said that if he were suddenly confronted with the problem of selecting a competent staff de fiovo he would be at a loss where to turn. This statement, it seems, would indicate not only that it is time that some formal instruction were given aiming to prepare for service in legislative reference bureaus, but, in view of the great number of graduate students in political science available year after year, it would seem that there is certainly something lacking in the equipment of such students that is demanded in the qualifications of a member of the staff of a legislative reference library. At the same time it need hardly be said that the legislative reference library worker who has not had the benefit of graduate study under expert guidance, or who is not of his own initiativ^e a careful Municipal Reference Libraries 219 student of political affairs, lacks much that is vital to success and efficiency in this form of public service. There has been some discussion as to whether the proper process of making a special librarian is to take a person already trained as a librarian and give him additional knowledge of the subject, or to take a person with special knowledge of a subject and give him training in library ways and means. Each view has its supporters, and, as good old Sir Roger de Coverly would say, "much might be said on both sides." Mr. Dudgeon, Secretary of the Wisconsin Library Commission and formerly chief draftsman of the Wisconsin legislative reference department, has expressed the opinion that it is easier to teach library technique to the specialist than to give the required special knowledge to a librarian without any taste for it. On the other hand, the trained librarian, or a university graduate with the taste and aptitude for a specialty though without preliminary advanced study in it deserves serious consideration as a candidate. A discussion of this question in its details is relatively unimportant, however. It is agreed on all sides that special familiarity with the subject and that a knowl- edge of library ways and means are both essential factors in the qualifications of the special librarian. Which comes first is not important so that both are present; the more of each, the greater the sum total of effectiveness. In view of the testimony of the greatest of statesmen on the difficulties inherent in the drafting of bills des- tined to become law, it need hardly be said that the qualifications of the successful drafter of bills must be such as to command a most profound respect. A 220 Law, Legislative Reference and thorough knowledge of law in the broadest sense, of statutor>- construction and interpretation, and of existing legislation and of legislative procedure, must be but the starting point of years of experience to produce an ideal in this field of endeavor. It is generally conceded that the talents of him who could occupy appropriately the office of chief of a government bureau of this type W'Ould be be>'ond those that any government salary could secure. Indeed both Speaker Clark and Congress- man Mann seemed to agree that no one could be found in the L'nited States who would be qualified from the start or without considerable experience, to direct a congressional bureau if one were established, though the Speaker courteously added that if he could think of taking Mr. Mann out of the House the one qualified candidate would be found. Though the ideal draftsman is placed on so high a pedestal it can be said that there are in this country many men who have made a conspicuous success in this work, and that they can be found in nearly every state on the judges' bench, in legislative halls, in univer- sity faculties, or in drafting bureaus. And from those best qualified for the work can be had added testimony as to its many difficulties. L'ntil recently no library school has off^ered courses aiming primarily to prepare its graduates for work in special libraries except in the case of library work with children. Legislative reference work has been presented to library school students in one or two lectures just as have other special fields of special endeavor, such as medical library work and work in technical libraries, law and municipal reference libraries. Since the fall of 1912 the New York State Library Muniqipal Reference Libraries 221 School has offered a detailed course in "Law library and legislative reference work," under the direction of Mr. Frederick D. Colson, law librarian, and Mr. Clarence B. Lester (then) in charge of the legislative reference section of the New York State Library. As described in the Circular of Information for 1912-1913, the course consisted of "Lectures, discussions, and problems of law libraries and legislative and municipal reference depart- ments and practice in the actual work of the New York State Law Library and the legislative reference section of the State Library. Additional practice will be provided for those who desire it." In the spring of 1912 and again in 1913 and 1914 there was given to the seniors of the University of Illinois Library School a short course of lectures which have since been revised and expanded into the present volume. There has been some discussion of extending the work over at least a semester and making it an elective. So far the briefer course has been required of those seniors taking what is locally known as the Library Seminar. Still another proposal is to have given a few very general lectures required of all seniors, and, in addition, an optional second semester course open to those seniors who have had as a prerequisite the course in United States and foreign government publications. The most promising opportunity, however, for training for legislative reference work was recently made available when the Library School of the University of Wisconsin offered in the fall of 1913 a new course in "library admin- istration and public service. ' ' The course was established to meet a definite demand, a "demand for library workers in a field where knowledge of subject is of greater im- portance than a preliminary masteryof Hbrary technique." 222 Law, Legislative Reference and It is planned with a view to the needs of those who intend to work in legislative and municipal reference libraries, law and medical libraries, bureaus of investigation, tax associations, industrial commissions, boards of public utilities, commercial houses, manufacturing plants, etc. In the printed general notice of the course it is said that it will be open only to "college graduates who by reason of personal qualities and the nature of their under- graduate work are well equipped to do the class work required by the epitomized courses offered and who bid fair to excel in this field of librarianship. The course in library methods is offered only in connection with studies to be pursued in the university and cannot be taken separately. These university studies will give opportunity for the student to round out and develop his knowledge of the subject in which he is specializing." Approximately one third of the academic year will be devoted to each of the three divisions of the course, namely, to bibliographic and technical library studies, to elective work at the University, and to lectures planned for this course only, covering the administration and problems of special libraries. From a larger number of applicants at the opening of this course seven were selected, and in each case, in this first instance, the special training and practice desired will be afforded in the legislative reference department. As was anticipated, enough requests for special investigations to be made were at once forthcoming from the state departments and commissions to enable each student to be assigned to a major task of practical importance. The topics under investigation already include certain co-operative industries in Wisconsin, co-operative credit, the central board of control for all state institutions, Municipal Reference Liljrarics 223 and analysis of laws regulating trusts, monopolies, and mortgage taxation. Wisconsin with its excellent university and well equipped legislative reference department is singularly well prepared to offer such instruction. The year in progress should make a fair test of the possibilities in the situation so that judgment must be withheld until such time has elapsed. Everything points towards success in the undertaking, however, and the only question that can be raised at this point is whether or not a little longer time might not profitably be given students in which to make the best of the valuable opportunities afforded them. Formal instruction in bill-drafting can best be obtained at present by experience and training under the guidance of those who have had actual experience and are now doing such work in legislative reference bureaus like those of Pennsylvania, Wisconsin, Nebraska, Indiana, and others, and in the "politics laboratory" at Columbia University. In the Political Science Departments and Law Schools of many universities are men well qualified to ofTer instruction in this field, and the suggestion is made in view of the increasing number of college and law school graduates who are entering the state legislatures that there is open to these universities a field of endeavor into which they might profitably follow Wisconsin and one or two others ^'''^ by affording such instruction. Preparation for legislative reference work wherever given, it need hardly be said, should include definite instruction in the use of law books, a knowledge of what is to be expected in legal text books and court reports, "° One of the best courses on legislative methods etc., now offered is that given by Professor Freund at the University of Chicago Law School. 224 Law, Legislative Reference and and knowledge of how to get from these books and from session laws and statutes just what is there to be had. It seems perhaps like emphasizing the obvious to call special attention to this matter, but as the writer has been asked by a coUegeprofessor, "Whataresessionlaws?", has had to find the very page wanted in the statutes for members of the legislature though the index was there, and has been told by a librarian that he knew nothing of the nature of volumes of court reports until as a librarian in a university he first came in contact with them, — for these reasons and others, it seems that some formal elementary instruction in the use of law books should be provided for all anticipating work in a legislative reference library where preliminary education and ex- perience has not made them familiar with such publica- tions. 6. Present Success and Support. Testimony as to the success of legislative reference and drafting bureaus is available on every hand. It appears in the Hearings given on this subject by the House Committee on the Library to which frequent reference has already been made, in the Report of the American Bar Association's Special Committee on Legis- lative Drafting, and in the recent writings of professors of political science. 1^' Governors' messages in increasing number advocate and urge the creation of such agencies. The President of the United States as Governor of New Jersey favored a national bureau. Ambassador Bryce established a precedent when, as a student of American political institutions and an experienced statesman of the British Lmpire, he appeared before a congressional '*' See bibliography, p. 388-96 apx. Municipal Reference Libraries 225 committee and advocated that such a bureau be made a part of our national legislative machinery. Com- mittees of both Houses of Congress have reported favorably on measures that would establish a bureau for their use in Washington. And, everywhere, legis- lators who have availed themselves of the facilities of legislative reference bureaus stand ready to attest their usefulness. If we exclude from the comparison the legislative reference section of the New York State Library, whose influence has been felt not only in all American states but also abroad through the generous distribution of its unique Yearbook of Legislation, it can be said that more success has attended those bureaus which render aid in drafting legislation in addition to furnishing the facts on which legislation should be based than those which remain merely centers of information and ex- perience on legislative topics. This is only natural, but it does not signify that bureaus unprepared to render such additional service should attempt it in order to secure more support. It may be noted that a committee of the American Political Science Association has recently reported in favor of uniting the function of bill-drafting with that of reference work, a question on which there has been some difference of opinion expressed. Just what sums of money have been used for legislative reference work in each of the various states is difificult to determine for in a number of instances support is received only from general state library funds, members of the regular staff assisting in the work. Also purchases are frequently made from general book funds, though primarily for use in this special work. Even when 226 Law, Legislative Reference and separate legislative appropriations are made for sub- divisions of state libraries doing this work they do not necessarily represent the only sums spent for they may be increased by using general unassigned funds for special help or equipment. There are, however, enough bureaus financially in- dependent whose appropriations are definitely fixed to give a good idea of the support accorded and needed for their successful operation. In the following table is shown the support now given to a number of these bureaus. Legislative Reference Bureau Appropriations. Annually. Biennially. Illinois $25,000 (1913-1915) Indiana $16,000 (1913)"2 27,000 (1913-1915) Nebraska 16,400 (1913-1915) Ohio 15,650 (1913) Pennsylvania.^" 18,100 (1913) 41,200 (1913-1915) Rhode Island 4,000 (1913) Vermont 1" 5,000 (1913) Wisconsin 21,800 (1913) The above figures represent total appropriations in- cluding both salaries and maintenance. Individual annual salaries range downward from five thousand dollars though the amount recommended for the chief of the proposed Congressional Bureau is seven thousand five hundred dollars. The chairman of the President's Commission on Economy and Efficiency in speaking in favor of such a Congressional Bureau, and a large number "2 The regular annual appropriation is $13,500, but $2,500 addi- tional was made available for April 1, 1913. >" For salaries of the permanent staff $1."),100 is annually available; individual salaries range from S90() to SoOOO. »♦« Revisers of bills receive $7.50 per day and expenses for neces- sary clerical, etc. Municipal Reference Libraries 227 of other speakers heard on the subject, advocated ten thousand dollars as the minimum that might be expected to attract the type of man needed to administer this office. Even at ten thousand dollars, the salary would be two thousand five hundred dollars less than that paid to the parliamentary counsel for the treasury in England, the officer of the British government whose functions most nearly resemble those that would attach to the proposed federal office under discussion. That legislative reference work must be done on a strictly non-partisan, impartial, and scientific basis is emphasized by all who have voiced their opinions in the matter and that the work is so regarded by those for whom it is done and can be so maintained by those undertaking it has had practical demonstration. The Wisconsin department on one occasion cheerfully drafted a bill which, if passed, would have abolished it entirely. The assistant director of the Pennsylvania bureau has testified to the non-interference in their work of a strong political organization in the legislature and to an attitude on the part of the legislature of general confidence in their work. It was also under definite assurance ot the non-partisan and non-political character of the proposed bureau for Congress that a diplomatic repre- sentative from a foreign power was prevailed upon to contribute to the discussions of the subject before a congressional committee. It is a tribute to its non- partisan character, to the impartiality and fairness of these bureaus now established, as well as to the quality of service rendered, that the legislatures that have been served by them have in so few years not only doubled and trebled the funds provided for their use, but that 228 Law, Legislative Reference and appropriations have increased in some instances more than a dozen-fold. 7. Future Development and Present Tenden- cies. In addition to a rapid increase in the number of states pro\iding legislative reference facilities the near future may be expected to develop closer co-operation between departments already and to be established, and to witness not only an extension of work along lines already laid down, but also the acquisition of numerous allied functions now performed, if at all, by scattered, non- co-operating state offices. A long stride in the right direction from the stand- point of closer co-operation was taken when the Bulletin of the Public Affairs Information Service first made its appearance in September, 1913. This "Service" is maintained by contributions of both money and in- formation from some two-score institutions, mainly legislative and municipal reference libraries, and a number of the larger state, public, and university li- braries, taking an active interest in public affairs move- ments generally. Plach subscriber to the service sends to the Director of the Indiana Bureau of Legislative and Administrative Information news of the appearance in print of important federal, state, and city documents, reports of investigations both public and private into public business, reports of organizations, compilations of laws, and of all publications of general interest issued by the co-operating subscribers themselves or which come to their notice through any channels whatsoever. The ser- vice is particularly valuable in bringing to light impor- tant articles bearing on legislation which appear in Municipal Reference Libraries 229 publications not covered by any of the general indexes to periodical literature. The unique phase of the service is, however, its addi- tional information in regard to MS. material, such as bibliographies, compilations of laws, etc., available in the libraries of the co-operating institutions ; announce- ments of official and unofficial investigations under way or authorized into the political, social, or economic conditions or the administration of state or city affairs. It is true that much of the printed matter noted in this Bulletin, particularly official documents, will be- come generally known sooner or later through other channels. This service however presents the information with greater promptness and offers a select list of purely public affairs references. The information relating to MS. bibliographies, compilations of laws, and of investi- gations under way, is not generally available elsewhere. It is not proposed to make it known through the columns of Special Libraries of which Mr. Lapp is also managing editor, nor is it of such a nature that it may reasonably be expected in the valuable document lists furnished by the American Political Science Review and the National Municipal Review. This service is an important step in the final solution of the problem of a more intimate co-operation between legislative reference libraries, and, by conferences with all interested parties, with organi- zations interested in public affairs, such as the American Political Science Association and state associations, may afford a solution of all the difficulties that have here- tofore presented themselves in this sphere. Work yet waiting to be done in most states that would in reality only continue work already begun along simi- lar lines would include an improvem.ent in the facilities 230 Law, Legislative Reference and for exchanging bills among legislative reference libraries during legislati\e sessions. With this should come a public, perhaps official agency for furnishing to all who desire it information as to the exact status of pending legislation in any state. The Bulletin of the Public Affairs Information Service may assume this additional function which at present is attempted by private agencies only. "" Each bureau may be expected in time to complete an index to all bills that have been introduced into the local legislature and should, of course, see to it that a complete file of bills is bound up after each session. A bibliography of and complete index to all state documents might well be prepared in the legislative reference bureau and a compilation of governors' messages made with a thorough index, including a separate index to veto messages. There is, of course, some question as to whether the state library or the legislative reference librar>^ is the proper agency for preparing these \-arious compilations and indexes in the field of state documents. The important thing is that it should all be done and if the state library is better prepared to do it the legislative reference library should be the last to object. In new lines of work which the legislative reference department could well afford to undertake it has been suggested that the publishing, editing, and indexing of the session laws and statutes be included, that the statutes be revised under the direction of this department, and that its head be one of the commissioners on uniform state laws. The Nebraska precedent of naming the '** Two such agencies are the Legislative Information Service, 815 Hartford Building, Chicago, Illinois (James A. Sanford, Man- ager) and the Law Reporting Company of New York City. Municipal Reference Libraries 231 legislative reference bureau as the headquarters of im- portant legislative investigating commissions is worthy of serious consideration and wide adoption. Editorial work on the journals of the legislature, on numerous state documents, particularly the legislative manual, would not be inappropriate work for such an agency and has been shared in to some extent in one or two instances already. Some of the functions which the original draft of the present Illinois Legislative Reference Bureau Law sought to assign to the new bureau, but which were eliminated by amendments, have been made virtually a part of the bureau's work. ^^^ Any attempt to generalize on principles and tenden- cies of the past twenty years developed by libraries in creating a reference service on subjects of legislation and a drafting service for legislative proposals is difificult; apparent unanimity is seen only in the fact of establish • ment and in certain phases of internal policy, and not in the method of creating and establishing these agencies and in their resultant status as dependent or independent organizations.^*^ That the legislative reference movement is rapidly gaining ground should not need further elaboration. Though tendencies are not yet crystalized, and are hard to discern, there are indications that future development is to some extent already foreshadowed. A drafting w 146 Q- Thompson's Report, supra p. 38 and Lester, p. 201. Some of these suggestions were made first to the Texas Library and His- torical Commission in a progress report by the writer in September, 191L 147 Q- "jj^g Present Status of Legislative Reference Work," by C. B. Lester in A. L. A. Bui. 7: 199-202, July, 1913 (Kaaterskill Conference Papers and Proceedings) ; "General Conclusions" of J. David Thompson in Amer. Bar Assn. Special Committee on Legis- lative Drafting Report, p. 36-38; and "Scientific Law Making," by J. B. Kaiser in the Independent 75: 641-642, Sept. 11, 1913. 232 Law, Legislative Reference and service may reasonably be expected in connection with future bureaus; and, if the writing on the wall is to be heeded, there seems an increasing inclination to estab- lish legislative reference work so that it is either directly under the control of university authorities, or has the benefit of direct co-operation with the experts in political science, government, and other fields, which state university affiliations afford. In Wisconsin, Indiana, Nebraska, Colorado, Washington, Texas, and Ohio, the head of the legislative reference bureau either is or has been a member of a university faculty of political science or government. In Arizona, too, the State University is making plans for work of this kind. Another tendency foreshadowed is seen in the devel- opment within the legislative reference library of a municipal reference service aiming to co-operate with all the municipalities in the state which do not have a separate local agency to supply a service of this nature. This service may naturally be expected to develop in bureaus having some connection with the state univer- sity rather than in bureaus entirely divorced from such associations. Finally, the close observer will see in the failure in the first instance of a few states such as Arizona, Georgia, and South Carolina to pass legislative reference bureau laws not a feeling of opposition to the movement- but rather an increasing sense and a wider appreciation of its significance. From the standpoint of library technique a classifi- cation acceptable to all legislative reference libraries, at once both complete and flexible, indexed and generally available, is still to be desired. The same may be said of a complete guide to subject headings and a guide to uniform indexing of laws, bills, and documents. Municipal Reference Libraries 233 In the matter of bill drafting the Legislative Drafting Committee of the American Bar Association has called special attention to a need which legislative reference departments can co-operate in attempting to supply. It recommends the production of "something like a legislative manual or code, a collection of directions or suggestions to draftsmen, and of clauses for constantly recurring statutory provisions and problems. Care- fully worked out, and having the sanction of the approval of representative bodies of lawyers and of stu- dents of legislation, such a guide could not help of having considerable effect on drafting all over the country, and the establishment of drafting bureaus would be appropriately supplemented by giving their work from the very start a scientific and uniform direction." '•'^ "» See its Report, p. 89; 1913. Appendix "C" of this Report pro- vides a tentative draft of a topical plan for instructions to draftsmen and model clauses. 234 Law, Legislative Reference and CHAPTER IIL MUNICIPAL REFERENCE LIBRARIES. Topical Outline. 1. Origin and Development. (a) Purpose. (b) Need. (c) Scope of Work. e.g., Assistance in budget-making, daily prob- lems, special problems, drafting ordinances, digesting data and publishing results of spe- cial investigations. (d) Historical Statemext. (e) Present Extent of Development. L Agencies. (a) A separate City Department of Bureau {e.g., Baltimore and Kansas City). (b) Local Public Library {e.g., Grand Rapids). (c) Separate branch of the Public Library located in the City Hall {e.g., St. Louis, Cleveland, Toronto). (d) Department of the Public Library re- ceiving special City Support {e.g., Milwaukee). (e) L'niversity Bureaus (e.g., Wisconsin, Illinois, Kansas, Minnesota, Ore- gon, Western Rescr\'e, Harvard). (f) Municipal Reference Division in Legis- lative Reference Library {e.g., Indi- ana). 2. Other Agencies Doing Municipal Reference Work, (a) Municipal Research Bureaus {e.g.. New York). Municipal Reference Libraries 235 (b) Municipal Efficiency Commissions (e.g., Chicago, Milwaukee). (c) Public Service Commissions (e.g., N.Y., 1st Dist.). (d) Regular City Departments (Testing Laboratories, Street, Health, Water, Finance Departments). (e) National Bureaus. 3. Table of cities. 2. Materials. (a) Legal and Documentary. (The relation between city and state). L I. State Laws on Municipal Government generally and on Special Topics. 2. City Charters and Local Acts. 3. City Ordinances. 4. Mayors' Messages and Council Proceed- ings. 5. Collected City Documents. 6. Reports of Departments and Special Commissions. 7. State Boards, Officers, and Commissions having Jurisdiction over Municipal Affairs. 8. National Bureaus, Offices, and Commis- sions considering Municipal Matters. IL Guides to this Legal and Documentary Material. (b) Books. 1. Treatises on Municipal Government and Administration. (a) General. (b) Individual Cities. (c) Special Types of Municipal Govern- ment; e.g., Commission Form. 2. Treatises on Municipal Corporation Law. 236 Law, Legislative Reference and 3. Treatises on Special Municipal Topics, e.g., Street Railroads, Franchises, Health, Housing, etc. 4. Yearbooks. L'nited States, Great Britain, Canada, Germany, France, Italy, Austria, and for individual cities. (c) Serial Publications. Periodicals, society proceedings, etc. L National. L General Municipal Periodicals. 2. Specialized Municipal Periodicals. 3. Publications not Primarily Municipal, including University Publications. H. State. HL Local. 1. Official. (Periodical and statistical bulletins). 2. Private Organizations. (a) Official Organs of Local Civic Bodies. (b) Commercial News. (c) Local, not Association Organs. (d) Private Municipal Research Bureaus. (d) Miscellaneous Pamphlets. (e) Correspondence. (f) Clippings. (g) Maps, Plats, Surveys, Charts, etc. (h) Bibliographies of Municip.^l Affairs. L L General. 2. General: Compiled and Issued by Libraries. II. L Special Topics. 2. Special Topics: Compiled and Issued by Libraries. Municipal Reference Libraries 237 3. Handling of Material. (a) Acquisition. 1. Sources to be Watched for Notices of New Material. 2. Actual Acquisition. (a) Gift. (b) Exchange. (c) Purchase. (b) Classification. (c) Cataloguing. (d) Shelving and Filing Methods. (e) Preparing and Digesting Data. (f) Drafting Ordinances. 4. City Council Procedure. 5. Attitude and Qualifications of a Municipal Reference Librarian and Opportunities for Training for This Work. 6. General Success of Libraries Now Estab- lished and Present Support Given. 7. Future Possibilities: Co-operation; an Official National Bureau; an International Bureau. 1. Origin and Development. MUNICIPAL REFERENCE LIBRARIES. (a) Purpose. The municipal reference library is the municipal counterpart of the state legislative reference library. Its aim is primarily to supply to city officials in their various capacities, and to others interested, the accurate 238 Law, Legislative Reference and data of municipal government and administration in whatever form issued. The data may relate to executive, legislative or judicial functions, to applied science, munici- pal ownership, or any of the thousand and one activities which must be intelligently undertaken to result in efificient city government in the fullest sense of the word. In speaking of the work in St. Louis in his Annual Report for 1911-1912, Dr. Bostwick strikes the keynote of its purpose in the following sentence: ^ "With the establishment of the municipal reference branch, the Municipal Assembly need pass no ordinance and no department need try any new scheme, measure or device without first ha\ing full knowledge of what other cities or corporations have done along similar lines." (b) Need. The need for such bureaus is plain to anyone who has observed what a complex problem whether in adminis- tration and business management, in sanitary engineering, or in practical sociology the modern municipality has become, and to one who has followed even casually the many exposures of municipal graft - and inefficiency that have come into public prominence in recent years. Local officers, in many instances, are unprepared for the problems that come before them; and here again the experience of others, definite knowledge and clear 1 St. Louis Public Library Annual Report, 1911-1912, p. 111. - C. R. Atkinson, "Recent Graft Exposures and Prosecutions" in the Nat. Mun. Rev. 1: G72-79, Oct., 1912, and his "Review of Graft Prosecutions and Exposures for the Past Year," in Sat. Mun. Rev. 2: 439-145, July, 1913; also Raymond B. Fosdick. "The Police Scandal in the (iood Old Days" in the Outlook 102: 34(3-49, Oct. 19, 1912, and Lincoln Steffens, The Shame of the Cities, X. V. McClure Phillips, 1904. Municipal Reference Libraries 239 thinking can be of service. Politics still plays too im- portant a role in local government and it is all the more necessary that the councilman or official who appreciates that his office is a public trust should have a municipal reference library at his service. (c) Scope. Such a library has a large field of usefulness and many different functions. For example, in furnishing statistics and other comparative data it can aid city departments in budget-making and at the same time offer to the interested public an opportunity to consider intelligently all questions of municipal finance that come before them as voters. In his daily routine each official is confronted by problems on which the experience of others will be of value. True, each city has its special problems but usually the important phases of even these have been previously encountered elsewhere and an available literature has grown up around their solution. To mention only a few of the problems common to many cities, there are those of housing and sanitation, municipal engineering, traffic regulations, the regulation of public utility corporations, the inspection of milk, meat, water, and weights and measures, the cleaning of streets, the prevention of dust and smoke, the collection of garbage; and such subjects as taxi-cab rates, fortune tellers, health laws, plumbing regulations, bill boards, and even the replanning of entire cities have come recently into general prominence. The drafting of ordinances may become a function of a municipal reference bureau. Ordinances must all be drawn to conform to existing statutory and constitu- tional provisions and so to draft them requires at times 240 Law, Legislative Reference and not only special knowledge and training but access to a library of authorities on municipal matters and con- stitutional law. It is quite desirable also that such a bureau be enabled to make investigations and publish results when the subject is one on which the Hght of publicity is needed or where the published results can be of use elsewhere. (d) Historical Statement. Municipal reference work, so-called, as distinguished from the work of efficiency commissions and bureaus of municipal research on the one hand, and from that of bureaus of statistics on the other, began in Baltimore January 1, 1907, at which time an amendment to the city charter went into effect creating a Department of Legislative Reference for that city. Most city depart- ments established since have adopted the term "munici- pal reference" to distinguish them from state legislative reference bureaus and to indicate more specifically the exact scope of their work. The term "legislative" is not inappropriate as applied to the Baltimore Depart- ment, however, as it endeavors to serve the state legis- lature in addition to the city officials and municipal assembly. (e) Present Extent of Development. 1. Agencies. The official legal connection between the municipal reference bureau or library and the public library, and between the bureau and the city government differs in different cities and it is important to note carefully these differences as the efficiency of such a bureau is often determined or at least seriously affected by this relation- ship. Municipal Reference Libraries 241 (a) A Separate City Bureau. As has been noticed, in Baltimore this work is done by a city department entirely distinct from the public library. From August 19, 1910, when the first ordi- nance establishing a similar department in Kansas City was approved until sometime in 1913, the municipal reference library of that city was a separate branch of the city government and the ordinance under which it operated ^ was regarded as a model for other cities to follow if it seemed best for local reasons to have this work kept separate from the work of the public library, though it should be said that in the case of Kansas City these two institutions co-operated in every possible way. During 1913, the city council saw fit to alter the status of the municipal reference library and placed it under the jurisdiction of its public service committee. In the case of Baltimore the department was created by an amendment to the city charter passed by the state legislature.* (b) Local Public Library. In some places the local public library, without creating a separate department for the purpose, makes a specialty of furnishing this kind of information. Such is the case, for example, in Grand Rapids, Michigan. The address of Samuel H. Ranck, librarian, an active member of the National Municipal League, on "The Public Library as a Factor in Civic Development" ^ well illustrates what can be done. 3 See p. 410-12, apx. * Laws of Maryland, 1906, Chapter 5Go, reprinted in the Legislative Reference Department's Annual Report, 1907, p. 15-16. ^ National Municipal League Conference for Good City Govern- ment Proceedings, 1910, p. 385-94. 242 Law, Legislative Reference ami (c) City Hall Branch of a Public Library. In St. Louis the Municipal Assembly by a concurrent resolution ^ requested the public library to establish a municipal reference branch in the City Hall. This was done and a branch opened October 23, 1913, which is now well under way. Although located in the city hall it is a part of the public library just as is any other branch librar\-.'' A similar situation exists either as a result of a specific ordinance on the subject or by direct action of the library trustees in Cleveland, Chicago, Oakland (California), Portland (Oregon), Toronto, and elsewhere. (d) A Department of a Public Library Receiving Special Financial Support. In Milwaukee, where a bureau was first established as a separate city office but is now a branch or department of the Public Library under the name of the Municipal Reference Library, it exists by virtue of an ordinance^ of the city council authorizing and directing the Board of Trustees of the Public Library to establish it. This change has put the municipal reference department on a permanent basis, independent of changing adminis- trations, and was effected as a result of the recommenda- tions of Milwaukee's Bureau of Economy and Efficiency.^ * See apx., p. 41(i. ' Cf. Jesse Cunningham, "The Service of the St. Louis Public Library to the City," in Liby. Jr. 37: 50(>-0S, Sept., 1912, and A. L. Bostwick, "Relation between the Municipal Library and the Legis- lator," in Special Libraries 4: 163-65, Scpt.-Oct., 1913. * Sec ap.\., p. 412-16. ' Milwaukee Bureau ot Economy and Efficiency, Eighteen Afnnths' Work Milwaukee, 1912. (Bulletin 19, especially pages 18-19). It is of interest in this connection to note that the Economy and Efificiency Bureau, which recommended placing the municipal reference library on a permanent basis, independent of changing Municipal Reference Libraries 243 The librarian in charge is selected by the public library trustees on recommendation of the public librarian and holds office during good behavior, recognizing no superior officer except the head of the public library. His salary is fixed by the library trustees but the city has made an appropriation of $5,000 from the general city fund to be added to the library's money and used only for municipal reference purposes. In this case, as in Kansas City, the ordinance is very specific as to the duties of the librarian and his privileges in seeking and receiving the co-operation of other city officials. (e) University Bureaus. State universities are taking up this work in the interest of the smaller cities of their states which feel that they cannot support a local bureau. The University of Wisconsin is foremost in this as in numerous other fields of public service and its work in this particular direction has been well described by the head of the bureau. Dr. Ford H. MacGregor.^" Other universities doing something along this line administrations, should have been supplanted by a Bureau of Munic- ipal Research created by ordinance as a part of the Mayor's office, the director of which is appointed by the mayor and confirmed by a majority of the members-elect of the council. The term of each director of this new Bureau is to be co-extensive with the term of office of the mayor by whom appointed. '0 Ford H. MacGregor's "What Wisconsin is Doing for its Cities," in Nat. Mun. Rev. 1: 378-85, July, 1912; also his "Municipal Reference Bureau" in the Municipality, 12: 52-56, September, 1911; "The Municipal Reference Bureau of Vv'isconsin" in American City 2: 65-68, February, 1910; and "Municipal Reference Bureau" in University of Wisconsin Extension Division Bulletin Serial No. 320, General Series No. 186, September, 1909. 244 Law, Legislative Reference and are Oregon. Washington." Kansas,'- Minnesota,'' Indiana, Western Reserve, Whitman College, Harvard,'^ Texas, '^ California,'^ Michigan, Grinnell College, Iowa, and Illinois. The L'niversity of Illinois' Municipal Research Bureau at the present time is a completely classified and cata- logued collection of several thousand books and pam- phlets consisting in the main of official documents of cities. It is located in Lincoln Hall on the floor above the Seminar Library for the Departments of Political Science and History in which are kept the general treatises, and other material not documentary in character, on all phases of municipal government and administration, except the strictly technical municipal engineering literature. At present the aim of the bureau is to form a working laboratory for ad\-anced and graduate students in all lines of municipal government. There is no appro- priation for dev^eloping additional functions and the future policy has not been definitely determined, but is hoped and expected that if adequate legislative support is gained the bureau will develop into a place of informa- tion to which all the cities of the state may turn with the assurance that their individual .problems will receive the prompt attention of experts. " C/. Descriptive circular issued by the Bureau of Municipal Research of the Extension Division, University of Washington, Seattle, Washington. 8 p. 1912. '-See Richard R. Price "Report of the Secretary-Treasurer" in Proceedings of the League of Kansas MunicipaUties 3: 17-18, October, 1911. ^^ Library Journal. 37: 567, Oct., 1912. " "Harvard Bureau of Municipal Research" in Nat. Mun. Rev. 1:307-08, April, 1912. '5 Nat. Mun. Rev. 2: 714-15. Oct., 1913. '* University of California Bureau of Municipal Research Pre- liminary Announcement of the Bureau of Municipal Reference, 1913- 1914. 6 p. Berkeley, 1913. Municipal Reference Libraries 245 At Harvard a "Bureau for Research in Municipal Government" was established the fall of 1911. This is intended as a place in which students of municipal government may obtain practice in the use of official data and only incidentally is it designed to be a center for collecting and disseminating information in the form of bulletins or otherwise. It is interesting to note, how- ever, that Harvard University has in addition offered to give gratuitously to the cities of Cambridge and Boston advice within reasonable limits on municipal matters when the request is formally made to the President of the University. (f) Municipal Reference Service in Legislative Reference Bureaus. In the Indiana Bureau of Legislative and Adminis- trative Information, formerly the Legislati\'e Reference Department of the State Library, there is a section devoted to municipal reference work in charge of Professor Frank G. Bates of Indiana University. The Nebraska Legislative Reference Bureau also renders special service to municipalities. The department formerly main- tained in the California State Library was called the Legislative and Municipal Reference Department, which, as the name indicates, rendered special service to both state officials and the legislature and to municipalities throughout the state. ^^ 2. Other Agencies doing Municipal Reference Work. A certain amount of municipal reference work, if the definition already giv'en be accepted, is being done by various agencies not primarily municipal reference libraries. The work of these other agencies differs " Robert A. Campbell "Legislative and Municipal Reference Department" in News and Notes of California Libraries, Oct., 1910, p. 534. 246 Law, Legislative Reference and from that done in the municipal reference library both in kind and in extent, but certain activities are common to all. (a) Municipal Research Bureaus. ^^ In a number of cities there are privately organized Bureaus of Municipal Research, or, to use a borrowed phrase, agencies of citizen inquiry into public business. In so far as the work of these bureaus consists in securing and making readily accessible to the public the com- parative data of municipal experience, they may be con- sidered as doing so much municipal reference work. But the research bureau goes further. It examines into the condition of the city's affairs and makes, so to speak, an efficiency survey of local methods of govern- ment and administration. On learning what the situa- tion is in a certain city department it sets about making that condition what it ought to be. It studies organi- zation, administrative methods, records, files, etc., and recommends improvements. In Professor Munro's words the research bureau possesses "a staff of inv^esti- gators who probe their way into every branch of the municipal service and emerge with data upon which they base recommendations for improvements." '^ In this manner the New York Bureau of Municipal Re- '* Cf. "Bureaus of Municipal Research" in Annals of the Amer. Acad, of Pol. and Soc. Science, May, 1912, p. 235-78; describes the work of the bureaus in New York, Philadelphia, Cincinnati and Milwaukee. See also F. A. Cleveland, "An Agency of Citizen Inquiry" in his Municipal Administration and Accounting, p. 346-()l (X. Y., 1909) \V. B. Munro, Government of American Cities, p. 37&-77 (N. Y., 1912); and Henry Bruere, "The Bureau of Municipal Research" in Amer. Pol. Science Assn. Proceedings 5: 111-21, 1908. F"or additional references, see p. 430-31, and the annual reports of the bureaus themselves. '» Munro, op. cit., p. 376. Municipal Reference Libraries 247 search, for example, during the six years of its existence has been doing a great amount of valuable work.^" Other cities have followed the example of New York and have created such agencies of citizen inquiry until now they must be numbered by the score. (b) Municipal Efficiency Commissions, ^i Somewhat similar to the work of research bureaus is that of municipal efficiency commissions. The latter, however, are usually officially authorized and form definite branches of the city government whose business it is to see that each city department is setting a proper standard of work and insisting upon its maintenance by all city employees. By way of illustration may be cited the Milwaukee Bureau of Economy and Efficiency which was created in 1910 by the Common Council for the investigation of departmental accounts and methods. It made a number of important investiga- tions and published nineteen bulletins each devoted to a phase of local government, administration, or local social conditions and included in each specific recom- mendations for improvement. This bureau was organized at the request of city officials and had their hearty co-operation. Professor Commons of the Uni- versity of Wisconsin, B. M. Rastall and Leslie S. Everts were its directors.^- 20 Cf. its Six Years of Municipal Research for New York City, 1906-1912. N. Y., 1912. 21 The work of Bureaus of Municipal Research, Efificiency Commis- sions, etc., is not sufficiently differentiated as yet tor the terms used in the title of each to imply that a certain distinct set ot func- tions and no other are performed by the agency so named. 22 See John E. Treleven and P. H. Myers, "Milwaukee Bureau of Economy and Efficiency" in Nat. Mun. Rev. 1: 420-25, July, 1912; also the bureau's Eighteen Months' Work (Bulletin 19) Milwaukee, 1912. 248 Law, Legislative Reference and This bureau was discontinued in April, 1912, and an ordinance passed September 30, 1912, created a Bureau of Municipal Research in the mayor's office in its stead .^' In Chicago the city council on June 21, 1909, created the Chicago Commission on City Expenditures, which investigated and reported upon matters of department finance. Professor C. E. Merriam of the University of Chicago was chairman. The commission came to an end April 17, 1911. The Chicago Bureau of Public Efficiency was the outgrowth of this Merriam aldermanic investigating commission, an unofficial bureau which seemed war- ranted by the preliminary work of the official body which it superseded. It is a private organization endeavoring to secure more efficiency in the eight local governments of Chicago and Cook County. To date this bureau has published its findings in a series of some 24 bulletins and is now under the direction of Mr. Harris S. Keeler.^* The Work of a Municipal Efficiency Bureau, a state- ment prepared by the committee on municipal finance and taxation of the Civic League of St. Louis in April, 1911, gives a good idea of what is expected of such an agency, and at the same time illustrates, as do even the most authoritative discussions of this work, the present confusion in terms now used to describe all these various agencies aiming to do their part in the general movement toward better government and more improved business methods in American cities. " See apx., p. 414-lG, for text ot the new ordinance. -* See George S. Sikes' "The Chicago Bureau of Public Efficiency" in the Nat. Mun. Rev. 1: 455-57, July, 1912. Municipal Reference Libraries 249 (c) Public Service Commissions. The New York State Public Service Commission of the first district, a state commission having jurisdiction over public service or utility corporations in New York City, such as transportation companies, gas, electric light, power, and express companies is constantly hearing claims and adjusting difficulties arising between these companies and the city or the public. This necessitates an accurate knowledge of conditions and a careful study of all phases of the numerous questions involved in properly determining the municipal control of public utilities. The commission has an excellent library ^^ and its statistician-librarian is Dr. Robert S. Whitten, for- merly head of the New York State Legislative Reference Library, and a well-known authority on public service corporation valuation.-'' (d) Regular City Departments. In a certain sense, too, the regular city departments and bureaus are, of necessity, municipal reference and -* See Robert H. Whitten, "The Library of the Public Service Commission of New York, First District," in Special Libraries, 1: 18-20, March, 1910. Dr. Whitten is the author of a standard treatise entitled Valuation of Public Service Corporations. 800 p. N. Y. Banks Law Publishing Co. 1912. 2^ A description of the general work of both state and city public service commissions will be found in "Public Service Commission Reports" {Nat. Mun. Rev. 1: 80-84, January, 1912) by Robert H. Whitten and "State Public Service Commission Reports," by J. 1\I. Mathews in Nat. Mun. Rev. 2: 340-41, the latter a review of over a dozen recent reports. For New York only see "State Regulation of Public Service Cor- porations in the City of New York" issued by the Commission in 1912 and a review of this pamphlet in Nat. Mun. Rev. 1: 451-52 by A. E. Pinanski. A list of references on the New York Public Service Commission appears in James B. Reynolds' Civic Bibli- ography for Greater New York, N. Y. Char. Pub. Comm. 1911; p. 96-98. 250 Law, Legislative Reference and research agencies, for they are constantly experimenting with new methods and materials and are producing the data other agencies must use. Testing laboratories, street, health, water, and finance departments and bureaus of statistics might classify in this group. (e) National Bureaus. A municipal efificiency and reference bureau has been established by the People's Institute of New York City under the direction of Frederic C. Howe, Mr. John Collier, and Dr. Carol Andronici. The purpose is to create a definite agency for gi\ing more effective assist- ance to cities and associations on specific municipal problems which the institute has done in an unorgan- ized way for some years. "The object," it has been stated, "is to create a clearing house through which municipalities will be able to secure experts and experts will be able to secure employment on special problems and the making of municipal and social surveys."" Similar in scope and purpose is the "American City Bureau" recently announced by the American City. It is to serve as a general clearing-house for information concerning municipal improvements and community advance and will distribute books and pamphlets on municipal problems. It, too, is located in New York City. Later on, in another connection .^^ will be mentioned the several proposals that have from time to time been made for a National Bureau or even Department of Municipalities in the Federal Government at Washington. It is also of interest to note that the National Progressive " Nat. Mun. Rev. 2: 143-44, Jan., 1913. M See p. 270, n. 50; p. 343, post. Municipal Reference Libraries 2")1 Party is planning a Municipal Service with its Legis- lative Reference Department in its general scheme of publicity work and the dissemination of information. 3. Table of Cities. A list of cities in which municipal reference libraries, bureaus of municipal research, or efficiency commissions have been established cannot be prepared for such a work as this W'ith the hope of being up-to-date on the appearance of the book. The number is increasing too rapidly for that. Still, the following table, necessarily incomplete and omitting entirely bureaus of municipal statistics, is so indicative of municipal progress and activity in a field quite barren until half a dozen years ago that it may not be entirely without interest. List of Municipal Reference Libraries, Refer- ence AND Research Bureaus, and Economy AND Efficiency Commissions.^^ Albany, N. Y. The Fourth Annual Conference of Mayors and other city officials of New York resolved to estab- lish a state bureau of municipal information which will be operated by the cities through the Con- ference and in co-operation with the state library at Albany. 29 This list is based mainly on "Municipal Research in other Cities" in the New York Bureau of Municipal Research, 5t.r Years of Municipal Research for New York City, p. 62-65; on Horace E. Flack's "Report on Municipal Reference Libraries and Archives" in Nat. Mun. League Proceedings, 1911 (published in the Nat. Mun. Rev. appendix, January, 1913, p. 13-15; on Myrtile Cerf's "Bureaus of Public Efficiency" in Nat. Mun. Rev. 2: 39-47, January, 1913, and Edward M. Sait's "Research and Reterence Bureaus," ib. 50- 56. Additional information has been secured from miscellaneous sources and correspondence. 252 Law, Legislative Reference and Atlanta, Ga. A municipal research committee has been ap- pointed. Baltimore. The Department of Legislative Reference, estab- lished in 1907, does some legislative reference work for members of the state legislature, but is primarily a municipal reference library for Baltimore. Horace E. Flack, director. A private and independent Bureau of State and Municipal Research, to be operated along the lines of the New York bureau and e\'entually to extend its services to all municipalities and counties of the state, was opened in 1913. VV. H. Maltbie, director. Berkeley. A Public Efficiency Commission under considera- tion. Boston. The Finance Commission has a Bureau of Muni- cipal Research which was established in 1910. George A. O. Ernst, Director. A municipal reference department for the public library has been considered. Brooklyn. Has a municipal reference library in the Socio- logical Division of the Public Library, Montagu Street building. Buffalo. Has a municipal reference bureau in the city hall under the direction of the city clerk. Chicago. For some years maintained a Bureau of Statistics and Municipal Library in the City Hall. On Municipal Reference Libraries 253 January 22, 1912, an ordinance was passed creating a Bureau of Information and Publicity to take the place of the Bureau of Statistics and Municipal Library, but the new Bureau was never organized nor appropriated for, in fact, the appropriation ordinance of January, 1913, provided for the main- tenance of the Bureau of Statistics and Municipal Library abolished by the later ordinance. On March 31, 1913, another ordinance was passed creating a Municipal Reference Library under the jurisdiction of the Chicago Public Library. The appropriations formerly allowed the Bureau of Statistics and Municipal Library were transferred to the support of the newly created municipal refer- ence library with the exception of the salary of the city statistician. The chief of the new library (formerly the assistant city statistician) was put on the payroll of the Chicago Public Library and becomes nominal head also of the public library's Civics Room.^" Has a privately supported Bureau of Public Efifi- ciency, established August, 1910. Harris S. Keeler, Director.^^ The city civil service commission has an effi- ciency division. ^° Cf. Frederic Rex, "Chicago's Bureau of Information and Pub- licity," in Nat. Mun. Rev. 1:740-41, October, 1912; Charles E. Merriani and J. F. Milton, "Proposed Department of Information and Publicity," in Chicago City ClubBulletin 2: 165-70, July 8, 1908; Chicago City Council Journal Jan. 22, 1912 (p. 2607-08, advance sheets), Jan. 2, 1913 (p. 3050, advance sheets), and March 31, 1913 (p. 4273-74, advance sheets). Concerning the Public Library Civics Room, see Henry E. Leg- ler's address before a committee of the Chicago Association of Com- merce in Chicago Commerce, April 26, 1912, p. 23-27. The Bureau of Statistics and Municipal Library was described by Frederic Rex in the Educational Monthly 4: 286-89, April, 1910, under the title "Municipal Library." 31 See George C. Silces' "The Chicago Bureau of Public Efficiency" in Nat. Mun. Rev. 1: 455-47, July, 1912. 254 Law, Legislative Reference and Cincinnati. Has a privately supported Bureau of Municipal Research, established July, 1909. Rufus E. Miles, Director. Has a municipal reference library in the city hall under the direction of the University of Cincinnati. S. Gale Lowrie, Director. Public Library has a Civics Room. Dallas. Has a municipal reference department of the public library-. Cleveland. Has a municipal reference branch of the public library in the city hall. A Bureau of Information and Publicity is provided for in the new charter recently voted on, which will become a part of the new city government January 1, 1914. Dayton, O. Has a privately supported Bureau of Municipal Research, established 1913. L. D. Upson, Director. Des Moines. Has a Bureau of Public Efficiency and Economy, established October, 1911. J. G. Mitchell, Secre- tary. Detroit. Public Library has a Civics Room. Fort Wayne, Indiana, Has a Business and Municipal Department of the Public Library. Grand Rapids. The public library does municipal reference work, but has no separate department for it. Municipal Reference Libraries 255 Hoboken. Has the Robert L. Stevens Fund for Municipal Research, established 1910. Genevieve W. Beavers Secretary. ' Jersey City. Has a Bureau of Municipal Research, established Feb., 1912. Frank Stevens, Director. Kansas City, Mo. A Municipal Reference Library, entirely separate from the public library, was established in 1910 and remained under the direction of Charles H. Talbot until it was transferred to the jurisdiction of the Public Service Committee of the council in the spring of 1913. The Board of Public Welfare has a Research Bureau .^- Los Angeles. Had a Bureau of Municipal Research at Bethle- hem Institute. A Bureau of Public Efificiency is under considera- tion. The public library has a special collection of materials on municipal government. Memphis. Has a Bureau of Municipal Research, established 1909. Activities temporarily ceased in 1911 for lack of funds. E. O. Gillican is Secretary. Milwaukee. Has a Municipal Reference Library receiving special city support from the city, but under the jurisdiction of the public library, located in the city hall. 32 See L. A. Halbert, "Board of Public Welfare of Kansas City" in Nat. Mun. Rev. 1: 417-20, July, 1912. 256 Law, Legislative Reference and Milwaukee. — icont.) The official Bureau of Economy and Efficiency ceased April, 1912, and was supplanted by an ordinance of Sept. 30, 1912, by a Bureau of Muni- cipal Research, the director of which is appointed by the Mayor. Mr. Ralph Bowman, Director. Minneapolis. Has a mtlnicipal reference department of the pub- lic library. New York City. Had a Bureau of Statistics and small library in the office of the Commissioner of Accounts, estab- lished 1873. Has a privately supported Bureau of Municipal Research, established 1906. W. H. Allen, Henry Bruere and F. A. Cleveland, Directors. The Public Library has probably the best col- lection of city documents in the United States and does a great deal of municipal reference work with city officials, though it has no municipal reference department. Has a Municipal Reference Library in the De- partment of Finance under the general supervision of the Comptroller. Formally opened March 31, 1913, it will be housed eventually in the new Muni- cipal Building. The present Comptroller believes that the municipal reference library should be a separate division of the city government under the control of the Board of Estimate and Apportionment and not an adjunct of the Department of Finance. A. W. von Hohoff, in charge.^^ " See Library Journal 38: 270-72, May, 1913. The speeches at the opening of the library were printed in a commemorative booklet. Later information appears in the address ot (ieorge McAneny, Borough President, on "The Municipal Reference Library as an Aid in City Administration," in Liby. Jour. 38: 509-13, Sept. 1913. Municipal Reference Libraries 257 Newark. Has a municipal reference library as a branch of the City Clerk's office in the city hall. The public library has a business men's branch and is interested in all civic betterment movements. Oakland. Has a municipal reference library in the city hall under the direction of the public library.'* Omaha. Considering a Public Efficiency Bureau. Philadelphia. The Public Library has a municipal reference department. Has a privately supported Bureau of Municipal Research, established July, 1909. Jesse D. Burks, Director. Pittsburgh. The Civic Commission has a Committee on Muni- cipal Research, established January, 1909. Allen T, Burns, Secretary. The public library is interested in establishing a Municipal Reference Library. Pasadena. Has an efficiency department under the Mayor, established 1911. Portland, Ore. Has a municipal reference branch of the public library in the city hall. Has proposed an efficiency commission or re- search bureau. 3* See Oakland Public Library Report, 1912, p. 12 sq. 258 Law, Legislative Reference and Reading, Pa. Has proposed a municipal reference bureau. St. Louis. Has a municipal reference branch of the public library- in the city hall, established October, 191L Andrew L. Bostwick, branch librarian. St. PauL An efficiency bureau has been proposed. San Francisco. The Deputy City Clerk has organized a Municipal Reference Library. A Bureau of Efficiency was created July 9, 1912, under the direction of the Civil Service Commis- sion. E. R. Zion, Director. ^^ The public library has a good collection of muni- cipal government material. Seattle. The Public Library has a municipal reference department. Wallingford, Conn. Has a Bureau of Municipal Research, established 1911. Martin F. Plunkett, Secretary. Washington, D. C. The Public Library has endeavored to secure appropriations for a Municipal Reference Depart- ment. " Nat. Mun. Rev. 2: 156, Jan., 1913. Municipal Reference Libraries 259 Foreign. Berlin, Germany. Has the Stadtetag, established 190Q?^ Has a Magistrats Bibliotek. Has an important library in the Bureau of Statis- tics." Paris, France. Has the Library of the Prefecture of the Seine. Toronto, Canada. Has a Municipal Referenfce Branch of the Public Library in the City Hall, established 191L Municipal Reference Libraries and Research Bureaus in Universities. The College of the City of New York is to maintain a permanent municipal budget exhibit.'* Columbia University, New York City. Politics Laboratory, 191L Professors Charles A. Beard and E. M. Sait, Directors. Grinnell College, Iowa. Bureau of Public Service. Harvard University, Cambridge. Bureau of Re- search in Municipal Government. Professor W. B. Munro, Director. 36 Annals of the Amer. Acad, of Pol. and Social Science 31: 704-06, May, 1908. =" Eugen Moritz, "Die Bibliotek des statistischen Amts der Stadt Berlin" in Heinrich Silbergleit, Das Statistischen Amts der Stadt Ber- lin, Berlin, 1912, p. 62-68. In this account of the library of the Berlin Bureau ot Statistics the book fund for 1911 is given as ISOOM; number of volumes February 1, 1912, as 36,000 with an insured value of 70,000M. 38 Nat. Mun. Rev. 1: 733, Oct., 1912. 260 Law, Legislative Reference and Indiana University, Bloomington, Indiana. Pro- fessor Frank G. Bates is in charge of the muni- cipal reference work of the State Bureau of Legislative and Administrative Information at Indianapolis. University of California. Has announced a Bureau of Municipal Research, 1913.^^ Berkeley. University of Cincinnati, Cincinnati. Is in charge of the Municipal Reference Library at the City Hall. S. Gale Lqwrie, Director. University of Illinois, Urbana. Bureau of Muni- cipal Research. Professor John A. Fairlie, Director. University of Kansas, Lawrence. Municipal Refer- ence Bureau, 1909. University of Michigan has announced a Bureau of Municipal Reference to serve all the cities of the state especially along the line of redrafting charters. Dr. Robert T. Crane, Director. University of Minnesota, St. Paul. Plans a Mu- nicipal Reference Bureau in its extension division, under the direction of Professor Richard R. Price. University of Oregon, Eugene. Considering it. University of Texas, Austin. Has created a Bureau of Municipal Research and Reference, 1913. Professor Herman G. James, Director.*** " Cf. University of California Extension Division, Bureau of Muni- cipal Rcterence Bulletin No. 1. 6 p. 1913. « Nat. Mun. Rev. 2: 714-15, Oct., 1913. Municipal Reference Libraries 2()1 University of Washington, Seattle. Bureau of Municipal and Legislative Research. Dr. Herman A. Brauer, Director. University of Wisconsin, Madison. Has a Municipal Reference Bureau in the Extension Division. Dr. Ford H. MacGregor, Municipal Reference Librarian. Western Reserve University, Cleveland. Planning a Municipal Research Bureau to co-operate with the Municipal Reference Department of the Public Library located in the City Hall. Pro- fessor A. R. Hatton, in charge. Whitman College, Walla Walla, Washington. Mu- nicipal Reference Department. Professor Charles G. Haines, Director.'*^ Foreign. The Academy of Municipal Administration, Duesseldorf, Germany.'*' 2. Materials. (a) Legal and Documentary. Before discussing materials in the concrete it may be fitting to recall in a word the fundamental relationship " Nat. Mun. Rev. 2: 501-03, July, 1913. *^ Similar work to that of municipal research bureaus is being done to some extent by other county, state, and national agencies such as the Alameda County Tax Association, Oakland, Cali- fornia; The Wayne County Bureau of Municipal Research, Richmond, Indiana; the Westchester County Research Bureau, White Plains, N. Y. ; the Municipal Efficiency and Reference Bureau of the People's Institute, New York City; the American City Bureau, New York City; the Municipal Service Division of the National Progressive Service of the Progressive Party and the President's Commission on Economy and Efficiency. Massachusetts, Minnesota, New York, New Jersey, Pennsylvania and Illinois have state Commissions on Economy and Efficiency investigating at the present time. 262 Law, Legislative Reference and between city and state in this country, a relationship which has either been created by the first materials to be discussed or which has been a prominent factor in their production. Professor Munro introduces his chapter on "The City and the State"" with the following paragraph. "The American city is a municipal corporation created by the state under its reserved rights of internal sov- ereignty; it derives all its powers from state laws, and it is subordinate in all its activities to the state's author- ity. It is one of the agents which the state uses for the more convenient administration of local government. To this end, the city is intrusted with only such powers as the legislature may think wise to confer, and even in such grants it acquires no vested right. Municipal authority may be enlarged, abridged or entirely with- drawn by the legislature at pleasure. In other words, the state authorities have the right to govern the city just as they govern any other area within their jurisdiction. This is a fundamental principle of American law, so well recognized that it is not nowadays open to question." Frequently steps have been taken to prevent the abuse of this power on the part of the state. They have re- sulted in constitutional provisions classifying cities and preventing special legislation, and in the enactment of municipal codes applicable to all the cities in a state. The legal and documentary materials to be enu- merated illustrate the powers reserved by the state, the powers granted by the state to the cities, and the powers of supervision retained in cases where a large amount of local autonomy has been acquired. ^'William Bennett Munro, The Government of American Cities, Macmillan, N. Y., 1912, p. 53-79. His "References." p. 79, note additional sources where the subject is given extended treatment. Municipal Reference Libraries 263 I, 1. State Laws on Municipal Government generally, and on Special Topics. These would include (a) provisions in the state con- stitution on municipal government, usually restrictions on the powers of the legislature, which provisions would form the basis of the legislative control over municipal affairs; all state legislation on municipal matters must be consistent with the constitutional provisions on that subject; (b) a general municipal corporations act, or as it is more often called, a municipal code containing all the state laws pertaining to all local governments in that state; (c) general laws on one particular phase of municipal government but applicable to all the cities of the state, e.g., state laws regulating municipal accounts, finance, or municipal public utilities; (d) general laws applying to cities of a certain class in states where cities are classified, for instance on a basis of population. 2. City Charters and Local Acts. City charters are fundamental documents of city government whenever granted. Whether or not charters are granted in a particular state to cities of a certain size depends on whether or not there are provisions in the constitution of that state or some general state law to that effect. When granted they are generally acts passed by the legislature, an instance of state legislative control over city government, though recently some states by constitutional amendments have made it possible for cities to frame and adopt their own charters by popular convention and referendum methods. A municipal reference library should have a collection of separate charters. 264 Law, Legislative Reference and It should also have collections of city charters, but these are few. Among them are: Hatton, A. R. Digest of City Charters. Chicago. 1906. This brings together under definite heads the main provi- sions of constitutions, charters, and other statutes relating to the powers and structure of the governments of a number of important cities, American and foreign. It contains also the greater part of the model corporations act suggested by the National Municipal League.^'' The compilation was pre- pared by Professor Hatton for the Chicago Charter Conven- tion of 1906. James, E. J. The Charters of the City of Chicago. Chicago. 1898-99. President James' work is in two parts; the first covers 1833-37, the second 1838-51. Beard, C. E. Loose Leaf Digest of the Short Ballot Charters — a Documentary History of the Commission Form of Government. N. Y., 1912. In addition to its valuable subject-matter Professor Beard's book is an interesting example of a type of book-making. Other laws relating to cities are the special or local acts of the legislature, by which are meant acts relating to certain affairs in a single city only. 3. City Ordinances. "Ordinance" is the term applied to the laws passed by a municipal legislative body whether known as the city council, municipal assembly, or board of aldermen. Important ordinances usually appear first in the local newspapers. In some places publication in this form is mandatory, and in small cities it is often the only form ** The whole act and the complete municipal program of the League appear in Horace E. Deming's The Government of American Cities. N. Y. Putnam. 1909. p. 241-304. Municipal Reference Libraries 265 in which they are made public. Where a city council journal is published, they will appear there. In some cities a volume of ordinances is published each year corresponding to the publication of the state session laws. More often cities publish compiled ordi- nances at irregular intervals in which are frequently in- cluded with the local ordinances in force at the time of publication whatever state laws there are, both general and special, relating to that particular city. The term Compiled Ordinances or Municipal Code is usually applied to such a volume, a good example of which is the Chicago Municipal Code, 1911. The compiled ordinances of cities form the data necessary for a comparative study of local administra- tion. 4. Mayors' Messages and Council Proceedings. The Mayor sends annually to the city council a message dealing with the work done by the city the past year and recommending certain matters for the council's consideration. These are valuable documents giving a history of the administration's activities and policies and show where the administration stands on questions of general public welfare. They are frequently issued separately, usually form the first document in the collected city documents, and appear also in the journal or pro- ceedings of the council to which they are addressed. Other messages sent from time to time to the council by the mayor appear in its journals in the same manner that governors' messages appear in the journals of the state legislature. The Journal (Minutes or Proceedings) of the city's legislative body — be it council, assembly, or board of 266 Law, Legislative Reference and aldermen — is also of primary importance. The munic- ipal reference library should have the bound volumes for years past, and advance sheets, as issued weekly or otherwise, for the latest action taken. This journal generally gives the ordinances in full as passed and shows whatever action the council takes on all matters laid before it. When a Council Manual is published, it usually con- tains a list of the city offices and councilmen and perhaps the rules of the council showing the parliamentary pro- cedure it adopts. Statistical and historical data are at times included. Sometimes there is a "city manual" somewhat similar to a "council manual" giving various facts about the city, its history and its government, as is the case in Chicago.''^ 5. Collected Documents. Many cities issue annually or biennially, in a set of one, two, three, or more volumes, the collected reports of the various departments of the city government which are mentioned separately in the section following. These correspond to the collected documents of the states and are variously called City Documents, Annual Reports, Year Book, Municipal Doctiments, Mayors' Messages and Reports of City Officers. In Special Libraries for June, 1913, will be found an article on "American Municipal Documents" in which a comparative study is made of the method and form of publishing both the collected and separate issues of depart- ment reports and the means employed for their distri- bution. Suffice it to say here that the average volume *'" Cf. "City Manuals and Registers" in Nat. Mun. Rev., 1: p. 461, July, 1912. Municipal Reference Libraries 267 of collected city documents is certainly not made with clear insight into the possibiHties of its usefulness as a book of reference and permanent record. Cincinnati has made a beginning which all cities will do well to follow in its effort to produce a readable volume of intelligible and interesting data in its Annual Reports for 1912. Mayor Hunt assigned to the "Inspector for the Mayor" *'^ the duty of editing the several reports. Statistical matter has been condensed, much purely perfunctory data eliminated, many interesting illustrations, a useful table of contents, and a serviceable index added. The whole is printed on thin paper of more than average quality and neatly bound. One of the most difficult problems of any library in connection with its handling of municipal documents is the problem of selection. The New York Public Library and the Library of Congress aim at practical completeness as far as the collected documents of the cities of the United States are concerned and their main problem of selection arises in connection with foreign material. The policy of the Library of Congress is to secure everything published by cities of over 100,000 population and the collected documents from all cities that will supply them. For cities of 50,000 or over the library endeavors to secure the separate or departmental reports on the following subjects: Finance, Vital Sta- tistics, Police, Park Commissioners, Water Supply, Sewerage, City Engineering, Scavenging, Roads, Street Railways, and Fire. Other libraries interested in municipal documents seem to let their policy of selection be determined largely by local needs as they arise and request documents on « Mr. L. L. Evans. 268 Law, Legislative Reference and certain subjects when those subjects are of special local interest. The only uniformity observable is in setting a definite limit by size of cities from which all documents are requested, or in selecting cities where the problems to be met are known definitely to resemble those of the local community. The concensus of opinion seems to be also that except in a few cases where the public library handles exchanges an attempt to get permanently on the regular mailing list of department reports is more likely than not to prove unsuccessful.^' 6. Reports of Departments and Special Commissions. The reports of local officers are published separately in cities of any size whether or not they are later brought together in collected edition. Among such reports are those of the comptroller, treasurer, auditor, city clerk, police, fire and health departments, park board, city attorney (solicitor or corporation counsel), and whatever other officers or boards there may be in the government which are by ordinance or otherwise obliged to present annual reports to the mayor or city council. WTiat city offices there are and who fill them will be learned in practically all cases by consulting tlie city manual, council manual, or even the local directory or telephone directory. The city charter will name the important offices but others may be created by ordinance. Special reports of officers and reports of special com- missions investigating various municipal problems often form valuable additions to the ordinary run of city documents. They have been concerned with such matters as housing conditions, weights and measures, *'' The writer has in mind a more extended discussion of the ques- tion of present practice and approved policies for selecting city docu- ments, to be published later. Municipal Reference Libraries 269 milk inspection, and many other questions of social, economic, scientific or administrative importance. The light of publicity is more and more being brought to bear upon problems of local government and intelligent study •is being employed in their solution. Several reports of this nature, come to mind, — the report of New York's mayor's committee on public baths and public comfort stations in 1907; the Chicago city council's local transportation committee's report on the electrification of railway terminals, 1908; the New York Tenement House Commission report, 1900, by Lawrence Veiller; the report of the Chicago Harbor Commission, 1908, containing The Development of Commercial Ports by J. P. Goode of the University of Chicago, having special reference to opportunities at Chicago as well as a discussion of what the ports of Europe are doing; the Parsons, Hering, and Whinery report on street cleaning and waste disposal ; Haskins and Sells' report on munici- pal accounting ; and there are many others. 7. State Boards, Officers and Commissions Having Jurisdiction over Municipal Affairs. In some states there are state boards, officers, and commissions which have jurisdiction over certain matters in all cities of the state. The reports and publications of these are therefore of value in municipal reference work. So, too, are the reports of special investigations into the activities of a particular city which are conducted at times under state supervision and direction. The first class of material is illustrated by the state control of municipal accounting in Ohio, of municipal finance in Massachusetts, of public utilities in New York, and charities and education in many states. A recent 270 Law, Legislative Reference and document in point is the report of a study of the collection and disposal of city wastes in Ohio, 1910, issued as a supplement to the 2oth Annual Report of the Ohio State Board of Health. Special state investigations of municipal matters are illustrated by those conducted by the New York State Assembly into the question of municipal ownership of street railways, two volumes, 1896, the Tilden Com- mission's Report on Municipal Governrtient*^ and the Illinois Senate inquiry into the Chicago police situation in 1897-8. The special report on taxation showing effects of separation of state, county, and municipal revenues and tax rates, 1911, by the California State Board of Equalization and Professor John A. Fairlie's Town and County Government in Illinois, published in 1913, are both recent examples of this latter also. An article illustrating the practical value of city and state documents is found in the Journal of Home Eco- nomics ior February 1912,'*' by C. F. Langworthy, Chief of the Nutrition Investigations of the United States Depart- ment of Agriculture entitled "State and Municipal Documents as Sources of Information for Institution Managers and other Students of Home Economics." 8. National Bureaus. Several of the bureaus of the national go\'ernment issue valuable data bearing on municipal questions.^" ** New York (State) Legislature. Tilden Commission. Report on Municipal Government, 1877. (Reprinted in Municipal Affairs Sept., 1899, 3: 434-54.) « p. 59-63. *" Baker, M. N., "Federal and State Collections of Municipal Statistics." (In Nat. Miin. Rev. 1: 446-49, July, 1912); see also "How the P'ederal (iovernment now Co-operates with Munici- palities" (in American City, 6: 408-10, Jan., 1912). Ernst Meyer, "The National Census Bureau and our Cities" (in Amer. Pol. Sci. Assn. Proceedings, 7: 126-37, 1910). Municipal Reference Libraries 271 Prominent among them is the census bureau,*^ with its annual volumes of statistics of cities, mainly financial, its population bulletins, and its various reports on mortality, manufactures, industries, telephones, light, power, water supply, sewerage, and street railways. The Bureau of Foreign and Domestic Commerce of the Department of Commerce publishes the Daily Consular and Trade Reports, which present a large amount of municipal information from foreign countries, up-to- date and not easily accessible elsewhere. This informa- tion and that published in the series of consular reports issued by the late Bureau of Manufactures on municipal activities abroad, such as street lighting, municipal taxation, markets and slaughter-houses, and municipal art commissions,^- was secured through the Department of State by our various diplomatic and consular ofificers. Of the vast amount of valuable information distribu- ted by the Department of Agriculture not a little of it is applicable to urban as well as to rural communities. In addition to the Farmers' Bulletins listed in the footnote,^^ ^* U. S. Census, Bureau of. Guide to the Exhibit of Municipal Statistics of the United States Bureau of the Census, Department of Commerce and Labor, Washington, D. C, at the International Municipal Congress and Exposition . . . Chicago . . . September 18-30, 1911. 36 p. Wash. 1911. (The proceedings of this con- gress have been published.) ^^ Pub. in Special Consular Report No. 42. '^ For example, among comparatively recent Farmers' Bulletins might be mentioned the following as applicable to the city as well as to rural needs: No. 413 : Care of Milk and its Use in the Home. 444: Remedies and Preventives against Mosquitoes. 449: Rabies or Hydrophobia, 450: Some Facts about Malaria. 459: House Flies. 478: How to prevent Typhoid Fever. Many others will be found in the long list of nearly GOO bulletins 979 Law, Legislative Reference and a good example is the animal industry bureau's study of the Milk Supply of Chicago and Washington.^ The Bureau of Standards' Circular no. 32 on state and municipal regulations regarding illuminating gas" should be mentioned. The Public Health Service of the Treasury Department through its Division of Sanitary Reports and Statistics issues weekly Public Health Reports which since Janu- ary 1, 1910, have published the sanitary ordinances of cities of over 25,000 population in the United States, These ordinances have recently been brought together ** in one bulletin which forms one of the few examples there are of compilations of city ordinances in a particu- lar field. Another important publication of this service was Milk and its Relation to the Public Health^'' issued by the Hygienic Laboratory. And it should not be forgotten that the reports of municipal activities of Washington, D. C, all appear as government documents because of the unique situa- tion of the capital city.^^ " U. S. — Animal Industry Bureau. Bulletin no. 138. 40 p. Wash. 1911. " U. S. — Standards, Bureau of. State and Municipal Regulations for the Quality, Distribution and Testing of Illuminating Gas. Ed. 1. 133 p. Wash. 1912. (Cir. No. 32.) ** U. S. — PubHc Health and Marine Hospital Service. Municipal Ordinances, Rules arid Regulations pertaining to Public Hygiene, adopted from January 1, 1910, to June 30, 1911, by Cities of the United .States having a population of over 25,000 in 1910. 244 p. Wash. 1912. (Reprint from Pvblic Health Reports. — No. 70.) Takes up among other things communicable diseases, vaccina- tion, spitting, barber shops, street cars, lodging houses, natatoriums, laundries, food stuffs, milk, meat, bakeries, stables, domestic ani- mals, garbage, nuisances, etc. Reprint 121 from the Weekly Public Health Reportshrings this compilation to Dec. 31, 1911. *' 834 p. Wash. 1909. '^ A document in point is the Report on Assessment and Taxation of Real Estate in the District of Columbia issued by the House Com- mittee on the District of Columbia, Washington, 1912, Sixty-second Municipal Reference Libraries 273 Not only do these administrative offices publish mu- nicipal data but many congressional committees have investigated and reported upon matters which are en- tirely or in large part matters of local administrative, social, or scientific import. Special commissions inquire into similar problems as the excellent reports of the President's Homes Commissions^ and its committees^" well illustrate. Indeed, the government documents will repay examination for material on almost any phase of municipal endeavor. The War Department also on occasion enters the field of municipal activity. Witness its emergency work following the San Francisco earthquake and its policing and sanitation of Havana. On both of these subjects reports®^ have been published. The Bureau of Mines has given careful attention to the smoke prevention problem, considering existing preventive agencies for both locomotives and stationary power plants, types of coal, furnaces, etc.^' The Bureau of Education's Reports and Bulletins are of great service to local school authorities as they discuss all phases of public education in this country and abroad. Congress, second session, H. Rpt. 1215. The best account of the government pubHcations relating to the District of Columbia will be found in the "Bibliographical Note," p. 283-89 of W. F. Dodd's Government of the District of Columbia, Washington, 1909. 53 U. S. 60th Cong. 2d Sess. S. Doc. 644 (in serial No. 5394). ^° Committee on Social Betterment Report, 281 p. 1908. Also in serial number 5394, p. 109-381. " 59th Cong. 2d Sess. H. Doc. vol. 2 in serial No. 5105 and 56th Cong. 1st Sess. H. Doc. No. 2, in serial No. 3901. ^^ Bulletin 'i9. 274 Law, Legislative Reference and IL Guides to this Legal and Documentary Material. In ilie ordinar\- bibliography of municipal affairs, slight attention is paid to such titles as fall within the scope of the sections on legal and documentary materials just re^•ie^ved. There are, of course, exceptions to this and when other a\enues of research do not lead to the desired document or law, the general bibliography may be called into ser\ice. Taking up the materials again in about the order originally followed, the first things to be noted are local acts of the legislature. Many states publish their local acts separately and an occasional index to a series of session laws will cover both general and special legis- lation. In the annual, or as it is to be, biennial. Review of Legislation of the separate states, one of the Bulletins of the New York State Library which make up its Yearbook of Legislation, there will be foimd sections on local finance and municipal fimctions in which the trend of legislation on these subjects is discussed. The annual Index of Legislation, another of the Bulletins, will enable one to locate definitely whatever general laws on munic- ipal matters are passed each year and some of the more important local acts for all the states of the Union. The "Current Municipal Legislation" department of the National Municipal Review discusses in each number recent state laws as well as ordinances, and the "Current Legislation" section of the American Political Science Review will probably continue its notes on municipal legislation in some form in spite of the legislation depart- ment in the new National Municipal Review devoted entirely to municipal activities. Municipal Reference Libraries 275 There is, it seems, no compilation of the charters of the different cities in America. Excepting Professor Beard's Loose-leaf Digest of Short Ballot Charters which has had added recently texts of city manager charters, and Professor Hatton's Digest, the latter now six years old, there are no indexes or digests of a comparative nature for any considerable number of charters. Most discussions of city charters, charter-making, and the relation between city and state, furnish, however, a certain amount of comparative data to which reference should be made in this connection. The most extensive treatment of the subject will be found in Judge Mc- Quillin's Treatise on the Law of Municipal Corpora- tions,^^ chapter nine, entitled "The Municipal Charter." The charters given particular attention are those of St. Louis, Chicago, San Francisco, Los Angeles, Greater New York, Galveston and Des Moines. A list of refer- ences in point will be found in Munro's Government of American Cities at the end of the chapter on "the City and the State. "^^ More often than not charter discussions relate to municipal home rule charters, and for this phase of the subject, Margaret A. Schaflfner's Municipal Home Rule Charters ^^ and its select bibliography will be found useful. "On the art of drafting a city charter," says Professor Munro, "very little of any service has been written," but the reader should not neglect Professor Munro's own discussion of this subject in the chapter alluded to.^^ " 6 V. Chi., 1911-1913. V. 1, p. 717-75. "^ Munro, op. cit., p. 79. ** Wisconsin Library Commission — Legislative Reference Depart- ment. Comparative Legislation Bulletin, no. 18. Dec, 1908. « p. 76-79. 276 Law, Legislative Reference and "Model charters" have been suggested and the Mu- nicipal Program of the National Municipal League contains a "model" Municipal Corporations act." President James has discussed the question in The Elements of a Model Charter for American Cities ^^ and there has been issued recently by the Bureau of Municipal Research and Reference of the University of Texas a "Model Charter of Texas Cities" (23 p. Austin, Feb. 10, 1914), by his son. Professor Herman G. James. Although many libraries have collections of separate charters of cities or have the city charters in the collected documents of a number of cities, useful catalogues, bibliographies, or even check-lists of these charters are rare and have usually appeared only in connection with and as a part of the general lists of city documents possessed by libraries; or, as in one or two instances, as parts of special bibliographies. Compilations of the ordinances of a number of cities on one subject are far from plentiful. The list below notes most of them along with one or two other items which may be considered aids in a comparative study of this class of materials. Building Codes. American School of Correspondence. Building code: a Compilation of Building Regula- tions covering every Phase of Municipal Building Activity with special Emphasis on Fire Prevention Features. 128 p. Chicago. 1913. *' Deming, Horace E. Government of American Cities. N. Y. Putn. 1909: p. 256-304, also in Conf. for (rood City (iovernment. Proceedings, v. 7: 224-49. See Prof. Munro's comment on this in his Got/. ^ Am. Cities, p. 21 note. ** Conf. for Good City Government, 1895, v. 2: 154-73. Municipal Reference Libraries 277 Garbage Collection. Regulations for Collecting Garbage at the House- holder's expense. (In Municipal Engineering, 40: 348-50.) Covers Bay City (Michigan), Duluth, Grand Rapids, Omaha and Salt Lake. City Planning. Nolen, John, Replanning small cities. 218p. N.Y. Huebsch. 1912. Contains a list of cities in which replanning is being con- sidered and a chapter on "Suggestive City Planning Legisla- tion," p. 166-204. Curfew. Curfew Ordinances of three Wisconsin cities. (In The Municipality Nov.-Dec, 1912. p. 79-80.) Chippewa Falls, Superior, and Platteville. Height of Buildings. Hartford (Connecticut) City Plan Commission. Fourth Annual Report. 1910-1911. Hartford. 1911. Contains a list of American cities which have or have not ordinances limiting the height of buildings. Illuminating Gas. U. S. Standards, Bureau of. State and Municipal Regulations for the Quality, Distribution and Testing of Illuminating Gas. Ed. 1. 133 p. Wash. 1912. (Circular No. 32.) Motion Pictures. Laws and Legislation (relating to Motion Pictures). (In Special Libraries 3: 158, September, 1912). A short bibliography, not texts of laws. Motion Pictures. National Board of Censorship of Motion Pictures. Suggestions for a Model Ordinance for regulating Motion Picture Theatres. 15 p. N. Y. 1913. 278 Law, Legislative Reference and Municipal Courts. Scott, Henry \V. Municipal Courts of New York State; Rochester, Syracuse, Buffalo. (In his The Courts of the State of New York, X. Y., 1909. p. 473-48L) Gives the texts of state laws. Public Health. U. S. Public Health and Marine Hospital Service. Municipal Ordinances, Rules and Regulations pertaining to public Hygiene, adopted January 1, 1910, to June 30, 1911, by cities of the United States having a Population of over 25,000 in 1910. 244 p. Wash. 1912. (Reprint from Public Health Reports No. 70.) Takes up among other important matters communicable diseases, vaccination, spitting, barber shops, street cars, lodging houses, natatoriums, laundries, food stuffs, milk, meat, bakeries, stables, domestic animals, garbage, nuisances, etc. Public Health. U. S. Public Health and Marine Hospital Service. Municipal Ordinances, Rules and Regulations pertaining to Public Health adopted from July 1, 1911, to December 31, 1911, by Cities of the United States having a population of over 10,000 in 1910. 226 p. Wash. 1913. Compiled by John VV. Trask. Public Health. U. S. Public Health Service. Organization, Powers and Duties of Health Authorities, an Analysis of the Laws and Regula- tions relating thereto in force in the L^nited States by J. W\ Kerr and A. A. Moll. 452 p. Wash. 1912, (Public Health Bulletin No. 54, August, 1912.) Includes a discussion of local boards of health and 305 pages of state laws. Municipal Reference Libraries 279 Recreation. Hanmer, Lee F. Recreation Legislation. 68 p. N. Y. 1912(?) (Russell Sage Foundation: Department of Child Hygiene. Publication No. 106). Typical state laws and city ordinances. Sewage Pollution. McLaughlin, Allen J. Sewage Pollution of Interstate and International Waters. (U. S. Hygienic Laboratory, Bulletin 83.) Studies of seventy-three American cities affected by waters of the Great Lakes. Sidewalks. Swisher, B. F. Sidewalks and Sidewalk Ordinances. (In Ameri- can Municipalities Mar., 1913. 24: 174-81.) Discusses Iowa statutory provisions, decisions of the Iowa Supreme Court, and offers a model sidewalk ordinance. Smoke Prevention. Flagg, Samuel B. City Smoke Ordinances and Smoke Abatement. 1912. (U. S. Bureau of Mines. Bulletin 49.) Covers thirty-four cities. Smoke Prevention. Nolen, John. Replanning Reading, Pa., 1910. Contains a summary of smoke prevention ordinances of the cities of the United States. Street Lighting. Bryant, J. M. and Hoke, H. G. Street Lighting. 61 p. (University of Illinois Bulletin v. 9, no. 8.) Aims to aid in framing municipal ordinances. 280 Law, Legislative Reference and Weights and Measures. U. S. Standards. Bureau of. State and National Laws concerning the Weights and Measures of the United States. Ed 2. 564 p. Wash. 1912. Information regarding current ordinances is not as accessible as might be though the last few years have seen a decided advance in this regard. The National Mu- nicipal Review in the bibliographical section of its "Department of Reports and Documents" has a heading Charters and Ordinances and also lists ordinances sep- arately under subjects. In its section on "Current Municipal Legislation" important ordinances are re- viewed, sometimes in conjunction with a survey of local state legislation and at others as a separate part of that section. "^^ Each issue of the weekly Public Health Reports con- tains the text of various types of public health ordinances and Pacific Municipalities prints each month a list of ordinances it has received. Through the daily press and certain journals, attention is occasionally directed to ordinances of more than local interest. It is to be regretted that the sources for this kind of information are so scarce. The situation seems to warrant serious consideration. Information regarding model ordinances is still more difficult to locate, and there is room for a publication comparable to the Model Bye-laws series of the British Local Government Board though the National Board of Fire Underwriters has published a series of "Suggested Ordinances" including such subjects as explosives, in- «'£.g., 1: 277-78, April, 1912. Municipal Reference Libraries 281 spection of premises, laundries, manufacture of matches, moving picture machines, theatres, etc. Aids in getting at the collected documents of cities and the general collections of separate city documents in libraries include indexes to the collected city docu- ments of single cities, catalogues and check-lists of special collections, and certain bibliographies of municipal affairs that concern themselves largely with matters of an administrative or legal character. The important aids of these several types make but a short list. The indexes to collected city documents are: Boston. An Index to the Documents of the City of Boston for the Years 1834-1874. (In City Documents forl874, vol. 1.) . 1834-1880. (In vol. 1, 1880.) . 1834-1886. (In vol. 1, 1886.) . 1834-1891, with an Appendix containing a List of Publications not included among the numbered Docu- ments. 120 p. 8*^. Boston. Rockwell & Churchill, 1891. . A List of Documents not serially numbered prior to A.D. 1891. Appendix to Index to Documents. Boston. 1894. 1834-1897, with an Appendix containing a List of City Publications not included among the num- bered Documents. 142 p. Boston. 1897. These are alphabetical indexes noting the year and document number of publications indexed. Charleston. [Holmes. G. S.] comp. Index to Year Books. . . 1880-1901. 16 p. n. p. n.d. A title a line index; the Charleston " Year Books" are the col- lected documents. 282 Law, Legislative Reference and In this connection may be mentioned the following indexes to the New York manuals: (Hufeland, Otto) comp. Historical Index to the Manuals of the City of New York. ("Valentine's Manuals"). 1841-1870 (by O. H.). 95 p. F. P. Harper, N. Y. 1900. A title a line index. Society of Iconophiles. Index to Illustrations in Manuals of the Cor- poration. 107 p. N. Y. 1906. Among the printed catalogues of special libraries on municipal matters, in this country the Catalogue of the Chicago Municipal Library""^ is easily first in the amount of legal and documentary material listed and notes a large number of valuable publications not en- tered in other printed sources. Unfortunately the style of printing is not all that could be desired from the standpoint of ready reference, for too often author entries are arranged alphabetically under a specific subject without sufficient indication that they are a separate group under one subject, and not primary en- tries in the dictionary catalogue itself. More indenting and better spacing would have remedied this and enabled the eye to take in the page more readily. Another title to be mentioned is: Providence City Librar>'^ in the Mayor's office. Catalogue. Providence, 1886. "... contains complete sets of the documents of most of the New England, besides of the other principal cities of the country." An important German catalogue is the Berlin Statisti- schen Amts Bibliotek KatalogJ^ ""* Compiled and issued by the Bureau of Statistics and Municipal Library, 190S, 149 p. " 684 p. Berl., 1901. See note 37, p. 259. Municipal Reference Libraries 283 The largest collections of municipal documents in the United States are in the New York Public Library and the Library of Congress. A check-list of those in the former was published in the library's Bulletin under the title: List of City Charters, Ordinances, and Collected Doc- uments in the New York Public Library. The first in- stallment of the list appeared in the September, 1912, Bulletin^ It was continued in the November and sub- sequent issues. After completion in the Bulletin the separate parts were collected and, with a supplement, made into a paper bound volume under the title: List of Works Re- lating to City Charters, Ordinances, and Collected Docu- ments, 1913.''^ The primary arrangement of the list is alphabetically by cities. A shorter list, and one now largely superseded by the New York list, was published by Cornell University Library in its Bulletin July 1886 ^^ and April 1887^* under the title: Municipal Documents of American Cities. This, too, is arranged by cities, alphabetically. Another title appropriate to this list is the Connecti- cut State Library's list of Connecticut Town and Munici- pal Publications."^'" In addition to these check-lists of all the collected and separate documents of several cities as found in single libraries, there are a few lists purporting to cover all or nearly all the documents of a single city. As examples of these, there is, first, the Check-list of general Municipal Documents of Brooklyn in the New York Public Library, " Vol. 16: 631-710. '3 383 p. '^ Vol. 2: 3^-42, 61-2. '* Hartford, 1909. Bui. No. 3. 284 Law, Legislative Reference and 31 December, 190L" In this, the documents are listed chronolo^cally under the headings: Charter, N. Y. State Laws, General City Documents, Mayors' Messages, Common Council {Documents, Manual, Proceedings, Rules), and Ordinances. According to Miss Hasse, Chief of the Documents Department of the library, the list is incomplete. The same volume of the Bulletin contains separate lists of works in the New^ York Public Library on Brook- lyn Cemeteries, Charities, Churches, Clubs, Directories, Finance and Commerce, Fire Department, Health, Histor>', Libraries, Maps, Missions, Newspapers, Parks, Schools, and Water Supply. Another example is the New York City list known as a Check-list of general Municipal Documents of New York City, and of New York State Documents, and other Papers relating to the City, in the New York Public Library, December 31, 1900.''^ In this, entries are chronologically arranged under the following headings: Charters; Aldermen (1831-1897) — Documents, Proceedings; Aldermen and Assistants — Proceedings; Council Pro- ceedings; Minutes of the Board of Estimate and Appor- tionment; Proceedings of the Municipal Assembly; Ordinances; and Documents oi the Board of Supervisors. The same volume of the Bulletin contains lists of other material in the librar>' relating to New York City as follows: Almanacs, Bridges, Charities, Churches, Clubs, Colleges, Commercial and Financial History, Directories, Docks, Ferries, Fire Department, Guide BfK)ks, Harbor, Health and Vital Statistics, History, Hospitals, Libraries, Maps, Markets, Newspapers, Parks '• In N. Y. P. I.. But. 6: 12-19; Jan., 1902. " In .\. Y. I'. L. But. 5: 5-19; Jan., 1901. Municipal Reference Libraries 285 and Monuments, Real Estate, Schools, Social History, Street Railways, Streets, Views, Water Front, and Water Supply. Another library publication on this subject and limited to a single city is the tentative list of Official Documents of the City of Pittsburgh, February, 1903, issued by the Carnegie Library of Pittsburgh as a sixteen-page separate. When issued, many of the items noted were not in the library. After ordinances and council proceedings, chronologically entered, the reports and other publica- tions of the separate officers and departments are listed alphabetically by department, then chronologically. Another type of list is that limited to a single subject, not a single city. Such is the Check-list of American Municipal Official documents relating to Finance in the New York Public Library?^ This includes the financial reports of cities having a population of 50,000 or over in 1900, and a selected number of other cities. Entries are alphabetically arranged according to cities. The list is one of a series which appeared in the Bulletin on official financial documents. The other separate lists were of foreign, ^^ United States federal, «« and United States state ^^ documents. A check-list of current municipal documents is fur- nished by the "Recent Municipal Documents" depart- ment of the National Municipal Review in charge of Miss Hasse. This list covers administration in general, including council proceedings, official bulletins, collected documents (alphabetically by cities) and following these, '^Bul. 6:315-27. "5m/. 5: 457-86. «0 5m/. 6: 287-92. "5«/. 6:293-314. 286 Law, Legislative Reference and lists the separate documents alphabetically by subjects. Foreign as well as American cities are included. This check-list began in the July, 1912, number of the Review, and was continued in October. It replaced a similar list that had been started in the Bulletin of the New York Public Library in its issues for January and March, 1912. This latter was resumed by the Bulletin later on during 1913. Beginning January, 1913, The National Muni- cipal Review list was enlarged in scope and became a selected bibliography of material including documents, reports, books, pamphlets, and magazine articles on municipal affairs. ^^ Most bibliographies of municipal affairs include few official documents. But, although bibliographies are taken up later, there are some which pay particular attention to this form of publication and consequently may properly be noticed here in the section of guides to documentary material. Among these are the City Club of Chicago's Li.y/ of Titles on Municipal Government with Special Reference to City Charters and to Local Condi- tions, compiled by Charles Harvey Brown in 1906, the Grand Rapids Public Library list of Some Books and Magazine articles dealing with Charters for Cities together with a List (about 100) of Cities whose Charters are on file in the Library, ^^ and the Chicago Public Library Check- list of Books and Pamphlets on Municipal Governments^ The Civics Bibliography for Greater New York, edited by Reynolds^ and Charles K. Bolton's Some Works " The Bibliography in the National Municipal Review will be compiled hereafter by the Chicago School of Civics and Philanthropy and the St. Louis Municipal Reference Library. (.Notice in A'a^. Mun. Rev. 2: 747, Oct., 1913). " In lis Bulletin, September, 1910, p. 124-27. •*44p. 1911. •* See p. :{lf), infra. Municipal Reference Libraries 287 relating to Brookline, Mass., from its Settlement to the Year 1900, are additional illustrations of bibliographies which contain many references to local municipal documents. Miss Adelaide R. Hasse's Index of Economic Material in the Documents of the States of the United States,^^ being prepared in separate volumes for each state for the Carnegie Institution at Washington, is a compre- hensive key to information in state documents on mu- nicipal activities. The Monthly List of State Publications , ssued since January, 1910, by the Documents Division of the Library of Congress, furnishes information regard- ing current state documents of this nature. They are also noted in the "Department of Reports" of the National Municipal Review conducted by Professor John A. Fairlie. The Review also prints occasionally lists of legislative investigations on municipal matters either made or authorized ^'^ and this information is currently furnished by the Bulletin of the Public Affairs Informa- tion Service. The state documents of New York relating to New York City were included in the list of docu- mentary material for the city noted above as published in the Bulletin^^ of the New York Public Library. Decisions of general interest on municipal subjects are available of course in the regular court reports, but in addition have been compiled in several instances into case books. ^^ They are also taken up in the text books on municipal law, mentioned later. Current decisions are noted in the National Municipal Review, Special Libraries, and less fully in the other journals interested in munic- ipal affairs. *' Now issued for 11 states; see p. 126, infra. 8^ Those authorized 1911 noted in v. 1: 282, April, 1912. Those authorized 1912 noted in v. 1: 712-13, Oct., 1912. 88 Jan., 1901. 89 See p. 291-92. 288 Law, Legislative Reference and The indexes^ to the government documents will reveal federal publications on matters of municipal interest and the Monthly Catalogue issued by the Superintendent of Documents at Washington lists currently all addi- tions to this class. The general magazine indexes, too, are indirectly valuable in this connection for they index many maga- zines which comment upon and review important official publications, (b) Books. The books for a municipal reference library should be selected with care and discrimination and with a view to definite use on specific problems. Though limited, the field is large and the literature extensive. The bibliographies in section (h) present a comprehensive view of this literature and simply a few representative titles, illustrating types, will be noticed. 1. Treatises on Municipal Government and Adminis- tration, e.g. (a) General. Allen. William Har\ey. Efficient Democracy. 346 p. N. Y. Dodd, Mead & Co. 1907. Doming, Horace Edward. The Go\ernment of American Cities. 323 p. N. Y. Putnam. 1909. Fairlie, John Archibald. Fssavs in Municipal Administration. 374 p. N. Y. Macm. 1908. Local Government in Counties, Towns and Cities. 289 p. N. Y. Cent. Co. 1906. Municipal Administration. 448 p. X.Y. Macm. 1901. •"Seep. 11()-12. Municipal Reference Libraries 289 Goodnow, Frank Johnson. City Government in the United States. 315 p. N. Y., Cent. 1906. Municipal Government. 401 p. N. Y. Cent. 1909. Municipal Home Rule. 283 p. N. Y. Macm. 1897. Munro, William Bennett. Government of European Cities. 409 p. N. Y. Macm. 1909. Government of American Cities. 401 p. N. Y. Macm. 1912. Redlich, Josef. Local Government in England. Ed. with Additions by Francis W. Hirst. 2 v. Lond. Macm. 1903. "The Standard Work on the Structure of English Govern- ment." Rowe, Leo Staunton. Problems of Citv Government. 358 p. N. Y. D. Appleton & Co. 'l907. Wilcox, Delos F. The American Citv: a Problem in Democracy. 423 p. N. Y. Macm'. 1904. (b) Individual Cities. There are numerous accounts of the municipal admin- istration of single cities, a brief list of which will be found in the Check-list of Books and Pamphlets on Municipal Government issued by the Chicago Public Library in 1911.^^ Examples of this are furnished by President Edmund J. James' Municipal Administration in Ger- many as seen in the Government of a typical Prussian City, Halle a/S,^- and Professor Walter F. Dodd's The "p. 9-10. " University of Chicago Press, 1901. 290 Law, Legislative Reference and Government of the District of Columbia, a Study in Federal and Municipal Administration P Lender the title, "Municipal Organization in Latin America," the Pan-American L^nion in its Bulletin has published a number of comprehensive articles, most of which have been reprinted and may be obtained separ- ately. Among the cities taken up are Buenos Aires, Rio de Janeiro, Santiago de Chile, Havana (Cuba), Mexico City, and Lima, Peru. This Bulletin is issued from the Government Printing Office. Washington, D. C. (c) Special Types of Municipal Government. e.g., Commission Government. Books on a special type of municipal government are illustrated in the following brief list on Commission Government for cities. Beard, Charles Austin, ed. Loose-leaf Digest of Short Ballot Charters: A Documentary History of the Commission Form of Government. X. Y. Short Ballot Organization, 1912. Contains bibliography, p. 81001, sq. Bradford, Ernest Smith. Commission Government in American Cities. 359 p. X. Y. Macm. 1911. Bibliography, p. 339-53. Bru^re, Henry. The Xew City Government: a Discussion of Municipal Administration, Based on a Survey of ten Commission Governed Cities. 438 p. X. Y. Appleton. 1912. Hamilton, John Judson. The Dethronement of the City Boss. 285 p. X. Y. Funk & Wagnalls. 1910. " Washington, D. C, John Byrne & Co., 1909. Municipal Reference Libraries 291 Kind, Clyde Lyndon, ed. Commission Government in American Cities. Phil. 300 p. 1912. (Annals of the Amer. Acad, of Pol. and Social Science, Nov., 1911.) Considers in detail the underlying principles, the problem, the objections, the limitations, and the results. Robbins, Edwin Clyde. Selected Articles on the Commission Plan of Municipal Government. Ed. 2. 178 p. Minne- apolis. Wilson. 1910. Woodruff, Clinton Rogers, ed. City Government by Commission. 381 p. N. Y. Apple ton. 1911. Bibliography, p. 355-69. 2. Treatises on Municipal Corporation Law. Abbot, H. S. Treatise on the Law of Municipal Corporations. 3 V. St. Paul. 1905-06. Beale, Joseph Henry. Selection of Cases on Municipal Corporations. 686 p. Cambridge. 1911. Dillon, John Forrest. Commentaries on the Law of Municipal Corpora- tions. 5v. Ed. 5. Boston. Little, Brown. 1911. A standard authority. Elliot, Charles B. Principles of the Law of Public Corporations. Chicago. 1898. Garland, James Smith. New England Town Law, a Digest of Statutes and Decisions Concerning Town Officers. 825 p. Bos- ton. Boston Book Co. 1906. Horr, Norton Townshend and Bemis, Alton A. A Treatise on the Power to Enact, Passage, Validity and Enforcement of Municipal Police Ordinances. 312 p. Cincinnati. R. Clarke. 1887. 292 Law, Legislative Reference and Macv. John Edward. Selection of Cases on Municipal or Public Corpora- tions. 503 p. Boston. Little, Brown. 191 L MacMorran, Alexander & MacMorran, Kenneth M. Local Government 1908-1909, Comprising Stat- utes, Orders, Forms, Cases and Decisions of the Local Government Board. 1123+54 p. London. 1910. Supplements Scholefield's Encyclopedia and includes Poor Law subjects; dates from Easter, 1908, through 1909. for 1910. McQuillin, Eugene. A Treatise on the Law of Municipal Corporations. 6v. Chicago. 1911-1912. A standard authority. A Treatise on the Law of Municipal Ordinances. Chicago. Callaghan. 1031 p. 1904. Included in the preceding entry. Morgand, Leon. La \jo\ Municipals Ed. 8. Paris. 1912. Rawlinson, Sir Christopher. Municipal Corporations Acts and other Enact- ments Relating to the Powers and Duties of Municipal Corporations thereunder with Notes and References to the Cases. Ed. 9. 106 p. London. Sweet & Marwell. 1903. Scholefield, Joshua, ed. Encvlcopsedia of Local Government Law. 7 v. London. 1905-1908. Excludes statutes relating only to the Metropolis and Poor Laws. Smith, Jeremiah. Cases on Selected Topics in the Law of Municipal Corporations. 260 p. Cambridge (Mass.). 1898. Smith, John Wilson. Commentaries on the Modern Law of Municipal Corporations. 2 v. Indianapolis. Bower-Merrill. 1903. Municipal Reference Libraries 293 Spencer, Frederick Herbert. Municipal Origins — an Account of Private Bill Legislation relating to Local Government, 1740-1835; with a Chapter on Private Bill Procedure. 333 p. Lond. Constance. 1911. Wood, A. E. and Johnson, T. R. Encyclopaedia of Local Government Board Re- quirements and Practice; including a Summary of the Statutory Provisions governing each Matter dealt with. 2 v. London. Butterworth. 1908. 3. Treatises on Special Municipal Topics. Titles falling under this head are so numerous and so varied that an adequate idea of their number and variety can be gained only from a survey of bibliographies. The few selected titles are representative of but correspond- ingly few types. Health. Godfrey, Hollis. The Health of the City. 372 p. Boston. Hough- ton. 1910. Housing. Veiller, Lawrence. Housing Reform, a Handbook for Practical Use in American Cities. 213 p. N. Y. Char. Pub Comm. 1910. Police. Fuld, Leonhard Y. Police Administration ; a Critical Study of Police Organizations in the United States and Abroad. N. Y. Putnam. 1909. Public Utilities. Floy, Henry. Valuation of Public Utility Properties. 390 p. N. Y. McGraw, Hill. 1912. 294 Law. Legislative Reference and Ivins. William M. and Mason, Herbert D. Control of Public I'tilities. N. Y. Baker, Voorhis & Co. 1908. Joyce. Joseph Ashbury. A Treatise on Franchises. 1130 p. N. Y. Banks Law Pub. Co. 1909. King. Clvde L. The Histon,' of the Government of Deliver with Special Reference to its Relations with Public Service Corporations. 322 p. Denver. Fisher Book Co. 1911. King, Clvde L., ed. Regulation of Municipal Utilities. 404 p. N. Y. Appleton, 1912. Whitten. Robert Harvey. Valuation of Public Service Corporations. 798 p. N. Y. Banks Law Pub. Co. 1912. Wilcox, Delos Franklin. Municipal Franchises. 2 v. 1910. (v. 1: Roches- ter, Gervaise; v. 2: N. Y. Engineering News.) Roads. Frost, Harwood. The Art of Roadmaking. 544 p. N. Y. The Author. 1910. Sewers. Folwell, Amary Prescott. Sewerage; the Designing, Construction and Main- tenance of Sewage Systems. 506 p. N. Y. J. Wiley. 1910. 4. Municipal Yearbooks. The term "Yearbook" is misleading and ambiguous. The Charleston, South Carolina, Year Book is a volume i)i the collected annual reports of the city departments. The meaning is generally, however, an annual summary or survey of activities, often largely statistical in nature. Municipal Reference Libraries 295 The annual reports of state boards controlling munici- pal finance or some other municipal subject might be considered under the term yearbooks though limited in scope and limited geographically.^^ United States. American Yearbook, 19 10-. (Has a chapter on municipal government and discusses municipal problems in other chapters.) League of American Municipalities. The Book of American Municipalities. 1906-10. 4 vols. Municipal Yearbook 1902. (N. Y. Engineering News Co.) National Municipal League — Conference for Good City Government. Proceedings. 1894-1911. U. S. — Census, Bureau of. Statistics of Cities having a Population of over 30,000. 1905-. Great Britain. Municipal Yearbook of the United Kingdom. 1897-. London. Municipal Journal, Ltd. Canada. Union of Canadian MunicipaHties. Official yearbook. 1902-. Germany. Kommunales Jahrbuch. (Jena). 1908-. Statistisches Jahrbuch deutschen Stadte. v. 1-, 1890-. Breslau. »^ Cf. Baker, M. N., "Five British Municipal Annuals." (In Nat. Mun. Rev. 1: 444-46, July, 1912.) oiKj I^w, Legislative Reference and France. Fiance-Interieur. Ministere d'. La situation financiere des communes de France et d'Algerie. Melun. 1888-. Austria. Oesterreichisches Stadtebuch (Austria-Statistical Central Commission). Twenty-two cities covered by detailed statistics. Italy. Annuario statistic© delle Citt^ italiane, v. 1-, 1906-. Florence. Individual cities have their municipal yearbooks as well as do countries and a number of these will be found mentioned in the Bibliography of Economics for 1909 *^ under the heading, "Statistical Compilations." Excel- lent examples are furnished by the Statistisches Jahrbuch der Stadt Berlin, volume one of which appeared in 1874, the Annuaire administratif, 1909 to date, and the Annu- aire statistigue de la Ville, both for Paris, France. New York, long lagging behind the other large cities of the world in this respect, has at last realized her posi- tion and begins with 1913 the Municipal Year Book of the City of New York, which it is hoped may be the first of a long and valuable set of this kind. Similarly Pitts- burgh in 1913 began with its first Municipal Year Book. •* A cumulation of bibliography appearing in the Journal of Political Exonomy from February, 1909, to January, 1910, inclusive, edited by the Faculty of the Department of Political Economy of the University of Chicago. 282 p. L'niv. of Chicago Press. 1910. (See p. 270-71). Municipal Reference Libraries 297 (c) Serial Publications: Periodicals, Soci- ety Proceedings, etc. Serial publications pertaining in whole or in part or in occasional issues to municipjal affairs, including regular periodicals, society proceedings, and municipal reform or other association organs practically defy classifica- tion, at least what is sometimes called "close" classifica- tion. The majority of these publications are the organs of some municipal reform organization — a fact wliich may or may not be apparent — and nearly a dozen distinct types of these are discussed by Professor Munro in his new book where he considers "Municipal Reform and Reformers."^* There are first, those with general programs of reform and these may be either national or state. Then follow organizations with special pro- grams, then the official and professional, and, lastly, five groups of local organizations — political, fusion, non- partisan, non-political, and miscellaneous. Dr. Charles C. Williamson, in discussing only the private publications in the United States which deal with municipal problems, excluding annuals and the publications of cities themselves, finds eight groups a convenient classification." A third list of municipal periodical publications will be found in the valuable report to the National Municipal League made by Mr. William B. Howland and published in the Proceedings of the Cincinnati Conference for Good City Government.^^ In this report the ten groups are: •* Munro, William Bennett, The Government of American Cities, Macm. 1912. p. 358-85. "'Williamson, Charles C, "Periodical l'ui)lications on Munici- pal Affairs" (in Nat. Mun. Rev. 1: 406-10, July, 1912.) »« 1909. p. 12-16; printed also in Clinton Rogers Woodruff's, "Municipal Periodical Literature," Lib. Jr. 36: 183-84. 298 Law, Legislative Reference and L Representing organizations of municipal officials; 2. Publications issued by cities; 3. General publications; 4. Municipal public service publications; 5. Publica- tions issued by civic bodies; 6. Taxpayers' publications; 7. Issued by commercial bodies; 8. Canadian publica- tions; 9. Foreign publications; 10. Annuals. The main difficulties to really satisfactory classifica- tion are that the publications overlap in purpose and, furthermore, do not limit their contents to material bearing specificially on the declared purpose, whatever it may be. Professor Munro says "Many reform organi- zations present the curious spectacle of a secretary who spends most of his time gathering funds for the associa- tion and then uses most of these funds to pay for the time he has spent in gathering them." In view of this characterization perhaps much study spent on classifi- cation is not justified, but a contribution to the solution of the problem is presented in the following arrangement of illustrative titles.^^ I. National. 1. General Municipal Periodicals. American City, v. 1-, Sept., 1909-. N. Y. American Municipalities,^"" Marshalltown, Iowa. Canadian Municipal Journal, v. 1-, 1905-. Mon- treal. Official organ of the Union of Canadian Municipalities. Municipal Affairs, v. 1-6, 1897-1902. N. Y. No more published. *' For brief statements of the scope, purpose, and utility of many of these publications the reader is referred to Dr. Williamson's article just noted. •*" The organ of the League of American Municipalities and the separate state leagues of Iowa, Nebraska, and Kansas municipalities; formerly called City Ilall- Midland Municipalities, an outgrowth of City Hall and Midland Municipalities. Municipal Reference Libraries 299 Municipal Journal, v. 1-, 1893-. London. Municipal Journal, v. 1-, 1881-. N. Y. National Municipal Review, v. 1-, 19 12-. Balti- more. First in general importance. Revue communale, v. 1-. Paris, France. (Der) Stadtebau, v. 1-, 1904-. Berlin. 2. Specialized Municipal Periodicals.^"^ American Gaslight Journal, v. 1-. N. Y. Concerning Municipal Ownership, v. 1-4, Mar., 1906-June, 1909. N. Y. Electric Railway Journal, v. 1-, 1908-. N. Y. Municipal Engineering, v. 1-, June, 1890-. In- dianapolis. Municipal Journal and Engineer, v. 1-. N. Y. Park and Cemetery and Landscape Gardening, V. 1-, Mar., 1891-. Chicago. Playground, v. 1-, April, 1907-. N. Y. Street Railway Journal (merged in Electric Rail- way Jr.), V. 1-31, 1884-1908. N. Y. Street Railway Review (merged in Electric Rail- way Jr.), V. 1-19, 1890-1908. Chicago. Vigilance. 3. Publications not Primarily Municipal. American Academy of Political and Social Science Annals, 1890-. Phil. See especially issues of : March, 1904, Municipal Problems. i"! In this connection might be mentioned as examples of organiza- tions which do not publish a regular periodical but which are primarily interested in some special municipal problem the Short Ballot Organization, City Planning Conference, American Public Health Association, American Association of Park Superintendents, American Waterworks Association, International Association of Chiefs of Police, Pacific Coast Association of Fire Chiefs, etc. 300 Law, Legislative Reference and Jan. 1900, Municipal Ownership and Franchises. Nov. 1900, Municipal Problems. May 1908, Control of Municipal Public Service Corporation. Nov. 1911, Commission Government in American Cities. May 1912, Efficiency in City Government. American Civic Association Bulletin, 1904-. ■\merican Economic Association Publications, 1886-. N. Y. American Economic Review, v. 1-, 191 1-. N. Y. American Journal of Sociology, v. 1-, 1895-. Chi. American Political Science Association Proceedings, v. 1 . 1904-. American Political Science Review, v. 1-, 1906-. Bait. Engineering Magazine, v. 1-, 1891-. N. Y. Engineering News, v. 1-, 1874-. Chi. and N. Y. Fire and Water Engineering, v. 1-, 1877-. N. Y. Good Government (National Civil Service Reform League). N. Y. Good Roads, v. 1-, 1892-. Bost. Government Accountant, v. 1-, May, 1907-. Wash., D. C. Illuminating Engineer, v. 1-. Mar., 1906. N. Y. Journal of Political Economy, v. 1-, 1893-. Chi. National C^ivic Federation Review, v. 1-, 1903-. N. Y. Political Science Quarterly, v. 1-, 1886-. N. Y. (The) Public, V. 1-, Apr., 1898-. Chi. Public Service; Electricity, Gas, Water, Telephones, Tramways, v. 1-, 1906-. Chi. (^larterly Journal of Economics, v. 1-, 1886-. Bost. Sjx?cial Libraries, v. 1-. 1910-. Indianapolis, Ind. SurN-ev, V. 1-, 1891-. N. Y. Yale Review,'02 v. 1-, 1892-. New Haven. "•" It should be- recalled in this connection that the bo-called gen- eral magazines occasionally contain valuable articles on city prob- lemh and that the legal periodicals consider municipal corporation law. The well-known indexes to these have been mentioned. Municipal Reference Libraries 301 University series may well form a separate group of serial publications not primarily municipal, but fre- quently containing important monographs on municipal questions. As examples, there are: Columbia University: Studies in History, Economics and Public Law. v. 1-, 1891-. N. Y. e.g., Weber, Adna F. The Growth of Cities in the I9th Century; a Study of Statistics. 495 p. (1899. v. 2.) Johns Hopkins University: Studies in Historical and Political Science, v. 1-, 1883-. Bait. e.g., Thomas, Thaddeus P. The City Government of Baltimore. 14th ser., IL 1896. University of Illinois: Studies in the Social Sciences. v. 1-, 1912-. e.g., Upson, Lent Dayton. Sources of Municipal Revenues in Illinois. 126 p. 1912. (v. 1, no. 3.) University of Toronto Studies: History and Economics. e.g., Shortt, Adam. Municipal Government in Ontario; Municipal Organization in Ontario by K. W. McKay; Bibliography of Canadian Municipal Government by S. M. Wickett. v. II, No. 2, 1903. University of Wisconsin: Bulletin. e.g., Larson, L. M. A Financial and Administrative History of Milwaukee. (No. 242, 1908.) e.g., MacGregor, Ford H. City Government by Com- mission. (No. 423, 1911.) 10' 151 p. Bibliography p. 134-51. II. State. (The) Municipality, v. 1-, Madison, Wis. Bi-monthly organ of the League of Wisconsin Municipalities edited by Dr. Ford H. MacGregor, Municipal Reference Libra- rian, University of Wisconsin. '"' A list of indexes to university doctoral dissertations, including foreign material, will be found on p. 15-16 of Alice B. Kroeger's Guide to the Study and Use of Reference Books. Chi., 1908, and in the Supplement 1909-1910 by Isadore G. Mudge, p. 8. 302 Law, Legislative Reference and Municipal World. St. Thomas. Ontario. ^o* Pacihc Municipalities, v. 1-, San Francisco. Monthly organ of the League of California Municipalities. Many state organizations have been formed for the purpose of considering municipal problems. Among thi>so not already mentioned are the League of Michi- gan Municipalities, Massachusetts Civic League, Mu- nicipal (Government Association (Xew York), Ohio Municipal Association, various Mayors' Associations like those of Texas, \e\v York, and Illinois. State Legislative Reference Departments may be recalled here, particularly those of California and Indiana, Wisconsin and New- York. For an article illustrating the work of state leagues see H. A. Mason's "The Work of the League of California Municipalities" in the National Municipal Review}^^ III. Local. L Official. Atlantic City Commission Government. Boston City Record. Boston Monthly Record. Baltimore Municipal Journal. Burlington, la.. Proceedings of the City Council under the Commission Plan of Government. Centralia, Wash., Monthly Summary Proceedings. Chattanooga Municipal Record. Colorado Springs Summary of Proceedings and Department Reports. Denver City of Denver. Successor to Denver Municipal Facts. Houston Progressive Houston. "^ F'ul)lisheal institutions of Ontario. "* 1:001-10, Oct., 1912. Municipal Reference Libraries 303 Lexington, Ky., The City of Lexington. ■Los Angeles Lo5 Angeles Municipal News. A weekly newspaper started as the result of an initiative ordinance and discontinued by the repeal of the ordinance. An account of its establishment was given by George H. Dunlop in the Nat. Mun. Rev. 1: 441-43, July, 1912, and of its discon- tinuance by the same writer, formerly chairman of the munici- pal newspaper commission, in the Review, 2: 506, July, 1912. It was published from April 17, 1912, to April 9, 1913. Memphis Commission Government. New York The City Record. Omaha Municipal Statistics. Philadelphia Philadelphia. Sacramento Municipal Gazette (announced) . San Francisco Municipal Record. Seattle Municipal News. Spokane Official Gazette. Tacoma Municipal Bulletin. ^^^ Foreign. Dresdner Anzeiger.^^'' Shanghai, China: Municipal Gazette. In addition, a large number of cities issue statistical bulletins. Berlin: Berliner Statistik hrsg. v. Stat. Amt d. Stadt Berlin ^^* "^ Cf. "Official Municipal Gazettes" by Dr. Henry J. Harris in the Nat. Mun. Rev. 2: 505-06, July, 1913. I"' Nat. Mun. Rev. 2: 319, April, 1913. 1°* Silbergleit, Heinrich. Das statistische Amt der Stadt Berlin, 1862-1912. 81 p. Berlin, Gebruder Grunert, 1912. An historical sketch of the Bureau of Statistics of Berlin by the present director, followed by lists of those connected with the Bureau from the beginning to the present, an account of the library of the Bureau and a complete list of its numerous publications, weekly, monthly, annual, and special. See also Edward M. Hartwell, "Report on Municipal Statistical Offices in Europe" (inBost. City Doc. No. 94, 1897, 32 p., pub. also in Mun. Affairs 1: 525-48) and John A. Fairlie, "Comparative Mu- nicipal Statistics" in his £55a>'5 (N. Y., Macm. p. 275-78). 304 Law, Legislative Reference and IJuenos Aires: Mouthly Bulletin of Municipal Statistics, covering scientific, social, vital, police, financial, loco- motion and other statistics. Caen. France: Bulletin municipal de la Ville. Dijon, France: Bulletin municipal officiel de la Ville. London: London Statistics (London Count>' Council publications). Munich: Stat. Amt d. Stadt Miinchen. Mitteilungen. Paris, France: Bulletin municipal officiel de la Ville de Paris. Issued daily. Shanghai, China: Municipal Gazette. In connection with this it may be well to call attention to a partial list of societies of state, municipal, and other government officials which was published in Special Libraries, January, 1912,^^ and to official municipal refer- ence libraries, efficiency commissions, etc., mentioned on p. 251-6L 2. Private Organizations. (a) Official Organs of Local Civic Bodies.*^" Albany (N. Y.) Citizen, discontinued. Bulletin of the City Club of New York. Bulletin of the City Club of Phila- delphia. Bulletin of the Woman's Municipal League of New York. City Affairs, Good Government Asso- ciation of Boston. City Club Bulletin. Chicago. Civic Bulletin, Civic League of St. Louis. Civic Bulletin, Pittsburgh. Civic Club Bulletin, Woman's Civic Club, Philadelphia. Civic League Bulletin, Newport, R. I. '" V. .3, p. Vt-7. "" Cf. Beard, Charles .\., "Recent Activities of City Clubs." (In Nat. Mun. Rev. 1: 431-43.5 July, 1912.) Municipal Reference Libraries 305 Civics Bulletin, Civic League, Norwalk, Conn. Municipal Bulletin, Cleveland. Municipal League News, Seattle. (b) Commercial News. Board of Trade and Engineering Journal, Scran ton, Pa. Board of Trade Journal, Portland, Me. Board of Trade Journal, Portland, Ore. Chamber of Commerce News, Boston. Chicago Commerce. The Detroiter. Greater Dayton. Greater New York. Monthly Bulletin of the Chamber of Commerce of the State of N. Y. Municipal Development Magazine, Chi. Progress, Atlanta. Providence Board of Trade Journal. Western New England (Springfield, Mass.). Worcester Magazine. (c) Local Publications not Association Organs. Citizen s Bulletin, Cincinnati. City Life and Municipal Facts (Allied Real Estate Interests, N. Y. C). Civil Service Chronicle and Police Chron- icle, N. Y. C. Common Good of Civic and Social Char- acter, Rochester, N. Y. Public Officials' Magazine, Terre Haute, Ind. (d) Private Municipal Research Bureau Publications Should be Recalled. ^^^ "1 See p. 416-423, post. 306 Law, Legislative Reference and (d) Miscellaneous Pamphlets. From miscellaneous pamphlets may be culled publica- tions well worth preservation in a special library. The term pamphlet is indefinite and is variously applied to almost any publication unbound or in paper covers from the substantial monograph to the four-page leaflet. Many pamphlets are ephemeral in nature, but have their temporary- value. Some are reprints of noteworthy articles, others propagandist literature of the rankest sort. The best are most valuable as presenting sum- marv matter in concise form convenient for close classifi- cation or for containing fugitive information not readily found elsewhere within two covers. Good judgment must be exercised by the special library of limited means and scope in the selection of such material for both temporar\- and permanent files. (e) Correspondence. Correspondence has its place in a discussion of "mate- rials" in a municipal reference library because it is through correspondence only that much needed informa- tion can be obtained. There is far too little printed infor- mation on numerous specific activities of municipalities, and various comparative data needed must frequently be accumulated through the mails. When the city of St. Louis proposed to establish a municipal lodging house no printed source was at hand showing adequately the e.\|)crience of other cities from which as a basis St. Louis could work. The municipal reference library at once through correspondence investigated the situation in other cities and published in the Bulletin "^ of the St. •" July, 1912: Covers Boston, Buffalo, Chicago, Cincinnati, Cleve- land, Denver, Detroit, Kalamazoo, Kansas City, Louisville, Mil- Municipal Reference Libraries 307 Louis Public Library digests of the reports received from twenty-three cities with definite and carefully considered recommendations for St. Louis based on the data gathered. Correspondence has another permanent value aside from a record of comparative practice and that is as a record of results. It is as important — even more important — to know the result of an ordinance or law as to know merely the text, and this information, needed to avoid the mistakes of others, can be learned only through correspondence or personal observation in all too many cases. This makes applicable to the correspondence of a municipal reference library the recommendations ^^^ of the Presidents' Commission on Economy and Efficiency on correspondence filing. The Commission recommends vertical files and a self-indexing classification by subject on some such plan as the Dewey system of classification provides. The definite value of some correspondence will also warrant a reference to it in the card catalogue. (f) Clippings. Clippings from newspapers and magazines will have to be made and kept accessible. The local papers especially will be a fruitful source of information for statistics and local public opinion, the views of prom- inent citizens on proposed measures, the comments of those who have had experience with some plan now pro- posed for the city, for illustrations, and for local history. Magazine articles of special value may be removed from waukee, Minneapolis, New Bedford (Mass.), New York, Philadel- phia, Providence, St. Louis, Salem (Mass.), San Francisco, Seattle, Syracuse, Toledo, and Worcester. "3 62 Cong. 2d Sess. H. Doc. 670; Apx. 7, p. 515-54, especially p. 521-22 and 528-31. 308 Law, Legislative Reference and their bindings, put in folders, and kept in the vertical file along with pamphlets and other data on a particular subject. The extent to which this work is carried on depends on several factors, such as the number of assis- tants, proximity of a good collection of indexed maga- zines, etc. There are those who believe that this clipping idea is too easily carried to extremes to warrant venturing upon it. (g) Local Maps, Plats, Surveys, Charts, etc. These should be available or their location in city offices known definitely to the librarian and perhaps recorded in the catalogue. (h) Bibliographies of Municipal Affairs. Before presenting examples of bibliographies of mu- nicipal affairs it must be recalled that "municipal" is primarily a geographical term. A municipality is a corporate administrative unit within which are carried on practically all lines of human activity. Moreover, the city is officially concerned directly or indirectly with most of these activities. The "municipal affairs" then, to be covered by these bibliographies are not only those first thought of as included in the phrase "government and administration," but they are such activities, in addition, as are described by the comprehensive terms scientific, engineering, sanitary, economic and social problems, with all that each implies. Obviously a list given here must be illustrative only and for present purposes a grouping into general bibliog- raphies of municipal affairs and bibliographies of special municipal activities will be adopted. Each group will be subdivided s(j that bii)liographies compiled or pub- lished by libraries will be separated from the others Municipal Reference Libraries 309 simply as a convenience in acquisition, as those com- piled by libraries can usually be had for the asking. Whether or not a given title is a separate bibliography or one published as part of a book is indicated in each case. I. Bibliographies of Municipal Affairs. 1. General. 1. American City Bureau. Selected List of Municipal and Civic Books. 56 p. N. Y. 1913. An alphabetico-classed list with descriptive and critical notes; contains three hundred and forty-five titles, nearly two hundred of which have been published within the last three years. 2. A. L. A. Catalog. . . Wash. 1904. p. 97: "Local Government." 3. A. L. A. Catalog, 1904-1911. Chi. 1912. p. 61: "Local Government." 4. Brooks, Robert C. Bibliography of Municipal Admin- istration and City Conditions. (In Mun. Affairs, vol. 1, no. 1; p. iii-ix, 1-224; 1897.) In two parts: (a) Subject index, (b) Authors. This bibli- ography contams over 6,000 entries and covers the books, pamphlets, and periodical literature of the United States' Great Britain, Germany, France, Italy, Austria, and Spain and mcludes all relevant American material even to the smallest pamphlets and the more important federal and state docu- ments. Formal accounts and routine reports of cities and reform organizations have not been included except where specially important matter justifies mention. In addition to entering books, etc., under general subjects, considerable analytical work has been done so that references are to chap- ters or sections ot books in many instances. This bibliography was continued quarterly in Municipal Affairs and the whole cumulated in the next title. 310 Law, Legislative Reference and 5. . Bibliography of Municipal Problems and City Conditions. Ed. 2. (In Mun. Aff. v. 5, No. 1, p. 1- 346, 190L) In this enlarged second edition material which was listed under the headings "administration" and "reform," has been placed first under the classification "City government, general works and unclassified." Subjects are arranged alphabetically alter this. The one e.\ception to the strictly alphabetical arrangement is that general works on municipal government are placed first under the names of separate cities and states. Bibliographies of special municipal activities are listed under the specific subject, sub-head "Bibliographies." In this sec- ond edition the "Author list" is simply a two column to the j)age author index. (The last continuation of this appeared in Municipal Affairs, v. 6, p. 866-79.) 6. Brown, Charles Harvey. List of Titles on Municipal Govern- ment with Special Reference to City Charters and to Local Condi- tions in Chicago. 1906. (City Club of Chicago. Publication no. 3). 51 p. A classified list compiled solely with reference to the require- ments of the Chicago Charter Con\ention and pertaining particularly to the structure of city government. The list is briefly annotated and contains an author index. Although seven years old it still is and for some time will be one of the important bibliographies. 7. Chicago Normal School. . . . Outline for Teaching Civics in Elementary Schools. 1904(?) 8. Commons, John R. City Government. 1898. (Univer- sity of the State of New York. Ex- tension Department. Syllabus 73). 9. Gewerbe-Buchhandlung Ernst Schur- mann, Dresden. Die Literature des Stadtewesens in technischer und hygienischer Beziehung. 1903. Municipal Reference Libraries 311 10. Gomme, George Laurence. The Literature of Local Institutions. 248 p. Lond. 1886. 11. Gross, Charles. A Bibliography of British Municipal History including Gilds and Par- liamentary Representation. N Y Longm. 1897. 461 p. (Har- "Tu- u-uf , ^^'■^ Historical Studies, Vol. V.) I his bibliography comprises books, pamphlets, magazine articles, and papers of learned societies, relating whoTlyTr in part to British municipal history; in other words to the governmental or constitutional history of the boroughs of t?t?nn ^T ^'"' .^'^^^"ding gilds and parliamentary represen- atipn. Town histories which do not deal with any of these Sed^'v'Sf'.'P?^^''?^^^^^ works,.and parish histories are omitted. (Fref.) Contains many brief, critical notes. ^2- . A Classified List of Books Relat- ing to British Municipal History. 1891. (Harvard University. Li- brary. Bibliographical contribu- tions, no. 43.) 13. Hodder, Frank H. Bibliography of Municipal Govern- ment in the United States. (In Kansas University Quarterly, 1 • 179-96. 1893.) 13a. Munro, William Bennett. Guide to the Study of Municipal Government (in preparation). 14. Munro, William Bennett. Sources and Literature. (In his The Government of European Cities. N. Y. Macm. 1909. p. 380-402.) 15. National Municipal Review, \ 1- Ian 1912-. 'J 'I"-. Tn£^T*^'i^-'r Department of Reports edited by Professor John A. Fairhe and its Department of Recent Municioa^ January, 1913, each issue contained a bibliography of current references on municipal affairs, including documents. 312 Law, Legislative Reference and 16. Rex, Frederick. Sources of Municipal Information. {InSpec. Libs., Dec, 1910, p. 75-7 6.) 17. United States Catalog; Books in Print January 1. 1912, ed. by Marion E. Potter and others. Ed. 3. Wilson, Minn., 1912. (See entries under "municipal," p. 1719-22.) 18. U. S. — Census Bureau. Guide to the Exhibit of Municipal Statistics of the . . . Bureau at the International Municipal Con- gress and Exposition. Chicago, 1911. 38 p. Wash., 1911. 19. Wilcox, Delos F. List of Authorities. (In his Study of City Government. 1897. p. 245- 48.) N. Y. 1897. 20. Woodruff, Clinton Rogers. Sources of Municipal Material with Reference to a Clearing House of Information. {In Spec. Libs. Dec, 1911. p. 112-14.) 2, General : Compiled and issued by Libraries. Where the month is specified it refers to the Bulletin of the library listed for that month. Where no month is specified it may be assumed that the publication was a separate. 1. Braddock (Pa.) Carnegie Library. Municipal and Civic Affairs. 1909. 2. Chicago. Bureau of Statistics and Municipal Library. Catalogue of the Chicago Municipal Library. 149 p. 1908. 3. Chicago. Public Library. Check list of Books and Pamphlets on Municipal Government Found in the Free Public Libraries of Chi- cago. 44 p. 1911. Municipal Reference Libraries 313 4. Chicago Public Library. Selected Reading List on Municipal Government, with Special Refer- ence to the New Charter Move- ment. 1905. {Special Bulletin No. 5.) 5. Cornell University Library. References on Municipal Govern- ment in the United States. (Bulle- xu-uv ^'""T- 113-118; Jan., 1888.) A bibliographical discussion, not a list of titles. 6. Detroit Public Library. Municipal Affairs — Books and Art- icles. 44 p. 1902. 7. Kansas City (Mo.) Public Library. Municipal Betterment Bibliography. (In its Quarterly, April, 1908. o 21-71.) 1908. ^* 8. New Haven (Conn.) Free Public Library. Selected List of References on Mu- nicipal Affairs. 15 p. 1910 . Lists mainly books and only a few of the more important magazine articles. 10. St. Joseph (Mo.) Public Library. Municipal Affairs. July, 1909. 11. Salem (Mass.) Public Library. Municipal Government. Tanuarv 1911. ^' 12. Seattle (Wash.) Public Library. Municipal Government. 31 p. 1911. {Reference List no. 4.) 13. Somerville (Mass.) Public Library. Municipal Affairs. Feb., 1911. 14. Syracuse (N. Y.) Public Library. Social Betterment. Jan.-Apl., June July, 1911. (Also pub. sep. 64 p.) 314 Law, Legislative Reference and 15. U. S. Library of Congress. Select List of Books on Municipal Affairs with special Reference to Municipal Ownership; with Ap- pendix, select List of State Docu- ments. 34 p. 1906. Briet annotations. 16. Wilmington Institute Free Library. List of Books and References to Periodicals on Municipal Govern- ment. 27 p. 1911. 17. Wisconsin Free Library^ Commission. Civic Advancement and Develop- ment. May-June, 1911. 18. Worcester (Mass.) Public Library. Municipal Improvement. Jan., 1911. II. Special Topics. 1. The special lists of references or authorities preceding or accompanying the chapters in the following books on general municipal government will be found excellent select bibliographies of the special phases of municipal activity treated in the separate chapters. Fairlie, John A. Municipal Administration. 448p. N.Y. Macm. 1910. "Authorities" precede each chapter. Goodnow, Frank J. Citv Government in the United States. 315 p. X. Y.' Cent. 1906. "Authorities" given as note 1 at beginning of each chapter. Munro, William Bennett. TheGovcrnmcnt of American Cities. 401 p. X.Y. Macm. 1912. "Reiercnces" at the end of each chapter form a more ex- tended list than those in Fairlie or Goodnow and are briefly evaluated. Municipal Reference Libraries 315 Professor Charles A. Beard's Loose Leaf Digest of Short Ballot Charters beginning at page 81001, contains a bibliography of special value divided as follows: 1. City government — general; II. Commission government; III. Government of individual cities; IV. Special phases of city government; V. General and miscellaneous. A four-page loose-leaf addition to section II and a two- page addition to section III have been issued since the original volume appeared. In this connection particular attention should be called to the bibliographies which appear frequently in Special Libraries, many of which are on municipal sub- jects. Four illustrations are selected at random. City planning {Spec. Libs. 3: 61-123, May 1912) Motion pictures {Spec. Libs. 3: 154-58, Sept. 1912) Public drinking cup {Spec. Libs. 2: 42-44, May 1911) Public utilities {Spec. Libs. 3: 133-36, June 1912) Additional bibliographies on special subjects are illustrated by Charters. Brown, Charles Harvey. List of Titles on Municipal Government with Special Reference to City Charters and to Local Conditions in Chicago. 1906. 51 p. (City Club of Chicago, Publication No. 3.) Reynolds, James Bronson, ed. Civic Bibliography for Greater New York. N. Y. 1911. Charters," p. 32-39: five pages, mainly documentary material, and 17 magazine articles. 3lij Law, Legislative Reference and Commission Government."^ Bradford, Ernest S. List of References. (Inhls CommissionGoverntne7it for American cities. N.Y. Macm. 1911. p. 339-353.) The references are arranged: 1. Commission charters and laws. 2. General references. 3. References in periodicals. 3(a) Particular periodicals containing many references on the subject. MacGregor, Ford H. Bibliography. (In his City Government by Com- mission. Madison, Wis. 1911. (Univ. of Wis. Bui. No. 443.) p. 134-51. The bibliography separates affirmative and negative refer- ences, p. 134-51. Robbins, E. C., comp. Selected Articles on the Commission Plan of Muni- cipal Government. Ed. 2. enl. Minn. H. W. Wil- son, 1910. . . . 178 p. (Debaters' Handbook Series.) Bibliography, p. xv-xxvi. Documents."* Langworthy, C. F. State and Municipal Documents as Sources of Information for Institution Managers and Other Students of Home Economics. (Journal of Home Economics, Feb., 1912, p. 59-73.) New York City. Reynolds, James Bronson, ed. Civic Bibliography for Greater New York. 312 p. N. Y. Charities Publication Society, 1911. .\ remarkably thorough and comprehensive work of unique value in many unexpected fields and beyond the limits of Cireater New York; carefully classified, briefly annotated, well indexed; full bibliographical details; bibliographies of special subjects are listed first under the subject, books and articles follow in separate lists. "♦ See also Beard, Loose Leaf Digest, supra. •" See infra, p. 274-88, especially 282-88, and 322. Municipal Reference Libraries 317 Periodicals (Municipal). Howland. William B. Municipal Periodicals (in Nat. Mun. League Conf. for Good City Government, 1909. p. 12-16). Kaiser, John Boynton. Serial Publications; Periodicals, Society Proceed- ings, etc. (on municipal matters), {infra p. 297-305.) Munro. \Mlliam Bennett. Municipal Reform and Reformers. (I n his Govern- ment of American Cities, p. 358-85.) Williamson. Charles C. Periodical Publications on Municipal AflFairs. (In Xat. Mun. Rei\ 1: 406-10, July, 1912.) Recreation. Russell Sage Foundation Division of Recreation. Recreation Bibliography. 37 p. N. Y. 1912. (Publication 121.) An up-to-date, classified, and annotated list frequently giv- ing prices of titles entered, followed by a list of publishers with addresses. Smoke Prevention. McClelland, Ellwood H. Bibliography of Smoke and Smoke Prevention. Pittsburgh, University of Pittsburgh. 1913. Taxation and Finance, Local. Journal of Political Economy. Bibliographv of Economics for 1909. Chi. 1910. (p. 128-30). 2. Special Topics: Compiled and issued by Libraries. Charters. Chicago Public Library. Selected Reading List on Municipal Government with Special Reference to the Xew Charter Move- ment. 1905. [Special bulletin no. 5.) 318 Law, Legislative Reference and Grand Rapids (Mich.) Public Library. Some Books and Articles Dealing with Charters for Cities together with a List of Cities whose Charters are on File in the Library {Bulletin, Sept., 1910, p. 124-27). Child Welfare. Brookh-n Public Library. Welfare of Children: List of Books and Articles on Care of Dependent Children. 44 p. Brooklyn. 1908. St. Louis Public Library. List of Books and Articles on Child Welfare and a Reading List for Use with the Junior Civic League. 11 p. St. Louis. 1912. City Planning. Milwaukee Public Library — Municipal Reference Branch. City planning. 4 p. Nov., 1911. N'ew York School of Philanthropv Library. Town Planning. {Bui. Mar., 1912). Portland (Oregon) Public Library. City Planning. (Oct., 1911). St. Louis Public Library. City Planning and Civic Centers. 11 p. 1912. (Compiled by Jesse Cunningham, formerly municipal reference librarian). Seattle Public Library. Municipal Plans. 13 p. 1910. (Reference list No. 1.) Commission Government. Cambridge (Mass.) Public Library. Municipal Government by Commission. Oct., 1911. Municipal Reference Libraries 319 Indiana State Library. Municipal Government by Commission. Nov., Osterhout Public Library (Wiikes-Barre). Municipal Government by Commission. Tan 19n. -^ ' Garbage DisposaL New York Public Library. List of Works on City Wastes and Street Hygiene in the New York Public Library. (Bui. 16- 731-83 Oct., 1912.) Pittsburgh : Carnegie Library. Refuse and Garbage Disposal. (Bid. Tan 1909- also reprinted 39 p.) v j - , Housing. New York School of Philanthropy Library. Improved Housing. {Bui. May, 1912). Juvenile Delinquency. New York School of Philanthropy Library. Juvenile Delinquency. {Bui. Feb., 1912). New York. Brooklyn Public Library. List of Books on Greater New York. 34 p. Brook- Includes "New York in Fiction." Playgrounds. Portland (Oregon) Public Library. Playgrounds. May, 1911. Schools. Rockford (III.) Public Library. School as Social Center. March, 1911. :V2() Law, Legislative Reference and School Hygiene. Michigan State Library. School Hvgiene and Medical Instruction in Schools. (Si\ Check List of Works relating to the Water Supply, Sewers, etc., of the City. {Bui. 5: 133-140, 1901.) A number of titles might be added to any of the above groups. The list of special bibliographies particularly could be almost indefinitely extended by consulting such things as W^illiam Prideaux Courtney's Register of Xational Bibliography ^^^ with its subject indexes, and other bibliographies of bibliography such as Petzholdt, Stein, Josephson and others."^ What bibliographies are appearing each year may be learned by consulting the Annual Library Inde.x^^^ which has an entire section "« 3 V. London. Constable, 190.5-1910. '" For an extended, annotated list of bibliographies of bibliography and general, national, and special bibliographies see Alice B. Kroeger, Guide to the Study and Use of Reference Books. Ed. 2. Enl. A. L. A. Bobion. 1908. p. 99-110. »• Publishers' Weekly, N. Y. Municipal Reference Libraries 321 devoted to current bibliographies and the Annual American Catalogue under the heading "bibliography." The efforts of libraries in this field may be learned from Mrs. Alice (Newman) Nachtmann's Index to Subject Bibliographies in Library Bulletins to Dec. 31, 1897^^^ and the Providence Public Library's Index to Reference Lists published in Library Bulletins from Oct. 1901 to Dec. 1906, inclusive. '^^^ This last title and continuations have been published in the Bulletin of Bibliography ^^^ as follows : Index for 1901-1906: in v. 4: p. 159-66. (con.) 5: p. 17-20. 1907-1908: in v. 5: p. 125-26. (con.) 5: p. 149-52. 1909 :in V. 6: p. 74-77. 1910 :in V. 6: p. 177-80. 1911 :inv. 6: p. 303-06. 1912 :inv. 7: p. 84-88. 1913 : in v. 8: p. 7-10. 3. Handling of Materials. (a) Acquisition. 1. Sources to be Watched. The sources to be watched for notices of new material on municipal affairs including books, pamphlets, docu- ments, etc., are mainly the periodical publications and current indexes to federal and state documents. Of the periodicals certain ones are naturally more valuable than others for this purpose. The National Municipal Review is easily first and covers the whole field, not emphasizing, however, as yet, municipal engineering. "3 Albany, N. Y. State Library. 1898. Bulletin Bibliography 14. 120 Boston. Bost. Bk. Co. 31 p. 1907 {Bulletin of Bibliography Pamphlet no. 16). 12' Boston Book Co. (quarterly). 322 Law, Legislative Reference and The Municipal Journal and Engineer and Municipal Engineering cover this latter field. The American City would take second place among municipal periodicals general in scope. Of periodicals not primarily municipal the American Economic Review, the American Political Science Rn'ieu', Special Libraries and the Survey are among the best for noticing current publications on munic- ipal affairs. These periodicals frequently note also the appearance of important official documents, a complete conspectus of which is afforded by the Monthly Catalogue of the Superintendent of Documents for federal publications and by State Publications of the Library of Congress for state material. The National Municipal Review is the best source for notices of current city documents. The most prompt notices of books published, except the advance information given in publishers' advertise- ments and the lists of books in press sent by them to such magazines as The Nation and The Dial, will be found in the Publishers' Weekly, New York. In addi- tion to news of the book trade generally, this publication lists each week in an alphabetical list by author the new books with full bibliographical details such as pub- lisher, price, and, frequently, a descriptive note. The list is cumulated each month, every three months, semi- annually, and yearly in dictionary form. Library lists of recent accessions as published in their Bulletins will frequently be the means of calling atten- tion to a useful title previously overlooked. Among Bulletins particularly valuable in this connection might be named those of the New York, Pittsburgh, St. Louis, and Chicago libraries. Municipal Reference Libraries 323 The indexes to the general magazines again should be recalled and particularly the "Municipal Index" appear- ing monthly in the Municipal Journal and Engineer. This last indexes all articles on municipal affairs pub- lished in the general magazines. 2. Actual Acquisition. Acquisition will be accomplished through the usual channels of gift, exchange, and purchase. (a) Gift. Nearly all documentary- material, reprints of articles, some society proceedings, and many pamphlets can be secured free of cost, particularly if a good reason is given for the request and if postage is forwarded. (b) Exchange. When the librar\- publishes a regular bulletin this can be made to ser\'e in some instances as an exchangeable commodity- for publications desired, especially for those issued by societies. The National Municipal League recommends that municipal reference libraries be made the exchange agencies for the official publications of their cities. This recommendation should be emphasized as it will assure their being placed where they are wanted for definite use, and has been followed in several instances, notably in St. Louis and Chicago. ^- (c) Purchase. Purchase through the book trade should secure what- ever else is needed and the methods have already been described by too many others to need repetition. After the initial collection of standard books, periodicals, and 1" See p. 407, 416, post. 324 Law, Legislative Reference and society proceedings has been secured, a relatively small amount will be necessary for additional purchases. This will naturally be expended for new treatises on mu- nicipal government and on special municipal problems, for continuations, and additional society transactions. (b) Classification. The time has not yet come when it can be said that this or that system of classification is the system to be used by municipal reference libraries. At present they do not all apply the same system of classification to the material they collect nor does each apply the same sys- tem to all its own material, as was noticed in the case of the legislative reference library. The Dewey Decimal System, somewhat expanded, has been favored by more such libraries than has any other. It is in use in Kansas City, Baltimore, St. Louis, the municipal reference section of the Indiana Bureau of Legislative and Administrative Information, at the Municipal Research Bureau of the Univ'ersity of Illi- nois, and numerous other places. The expansions of the Decimal System prepared in the Indiana and Wisconsin legislative reference libraries primarily for their own use are more satisfactory for this purpose than the original. These two expansions differ in detail and that of Wis- consin, typewritten copies of which are for sale, has been adopted by new bureaus in several instances. The revision of the Decimal Classification, eighth edi- tion, recently issued, was made with more regard for the needs of certain special libraries, particularly munic- ipal and legislative reference libraries, and answers more nearly the needs of the latter than do previous edi- tions, though of the two, legislative procedure and Municipal Reference Libraries 325 functions and the field of state legislation are more ex- panded than municipal affairs. The ninth edition, already under way, promises even more development in both these fields. The temporary scheme of classification used by the Wisconsin municipal reference library is an alphabetical arrangement of general subjects with sub-divisions of each also alphabetically arranged. Its director has said that on establishing the work in the new university library, in the near future, the system employed in the legislative reference library will be followed. A more extensive application of this alphabetical system of classification is illustrated by the library of the New York PubHc Service Commission, First District, de- scribed by its statistician-librarian. Dr. Robert H. Whitten, in an exceedingly lucid article in Special Librariesy^^ Classification in vertical filing cabinets may be by means of the Decimal System, preferably expanded, or alphabetically by subject-headings assigned each pam- phlet filed. Not infrequently one system, more likely the Decimal, is used for material shelved, i.e., books, and another, alphabetically by subject, in vertical files. This combination is in use in the Kansas City Bureau. The "Local Government" (JS) section of the Library of Congress classification of political science (J), while planned primarily for a large collection, could be adopted in a municipal reference library to good advantage. It is up-to-date, scientifically planned, and thoroughly indexed. Unless the arguments that figures alone are preferred to a combination of figures and letters, and that the municipal reference library should be classified "»1: 18-20, March, 1910. 326 Law, Legislative Reference and according to the system used in the main library of which it is a branch, and in the majority of municipal reference libraries, prevail, the Library of Congress clas- sification should receive careful consideration before determining upon a system for such work as is under discussion. (c) Cataloguing. There are few general principles of cataloguing for legislative reference libraries that are not equally appli- cable in municipal reference work. Make the catalogue so that it will help to produce on demand that material which most specifically answers the needs of the imme- diate inquiry. Let the material be not only prompt in appearance, but, as a result of annotation on the cata- logue card, presented to the inquirer with a statement of its reliability or bias, and of its scope, particularly if comparative in nature. To render this service, special care must be employed in assigning subject-headings and it should be done by one thoroughly familiar with the current phraseology of municipal and social problems. Cross references should be plentiful, but made with such judgment that they will not become a source of confusion and annoyance rather than an aid. Several different catalogues will be found serviceable. The catalogue of the municipal reference collection itself would be one. Into this could be incorporated cards for material in the main library which may prove use- ful but which is not kept continually at hand. A second file of cards might cover only comparative data including laws, ordinances, statistics, and actual results, with notes showing in each case what states, cities, etc., Municipal Reference Libraries 327 were taken up in the comparison. Much of this will of course be analytical cataloguing. Individual local ordinances may well be catalogued separately and the same may be said for the local state law on municipal subjects. Special collections of data in other libraries, and the results of special investigations and bibliographical research in municipal and legislative reference libraries and in bureaus of municipal research in other cities, particularly the MS. data they have col- lected or compiled, should be made know^n through your own card catalogue. ^-^ This could be extended to cover local offices such as those of the city attorney, treasurer, surveyor, and others, if they contain publications or files of records to which access may be needed. Temporary catalogues may be found convenient for material on subjects under investigation by a com- mittee and for the advance sheets of publications w^hich will be indexed later. Such catalogues would be filed into the main catalogue after they had served their immediate special purpose. No guides aiming specifically to aid in assigning sub- ject-headings in this special field of cataloguing have been prepared. Those mentioned in connection with law 1-^ and legislative reference ^'' libraries will be found helpful. Although not prepared for that purpose the lists of topics on which the Baltimore, Kansas City and St. Louis bureaus have secured information as given in the annual reports of the former 127 in Charles H. Talbot's 1=^ See p. 192-94 and the Pub. Aff. Inf. Serv. Bui. p. 228-29, supra. *-^ See p. 52-53. '-^ See p. 193. 1" Baltimore — Department of Legislative Reference; Annual Report, 1907- date. See especially 1907, p. 9; 1910, p. 8-11; 1911 p. 6-8. ' 328 Law, Legislative Reference and paniplilet entitled "The Municipal Reference Library as a Business Investment," '-^ and in Dr. Bostwick's Annual Report for 1911-1912,'-^ will be found of no little value in other libraries of this type. (d) Shelving and Filing Methods. Books are readily shelved in the order determined by the system of classification and the call number of the book. The same can be said for pamphlets in binders which are treated as books, and for pamphlets if kept in pamphlet boxes. X'ertical filing cabinets will be found convenient in handling loose pamphlets, leaflets, clippings, mounted or in en\elopes, broadsides and unbound material generally. Cabinets for this purpose difter from those designed primarily for filing letters flat in that the drawers will be higher than they are wide. Preferences differ as to the actual dimensions most desirable. A drawer with inside measurement 83^ inches wide by 11 inches high by 27 inches deep will accommodate most of the material best filed vertically, though for such things as the current Census Bulletins a drawer 10 inches wide and 12 inches high would be needed. Other details were suggested in the legislative reference part preceding. Suitable shelving can be obtained from a number of firms, among them the Art Metal Construction Com- pany of Jamestown, N. Y., the Library Bureau of New York, Boston and Chicago, and the Sneed and Co. Iron Works, Jersey City, N. J. "* Municipal Reference Library. Kansas City, Mo. 8 p. 1912. See p. 4-7. '»p. 111-12. Municipal Reference Libraries 329 (e) Preparing and Digesting Data. A kind of work which the special library is frequently called upon to do and which is rarely demanded of the general reference library is the preparation of digests or briefs of articles, papers, or of comparative data in the shape of bulletins or otherwise on some specific subject. On this point Dr. Ford H. MacGregor of the municipal reference department in the University of Wisconsin says: "I have found this a particularly difficult problem in connection with the Municipal Reference Bureau here. In our Debating Department, for instance, we can send out traveling libraries made up of thirty or forty articles. Some of them hit the nail on the head, but others only bear upon the subject indirectly. We find that debat- ing students will make use of all of this material, but in the case of city officials, however, all the work of digest- ing this material must be done for them. If thirty or forty articles are sent out to them, they merely glance through them, and return them without getting much of anything out of them. I have found, therefore, that it is necessary for me to make reports rather than send them the material itself. This I have found to be the most difficult part of the work, primarily for the reason that I have had to do it all myself, not having been able to find even among our graduate students more than one or two whose work I could accept without revision." It is indeed true that such work is not only very neces- sary, but that the individual who can do it successfully is the exception and not the rule. To special knowledge of the subject in hand must be added the happy faculty of winnowing the wheat from the chaff, a faculty either inborn or developed only by continued and conscien- tious effort under competent guidance. 330 Law, Legislative Reference and Among the best examples of this kind of work on mu- nicipal problems are the publications of the municipal research bureaus and efficiency commissions such as have been issued in New York, Milwaukee, and Chicago, and the Comparative Legislation Bulletins of the Wiscon- sin Legislative Reference Department which have had to do with municipal topics. ^^° (f) Drafting Ordinances. In drafting ordinances the following general points must be kept in mind. City ordinances must not be inconsistent with existing federal or state constitutional provisions, with state law, or with local charter provisions. They must be passed by much the same formula as that by which laws are passed and the procedure must be legal and regular. Ordinances must be reasonable and not oppressive and they must not make unwarranted discriminations nor unreasonably restrain trade. Just how the terms "reasonable," "oppressive," "unwar- ranted discriminations," and "unreasonable restraint" are understood in this connection will be learned from the decisions of courts and the treatises of commenta- tors on municipal corporation law mentioned a few paragraphs later. To draft ordinances the legality and constitutionality of which will withstand an attack in the courts requires primarily a knowledge of municipal powers and respon- sibilities, the rules of charter construction and interpre- tation, and of principles and practice in the law of mu- nicipal corporations. Not all of those now entrusted with this responsibility are so equipped."' '* For a list of the publications of the New York, Chicago, Mil- waukee, W'iscfmsin ami other bureaus, see appendix. '" Cf. Munro, op. cil., p. 1S8-90. Municipal Reference Libraries 331 Important ordinances are frequently drafted by the city attorney, or at least reviewed in his office, but the majority are formulated without due regard to either a knowledge of law, fact, or probable result as judged by the experience of other cities. A part — and an im- portant part — of the work of a municipal reference library should be to assist in framing measures destined to become ordinances in proper legal form and in language which expresses community needs in the light of com- parative experience. Literature which will aid in drafting ordinances is not as abundant, nor in as convenient a form, in all cases, as could be wished. There are, however, a few eminent authorities to be noted. The best sources are Judge Eugene McQuillin's Treatise on the Law of Municipal Corporations, ^^^ particularly volume one, chapters fifteen to twenty-one, and Judge John F. Dillon's Commentaries on the Laws of Municipal Corporations,^^^ chapters fifteen and sixteen of volume two, on "Ordinances and By- laws" and "Ordinances exercising the police power." Into his six-volume work cited above Judge McQuillin has incorporated his earlier one-volume treatise on Municipal Ordinances. ^^^ In addition to these two, other writers on the law of municipal corporations ^^^ consider this subject and both Munro^^'' and Fairlie^" discuss briefly ordinances and ordinance power. 132 6 V. Callaghan & Co. Chicago. 1911-1913. »3' Ed. 5. 5 V. Little, Brown & Co. Bost. 1911. "^ 1031 p. Callaghan & Co Chicago. 1904. 135 See p. 291-93, infra. 136 W. B. Munro, Government of Amer. Cities, p. 84-93; 199-200; 223-25; 329. 13^ J. A. Fairlie, Essays in Municipal Administration, p. 139-40. 332 Law, Legislative Reference and Cases on the law of municipal corporations will be found in Beale,'^* Macy.^^^ and Municipal Corporation Cases,^*'^ and cited in great profusion by both McQuillin and Dillon in the works mentioned. 4. City Council Procedure. Tiie procedure followed in city council meetings is similar to that of our state and national law-making bodies; what the prescribed procedure may be in a given city can be learned from the "Council Manual" or some equivalent publication. Each council and each branch of a bi-cameral council, unless prescribed by charter, may determine the procedure by which it officially passes ordinances and resolutions, provided its rules do not infringe charter provisions, state law, or constitutional requirements. As a general thing when an ordinance is introduced it is read and referred to a committee, later reported out with recommendations, read a second time and dis- cussed, brought up on a third reading, voted upon finally, and, when passed, must be signed by the mayor, recorded, and published. In the absence of specific statutory, charter, or ordinance provisions, resort must be had to court decisions to learn whether or not a given form of procedure is legal and required. The organization of a city council may be prescribed in the city charter and the standing committees named therein. However, this is often left to the presiding officer or a committee on committees. The small weight '" J. H. Bcale, Selection of Cases on Municipal Corporations. Camb. 1911. '"J. E. Macy, Selection of Cases on Municipal or Public Corpora- lions. Bost. 1911. '♦•11 vols., 1900-1904. Municipal Reference Libraries 333 attached in most instances to council committee reports in this country is in strong contrast to the decisive in- fluence of such reports in English local government. ^'*^ 5. Qualifications of a Municipal Reference Librarian ; Attitude toward his Work ; Oppor- tunities for Training. The general remarks preceding the discussion of the proper qualifications of a legislative reference librarian are applicable in large part to a similar discussion re- lating to the choice of a municipal reference librarian. The research instinct, taught by formal training to follow logical channels, is again in demand and that a liberal education, followed by special training and study, is a desired prerequisite is seen in the recommenda- tion of the National Municipal League on the subject of qualifications for the head of a municipal reference library. Its recommendation is put in the following language : "4. That the qualifications for the head of such a library should be a liberal education, with special train- ing in political science, economics, municipal govern- ment, and methods of organization and administration, and he should be selected for merit only." ^^^ Anyone called to such a position, if he does not already have the information as a part of his natural qualifica- tions for such a position, should acquaint himself with "1 For full discussion of procedure and references to precedents, see particularly Dillon, op. cit. v. 2, sees. 575-579,585,603-607; McQuillin, op. cit. V. 2, chap. 15-16; W. B. M.unTO, Government of American Cities, p. 195 ff; John A. Fairlie, "American Municipal Councils," in his Essays in Municipal Administration (N. Y., 1908); Frank J. Goodnow, Municipal Problems, chap. 9 (N. Y., 1907); and Good- now's Municipal Government, chap. 11 and authorities there cited (N. Y., 1910). ^" See entry under Nat'l. Mun. League Recommendations in item under Flack, p. 424. 334 Law, Legislative Reference and a knowledge not only of the duties assigned by statute or ordinance to city officers, but, in addition, should be as familiar as possible with the routine duties of each employee and the kinds of records maintained in each office. In regard to the method of selecting a librarian the National Municipal League has also recommended a definite guiding principle of general application as follows: "5. That the head of the municipal reference library be selected by that method which, in the particular city, will, under the local conditions there prevailing, tend most completely to eliminate political considerations. In some cities the most satisfactory results are obtained by lodging the appointing power with the public librarian or the library trustees. In other cities, conditions make it advisable to have the appointment made by a select, impartial and non-political board." The attitude of the municipal reference librarian must be one of neutrality on all questions; the scientific truth is his aim. As an advocate he will lose ground and im- pair his department's standing and reputation. His personal attitude toward his clientele, it need hardly be said, need not differ from that of any other man who, confident in himself and his resources, means to put both at the service of the public whom it is his duty and his privilege to serve. Sufficient reserv^e to maintain dignity can be coupled with approachableness and an attitude that will inspire confidence in the client. The problem of selecting a qualified staff for municipal reference work becomes easier the greater the scale on which the work is to be carried on, for a library having adequate financial support will render possible a division of labor in which ample opportunity wdll be afforded Municipal Reference Libraries 335 to both the professional Hbrarian and the expert in municipal government to utilize their several abilities in an ideal combination for maximum efficiency in such work. Where less financial support is available a smaller staff, and frequently but one or two people, are secured, who are called upon to perform a variety of duties each one in itself requiring special preliminary education and experience. The municipal reference branch of a public library will be relieved of much of the routine work involved in ordering and receiving new materials and in preparing them for use on the library's shelves, as all this kind of work can be centralized at the main library to good advantage. The more centralizing there can be of such work the more economically will it be done as a general rule. Though relieved of a certain kind of routine in this way the library should have a staff sufficient to enable it to keep up with the current publications of all kinds relating to its work and to send out requests for such of the fugitive material as is of value but not likely to be secured unless specially requested. In addition to a branch librarian, therefore, such a municipal reference library will be able to occupy the time of at least one assistant and a stenographer. The municipal reference bureau or library which is a separate department having no connection with a public library should have a staff sufficient to handle, in addition, all the work that in other cases can best be done in the central administrative offices of a large library system. The scale on which work is undertaken and the available funds will of course be factors in determining the num- ber of persons employed in a given library and the character of the staff organization. A staff of three. 336 Law, Legislative Reference and librarian, cataloguer, and stenographer would be the minimum for effective work even on a small scale. Opportunities to receive a training which would pre- pare for municipal reference work are presented by sev- eral different agencies no one of which, however, makes municipal reference work either its primary or its only aim. The fundamental training needed in the facts and theories of municipal government and administra- tion can best be obtained through the courses in these subjects given in colleges and universities to both graduate and undergraduate students. If to the knowl- edge thus acquired are added courses in city problems from the sociological standpoint, and on municipal cor- porations and public service corporations from the legal point of view, the best preliminary academic training will have been received. Students preparing for municipal reference work in universities maintaining municipal research bureaus or municipal reference libraries will include in their courses on municipal government prac- tice work in these bureaus. Recently, two or three more specializing agencies have offered opportunities which should take the student a little beyond the point reached at present even by graduate work in most universities. The first is the College of the City of New York, for which the city authorities remodelled a building at an expense of $60,000 with the understanding that the trustees will there maintain a permanent municipal budget exhibit and will so modify, develop, and systematize their present courses in municipal government, administration and sanitation that graduates will be well equipped to under- take even the higher and more technical positions in the Municipal Reference Libraries 337 municipal world with an assurance to the city of success and efificient service. ^^^ In this New York is following certain German cities, notably Diisseldorf/^* in developing a school for thoroughly training men for the municipal public service. Another new venture is the Training School for Pub- lic Service conducted by the Bureau of Municipal Re- search of New York City. This school, founded by Mrs. E. H. Harriman in co-operation with thirty-one leading citizens of New York, aims "To promote efificient and economical government; to promote the adoption of scientific methods of account- ing and reporting the details of municipal business, with a view to facilitating the work of public officials; to secure constructive publicity in matters pertaining to municipal problems; to collect, to classify, to analyze, to correlate, to interpret, to publish facts as to the admin- istration of municipal government." ^*^ The methods are by supervised field work done where- ever the best experience can be obtained and through staff conferences similar in nature to graduate seminar discussions. The Announcement, 1911, of this school will for some time hold a unique place in the educational literature of this country. ^^'^ 143 "New York City's Permanent Municipal Museum" in Nat. Mun. i?CT. 1:733, Oct., 1912; "^ "Dusseldorf's Municipal College" in Nat. Mun. Rev. 1: 306-07, Apl., '12 and "The New Academy of Municipal Administration in Diisseldorf," Nat. Mun. Rev. 2: 501-2, July, 1913, a review of the Academy's first annual report. "^Bureau of Municipal Research — Training School for Public Service, Announcement, 1911, p. 2. "® See further, William H. Allen, "Training Men and Women for Public Service," in Annals of the American Academy of Political and Social Science, May, 1912, p. 307-12; also his "Instruction in Municipal Afifairs" in Nat. Mun. Rev. 1: 305-06, April, 1912. 338 l-aw, Legislative Reference and Training is now afforded by numerous library schools in the many processes and methods which must be em- ployed in all general libraries to render efficient service in the various departments of the library. These methods must be employed by one who would give the best results as a municipal reference librarian and there is no training even in university graduate study which takes the place of the courses in general and advanced reference work, government documents, and bibliography offered in the best library schools. That library schools are beginning to provide some special training for those who care to plan for municipal reference library work was shown in the discussion of like facilities now afforded at some of these schools for train- ing in legislative reference work. In recent years the subject has been treated in a few lectures to the students of the New York State Library School at Albany, New York, while at the University of Illinois the Seniors in the Library School have had presented to them in lecture form the materials which have been expanded into the present work. Specimens of the problems which accompanied the lectures in the latter institution are given in the appendix."'' The course in special library work known officially as "Library Administration and Public Service," was first announced by the Library School of the University of Wisconsin for the academic year 1913-14. Open only to university graduates who are taking advanced work in other departments of the University it offers to anyone {planning to work in a municipal reference library an e-xcellent opportunity to acquire both theoretical and practical training to an unusual degree. In the former •« See apx., p. :i46-47; 402; 431-33. Municipal Reference Libraries 339 case the opportunity is provided by the courses at the university in municipal government and administration, and in the latter, in addition to the practical side of these same courses, an opportunity to work in the Wis- consin municipal reference library under the direction of Dr. Ford H. MacGregor, librarian, and member of the political science faculty. As this library serves as a bureau of municipal information for all the cities of the state, the laboratory practice thus provided is exceptional. The legislative reference library at the capitol presents, of course, additional facilities for studying municipal problems in their legislative aspects. 6. General Success of Libraries now Established and Present Support Given. Testimony as to the success enjoyed by municipal ref- erence libraries as well as by bureaus of municipal research is abundant and this, coupled with the fact that they have accomplished much with small financial sup- port, should go a long way in arguing for their further development both in numbers and in individual resources. Witness the following statements. Dr. Horace E. Flack, Executive of the Baltimore legislative reference depart- ment, in his Annual Report to the mayor and city council, 1911, says: "The year 1911 has shown very gratifying evidence of the growing utility of this department. The depart- ment has been used more frequently during the past year than ever before by members of the city council, city officials and the public generally." And after enum- erating some seventy-five of the important topics on which information was requested. Dr. Flack notes that the department not only received but compiled informa- 340 I-aw, Legislative Reference and tion on numerous additional subjects such as a history of improved paving in Baltimore, liquor license fees in the counties and towns of Maryland, taxable basis and rates in other cities, sewers, rentals, etc. The total ex- penditures for 1911 were 83,573.82 and the department sent out over 4,000 communications either requesting or giving information. Mr. Charles H. Talbot, formerly municipal reference librarian in Kansas City, in The Municipal Reference Library as a Business Investment, includes among the special investigations made by his department, building inspection in other cities, the division of costs in eliminat- ing railway grade crossings, license tax ordinances, car stops, cost of collecting and handling taxes, smoke abatement, pawnbrokers, taxation of goods in storage, auditing of the city accounts, garbage collection and dis- posal, public playgrounds, municipal morgues, gaspipe inspection etc., etc. The article says forcibly, "there is no reason why Kansas City should try a costly experiment which has been shown to have failed when tried in other cities with similar circumstances and conditions." The expenditures in Kansas City for 1911 were approx- imately $3,000 of city funds, a sum w^hich was supple- mented generously by one of Kansas City's prominent citizens. Much to the point is Mr. Talbot's further statement. "Attention is respectfully called to the fact that the information revealed by one report made by this department, if taken advantage of by the city officials, would result in a saving to the city and the people con- servatively estimated at $125,000 a year.^^^ Considered simply as a business investment, the Municipal Reference Library of Kansas City more than pays for itself." '*' la regard to a Municipal Lighting Plant. Municipal Reference Libraries 341 In another address Mr. Talbot says, "Already, I believe, the work we are doing has had an effect upon legislation," and this was but within two years of the establishment of the library. Success has attended the departments in Milwaukee, St. Louis, and other cities and in every case the appro- priation has been indeed moderate; Baltimore (1911) $3,573.82, Kansas City $3,000, Milwaukee $5,000, Chicago $6,242 (1913). If to this may be added the testimony of results ac- complished by bureaus of municipal research and effi- ciency commissions, which have much in common with municipal reference libraries and in all cases could utilize their collections, this record will be considerably enhanced. For example, in Six Years of Municipal Research for New York City,^*^ the figures for money saved run well up into the millions. The Cincinnati bureau in the "Foreword" of its first report notes how $50,000 might have been saved the city by following only one of the bureau's recommendations. Philadelphia, Boston, Chicago, and Milwaukee are among the other cities which could contribute to such a symposium as this. Space forbids further details, but attention must be called to Dr. Jesse D. Burk's "Efficiency Standards in Municipal Management," ^^° the Milwaukee Bureau of Economy and Efficiency's Eighteen Months' Work,^^^ Prof. Edward M. Salt's "Research and Reference Bureaus," ^^^ and to the volume of the Annals of the American Academy of Political and Social Science for May, 1912, "' Pub. by Bur. of Mun. Research, 261 Broadway. 80 p. 1912. (See p. 10-13). 150 Nal. Mun. Rev. 1: 364-371, July, 1912. ''■1 Bulletin 19, especially p. 12-16 and 21-22. 162 Nat. Mun. Rev. 2: 48-56; Jan., 1913. 342 Law, Legislative Reference and on Efficiency in City Government, particularly part three, "Bureaus of Municipal Research. "i" In all will be found additional testimony as to the practical worth of these allied agencies for civic progress. 7. Future Possibilities: Co-operation; An Official National Bureau; An International Bureau. The future should see great development in municipal reference work, a work still decidedly in the formative period, but one which has already given grounds for a belief in a future of large and as yet unexploited possi- bilities. In the field of library science a classification accepta- ble to all municipal reference librarians is still a desid- eratum; so also is a standard guide for assigning sub- ject headings, two things which will aid in bringing about a desirable uniformity in technical matters. Further co-operation must develop a systematic exchange of information between municipal reference libraries as to the special resources of each, particularly in the field of MS material, bibliographical and comparative data, and matters under investigation or already investigated by the several libraries. A definite step in this direction was taken when Mr. Lapp succeeded in drawing into the co-operative scheme earlier described a number of legislative and municipal reference libraries, and other institutions interested in this work. Check-lists of the documents of individual cities, annotated bibliographies on specific municipal problems, including important documentary data, are greatly needed. Compilations of the ordinances of a number of cities on single sub- jects, edited with historical, descriptive, and evaluative '" p. 235-78, describing the New York, Philadelphia, Cincinnati, and .Milwaukee bureaus. Municipal Reference Libraries 343 notes are practically unknown, though they would form a class of material of inestimable worth in municipal reference work. And the list of desiderata could easily be extended. Some of those who believe that from an economic standpoint the city is the greatest problem confronting the nation today, have urged the creation of a national bureau, or commission, or even a Department of Mu- nicipalities. This is one of the possibilities of the future. It has been urged by the National Municipal League and its case is well presented by Philip Kates in his article entitled "A National Department of Municipali- ties."i54 Going still further, W. D. Lighthall, K. C, Honorary Secretary of the Union of Canadian Munici- palities, has proposed an International Municipal Congress and Bureau ^*^ to include existing national, state, and local associations of all countries and repre- sentatives of cities, governments, and universities, and eminent students of political science. Such national and international bureaus as these proposed in the interests of municipal government would most naturally benefit cities through a local co-operating agency. This agency would logically be the local municipal reference library. 1" Kates, Philip, "A National Department of Municipalities: Why Should Congress Create Such a Department for the Study of Munic- ipal Conditions at Home and Abroad," in The American City 6: 405-07, Jan., 1912. For editorial comment of the above by the Hon. John Mac Vicar, the Hon. William Dudley Foulke, and J. Horace McFarland, see the same issue, p. 395-96. Additional comment will be found in "How the Federal Govern- ment now Co-operates with Municipalities." American CityG: 408- 10, Jan., 1912, and by Frank A. Wolff, "The Federal Government as a Potential Contributor of Municipal Advancement," in Eigh- teenth Annual Meeting of the Nat. Mun. League Proceedings, pub- lished as appendix to the Nat. Mun. Rev. Jan., 1913, apx., p. 33-35. 165 \Y. D. Lighthall, "An International Municipal Bureau," in Nat. Mun. Rev. 1: 78-79, Jan., 1912; additional notice in the Jan., 1913, issue, p. 135. APPENDIX. I. Law Libraries. 1. A Reading-list on Law Library Work. 2. Suggested Class Problems on Law Library Work. IL Legislative Reference. L Compilation of Laws establishing Legislative Reference Bureaus in the Various States. 2. Laws relating to other Official Bill-drafting Agencies. 3. List of Publications issued by Legislative Reference Depart- ments, by Grace Sherwood; Tabular Statement of Legis- lative Reference Work in the several states, by Irma A. Watts. 4. Bibliography of Legislative Reference Work. 5. Bibliography of Bill-drafting. 6. Suggested Class Problems on Legislative Reference Work. 111. Municipal Reference. 1. Ordinances and Laws relating to Municipal Reference Work. 2. List of Publications of Bureaus of Municipal Research and Municipal Reference Libraries. 3. Municipal Reference Libraries and Research Bureaus — a Bibliography. 4. Suggested Class Problems in Municipal Reference Work. I. LAW LIBRARIES. L A READING LIST ON LAW LIBRARY WORK. General. L Gilbert, F. B. : "Special Functions of a Law Library." (In A. L. A. Bui. July, 1907. v. 1, p. 92-96. Summary in Library Work. April, 1908, p. 43. Indexes. 2. "Available Published Indices to Legal Literature." (A. L. A. Bui. V. 1, p. 252-4, July, 1907.) 3. "Report on the Index to Legal Periodicals." (A. L. A. Bui. ^^ 4:754-6, Sept. 1910.) 4. "Index to the Legal Periodicals." {Law Library Journal, V. 3, p. 16-18, Oct. 1910.) Describes the Index to Legal Periodicals. 34G Appendix Handling of Material. 5 Adams. E. D.: "Constructing a Catalogue." (L. L. J. v. 3, p. 35-8. 1911. 6. Emerioh: '"Recent Experiments in Cataloguing the Alle- gheny County Law Librar>'." (L. L. J. v. 3: 41-i4.) 7 Berr\', \V. J. C: "Law Classification under the Author Ar'rangement." (A. L. A. Bu/. v. 1: 257-8. July. 1,907.) 8 Classification of Law at the University of California." (L. J. V. 31. p. 147-8. March, 1906.) 9. Sage, L. H.: ".Arrangement of Law Books." (A. L. \. Bui. 2: 296-8, Sept. 1908. Summary in Library Work, Jan. 1909. p. 191. 10. Wire. G. E.: "Subject Classification of Text Books." (A. L. h.Bul. 1:258-60.) 11. Baker. H. G.: "leaning Law Books." {L. L. J. v. 4: 2-3.) April. 1911. 12. Wire, G. E.: "Loaning Books from Law Libraries." (L. L. y. V. 4: 1-2. Review. 13. "Management of the Small Law Library. ' (Z-. L. J. v. 2: 1-6.) (Gives consensus of opinion on various problems as shown by answers to questionnaire.) By C. H. Smith and H. G. Baker. (In addition to the references to articles in library journals noted above, students of the Library' School are advised to read all and required to read certain sections of part one of Brief Making and the Use of Law Books. ') 2. SUGGESTED CLASS PROBLEMS ON LAW LIBRARY WORK. UNIVERSITY OF ILLINOIS LIBRARY SCHOOL. Law Library Work: Problem I. 1. Find the case of "The City of Peru v. W. C. Bartels. et al." 2. In what cases subsequently decided in the same state has this case been cited? 3. Where will you find references to other cases involving the same question? 4. Where will you find digested the latest Illinois cases on "Wills?" 5. An atto.-ney wishes the case in 214 111. 318, but 214 111. is out. How will you get him the case in some other publication, the title of the case being unknown? 6. What is a syllabus? Who writes it? Is it authority? What is meant by "ex parte"? By "ex rel"? ' Ed. 2, edited by Roger W. Cooley, West Pub. Co., St. Paul, Minn. 1909. Appendix 347 Law Library Work: Problem IL 1. Find the case in the original state report of "Patrick Ducey V. Thomas M. Patterson, given in 9 L. R. A. n.s. 1066. Locate this case in 4 different pubHcations. 2. Find "Simonin (f.c. Maliac) v. Mallac," and write out in full the titles of the 4 sources in which it has been published. 3. Name the series making up the National Reporter System. 4. What is a "quizzer"? A "case-book"? A "citator" or cita- tion book? What are "Dicta"? 5. Write out the following abbreviations : 3 B. & P. R. Cowp. Reg. L. R, 2 C. C. R. 30 O. L. 190 1 St. Tr. 1195 30 O. 190 2 Den. 448 30 O. S. 190 Co. Lit. 30 S. L. 190 et al 2-3 Ed. 6. c. 37. II. LEGISLATIVE REFERENCE. 1. COMPILATION OF LAWS ESTABLISHING LEGISLATIVE REFERENCE BUREAUS IN THE VARIOUS STATES. ALABAMA.^ (General acts 1907, No. 255, p. 318.) An Act to enlarge the duties of the department of archives and history. Be it enacted . . . That in addition to the duties now required by law, the department of archives and history shall do and perform the following: * * * * * * * 2. It shall bind together and arrange for ready consultation a reference collection of materials for the use of the members of the legislature. State officers, and others on all subjects which may, from time to time, be deemed of public interest and importance to the people of the State. Approved, March 5, 1907. GEORGIA. A Resolution. Relative to a Legislative Reference Bureau. No. 18, (1913.) Whereas, The members of the General Assembly of Georgia are often in need of accurate information relating to proposed legis- lation and matters pertaining to the welfare of the State; and. Whereas, There is not now in the State a reference library or place where such information may be quickly had; and. Whereas, The Congress of the United States and the General Assemblies of many of the States of the Union have created Legisla- ^ An exceedingly simple, general law. 348 Appendix live Reference Bureaus for the purposes of supplying such informa- tion; . Be it resolved by the House of Representatives, the Senate con- curring, , /- 1. That a Commission of five be appomted by the Governor to investigate the workings of the legislative reference bureaus of other states, and report to the next session ' of the General Assembly its opinions and findings as to the advisability of establishing such a bureau in Georgia, the probable cost of installing and operating and other matters pertinent thereto. 2. That the State Librarian and at least one member from each the House and Senate, be members of said Commission. 3. That the Members of said Commission shall serve without expense to the State. Approved August 19, 1913. ILLINOIS.-" (Illinois Laws, 1913, p. 391-92.) An Act to Establish a Joint Legislative Reference Bureau and to define the powers and duties thereof. Sec. 1. Be it enacted . . . That there be and is hereby established a joint legislative reference bureau composed of the Governor, the chairman of the committees on appropriations of the Senate and of the House, the chairman of the committees on judiciary of the Senate and of the House. The Governor shall be ex-officio chairman of said reference bureau. Sec. 2. The Governor shall serse as a member of said Reference Bureau during the term of office for which he shall have been elected, and those members serving on said Reference Bureau by virtue of being chairmen of committees of either House shall serve until the convening of the next General Assembly after their appointment. Sec. 3. The said Reference Bureau shall meet during the regular and special sessions of the General Assembly and during the intervals between the regular sessions, and at such times and places as it may determine. The members of the Bureau shall receive no compensa- tion for their services as members thereof, but shall be allowed their actual and necessar>' expenses incurred in the performance of their official duties out of any money appropriated for the use of the said Reference Bureau. Sec. 4. The said Reference Bureau shall appoint a secretary, who shall devote his entire time to the duties of his office and shall follow no other gainful profession, occupation or employment. The » October, 1914. * Notice the direct connection with the legislature and especially the duties assigned, i.e., a weekly digest of current Illinois legis- lation, bill-drafting, and budget making. See Independent, 73: 641-42 Sept. 11, 1913, p. 641-42, and Public Libraries, 19: 59-64 February, 1914, for work planned and criticism. Appendix 349 Reference Bureau shall also appoint such other officers, agents and employees as may be necessary to carry out the provisions of this Act, and shall fix the compensation of each of its appointees: Pro- vided, the salary of the secretary be fixed at a sum not to exceed five thousand dollars ($5,000) per annum. Sec. 5. It shall be the duty of said Reference Bureau: a. To establish in the State Capitol a Reference Bureau, which shall be open daily, excepting Sundays and legal holidays, in which shall be collected and kept, in such manner as may make the same readily accessible, such laws, reports, books, periodicals, documents, cata- logues, check-lists, digests, summaries of the laws of other states upon current legislation, and such other printed or written matter as may aid the members of the General Assembly in the performance of their official duties: b. The reference Bureau shall collect, catalogue, classify, index, completely digest, topically index, check-list and summarize all bills, memorials, resolutions and orders, as well as substitutes and amendments and changes, if any, introduced in each branch of the General Assembly, as soon as practicable after the same shall have been printed, and shall furnish copies of the digest indexed and topically indexed to each member of the General Assembly on Mon- day of each week during the session of the General Assembly: c. The said Reference Bureau shall afford to any member of the General Assembly, upon his request, such legal assistance and in- formation as may be practicable in the preparation of bills, mem- orials, resolutions, orders and amendments, alterations, changes thereto, and revisions and substitutes thereof, proposed to be intro- duced into the General Assembly by said member: d. To cause to be prepared, printed and distributed for the use of the rnembers of the General Assembly, a detailed budget of the appropriations which the officers of the several departments of the State Government report to it are required for their several depart- ments for the biennium for which appropriations are to be made by the next General Assembly, together with a comparative statement of the sums appropriated by the preceding General Assembly for the same purposes. Sec. 6. The officers of the several departments of the State Government shall make duplicate reports by the first day of Novem- ber next preceding the convening of the next regular session of the General Assembly of the appropriations which are required for their several departments for the biennium for which appropriations are to be made by such General Assembly. One of said duplicate reports shall be filed with the Governor, and the other with the secretary of said Reference Bureau. Sec. 7. The Secretary of State shall provide said Reference Bureau with suitable offices in the State Capitol, convenient to the place of meeting of the General Assembly, and shall further provide said Reference Bureau with the necessary furniture, stationery and supplies. 350 Appendix Sec. 8. The Board of Commissioners for the management of the of ^he State Library shall co-operate with the said Reference Bureau and shall make the facilities of said library accessible, so far as prac- ticable, for the use of said Reference Bureau, and are hereby authorized to loan to said Reference Bureau any books, periodicals, documents, reports or other printed or written matter belonging to said library. Sec. 9. All proper expenses incurred by said Reference Bureau shall be paid out of the appropriations made for its use upon itemized vouchers drawn by the secretary and approved by the Governor. Approved June 26, 1913.* INDIANA.* (Indiana Acts, 1913, p. 694-696.) A.N' -Act to establish a bureau of legislative and administrative information for the purpose of gathering, digesting, and indexing material for the use of the legislature, and public officials, boards, commissions, and institutions and to provide for the preparation and drafting of legislative bills. Sec. 1. Be it enacted . . . That there shall be created a legis- lative and administrative reference bureau which shall be under the control of the Ixsard consisting of the governor, state librarian, pres- ident of Indiana university, president of Purdue university, and one additional member appointed by the governor for a term of four years. Sec. 2. The Board shall appoint a director of the bureau who shall have thorough training and experience in the principles of government and political science, constitutional and administrative law, and in the drafting of .statute law. The salary and term of office of the director shall be fixed by the board. The director and any assistant may be removed for cause by the board. Sec. 3. The director shall with the approval of the board appoint ("urh assistants, investigators, and draftsmen as may be necessary and fix their compensation. The bureau shall gather material hearing on legislation and administration for the use of the legislature and state officers, boards, commissions, and institutions. It shall be the duty of the bureau to arrange and index all material so as to be most readily used. It shall obtain and furnish to members of the tieneral .Assembly or officers, boards or commissions any data available regarding the laws of this and other states and the workings and administration of such laws, together with references to judicial decisions and interpretation upon such laws. It shall be prepared to furnish to members of the General Assembly and under their instruction such assistance as may be demanded in the preparation and drafting of legislative bills. •Secretary appointed at $3,000 per year; appropriation for the biennium. 1913-15. $25,000. •Notice municipal information clause in sec. 3; organization of board, sec. 1 ; and qualifications of director, sec. 2. Appendix 351 The bureau is authorized to collect material on municipal laws and administration and furnish to the officials of any municipality upon request, any data and to loan any material which may be available. The bureau may co-operate with any state educational institution in any manner approved by the Board. The bureau may make digests of laws, reports and other material relating to legislation and administration and with the approval of the bureau this same shall be published by the commissioners of the public printing, binding and stationery. The clerk of the bureau of public printing, binding and stationery shall cause to be delivered to the bureau three copies of each report, pamphlet, compilation of laws or other document published at state expense. All legislative papers, records, petitions, charts of House and Senate seats and other documents shall be turned over to the bureau and shall when no longer in current use be turned over to the state library for preservation. Sec. 4. Suitable office rooms shall be provided by the super- intendent of public buildings and grounds for the use of the bureau in close proximity to the state library. The bureau shall co-operate with the state library in any manner which will promote the efficiency of the library and the bureau. The files, indexes, material and equipment of the legislative reference department shall be transferred to the bureau. Sec. 5. There is hereby appropriated out of the state treasury from funds not otherwise appropriated the sum of $13,500 to pay the salaries and traveling expenses of the director and assistants and for the office and other expenses, incidentals and cost of publica- tions and other supplies. The money appropriated to the legis- lative reference department of the state library for the year ending September 30, 1913, is reappropriated to the bureau of legislative and administrative information. The sum of $2,500 additional is hereby appropriated to the bureau to be available April 1, 1913. The sums appropriated to the legislative reference department of the state library for the years ending September 30, 1914 and September 30, 1915 are hereby reappropriated to the bureau of legislative and administrative information in lieu of a like amount of the appro- priation provided for in this act. Sec. 6. [Repeal clause.] Sec. 7. This act shall take effect April 1, 1913. MICHIGAN.' (Public Acts, 1907, No. 306, pp. 405-406.) An Act to provide for a legislative reference and information department in connection with the State library, to make an appro- priation therefor, and to provide a tax to meet the same. ' Notice in sec. 3 power to investigate effect of new legislation elsewhere and in sec. 4 power to receive all legislative papers, etc. 352 Appendix The people of the Stale of Michigan enact: Sec. 1. There is hereby created and shall be hereafter maintained in connection with the State library, a department to be known as the legislative reference and information department for the UM" and information especially of members of the senate and house of representatives, the several State departments, and such other persons as may desire to consult the same. It shall be located in the State capitol as conveniently as possible for members of the senate and house of representatives. Sec. 2. The State librarian, within ten days after this act shall take effect, shall appoint an assistant, who shall be a person trained in political economy and otherwise fitted to perform the duties of this office as herein defined, who shall have charge of said department under the supervision of the State librarian and perform the duties hereinafter prescribed. He shall receive an annual salar>' of fifteen hundred dollars,* payable in the same manner as the salaries of other assistants in the State library-. The State librarian shall also appoint some suitable person, trained in political economy and of known capability in indexing and cataloguing, as clerk, who shall receive an annual salary of ten hundred dollars, payable in the same manner as the salaries of other assistants in the State libran*- are paid. Sec. 3. The said assistant shall, as soon as possible, make avail- able for ready reference and use, suitable indexes to all such informa- tion as is contained in the various public documents of this State and other States, including senate and house documents and legis- lative journals, and shall keep a complete file of all bills printed by order of either house of the legislature. He shall procure and compile in suitable and convenient form, for ready reference and access, information as to proposed and pending legislation in other States, and shall also investigate the operation and effect of new legislation in other States and countries to the end that either house of the legislature or any committee or member thereof or any citizen of the State may have the fullest information thereon. He shall also give such advice and assistance to the member [members] of the legislature as they may require in the preparation of bills and resolu- tions, and shall draft bills upon such subjects as they may desire. Sec. 4. At the close of each session of the legislature the secretary of the senate and the clerk of the house shall, at his request, deliver to the said assistant, to be appropriately filed and preserved, such copies of bills and joint resolutions which shall not have been passed and are still remaining in their hands, also all important petitions and memorials and other legislative documents. Sec. Ft. The board of State auditors shall furnish, on the requisi- tion of the State librarian, all such cases as are necessary for the cataloguing, indexing, and filing of the materials and information collected by said department, and all other supplies of said depart- ment shall be drawn by the State librarian in the manner providecl, 'Salary made $1,800 in 1913. Appendix 353 by law. Such printing and binding as may be necessary for said department shall be done as part of the printing and binding for the State. Sec. 6. The auditor general shall add to and incorporate into the State tax the sum of two thousand five hundred dollars annually, and such amount is hereby appropriated from the general funds of the State, which said sum shall be included in the State taxes, apportioned by the auditor general on all taxable property of the State, to be levied, assessed, and collected, as other State taxes, and when so assessed and collected, to be paid into the general fund to reimburse said fund for the appropriation made by this act. This act is ordered to take immediate effect. Approved, June 28, 1907. NEBRASKA.' (Nebraska Session Law, 1911.) An Act establishing the Nebraska Legislative Reference Bureau, prescribing its duties, providing for its government, and declaring an emergency. Be it Enacted . . . Sec. 1. (Legislative Reference Bureau.) There is hereby estab- lished the Nebraska Legislative Reference Bureau for the use and information of members of the state legislature, the executive depart- ments and such other citizens of the state as may desire to consult the same. Sec. 2. (Same — duties.) Said bureau shall gather, arrange, catalogue, compile, edit, index and publish information upon subjects of legislation and administration. It shall maintain a compact library of books, pamphlets, maps, clippings and other material useful for its purposes and shall avail itself of the facilities of other libraries under the rules and regulations of such libraries in answering requests for information. It shall prepare check-lists and catalogues of Nebraska legislative bills and public documents, together with such data upon the same in other states and countries as may be needed, and shall carry on research in subjects of special public interest and publish the same in convenient form. It shall, when requested by members of the legislature or the executive depart- ments, promptly procure available information, not on file in the bureau, relating to pending legislation and investigate the manner in which laws have operated in other states and countries. Sec. 3. (Same — ■ Municipal subjects.) Said bureau shall also maintain a special service upon municipal subjects for the use of city and village officials and other citizens interested therein and shall in every way promote the diffusion of accurate and reliable information upon questions connected with the development of civic life in Nebraska. * Notice municipal relations, sec. 3, and university affiliations, sec. 4-5. 354 Appendix Sec. 4. (Affiliation with University.) Said bureau shall be affil- iated with the Department of Political Science and Sociology and with the College of Law of the University of Nebraska and shall be under the rules and regulations of the Board of Regents of the State University. It shall give such instruction and furnish such facilities for the training of students in legislative reference work and in the knowledge of Nebraska institutions as may be arranged for with the heads of said Department and College and maj' with the consent of the Board of Regents use the students in these courses as assistants during the sessions of the legislature. Sec. 5. (Director, assistants, appointment.) The Board of Regents of the State University shall appoint a director of said reference bureau who shall be a person of special training and ex- perience in such work. The director shall have general direction and management of the bureau under the Board of Regents and shall make a report of the work of the bureau to said Board on or before November 1st of each year, which report shall be printed and a copy therof sent to each member of the legislature. The Board of Regents may appoint an assistant director and librarian-stenog- rapher and such other temporary assistants as may be authorized by the legislative appropriation. Sec. 6. (Same — duties.) The director and his assistants shall neither oppose not urge legislation, but may, upon request, aid and assist the members of the legislature and the executive departments as to bills, resolutions and measures, drafting the same into proper form, and furnishing to them the fullest information upon all matters in the scope of the bureau. No employee of the bureau shall reveal to any person outside thereof the contents or nature of any matter not yet published, except with the consent of the person bringing such matter before the bureau. Sec. 7. (Offices.) During the sessions of the legislature and for at least one month preceding and one month following said sessions, the Board of Public Lands and Buildings shall assign to the bureau rooms suitable for its work and convenient for the use of members of the legislature. When the legislature is not in session, the Board of Regents shall if practicable assign to the bureau rooms convenient for its work and for making its material available to the public. Sec. 8. (Emergency.) Whereas, an emergency exists, this act shall be in force from and after its passage and approval according to law. Approved April 7, IQIL'" The Nebraska Appropriation bill of 1913 contained the following new and interesting provision {Session Laws, 1913, p. 733). "Neither the director nor the assistant director, nor any employe of the legislative reference bureau shall draft or prepare any bill for introduction into the legislature for any member of the legislature or for any other person, except on the payment of five dollars (S5.00) " Biennial appropriation. 1913-15, $16,400. Appendix 355 for each and every bill that may be so prepared by any employe of said bureau, which sum shall be paid unto the State Treasury for the benefit of the general fund." NEW HAMPSHIRE." (1913— Chapter 206.) An Act to provide for a Legislative Reference Bureau in the New Hampshire State Library. Be it enacted by the Senate and House of Representatives in (jreneral Court convened: Sec. 1. There is hereby established in the state library under the direction of the state librarian a legislative reference bureau whose duties shall be, to collect, arrange, index and classify books pamphlets and other material relating to legislation; to prepare abstracts of laws in other states and countries; to supply such other information as may be of service to the members of the Legislature or the executive departments in the performance of their duties- to furnish to members of the legislature such assistance as may be demanded in the preparation and formulation of legislative bills Sec. 2. The state librarian, with the approval of the trustees of the state library-, shall be empowered to incur such expense as may be necessary in the proper administration of the bureau, not exceed- ing five hundred dollars annually, said sum to be expended from the appropriation in favor of said state library, and the work made necessary by the installation of this bureau shall be performed by the regular force employed in said state library. Approved May 21, 1913. NORTH DAKOTA. (Laws 1907, ch, 243, p. 382.) State library commission created. An Act creating a State library commission, defining its duties, and providing an appropriation for its maintenance. ^9- ^- * * * The State library' commission shall have power and It shall be its duty to establish a legislative reference bureau for the intormation and assistance of the members of the legislative assembly in the work of legislation. The legislation of other States and intormation upon legal and economic questions shall be classified and catalogued in such a way as to render the same easy of access to members, thereby enabling them better to prepare for their work. It shall be the duty of the librarian of the State library' commission to assist in every way possible the members of the legislative assembly m obtaining information and the preparation of bills *******♦♦ Approved, March 2, 1907. " No additional help nor additional funds provided. 350 Appendix OHIO.»'- AN Act to create legislative reference department, to provide for the maintenance and administration of the said department, for the apfKjintment of a chief thereof, and to repeal sections 798-1 to 79S-5 of the General Code of Ohio. Be it macted by the General A ssembly of the State of Ohio. Sec. 1. There is hereby created and shall hereafter be maintained a department to be known as the "Legislative Reference Depart- ment," for the use and information especially of the members of the general assembly, the ofificers of the several state departments and the public. The department shall be under the direction and super- vision of the state board of librar>- commissioners who shall provide suitable quarters in the state capitol for said department. Sec. 2. The state board of library commissioners shall employ a director and fix his compensation. He shall have charge of such department and shall be an expert in political science, economics and public law. The salary- and appointment of the director shall be approved by the governor and the director shall be removed by the board only for misconduct, incompetency or disability. Upon the recommendation of the director such board shall make rules for the direction of the department and its service as it deems necessary. Sec. 3. It shall be the duty of the director to collect and compare the laws of this and other states pertaining to any subject upon which he may be requested to report by the go\'ernor or any committee or member of the general assembly; to collect all available information relating to any matter which shall be the subject of proposed legis- lation by the general assembly; to prepare or advise in the prepara- tion of any bill or resolution when requested to do so by the governor or by any member of the general assembly; to preserve and collate all information obtained and carefully index and arrange the same so that it may be at all times easily accessible to the members of the general assembly, other state officials and to the general public for reference purposes; to collect such books, pamphlets, periodicals, documents and other literature as may be of use to the general assembly or other state officials, and to keep the same on file in the quarters of the department, temporarily or permanently, according to the time for which such literature may be needed. It shall further be the duty of the director to collect, compile, classify and index the documents of the state, including senate and house journals, execu- tive and legislative documents and departmental reports of this and other states; to keep on file all bills and resolutions printed by order of either house of the general assembly; to accumulate data and statistics regarding the practical operation and effect of statutes of this and other states. Sec. 4. Subject to the approval of the board, the director may employ and fix the compensation of such assistants, draftsmen and clerical help as may be necessary to effect the purf>ose of this act " Notice permanent tenure of director, sec. 2. Appendix 357 and to incur necessary and incidental expenses in the conduct of the department, which expense may include costs of traveHng of the director or assistants. The compensation of the director and employes and such expense shall be paid out of the state treasury upon the warrant of the auditor of state upon vouchers approved by the director of the department and paid out of the appropriations made. All vouchers for expenses shall be itemized and sworn to by the director. Sec. 5. The director of the legislative reference department shall arrange with the proper officials of the Ohio State University, the Ohio State Archaeological and Historical Society, the Supreme Court Law Library, and the Ohio State Library for the use of general books and references in their custody, and the proper officials of the Ohio State University, the Ohio State Archaeological and Historical Society and the Ohio State Library are hereby directed to lend to the Legislative Reference Department for the use of said department such books and documents as he may require. The director is also authorized to give or lend to the proper officials of the Ohio State University, the Ohio State Archaeological and Historical Society and the Ohio State Library any books and documents, as may not be required by him. Sec. 6. At the close of each session of the general assembly the clerk of the senate and the clerk of the house shall deliver to the direc- tor copies of all bills, joint resolutions, important petitions, memorials and other legislative documents passed or presented during such session of the legislature. Sec. 7. The state board of library commissioners is authorized to make necessary expenditures out of the appropriations made, to obtain the books and documents necessary to establish an effective Legislative Reference Department, including statistics and other information, upon the recommendation of the director. Sec. 8. There is hereby appropriated out of any money in the state treasury to the credit of the general revenue fund, not other- wise appropriated, for the purpose of establishing and maintaining said Legislative Reference Department, the payment of all expenses therein incurred, including the salaries of the chief of the said depart- ment and all assistants and employees therein, the sum of ten thousand dollars ($10,000),^' and such further sums as the general assembly shall from time to time determine. Sec. 9. [Repeal clause.] Sec. 10. [Emergency clause.] Approved January 31, 1913. OREGON. (By the laws of 1913, Chapter 149, the former State Library became the Supreme Court Library and the Library of the Library' Commis- sion became the State Library; the Commissioners were made the " Increased to $15,650 for 1913. 358 Appendix Trustees of the State Library and the Secretary of the Commission beiame State Librarian. A proper distribution of books and docu- ments was ordered so that only legal material would belong to the Supreme Court Library. Sec. 6 of this law illustrates a provision in a general state library law under which it is assumed that the state library will undertake legislative reference work.) • **•♦*• Sec. 6. The State Librarian, upon the taking eflfect of this act, shall also collect and index those public documents which shall be of service to State boards, officials and commissioners, and for reference work for the members of the legislature for investigation of public questions. These services shall be rendered in accordance with rules and regulations to be fixed by the trustees of the State Library who shall designate those books which are to be used for circulating and those which are to be kept as a reference collection. PENNSYLVANIA.'* (Laws 1909. p. 208 as amended by 1911 p. 76.) Sec. 1. Be it enacted, etc.. That from and after the first day of June, Anno Domini one thousand nine hundred and nine, the trustees of the Pennsylvania State Library be and they are hereby authorized and directed to maintain a Legislative Reference Bureau in the State Library-, for the use and information of the members of the General Assembly, the heads of the several departments of the State govern- ment, and such other citizens of the Commonwealth as may desire to consult the same. Sec. 2. The director of the said Legislative Reference Bureau of the Pennsyhania State Library shall be appointed by the Gover- nor, by and with the advice and consent of the Senate, to hold office for four years from the date of his appointment, and he shall be well qualified by experience, knowledge, and ability to conduct the work of the Bureau; he shall be well versed in legislative procedure and parliamentary' practice, and shall in such matters, when called upon, be ex-officio adviser to the General Assembly; and shall receive a salary of five thousand dollars per annum, and his traveling expenses, actually and necessarily incurred in the performance of his official duties. He shall give bond in the sum of ten thousand dollars, to Ix" approved by the Governor, for the faithful performance of his duties, and he shall devote his whole time and attention to the duties of his office. He shall have custody of the law library, and the pub- lications therein of the various State governments and the LInited States Government, which may be generally classed as legislative documents. Sec. 3. The director, by and with the approval of the Governor, shall appoint one assistant director, learned in the law, who shall '* Notice particularly sees. 2 and 6. Appendix 359 receive a salary of four thousand dollars per annum; a search clerk who shall receive a salary of two thousand dollars per annum; a reference division stenographer, who shall receive a salary of twelve hundred dollars per annum; an assistant stenographer, who shall receive a salary of one thousand dollars per annum; a cataloguer, who shall receive a salary of one thousand dollars per annum, and a messenger, who shall receive a salary of nine hundred dollars per annum. The State Librarian shall also, at the request of the director, assign any employes of the library for work in the Legislative Refer- ence Bureau during the session of the General Assembly. The director may, for a period commencing one month prior to and ending one month after each future session of the General Assembly, appoint not more than three search clerks, learned in the law, at a salary not to exceed five dollars per day each; two stenographers, at a salary not to exceed five dollars per day each; and three stenog- raphers, at a salary not to exceed two dollars per day each, and a record clerk, at a salary not to exceed four dollars per day: such employes, when appointed, shall be certified to the Auditor General by the director and shall receive the amount due them at the end of each month, upon warrant of the Auditor General. Sec. 4. The trustees of the State Library shall provide the bureau with suitable rooms in the State Library building, situated so as to give the bureau ready access to the volumes, catalogues, documents, and other papers in the State Library, and in a place where the bureau will be convenient to the members of the General Assembly and others having official business with the said bureau. The refer- ence bureau shall be kept open from nine ante meridian, to four post meridian, during the entire year ; and when the General Assembly is in session,' at such hours, day and night, as are most convenient to its members. Sec. 5. The director shall prepare and have available for use check-lists and catalogues of all Pennsylvania laws, and all the cur- rent legislation of Pennsylvania and other States; lists of bills and resolutions presented in either branch of the General Assembly; check-lists of the public docum.ents of the State, including all reports issued by the said departments, boards, and commissions; digests of such public laws of this and other States as may be thus best made available for legislative use; catalogued files of newspaper clippings, and of such other printed matter as may be proper for the purposes of the bureau. The director shall also, when requested by the Governor, heads of departments, or members of the General Assembly promptly procure available information, not on file in the bureau, relating to pending legislation, and investigate the manner in which laws have operated in other States. He shall also, if possible, establish card catalogue exchanges with other States where laws similar to this are now in force or hereafter may be passed. He shall, from time to time, prepare and publish such bulletins, pamph- lets, and circulars, containing information collected by the bureau, and such compilation of the laws of this or of other States, as he shall 360 Appendix deem to be of service to the several departments of the State govern- ment, the members of the General Assembly, and the citizens of this Commonwealth. Sec. 6. The director and his assistants shall neither oppose nor urge legislation; but shall, upon request, aid and assist the mem- bers of the Cieneral Assembl>', the Governor, and the heads of departments by advising as to bills and resolutions, and drafting the same into proper form, and by furnishing to them the fullest information upt^n ail matters in the scope of the bureau relating to their public duties. No employes of the bureau shall reveal to any person outride of the bureau the contents or nature of any matter not yet published, except with the consent of the person bringing such matters before the bureau. Sec. 7. The printing and binding necessary for the proper per- formance of the duties of said division, or the proper preser\'ation of material collected under the same, shall be done by the State Printer, upon the order of the Superintendent of Public Printing and Binding, upon requisition of the Legislative Director; and the Board of Public Grounds and Buildings shall, upon the requisition of the said director, furnish the bureau with such books, stationery, supplies, furniture, et cetera, as may be needed to properly conduct the affairs of the bureau. PENNSYLVANIA. (Laws, Session 1913, no. 175, p. 250-51.) As Act Directing the Legislative Reference Bureau to prepare compilations or codes, by topics of the existing general laws of this commonwealth, for adoption or rejection by the General As- sembly; fixing the powers and duties of the bureau therein; fix- ing the compensation of the assistant director; and making an appropriation therefor. Sec. 1. Be it enacted, etc., That the Legislative Reference Bureau is hereby directed to examine the entire general statute law of this Commonwealth; and to ascertain as nearly as may be, what laws and parts of laws have been repealed, or which have become obsolete, and to prepare lists of the same. It shall be the further duty of the bureau to cause to be prepared, for adoption or rejection by the General Assembly, compilations, by topics of the existing general statutes, arranged by chapters and sections, under suitable headings, with accompanying lists of statutes to be repealed. It shall be the further duty of the bureau to cause to be prepared codes of the existing laws on each of such topics, together with lists of statutes to be repealed, in the event of the adoption by the General Assembly of any such codes. Sec. 2. The l)ureau is authorized to employ such experts, learned in the law, or otherwise, such clerical and stenographical and other help, as the bureau shall deem necessary in carrying out the provi- sions of this act. The bureau shall report to the next General Appendix 361 Assembly for adoption or rejection, such topics as have been com- pleted. Sec. 3. The printing and binding deemed necessary by the director, in the proper performance of the duties herein imposed, shall be done by the State Printer, upon order of the Superintendent of Public Printing and Binding, upon a requisition of the Director of the Bureau. Sec. 4. The compilations provided for in this act shall be under the special direction of the Assistant Director of the Legislative Reference Bureau, learned in the law, who shall receive in addition to his regular salary, the sum of one thousand dollars ($1,000) a year for the two years of 1913, and 1914. Sec. 5. To carry out the purposes of this act the sum of thirty thousand dollars ($30,000), or so much thereof as may be necessary, is hereby specifically appropriated to the Director of the Legislative Reference Bureau. Approved the 20th day of May, A.D. 1913. RHODE ISLAND. (General Laws, revision of 1909, ch. 38. Public Laws 1471, Apr. 23, 1907. Public Laws 1554, Apr. 30, 1908, p. 193-94; chap. 935. Acts and Resolves, 1913. p. 51-52.) * * * * ** =K Sec. 17. There shall be in the State library, under the direction of the State librarian, a legislative reference bureau, which shall collect, arrange, and place on file books, pamphlets, and other material relating to legislation, which shall prepare abstracts of laws in other States, and which shall present such other information as may be useful and necessary to the general assembly in the perform- ance of its legislative duties. Sec. 18. {Acts and Resolves, 1913, p. 51-52) [Authorizes State Librarian with approval of Secretary of State to employ assistance and incur expenses to the extent of $3,250 annually, and of $250 additional.] SOUTH DAKOTA. (Session Laws 1907, ch. 185, p. 395-96.) An Act Entitled an act establishing a division of legislative reference in the State library. Be it enacted by the Legislature of the State of South Dakota : Sec. 1. Duty of Librarian: The State librarian is hereby directed to establish in the State library a division of legislative reference, in which he shall provide the reports of the various officers and boards of this State, and as far as may be of other States, and such other material upon economic and sociological subjects as he may be able to provide, and shall index and classify the same and make the information therein available for the use of the State 362 Appendix legislature, and shall, as required, provide for the use of members of the legislature such information and assist in drafting bills, and in every reasonable way make the division useful in the preparation of legislation. , . . . n Sec. 2. The various departments, olticers, and boards shall pro- vide copies of their reports and publications for the legislative division of the State library, and the secretary of state is directed to supply to the same a complete set of the statutes and session laws of the State and of the reports of the supreme court. Sec. H. Rei)eal: All acts or parts of acts in conflict with this act are hereby repealed. Approved, February 18, 1907. TEXAS. (C.eneral Laws 1909, ch. 70, p. 126.) An Act to create the Texas Library and Historical Commission. settting forth the purposes of the said Library and Historical Commission, defining its powers and duties, etc. * * * * . * ♦ Sec. 11. That the said Library and Historical Commission is hereby authorized and directed to maintain for the use and informa- tion of the members of the legislature, the heads of the several State departments, and such other citizens as may desire to consult the same, a section of the State library for legislative reference and in- formation. The Library and Historical Commission shall appoint an assistant librarian competent to conduct the work of said legis- lative reference section. Said assistant librarian shall have available for use explanatory check lists and catalogues of the current legis- lation of this and other States, catalogues of the bills and resolutions presented in either branch of the legislature, check lists of the public documents of the several States, including all reports issued by the various departments, boards, and commissions of this State, digests of such public laws of this and other States as may best be made available for legislative use. Said assistant librarian shall give the members of the legislature such aid and assistance in the drafting of bills and resolutions as may be asked." VERMONT." No. 14. — An Act to amend No. 9 of the Acts of 1910, relating to a Legislative Reference Bureau. It is hereby enacted . . . Sec. 1. No 9 of the acts of 1910 is hereby amended so as to read as follows: " An appropriation of $.5,000 per year for 1913-15 for maintenance of the legislative reference department allowed by the legislature was vetoed by the Governor. '• Notice sees. 3-4 and the unusual powers granted. Appendix 363 Sec. 1. There is hereby created and shall be hereafter maintained in connection with the state library a legislative reference bureau which shall be in charge of a legislative reference librarian, appointed by the governor, to hold office until removal for cause, and to per- form under the supervision of the state librarian the duties hereinafter prescribed. Sec. 2. It shall be the duty of the legislative reference librarian to collect, arrange, inrlex anrl place on file for the use of state officers, members and committees of the general assembly, and the public such books, pamphlets, clippings, exchanges, and other material relating to legislation as may be possible; also to make available for ready reference such information as is contained in the public documents of the state, including senate and house journals, to keep an index of all bills printed by order of either house of the general assembly; to i)repare abstracts of laws in other states and to furnish any data available regarding the results of such laws in actual practice, together with references to judicial decisions and interpretations upon such laws. The bureau shall furnish such other information rt-sperting legislative matters as may be useful and necessary to the members of the general assembly, anrl it shall make available such current information as will make all its data of present value. It shall be the duty of the legislative reference librarian to co-operate with the revisers of bills, hereinafter descril)ed, and he shall act as a co-ordinate member of their board in any exigency requiring a third member, or in any case where a reviser is tem- porarily unable to perform the duties of his office. Sec. 3. Two men of legal training and practice, who have had legislative experience, but who shall not be eligible to membership in either branch of the legislature during incumbency in this office, shall be appointed by the governor and confirmed by the senate, to be known as the revisers of bills, and to perform until removed for cause, the duties hereinafter prescribed; and any vacancy caused by the death, resignation or removal of a reviser of bills shall be filled by the governor. The revisers of bills shall perform their duties in the office of, and in connection with, the legislative reference bureau in the state library. Sec. 4. It shall Ix- the duty of the revisers of bills to examine, previous to their introduction, all bills and resolutions presented to either branch of the legislature, making such corrections as may be necessary in the text and references in clear and concise language and consistency with existing statutes, and to avoid repetitions and unconstitutional provisions. No bill or resolution, whether intro- duced by a member or a committee, shall be acted upon by either house until corrected and indorsed by the revisers of bills who shall, if the assembly be in .session, make their corrections upon bills and amendments within the time allowed by the rules of the senate and house of representatives. The revisers shall give assistance to mem- bers and committees in the drafting of bills, resolutions and amend- ments, if so requested. A reviser shall not oppose nor urge legisla- 364 Appendix lion; he shall not materially alter the substance of a bill or resolu- tion; and no one connected with the office shall communicale the substance of any bill or resolution without permission of its intro- Sec. 5. Whenever necessary- m the mtervals between the sessions of the legislature the revisers of bills may meet for work at the capitol, but they shall be required to be in actual session in the office of the legislative reference librarian from a date not less than thirty days prior to the opening of a regular session of the general assembly until the final adjournment thereof. Within three days after the general election of a general assembly the sergeant-at-arms shall forward immediately to all senators and representatives elect a sufficient number of blanks for the preparation of bills, together with a notice in the following form: To the Elect of the of . ■^'ou are hereby notified that the revisers of bills will be in session at the state library- in Montpelier, on and after and you are urged to prepare and forward to them at once any bills which you desire to introduce for enactment by the general assembly. Sergeant -at-Arms. Provided, however, that nothing in this act shall be construed as placing any limit upon the time allowed for the introduction of bills by the rules which either branch of the legislature may adopt. Sec. 6. The legislative reference librarian shall have a salary to be fixed by the governor and, with the advice and consent of the state librarian, he shall employ such assistance and incur such expense as may be necessary for the proper administration of this bureau. Upon his requisition, the sergeant-at-arms shall furnish, at the expense of the state, all such cabinets and supplies as may be necessary for the cataloging, indexing, and filing of materials and information collected by the bureau. The sum of five thousand dollars, or such portion thereof as may be necessary, is hereby annually appropriated for the purposes of this act. Sec. 7. The revisers of bills shall receive a salary of seven and one half dollars a day and necessary expenses for actual time spent and may employ at the expense of the state necessary clerical and stenographic assistance. Approved February 21, 1913. W^ISCONSIN." (Session Laws, 1913 Sec. 373 f.) Sec. 373f. 1. The said commission is also authorized and directed to maintain in the state capitol, for the use and information " Notice provisions authorizing investigations (sec. 1) and employ- ment of draughtsmen preceding each session (sec. 2). Appendix 365 of the legislature, the several state departments, and such other citizens as may desire to consult the same, a legislative reference room and a small working library, as complete as may be, of the several public documents of this and other states, and to purchase for said library standard works of use and reference. The said commission may also collect, summarize and index information, of a legislative nature relating to legislation of foreign countries, of states of this country, the federal government and municipalities. The said commission may also make such investigations into statute law, legislative and governmental institutions as will aid the legis- lature to perform its duties in the most efficient and economical manner. The said commission is also hereby authorized and directed to co-operate, during sessions of the legislature, with the secretary and superintendent of the state historical society of Wis- consin, as trustee of the state, with a view to a joint arrangement, by which the needs of the legislature in the matter of general books of reference may be met to the fullest possible extent; and said commission shall give such space within its rooms to books brought to the capitol by said society for such purpose, as may be jointly agreed upon between them. The librarian of the state library and the officers of state departments are hereby authorized to give or loan to the free library commission for the use of the legislative reference room such books and documents as will be useful in that room. The said free library commission is also authorized to give or loan to the state historical society or to the state departments any books and documents except those in current use in the legis- lative reference room. 2. The free library commission shall employ, during each legis- lative session and the two months next preceding each session, draughtsmen and such help as may be necessary for the draughting of bills. Sec. 172-23, Subd. 5 (Chap. 760, sec. 5, 1913). There is annually appropriated, beginning July 1, 1913, twenty-one thousand eight hundred dollars, payable from any moneys in the general fund not otherwise appropriated, for the free library commission for carrying out the powers, duties and functions provided by law for the legis- lative reference department of said commission. Pages 170-87, infra, give a more detailed account of the organi- zation of a number of these bureaus than can be learned from the mere text of the law. In addition to the bureaus specifically authorized by law, as was noted in the text, a number of state libraries have undertaken legis- lative reference work without specific legislation on the subject; see tabular statement p. 384-85. 366 Appendix 2 L^ws Relating to Other Official Bill-drafting AGEN'CIES.'* CALIFORNIA." Chapter 322. (1913.) An Act to establish a legislative counsel bureau and making an appropriation therefor. [Approved May 26, 1913.) The people of the State of California do enact as follows: Sec. 1. A bureau is hereby created to be known as the legislative counsel bureau which shall be in charge of a chief to be appointed by and act under the supervision of a board as herein provided to be known as the "legislative counsel bureau board." Said appointing board shall consist of five members, one of whom shall be the governor or any one acting for and at the request of the governor in that behalf from time to time. Two members of the board shall be chosen by the senate from its members for a term of four years subject to the power of the senate to at any time change such members. Two members of the board shall be chosen by the assembly from its members for a term of two years subject to the power of the assembly to at any time change such members. The two members chosen by the senate shall not be of the same political party, and the two members chosen by the assembly shall not be of the same political party. The first selection of said members chosen by the senate and assembly respectively shall be made prior to adjournrnent of the fortieth regular session of the legislature of the State of California, said terms to commence upon the taking effect of this act; provided, however, that if either or both the senate and the assembly shall fail to make such selections before the adjournment of said session. then the governor shall make such selections of two members from each house so failing to select for the terms herein provided, subject to the restrictions hereinbefore set forth as to party affiliation of members. Subsequent selections by the respective houses shall be made at the regular session of the legislature next preceding the expiration of said terms of office or any vacancy therein, and incum- bents on the board chosen by either house of the legislature shall be eligible to re-election. Vacancies in the board occurring during the interim between sessions of the legislature shall be filled by the governor, subject to the above restrictions as to the political affilia- tions of the appointees, such appointees to hold office until the succeeding session of the legislature. The chief shall be chosen " In addition it should be said that in practically all the states the attorney general is the legal adviser of the legislature as well as of the state officers. As to the desirability of having the bill-drafting done at his office confer Reinsch American Legislatures, p. 327-28. " A unique and interesting experiment in bill-drafting agencies apart from a reference library. Appendix 367 without reference to party affiliations, and solely on the ground of fitness to perform the duties of his office, and must have practical knowledge of the substantive and remedial law of the State of Cali- fornia. He shall hold office for the term of four years unless sooner removed between any regular or special session of the legislature by an affirmative vote of four members of the board upon charges made with a public hearing and published findings thereon, or by any regular or special session of the legislature without notice or trial, two thirds of the members of each house voting therefor. Sec. 2. It shall be the duty of the chief of the legislative counsel bureau, and the work of that bureau to prepare and assist in the preparation, amendment and consideration of legislative bills when requested or upon suggestion as herein provided. He shall devote his whole time and attention to forwarding the work of the bureau, and it shall be his duty to make such study as said board may direct of the laws of this state and other states as may the better enable the bureau to do its work, and advise, as occasion may arise, as to needed revision of the statutes. Sec. 3. The legislative counsel bureau and its chief shall prepare or assist in the preparation or amendment of legislative bills at the suggestion, in writing and as herein set forth, of the governor of the state, or of any judge of the supreme court or of the district courts of appeal or of the superior courts of the state, or of any committee of the senate or assembly of the legislature of the state. All such suggestions shall set forth the substance of the provisions desired or which may be needed with the reasons therefor. Such suggestion by a judge of the supreme court shall be filed with the clerk of that court. Such suggestion by a judge of a district court of appeal shall be filed with the clerk of that court. Such suggestion by a judge of a superior court shall be filed with the clerk of the district court of appeal of the district within which such superior court is located. When such suggestion is so filed with the clerk of the supreme court or of a district court of appeal, that clerk shall make and send to the permanent office of said bureau a certified copy of such suggestion, and all other suggestions shall be filed at said office and all such papers so received at such office shall be there per- manently filed and recorded and copies furnished to the chief of the legislative counsel bureau; all provided, that from the time the legislature of the state convenes until it is adjourned finally, the legislative counsel bureau and its chief shall give such consideration to and service concerning any bill before the legislature, which cir- cumstances will permit, and which is in any way requested by the governor of the state or the senate or the assembly or any com- mittee of the legislature having such bills before it for consideration and after such adjournment the chief of the legislative counsel bureau shall still remain so subject to such request by the governor of the state as to any bill still in his hands for rejection or approval or other action; provided, further, that neither the chief nor any employee of the bureau shall oppose or urge legislation; but the 368 Appendix bureau shall, upvm request, and so far as may be in its power, aid and assist any member of the legislature as to bills, resolutions and measures, drafting the same into proper form and furnishing to them the fullest information upon all matters in the scope of the bureau. Neither the chief nor any other employe of the bureau shall reveal to any person outside thereof the contents or nature of any matter which has not become a public record, except with the consent of the person bringing such matter before the bureau. Sec. 4. The chief of the bureau shall be in attendance on all sessions of the legislature and his permanent office shall be in the state capitol in Sacramento, but he may, at the pleasure of said board, maintain temporary offices at other places in the State of California. Sec. 5. The said board shall determine the salary of the chief which shall be payable in equal monthly installments, and of all other employes of said bureau and shall control all expenditures on behalf of said bureau. The members of said board shall not receive an\' salary or compensation, but they and the chief of the bureau shall be repaid all actual expenses incurred or paid by them in carrying out the provisions of this act, and shall file monthly with the state board of control itemized and sworn statements of all such expenses so incurred or paid during the preceding month. Sec. 6. The said board shall furnish said bureau with such pro- fessional, clerical and office and other assistants as may be necessary and incur such other expenses as may be necessary' for the effective work of the bureau. The material (including books and other publications) of the state library shall be made available to said bureau, and all the officers of the state, the University of California, and all departments, commissions and bureaus and other official state organizations, and all persons connected therewith, shall give the chief ready access to their records and full information and reasonable assistance in any matters of research requiring recourse to them or to data within their knowledge or control. The bureau may co-operate with any of the educational institutions of the state in any manner approved by the said board and such institutions. Sec. 7. All books, papers, records and correspondence of said bureau pertaining to its work, except copies furnished to or retained by the chief of what is filed at the permanent office of said bureau, and except memoranda made by him, shall be public records and shall be filed with and recorded and kept at the permanent office of said bureau, except as herein otherwise provided. See. 8. Ary and all persons receiving service from said bureau, as herein provided, may by request in writing filed with the bureau have all their personal papers and correspondence temporarily kept private and confidential, but said papers and correspondence shall become public records whenever the said board or the legislature shall so order or said written request is with- drawn. Appendix 369 Sec. 9. There is hereby appropriated out of the general fund not otherwise appropriated, for the sixty-fifth and sixty-sixth fiscal years, the sum of twenty thousand ($20,000) dollars for carrying into effect the provisions of this act. CONNECTICUT. {General Statutes. Revision of 1902, title 2, the General Assembly, p. 90.) Sec. 37. Duties of clerk of bills. — The clerk of bills shall assist members of the general assembly in drafting bills for public acts and resolutions of a public nature, and prepare amendments to or substitutes for bills or resolutions at the request of committees. Every bill or resolution favorably acted upon by any committee of the general assembly shall, before being reported to either branch thereof, be first submitted to the clerk of bills, who shall examine such bill or resolution in respect to its form, for the purpose of avoid- ing repetitions and unconstitutional provisions and insuring accuracy in the text and references, clearness and conciseness in the phrase- ology, and the consistency of statutes. He shall return to the com- mittee submitting it any bill or resolution that is not in correct form, with such corrections as he may propose in the form of a substitute or as amendments. He shall keep a record of each petition, bill for a public act, and resolution introduced in £he house or senate, and such record shall be so kept in detail that it will disclose where said petition, bill, or resolution may be found. Such record shall, at all times, be open to the inspection of members of the general assembly and to all executive State officials. (1901, ch. 1, sees. 2, 3, 4.) (Joint rules of the senate and house of representatives. Part of Rule X.)2» X. It shall be the duty of the clerk of bills to prepare bills for public acts and resolutions of a public nature and amendments at the request of any committee or member of the general assembly, and before any bill or resolution is favorably reported by the committee to which it has been referred it shall be submitted to the clerk of bills, who shall examine such bill or resolution and make such corrections therein as may be necessary for the purpose of avoiding repetitions and unconstitutional provisions, and of insuring accuracy in the text and references, clearness and conciseness in the phraseology, and consistency with existing statutes. Whenever a bill or resolution not bearing the indorsement of the clerk of bills as having been so examined shall be favorably reported, the clerk of the senate or house, as the case may be, shall immediately transmit the same to the clerk of bills for examination and indorsment. XIII 21" .... It shall be the duty of the committee, before any bill or joint resolution be engrossed, to immediately examine the same for the purpose of avoiding repetitions and of securing clear- ness, conciseness and accuracy in the text, without changing the ■ss, conciseness anu accuracy in me lexi 2" Register and Manual, 1913, p. 119-120. " ib. p. 120-121. 370 Appendix purport thereof. If the committee find that any correction should lx» made in the text or references, or in the title of any bill or jomt resolution, it shall, within five session days after the passage thereof, reix>rt it back to the House which last took action upori^ it, with the proposed correction in the form of an amendment. . . ." MASSACHUSETTS. The Massachusetts House of Representatives on January 2. 1913: Ordered, That the Committee on Rules be authorized to employ clerical assistance, and that the persons so employed be required to assist members of the House in the preparation of bills and re- solves, to perform such clerical services as may be required b>' the Committee on Bills in the Third Reading, and to assist the clerks of the several committees in drafting notices of hearings, in having the same published, in sending notices to persons interested and in seeing that dates of hearings are inserted in the bulletin; also that the action of the former speaker of the House, in employ- ing clerical assistance during the month of December, 1912, to prepare bills and resolves, and in assisting members-elect in pre- paring the same, with a view to facilitating the business of the incoming House, be confirmed, and that the Committee on Riiles be authorized to approve bills for the payment of said clerical service. (.House Journal, p. 42-43). (Massachusetts Manual . . . oj the General Court. 1913.) Rules of the Senate. 20. All bills and resolves for introduction on leave, resolutions, and petitions for legislation accompanied by bills or resolves cm- bodving the subject-matter prayed for, and all orders of inquiry which are intended for presentation or introduction to the Senate, and all reports of state officers, shall first be deposited with the clerk, and, prior to their presentation or introduction, shall be submitted bv him to the committee on Rules for Inspection. The committee shall examine the same for the purpose of ascertaining (1) whether the legislation proposed is plainly and specifically stated or already provided for; (2) whether such bills, resolves, resolutions, petitions and orders are in proper form; and (3) that compliance has been had with the rules of the Senate and the joint rules of the two branches. Everv such matter shall be returned by the committee on Rules to the Clerk not later than the third legislative day succeeding the day of its deposit with him, unless consent in writing to the longer detention thereof is filed with the Clerk by the member presenting the matter, and it shall be bv the Clerk submitted to the President and by him laid before the Senate not later than on the next legislative day after it is so returned. Bills, resolves and resolutions which have been laid before the Senate and introduced shall be read, and shall be, by the President, with the consent of the Senate, referred to the appropriate committees. Prior to such reference, the President, may, in his discretion, order bills and resolves, intended for intro- duction on leave or filed to accompany petitions, and resolutions. Appendix 371 intended for introduction, to be printed; and when he so orders they shall, after they are introduced, be printed under the direction of the Clerk. They shall retain, during all subsequent stages, their original numbers and shall also bear such new numbers as may be necessary. Every petition which is not accompanied by a bill or resolve shall be deposited with the Clerk and retained in his custody until a bill or resolve embodying the legislation prayed for shall be filed with him, w-hen he shall present the same to the committee on Rules, to be disposed of as provided above. The Senate may at any time by order make any other disposition of petitions and remonstrances in the hands of the Clerk. Petitions and remon- strances relating to matters already sent to committees shall be by the President referred to the appropriate committees. (28) (1891; 1893; 1894.) 21. The Committee on Rules shall make no change in the sub- stance or form of any matter referred to them in accordance with the preceding rule, without the consent of the member depositing the same, but upon the presentation or introduction of any such mat- ter to the Senate it shall be the duty of some member of the com- mittee on Rules, acting under the committee's instruction, to suggest- any failure to comply with the rules, and to ofTer such amendment or to propose such other action as is determined proper or necessary by the committee within the scope of its duties, as above set forth. If, upon such motion, before a petition is referred to a committee, the petitioner is given leave to withdraw because the petition is not in proper form, such action shall not be deemed to be a final rejection under Rule 54, and shall not prejudice the right of a mem- ber to present a petition for the same object conformably to the rules of the Senate and the joint rules of the two branches. (1893; — Partly embodied in Rule 20 of 1891.) 33. Bills and resolves when ordered to a third reading shall be referred to the committee on Bills in the Third Reading, whose duty it shall be to examine and correct them, for the purpose of avoiding repetitions and unconstitutional provisions, and of insuring accuracy in the text and references, and consistency with the language of the existing statutes; but any change in the sense or legal efTect, or any material change in construction, shall be reported to the Senate as an amendment. Resolutions received from the House or intro- duced or reported in the Senate shall, after they are read and before they are adopted, be referred, in like manner, to the committee on Bills in the Third Reading. When a bill, resolve or resolution has been so referred, no further action shall be taken until report thereon has been made by the committee. (26, 50.) (1817; 1836; 1882; 1888; 1890; 1891.) NEW YORK. {Consolidated Laws 1909. "Legislative Law," v. 3, p. 2116.) Sec. 24. Drafting and revision of bills. — The temporary president of the senate and the speaker of the assembly shall appoint such 372 Appendix number of competent persons as may be needed, not exceeding three, whose duty it shall be during the session of the legislature, on request of either house of the legislature or of any committee, member, or officer thereof, to draft bills, examine and revise proposed bills, and advise as to the consistency or other effect of proposed legislation. Such persons shall receive a compensation to be fixed by the tem- poran.' president of the senate and the speaker of the assembles and shall be entitled to their clerical and other necessar>' expenses, to be approved by such officers. (A Committee on Revision is provided for in the Assembly rules No. 19 and the work assigned to it is done by the bill-drafting department though the rule is not strictly enforced. Its duties are as follows:) 19. The Committee on Revision shall examine and correct the bills which are referred to it, for the purpose of avoiding repetitions and unconstitutional provisions, insuring accuracy in the text and references, and consistency with the language of the existing statutes. It shall also report whether the object sought to be accomplished can be secured without a special act, under e.xisting laws, or without detriment to the public interests, by the enactment of a general law, provided that any change in the sense or legal effect, or any material change in construction, shall be reported to the House as a recom- mendation and not as an amendment. All bills other than Senate bills which have not been amended in the House shall be so referred prior to their third reading, except a bill which has been made a special order on second and third reading. Each bill, other than Senate bills, unless otherwise ordered by the House or endorsed as having been prepared or examined by the legislative bill-drafting department, shall, before such bill is sent to the printer, be delivered by the clerk to the revision com- mittee. The revision committee shall examine such bills and shall have the power to correct or redraft the same in accordance with the provisions of this rule and so that the same shall conform to the provisions of rules eight and nine. SOUTH CAROLINA. (Code 1912. VI. p. 31: Sec. 23.) Sec. 23. Solicitors to Attend Sessions of and Assist IN Prep.a,RATION of Acts. The Circuit Solicitors, or so many of them as are deemed necessary by the Attorney General, shall attend the sessions of the General Assembly, and shall, under his direction, assist the Attorney General in drawing and in supervising the engrossing of all bills, and in the enrollment of all Acts and Joint Resolutions of each session; shall sec that the work is done neatly, promptly and correctly; and one of the said solicitors shall certify upon each Act, before it is ratified, that it is correctly en- rolled. Appendix 373 • The Attorney General shall employ such clerical assistance, in drawing, engrossing, and enrolling Bills, Resolutions, and Acts, as he may deem necessary. (Attorney General and Solicitors.) Sec. 716. Shall Advise General Assembly. He shall, when re- quired by either branch of the General Assembly, attend during their sessions, and give his aid and advice in the arrangement and preparation of legislative documents and business, and shall give his opinions upon questions of law submitted to him by either branch thereof, or by the Governor. BILL DRAFTING IN GREAT BRITAIN.^^ [Extract from Legislative Methods and Forms, by Sir Courtenay Ilbert, 1901, p. 84-95.] Parliamentary Counsel's Office. * * * * * -^^ The office was constituted by a treasury minute dated February 8, 1869, and issued when Mr. Gladstone was first lord of the treasury and Mr. Lowe (afterwards Lord Sherbrooke) was chancellor of the exchequer. Mr. Thring was appointed head of the office, with the title, revived for that purpose, of parliamentary counsel to the treasury, and was given a permanent assistant, and a treasury allowance for office expenses and for such outside legal assistance as he might require. The whole of the time of the parliamentary counsel and his assistant was to be given to the public and they were not to engage in private practice. The parliamentary counsel was to settle all such departmental bills, and draw all such other Government bills (except Scotch and Irish bills) as he might be re- quired by the treasury to settle and draw. The instructions for the preparation of every bill were to be in writing and sent by the heads of the departments to the parliamentary counsel through the treasury, to which latter department he was to be considered re- sponsible. On the requisition of the treasury he was to advise on all cases arising on bills or acts drawn by him, and to report in special cases referred to him by the treasury on bills brought in by private members. It was not to be part of his duty to write memoranda or schemes for bills, or to attend parliamentary committees, unless under instructions from the treasury. * 4: * * * * The staff of the parliamentary counsel's office still remains prac- tically the same as it was when the office was first established in 1869. The permanent staff consists of the parliamentary' counsel and the assistant parliamentary counsel, with three shorthand writers, an office keeper, and an office boy, and these together run what may be called the legislative workshop. The amount allowed for " "Exhibit 16" in 62d. Cong. 1st Sess. Sen. Doc. No. 7. 374 Appendix payments to members of the bar, working under the direction and on the responsibility of the parliamentan,' counsel, is usually esti- mated at an annual sum of i'1,500; but this amount is not always expended. Of the barristers employed, two at present attend regularly at the office, doing such work as may be required of them. But their attendance is purely voluntary' ; they are under no per- manent engagement; they are paid by fees in accordance with the amount of work done by them, and they have their own chambers and are at liberty to take, and do take, outside work. Some time in the month of November the parliamentary clerk to the treasury' usually sends round a circular to the other departments, requesting them to inform the treasury what departmental bills are likely to be required. All formal instructions for Government bills are sent by the treasury' to the parliamentary counsel, who is thus placed in the position of being draftsman to the Government and not to any particular department. The procedure adopted on receipt of the instructions will vary according to the character and importance of the measure. There will usually be a preliminan*- conference either with the minister who is to take charge of the bill, or with the permanent head of his department, or with both. In the case of minor departmental measures, the instructions first received may suffice for the immediate preparation of a draft much in the form in which it will be sub- mitted to Parliament as a bill. In the case of more important and elaborate measures, the stage of gestation is naturally longer. It is often necessary to prepare memoranda stating the existing law, tracing the history of previous legislative enactments or proposals, or raising the preliminar%- questions of principle which have to be settled. The first draft may take the form of a rough "sketch" or of "heads of a bill." The original draft, whether in the form of a bill or otherwise, is gradually elaborated after repeated conferences with the Minister, and with those whom he takes into his confidence. A measure will often affect more than one of the Government departments, and in those cases the departments affected will have to be consulted. The responsibility for seeing that this is done rests, prirnarily, with the initiating department; but, as a matter of convenience, the necessary communications are often made by the draftsman. In particular, the attention of the treasury ought to be directed to any legislative proposal involving expenditure of public money, and the parliamentary counsel, as an officer of the treasur>', is charged with the reponsibility for seeing that this duty is not overlooked. When there is conflict between the views of different departments on a subject of legislation, the parliamentary counsel, from his neutral position, may often find it possible to suggest a mode of harmonizing them. And his general responsibility for all Appendix 375 Government bills enables him to guard against the risk of one depart- ment bringing forward proposals inconsistent with those brought forward by another. When the draft of a bill has been finally or approximately settled, it is usually circulated to all the members of the cabinet for their information before introduction into Parliament, and the parlia- mentary counsel supplies the executive department concerned with a sufficient number of copies for this circulation. ****** Of course, however, the labors of the draftsman do not end at this stage. The publication of a bill brings suggestions for amend- ment, which may be forwarded by the minister or department for consideration. After the second reading these suggestions take the form of amendments on the notice paper, which will have to be daily scrutinized. In anticipation of the committee stage, the draftsman will often find it prudent to prepare, for the purpose of refreshing his own memory, and for the use of the minister in charge, notes on the several clauses, explaining the origin and object of the proposals which they embody, referring to the precedents on which reliance can be placed and noting the arguments which may be used or which may have to be met. As the committee stage approaches, and when it has been reached, the amendments will be the subject of discussion with the minister, and alterations or consequential amendments will have to be framed. If the bill goes to a committee of the whole house or to one of the grand committees, the draftsman may, perhaps, be expected to attend the debate and to give such assistance as he can in the way of framing or modifying amendments or meeting points. Where a bill is much amended in committee, it will require minute examination after the committee stage, for the purpose of seeing whether there are any errors to be corrected, inconsistencies to be removed, or consequential alterations to be made; and amendments will have to be framed for insertion at a later stage. Notes will also have to be written on various points; and the literature which thus gathers round a bill often attains to formidable dimensions. When a bill of great importance is in progress, it requires the constant and unremitting attention of the parliamentary counsel, to the exclusion of all other work. The minute of 1869 directed that the parliamentary counsel should report in special cases referred to him by the treasury on bills brought in by private members. But at present, except in the case of such references, the parliamentary counsel is in no way responsible for the preparation or criticism of such bills. ****** The objects aimed at by Mr. Lowe when he established the par- liamentary counsel's office in 1869 appear to have been (1) economy; 370 Appendix (2) better control over Government legislation with respect both to policy and to finance; and (3) improvement of the form of statutes. All these objects have been substantially attained. BILL DR-\FTIXG IN BRITISH COLONIES. In 1895 a series of questions relating to statute law was, at the instance of the Society of Comparative Legislation, London, sent by the British colonial office to the various colonial governments. Among these questions were the following: III. — Methods of Legislation. (a) By whom are drafts of legislative measures prepared? Is there any oflicial draftsman? If so, by whom is he appointed, to whom is he responsible, and what are his staff and duties? Do his duties extend to measures introduced by private or nonofficial mem- bers of the legislative body? The replies received were published in the journal of the Society of Comparative Legislation, volumes 1-2, and new series, volumes 1-2. Those received in answer to this particular question from the self-governing colonies are as follows: British North America. Dominion oj Canada. — For each house of the Canadian Parlia- ment there is a law clerk, an officer whose duties include those of a parliamentary counsel as well as those of a legislative draftsman. The law clerk of the senate is appointed by that body. The law- clerk of the lower house, in which the great majority of measures are introduced (10 out of 12 of the ministers usually belonging to that house), is also law clerk of the Government, and formerly (before confederation) held a separate appointment as such from the Go\-ern- ment. He is appointed by Mr. Speaker, and has one assistant. The preparation of measures for private members is not part of the law clerk's duties. Newfoundland. — There is an official draftsman called the law- clerk of the legislature, appointed by and responsible to the governor in council. His duties are to draft all bills introduced into both branches, including those introduced by private members; but in practice measures are frequently drafted by private members, with or without the assistance of the law clerk. He has no staff or assis- tants. The minister of justice has a general super\ision of all legis- lation, and particularly of Government measures. Australia. New South Wales. — 1. Drafts of legislative measures are pre- pared by the members of Parliament introducing them, or by some persons acting under their authority or by their direction. 2. There are two official draftsmen named "Parliamentary draftsmen." Appendix 377 3. They are appointed by the governor with the advice of the executive council. 4. They are in the department of the attorney general, and are responsible to him. 5. The staff are the two draftsmen and an assistant. 6. The duties of the draftsmen are (1) the preparation of bills for the ministers of the Crown; (2) the preparation of bills for private members on the request of the attorney general; (3) reporting to ministers on the introduction of any bill by a private member and on its passage from the legislative assembly to the legislative council; (4) reporting to the attorney general at his request on all by-laws and regulations of public bodies submitted to him for his opinion or approval; (5) reporting on any special matter submitted by any minister to the parliamentary draftsman. 7. The duties of parliamentary draftsmen extend, as above mentioned, to measures introduced by nonofificial members of Parliament. Queensland. — Drafts of legislative measures are prepared, in case of Government measures, under the direction of the department concerned, and usually by a member of the bar, under the supervision if desired, of the Crown law office. Measures introduced by private members are usually prepared under their own direction, aid being given occasionally from the Crown law office. There is no per- manent parliamentary draftsman. South Australia. — Drafts of legislative measures are prepared (1) by the attorney general; (2) by some member of the legal pro- fession specially selected for a particular bill, (3j by some competent official, though not a member of the legal profession, who has special knowledge, e. g., the clerk of the parliaments, the principal returning officer of the Province, the military commandant; and bills of supply and appropriation by the clerk of assembly; (4) public bills intro- duced by private members are drafted by themselves or by whom the\' appoint. There is no official draftsman. Victoria. — - Measures for submission to Parliament are prepared by the parliamentary draftsman under the direction of ministers. The parliamentary draftsman is an officer of the public service, appointed by the governor in council, and attached to the depart- ment of the attorney general, to whom he is directly responsible. His duties are to prepare all Government bills and draft amendments therein. He also, when desired, drafts bills for private members, and as a general rule all such bills, by whomsoever drafted, are examined by him, and, when necessary, specially submitted to the attorney general or the premier for his consideration. Western Australia. — By various persons, viz., the attorney general, a minister, or by a private member. There is now an official draftsman, appointed by the governor in council, on the recom- mendation of the attorney general to whom he is responsible. He 378 Appendix has no staff, and his duties are indeterminate. They do not extend to measures introduced by private members. As a critical comment upon the results obtained by the Par- liamentar>- Counsel's office the following excerpts are printed from The Government of England by A. Lawrence Lowell, \'olume 1, pages 356-358, published in 1908: =3 "A public bill introduced by a private member may be drafted by him, or by counsel he has employed for the purpose. There is no systematic super\ision o\er such bills, no stage at which their drafting is reviewed, and whether well or ill drawn, they are not likely to be much improved in their passage through Parliament. Government bills, on the other hand, which relate to England, and are not of a purely formal and routine character, are now all drafted by the Parliamentary' Counsel to the Treasury', or by his assistants under his direction. They are prepared under instructions from, and after consultations with, the departments concerned, and are sometimes recast several times before they are introduced into Parliament. They are then assailed by a host of critics, both in and out of the Houses. * * * Amendments and new clauses are adopted during the debates in committee. These changes are usually made with the consent of the minister in charge of the bill, and the Parliamentary Counsel, as well as the permanent head of the department concerned, is often present under the gallery to give his advice; but still the amendments mar the fair handicraft of the draftsman, and an effort has to be made to improve the text either in the report stage or in the House of Lords. * * * "The Parliamentary Counsel's office has certainly improved the statutes ver>' much by making them more concise, uniform and orderly; but their form is far from perfect. * * * To a layman, and even to a foreign lawyer, an English act is often difficult to understand, and sometimes misleading. * * * j^- Joes not seem necessary that English acts should be quite so obscure as they often are. Nor, judging from the amount of litigation that some- times occurs over their interpretation, does this defect appear to be always counterbalanced by remarkable legal certainty. The most celebrated case is that of the Education Act of 1902. * * * The majority of the Court of Appeal was of opinion that the statute did not oblige (the West Riding of Yorkshire to make certain payments). The House of Lords rexersed the decision; but for Parliament to pass the Act in such a form that the Court of Appeal could regard it as failing to effect what everybody knew to be one of its main objects is surely an amazing example of bad drafting. Nor was this the result of amendments in the House of Commons, for the pro- vision in question went through unchanged; and although in this case the fault is said not to lie at the door of the Parliamentary Counsel, it shows none the less the defects of the system." '' From Chamber of Commerce of the United States of America Referendum No. 0, p. 8-10. Appendix 379 The constitutions of the self-governing dominions of the British Empire contain provisions that the procedure of legislation is, in the absence of specific direction otherwise, to accord with parlia- mentary procedure in England. It follows that many of the self- governing dominions have officials who correspond in their functions to the Parliamentary Counsel of England. FRANCE. "In France the method of legislation stands halfway between the American and the English methods. The ministry studies a subject, prepares a bill dealing with it, and launches the bill into the Chamber. There, the bill passes into the hands of a committee which amends and, perhaps, quite remolds it, then returning it to the Chamber with an elaborate report." [Bryce, "Conditions and Methods of Legislation" in University and Historical Addresses (1913), page 94.] GERMANY. "The German Empire makes great use of expert commissions, such as that which elaborates its great civil code, and it has very competent lawyers upon or attached to its official staff. * * * The text of bills of such magnitude as the bill for consolidating in- surance laws * * * is generally published a long time, — sometimes several years, — before the (legislative) discussion begins, so as to give the government an opportunity to introduce such modifications as may seem appropriate after full consideration of the results of public discussion." [Ilbert, Methods of Legislation (1902), page 30]. LIST OF PUBLICATIONS OF LEGISLATIVE REFERENCE DEPARTMENTS.^" Compiled by Grace Sherwood, Rhode Island State Library. Dec, 1913. CALIFORNIA. Legislative and Municipal Reference Department." (Of State Library) Bulletin No. 1. Hints on Drawing Legislative Bills. Issued Dec. 1, 1908. 12 p. Bulletin No. 2. River Improvement Laws in other States and Countries. Issued December 29, 1908. 29 p. ^^ Only material in print is meant to be included. All bureaus have on file numerous MSS. and typewritten reports, bibliographies and investigations. Publishing represents but a very small portion of any legislative reference bureau's activities. " This separate "Department" has been done away with but a Legislative Reference Librarian is retained. 380 Appendix CONNECTICUT.^ Bulletin No. 1. List of References to Material on Employers' Liability and Workmen's Compensation. 27 p. 1913. INDLANA. Legislative Reference Dep.artmext. {01 State Library.) Bulk-tin No. 1. Local Option. 2 p., maps: 1908. Bulletin No. 2. Index to Governors' Messages. 1816-1851. 13 p. 1908. Bulletin No. 3. Guarantee of Bank Deposits. 12 p. 1908. Bulletin No. 4. Hints on Bill Drafting. 9 p. 1910. Bulletin No. 5. Digest of the Laws of Indiana of Special Application to Women and Children. 27 p. 1912. Bulletin No. 6. Inheritance Taxation. 9 p. 1912. Bureau of Legislative and Administr.a.tive Information Bulletin No. 1. United States and Indiana Constitutions, anno- tated. 52 p. 1913. Bulletin No. 2. Drainage Laws. IOWA. Legislative Reference Department. (In Law Librarian's Charge.) Selected List of References on the Valuation of Public Service Corporations. KANSAS. Legisl.\tive Reference Department. (Of the State Library.) Bulletin No. 1. Unicameral versus Bicameral Legislative Bodies. 1913. MASSACHUSETTS. (No Separate Department.) Foreign Laws in the State Library. 311 p. 1911. Hand-list of .American Statute Law. 634 p. 1912. MICHIGAN. Legislative Reference Department. (Of State Library.) Bulletins. Constitution of the State of Michigan, 1850, annotated for the L'se of the Constitutional Convention of 1907, Sept., 1907. (No. 1.) 78 p. ** Most of the items given under Connecticut in the list in Spec. Libs, for Dec., 1912, were typewritten, not printed. Appendix 381 First State Constitution, 1835; Proposed Constitution of 1867;. Proposed constitution of 1873. Sept., 1907. (No. 2.) 69 p. Local, special and private Legislation; Municipal Charters; Guber- natorial veto; Initiative and Referendum; — as provided for and regulated by the Constitutions of the several States. Sept., 1907. (No. 3.) 24 p. Bulletin No. 4. Legislative Reference List Employers' Liability and Workmen's Compensation. 1911. 17 p. _ Bulletin No. 5. Laws of the various States relating to a Minimum Wage for Women and Minors. 1913. Laws of the various States relating to Presidential Primaries. Feb., 1912. 25 p. Laws of the various States relating to Vagrancy (with Bibliography) June, 1910. 29 p. History of Railroad Taxation in Michigan (with Bibliography) by W. O. Hedrick. 1912. 69 p. Constitutional Compilations: Provisions of various State Constitu- tions compared with similar Provisions in the Michigan Constitu- tion of 1850. 1907. 28 nos. Amendment and Revisions. 30 p. Boundaries, Seat of Government and Departments. 22 p. Bribery and Corruption. 16 p. Education and Public Schools. 80 p. Elections. 70 p. Eminent Domain. 13 p. Executive Department. 103 p. Exemptions (from Taxation.) 13 p. Finance and Taxation. 81 p. Impeachment and Removal from Office. 31 p. Judicial Department. 252 p. Labor Interests. 10 p. Legislative Department. 284 p. Liquor Traffic: Provisions for its Regulation or Suppression. 5 p. Military Affairs. 28 p. Miscellaneous Provisions and Addenda. 60 p. Municipal Corporations: Provisions relating to Counties, Townships, Cities and Villages. 119 p. Preambles and Bills of Rights; Provisions which have no cor- responding Sections in the Michigan Constitution. 37 p. Private Corporations. 114 p. Public Lands and Forest Protection. 16 p. Rights of Women. 4 p. State officers ; Salaries; State Boards and Institutions. 101 p. 382 Appendix Mortgage Taxation and Commission Government: reprinted articles by M. A. Schaffner for the Grand Rapids (Mich.) Evening Press. 1908. 18 p. MISSOURI. Legislative Reference Department. (Of Library Commission.) Classified Index of Bills prepared for 47th General Assembly, Mis- souri. March 17, 1913. 34 p. NEBRASKA. LEGISL.A.TIVE REFERENCE BUREAU. (Under Board of Regents, University of Nebraska). Bulletin No. 1. Nebraska Legislative Reference Bureau. July 20 1912. Report on the Nebraska State Archives. Nebraska Blue Book for 1913. NEW YORK. LEGISLATIVE REFERENCE SECTION. ' (Of State Library.) Legislative Bulletins. Nos. 1-7, 9-11. 13, 15, 18, 21, 24. 28, 32, 36, 38. Index of Legis- lation, 1890-1908. Nos. 16, 19, 22, 25, 29, 33, 39. Review of Legislation, 1901-1908. Chapters also issued separately. Nos. 17, 20, 23, 27, 31, 35, 37. Digest of Governors' Messages, 1902-1908. No. 8. State Finance Statistics, 1890 and 1895. 58 p. 1897. No. 12. Trend of Legislation in the United States. 40 p. 1900. No. 14. Taxation of Corporations in New York, Massachusetts, Pennsylvania and New Jersey. 198 p. 1901. No. 26. Index of New York governors' messages, 1777-1901. 1906. No. 30. Legislative Reference Lists. 44 p. 1906. Contains Lists on Life Insurance, Direct Nominations, Employment of Blind and Inheritance Tax. No. 34. A Summary of the Compulsory Attendance and Child Labor Laws of the States and Territories of the United States. 114 p. 1907. No. 40. American Ballot Laws, 1888-1910. 220 p. 1911. (Beginning with No. 20, the three or more bulletins of each year are also issued in one volume under title "Yearbook of Legislation.") Appendix 383 Reference Lists. No. 6. Central Control of Police. 8 p. 1899. Rev. ed. 8 p. 1900. No. 7. Municipal Home Rule. 8 p. 1900. Ed. 2. 8 p. 1904. No. 8. Municipal Ownership. 8 p. 1900. No. 12. Corrupt Practices. 7 p. 1905. NORTH DAKOTA. Legislative Reference Department, (Of Public Library Commission.) Bulletin No. 1. Permanent State Tax Commissions. 96 p. 1910. Bulletin No. 2. Good Roads: An Outline of State Road Systems. 96 p. 1910. Bulletin No. 3. Budgetary Laws. 20 p. 1912. OHIO. Legislative Reference Department. (Of State Library.) State Library published: Need of A Legislative Reference Department for Ohio. Dec, 1909. 16 p. Initiative and Referendum. 1908. 22 p. Supp. Feb. 15, 1909. 13 p. Ohio Canals. 1910. 16 p. Legislative Reference Department: Initiative and Referendum. 1911. 79 p. Nomination and Election of United States Senators. 1911. 15 p. Workmen's Compensation or Insurance Against Loss of Wages Arising Out of Industrial Accidents. 1911. 49 p. Public Service Commission Laws; A Comparison of the Laws of New York, Wisconsin, Massachusetts, New Jersey and Mary- land. 1911. 18 p. Regulation of Public Utilities; A Comparison of the New York and the Wisconsin Public Utilities Bills. 1911. 36 p. PENNSYLVANIA. Legislative Reference Bureau. Bulletins: Bill Drafting. 1912. 21p. Constitution of Pennsylvania, Analytically Indexed and with Index of Prohibited Legislation. 1912. 118 p. Special Legislation in Pennsylvania. 1912. 11 p. 384 Appendix E- < H Z bj X H c/5 U z da (>a H U E- t/3 O 3 < '^ .^ c ^ o u H o s I < j5 < .S2 Si :: > r c 2 o O Dh *0 e I u a l •a c 5 >. o i > "3 o a a .5 IS 3 CJ •3 rt -J o > ^§ II O 1913. Failed to pass. Work to be taken up by the State Uni- versity. (Prescott.) (Sacramento.) state Library. (Hartford.) State University, Boulder, Colo. State Library. (Atlanta.) Failed to pass bill for separate dcpt. 1913. Com. empowered to conduct . . . under a paid secretary. (Spring- field.) (Indianapolis.) Law Library. (Des Moines.) State Library. (Topcka.) Some work done by the State Library. .n J o 1 4) J3 >. .Q o 3 o o.^ c P o X (AuKUSta.) Baltimore City gov't. (Baltimore.) State Library. (Boston.) State Library. (Lansing.) Recommended by the Governor, 1913. Some work done by the State Library. (St. Paul.) i a Z 2 a 2 N 6 Z r-" c C5 U .Co -H C ^ • — ' '^ o d ClOO 2 X o o u 5 o O rt S o J= H 5< s s 2 "": - o ^ .2.2 O 3 S .- o iJ M o X Q JJ >Crt2 >. "".3 d C I; . ■^ to" J fc = 2 C J; O-gS i a Z 3 — oa rt — to S •o rt.ra 3 . rt to o<^ ■S.2 i C 3 -S^ « 'S 3 oaG 2 o . to c JCQ .CO 3.to •-•- . . v^w-O-^^Cm Or- — >— <^ to - '^'".J °£ m to aao. O ij iJ DDQ "o o o . ■«■&'« : J33,2 1 =• 1 a < < : C c c d c ,) C. aa = 1 iu k . 2 : 2SS5 Appendix 385 Ciif •n H rt t: ^ i5 •° -S ^ K. =i t« "^ El J^-^*JHH-fcJ Q*J ^^ rt cJ^H njCi a! O -^ ij ^-> n -2 2 ..2 Pa g.o.9 5 --S P\>, ^^ C ^ ^ t-l K^ 4_ rt- n 2 rt gfta 22 §2-- '"' .^-' I- 5 Jg o >, D •c S^ o. ■^ O J (u ■a •„,!=!> ri '^ taOSn ^ c3 Hi W ° «« O o .00 .• ■ lO s® 22 ojc »i-H ^ ►J o o mQq i 2i-o > o o t. o o C Ji O oi2 25 -z.- OiOiQi, OS n a 3 it 55 ^^ Si .2 o 6-S UQ K > > ^ ^^ Erratum : Page 385. The State names in first column from Mo. to Wash, should be dropped one line lower. 386 Appendix RHODE ISLAND. Legislative Reference Bureau. (Of State Library.) Bulletin Xo. L The Veto Power in the Several States. 1908. 57 p. Bulletin No. 2. Automobile Laws of the New England States, New York, New Jersey and Pennsylvania. 190S. 106 p. Bulletin No 3. Summary' of the General Banking Laws of the Commercial States. 1908. 334 p. Bulletin No. 4. Officers, Boards and Commissions of Rhode Island. 1911. 69 p. Bulletin No. 5. Employers' Liability and Workman's Compensa- tion. 1912. 69 p. Bulletin. No. 6. General Constitutional and Statutorv Provisions Relative to Suffrage. 1912. 99 p. Circular No. 1. Rhode Island Towns and Cities. Expenditures for Highways and Bridges, 1898-1909. 1911. 6 p. SOUTH DAKOTA. Legislative Referexce Division. (Of Department of History.) Bulletin No. 1. Digest of Governors' Messages of South Dakota. Bulletin No. 2. Digest Constitutional Debates and Supreme Court Reports. Bulletin No. 3. Legislative Handbook. Bulletin No. 4. Workmen's Compensation. Bulletin No. 5. Prisoners on Public Highways. TEXAS. Legislative Reference Division. (Of State Library-.) Bulletin No. 1. Finding-List of Books. 1911. 51 p. VERMONT. Legislative Reference Department. (Of State Library.) Finding List Legislative Reference Department. 1912. Ill p. VIRGINIA. Legisl.\tive Reference Department. (Of State Library.) Legislative Reference Lists. 1908. 1910. 1912. Appendix 387 No. 7. 1906. No. 8. Bulletin No. 1. 1906. Bulletin No. 2. Bulletin No. 3. Expenditures Bulletin No. 4. Bulletin No. 5. 1906. Bulletin No. 6. 1906. Bulletin 19 p. Bulletin 1906. Bulletin No. 9. Bulletin No. 10. Bulletin No. 11. (Out of print.) Bulletin No. 12. Bulletin No. 13. 37 p. 1908. Bulletin No. 14. Bulletin No. 15. Bulletin No. 16 1908. Bulletin No. 17. Bulletin No. 18. Bulletin No. 19. (Out of print.) Bulletin No. 20. print.) 70 p. Bulletin No. 21. vised.) 43 p. Bulletin No. 22. Bulletin No. 23. vised.) 86 p. Bulletin No. 24. Bulletin No. 25. WISCONSIN. Legislative Reference Library. (Of Free Library Commission.) Railway Co-employment. (Out of print.) 27 Lobbying. (Out of print.) 31 p. 1906. _ Corrupt Practices at Elections: Contributions and (Out of print.) 35 p. 1906. Exemption of Wages. (Out of print.) 39 p. 1906. Municipal Electric Lighting. (Out of print.) 22 p. Trust Company Reserves. (Out of print.) 24 p. Taxation of Trust Companies. (Out of print.) Municipal Gas Lighting. (Out of print.) 18 p. Bovcotting. (Out of print.) 26 p. 1906. Blacklisting. (Out of print.) 22 p. 1906. The Initiative and Referendum: State Legislation. 1907. The Recall. (Out of print.) 21 p. 1907. Primary Elections: The Test of Party Affiliation. Proportional Representation. Juvenile Courts. 41 p. 1908. Telephones: Interchange of 29 p. 1908. Services. 20 p. Mortgage Taxation. 60 p. 1908. Municipal Home Rule Charters. 38 p. 1908. Tenement House Legislation: State and Local. 1908. 70 p. Accident insurance for Workingmen. (Out of 1909. The Initiative and Referendum. (No. 11 Re- 1910. Certified Public Accountants. 44 p. 1910. Corrupt Practices at Elections. (No. 3 Re- 1911. State Legislation Concerning Tuberculosis. 1912. The Initiative and Referendum State Legislation Legislative Reference List. No. 1. Rate Regulation. No. 2. State Aid for Roads. No. 3. State Civil Service. 388 Appendix 5. BIBLIOGRAPHY OF LEGISLATIVE REFER- ENCE WORK. (A few of the more important titles are starred [*].) BOOKS AND ARTICLES. General and Descriptive. Beard, Charles F. American Politics and Government. 1911. p. 540-43. Baxter, Rex M. Legislative reference library. {Arena, v. 39. p. 674-81. June, 1908. Bell, Finley F. Work and Program of the Illinois Legislative Reference Bureau. (In Pub. Lib., 19: 59-64, Feb., 1914.) .A. discussion following the reading of this paper at the 1913 meeting of the Illinois Library .Association in which Miss Mary J. Booth, John B. Kaiser, C. B. Lester, and Dr. Herbert Putnam, and Mr. F. W. Schenk took part. It is repro- duced in part in Public Libraries (above) and in the .\pril. 1914, number of the Law Library Journal. Brigham, Johnson. Legislative reference work without an appropriation. (A. L. A. Bui. 1: 200-12. July, 1907.) * Brindley, John E. Development of Legislative reference movement. {Iowa Journal of History and Politics, v. 7; 132-41. Jan., 1909.) Bruncken, Ernest. .Aid in legislation, California State reference bureau. {Sunset Magazine, v. 19: 160.) . Defective methods of legislation. {Amer. Pol. Sci. Rev. May, 1909. p. 167-79.) . The legislative reference bureau. ( News&' notes of California libraries, v. 2: 96-105. Feb., 1907.) . Sociological department of California state library. ( News 6* notes of California libraries, Apr., 1909, 4 p.) * Bryce, James. The methods and conditions of Legislation in our time; an address delivered before the New York State Bar Association, Jan. 24, 1908. {Col. Law Rev. 8: 157-71, Mar., 1909. Also in N. V. S. Bar Assn. Reports, 31: 156 sq., reprinted in his Univer- sity and Historical Addresses, p. 73-106; 1913. Campbell, Robert A. Legislative and municipal reference department. ( News & notes of California libraries. Oct., 1910, p. 534.) * Chamber of Commerce of the United States of America. Referendum no. 6 on the question of the establishment by Con- gress of a Bureau or Bureaus of Legislative Reference and Bill- drafting. [20 p.] Washington, D. C. Nov. 8, 1913. Appendix 389 Partially reprinted in The Nation's Business, Nov. 15, 1913. p. 4-5. An important and non-partizan presentation of data though not up to date on all matters of legislation relating to this work. The referendum by the Cham- ber was completed Dec. 23, 1913, and resulted in a vote of 625 for and 16 against the proposition. ♦Chamber of Commerce of the United States of America. Two Important Referenda Concluded. {Nation's Business 2: 4; Jan. 15, 1914. * Cleland, E. Indiana legislative reference dept. {Spec. Libs. v. 1: 58-60. Oct., 1910. Bib. p. 60-61. . Legislative Reference. (In Am. Pol. Sci. Rev. 7: 444-47, Aug., 1913.) A review of 1913 Legislation relating to legislative reference bureaus; the error relating to Illinois is corrected in the Nov., 1913 issue p. 652.) . Legislative reference. {Nat. Mun. Rev. v. 2: 729-30.) A review of 1913 legislation. nt^ ^ ■, \ . Legislative reference. {Amer. Pol. Set. Rev. v. 4: 409-11.) Comment on the work of the Wisconsin Legislative Reference Library. Yale Review, Nov., 1907. p. 233-36.) Commons, John R. One way to get sane legislation. {Amer. Rev. of Rev. v. 32: 722-23. Dec, 1905.) Partially reprmted in Charles A. Beard's Readings in Amer. Govt. 1910. p. 473-74. Congressional Legislative Reference Department. [From a report to Congress by Herbert Putnam, Librarian of Congress.] (In Spec. Libs. 3: 13-16. Feb. 1912.) Danger in the movement for the establishment of legislative and municipal reference departments. {Spec. Libs. v. 2: 33. Apr., 1911.) * Dudgeon, Matthew S. The Law that Stands the Test. (A. L. A. Bui. 7: 206-10.) Kaaterskill Conference Proceedings. 1913. * . The Wisconsin legislative library. {Yale Review, v. 16: 288-95. 1907. Education for legislators. {Bost. Transcript, Dec. 6, 1905.) From Rev. of Reviews: also in Nebraska State Journal, Mar. 30, 1906. Establishment in Indiana. (Ind. State Library Bui. 14: 1-2, June, 1906.) Fisher, E. A. Legislative reference. {Amer. Pol. Sci. Rev. v. 3: 223-26, My., 1909.) Flack, Horace, E. Scientific assistance in Law Making. (Am. Pol. Sci. Assn. Proceedings, Feb. 1914, in press.) * Freund, Ernst. The Problem of intelligent legislation. (Am. Pol. Sci. Assn. Proceedings, v. 4: 69-79.) Good check for the riot of legislation. World's Work, 11: 6812-13, Nov. 1905. 390 Appendix Howe, Frederic C. Wisconsin, an experiment in Democracy. 1912. p. 46-48. Ideal state librarv in an ideal location. {Lib. J. V. 30: C248-C51. Sept., 1909. • Imhoff, One Mar>'. Cataloguing in Legislative Reference Work. {Spec. Libs. 3: 149-54, Sept., 1912. Also in A. L. A. Proceedings, 1912. p. 238-15; and reprinted separately. Johnston, R. H. Library of the bureau of railway economics. {Spec. Libs. v. 3: 1-4, Jan., 1912. Jones, Chester Lloyd. Economical legislation in Wisconsin. {Pearson's v. 25: 517). • . Statute law making in the L'nited States. Bost. 1912. (Chap. 1, p. 20-27.) . The use of expert aid in the betterment of American Statute Law. (Am. Pol. Sci. Assn. Proceedings, Feb., 1914, in press.) Kaiser, John Boynton. Discussion of the Illinois Legislative Reference Bureau Law. {Pub. Libs. 19: 62-64, Feb., 1914. . Law and Legislative Library' Conditions in Texas. {Texas Magazine 5: 35-38, Feb., 1912. Also in La'd! Library Journal 4: 27-30, Jan., 1912. . A National Legislative Reference Bureau. (The Nation, Mar. 30, 1911. p. 315.) . Scientific Law Making. (The Independent. 73: 641-42, Sept. 11, 1913.) .\ brief survey of 1913 Legislation relating to legislative reference bureaus. . The special library and the librarv school. (In Lib. Jour. 37: 175-79, Sept., 1912.) Kennedy, J. P. Legislative Reference Work and its Opportunities. (Nat. Assn. State Librarians.) (A. L. A. Bui. 2: 278-84.) King. J. E. Province of the state library when restricted to the service of the legislature. (A. L. A. Bui. v. 3: 292-94. Sept., 1909.) Lapp, John A. Legislative reference dept. {Public Officials Mag. Indianapolis. July, 1910. 7 p.) Legislative clearing-house. {Nation, Dec. 14, 1905. v. 81: 478.) Also in N. Y. Evening Post, Dec. 8. 1905; see also communication m issue for Dec. 16. 1905. by Alfred W. Booream. Legislative reference bureau; symposium. (City Club of Chic. 5tt/. Dec. 9, 1908. v. 2: 195-206.) *Legislative Reference Bureaus. (Discussion in Am. Pol. Sci. Assn. Proceedings, Feb., 1914, in press.) By Dr. McCarthy, Mr. Lapp and Professor Merriam. Legislative Reference "scheme." (In Spec. Libs. 4: 125-26, June, 1913.) Reprinting an editorial from the New York Journal of Commerce of AprU 19, 1913. Appendix 391 Legislative Reference Section. [Texas State Library] (In News Notes of Texas Libraries 1: 3-4, Nov., 1910.) Legislative reference work and the reporting of legislation; dis- cussion. (A. L. A. Bui. v. 4: 703-13, Sept., 1910.) Legislative reference work in Wisconsin. {World's Work. v. 18: 11529, May, 1909.) Lester, Clarence B. A Legislative Expert. {Brown Alumni Monthly, April, 1906.) . Legislative reference (Ind. State Lib. Bui. 17: 1-2, Oct., 1906.) . Legislative reference work and the law library. {Law Library Journal. Oct., 1908. 6 p.) * . The present status of Legislative Reference Work. (In A. L. A. Bui. 7: 199-202.) Kaaterskill Conference Proceedings. 1913. Lobbying, old and new. {London Times, Apr. 14, 1906.) Also in Weekly Edition, April 20, 1906. McCarthy, Charles. Federal legislative reference department. {Survey, v. 28: 298. May 18, 1912. . The future of the State library. {Proceedings of National Assoc, of State Libraries. June 30, 1906. 8 p.) • Legislative Reference Bureau. (Chicago City Club Bui. Dec. 9, 1908. 5 p.) . Legislative reference work. {Lib. J. v. 30: 242.) * . Remedies for corrupt and inefficient legislation. (Amer. Pol. Sci. Assn. Proceedings v. 4: 80-102.) * -■ The Wisconsin idea, N. Y. 1912. (Chap. 8, p. 196-232.) McKirdy, James. Legislative Reference Bureau of Pennsylvania. (58 Pitts. L. J. 9-16, Dec. 17, 1910; also in 59 Penn. L. Rev. 151-64, Dec. 1910.) Merchants Association of New York City. List of business or commercial, civic, board of trade, municipal legislative reference libraries and departments of public and other libraries devoted to these topics. June, 1909. 2 p. Merwin, Samuel. Putting the Lobbyists on the Square. {Success Magazine, Feb., 1907.) Michigan — State Library. Legislative Reference Department. (In its Quarterly Bulletin 4: 11-12, Apr.-June, 1913. Minnesota tax commission library. {Spec. Lib. May, 1911. v. 2: 41-42.) Mowry, Don E. Growing complexities of Legislation. (77th General Assembly Record of Ohio. Jan. 27, 1906.) A national museum of comparative legislation. {Social Service, Oct., 1906.) 392 Appendix New and important phase of library work. {Wis. Jour, of Educ. June. 1906.) Official legislative adviser. {Outlook Feb. IS, 1905.) Owen, Robert L. , ^ r^ , c • \ Proposed National Reference Bureau. (Am. Pol. Sci. Assn. Proceedings, Feb., 1914, in press.) •Phillips, John B. ^ , ^ o j- Scientific assistance in law-making. ( Utuv. of Colorado Studies, V. 5, no. 1, p. 5-16. Dec, 1907.) Photostat in the Legislative Reference Department of the Con- necticut State Library'. (In Spec. Libs. 4: 42-43, Feb., 1913.) From the Harlford Daily Times, Feb. 8. 1913. Ray, P. Orman. , r. i- • tv- ^' Introduction to Political Parties and Practical Politics, N. \. 1913. p. 446-48. Reinsch, Paul S. American Legislatures and Legislative Methods, 1907. p. 295- 98. Richberg, Donald. Legislative Reference Bureaus for Political Parties. (Am. Pol. Sci. Assn. Proceedings, Feb., 1914, in press.) Sanborn, John Bell. Some Recent Legislative Tendencies. {Col. Law. Rev. S: no. 5, My., 1908. Sane legislation. {Pub. Policy, Dec. 16, 1905.) Schaffner, Margaret. Wisconsin legislative reference library-. {Iowa Journal of Hist, and Politics 4: 475-79, July, 1906. Sheldon, Addison E. Legislative reference dept. {Nebraska Library Bui. No. 3, Nov. 1906.) • Sherwood, Grace. List of Publications of Legislative Reference Departments. (In Spec. Libs. 3: 201-04.) Reprinted with additions, infra p. 379-87. Snodgrass, Robert. Legislative assistance or, Some aspects of reform in legislation. (Penn. Bar Assoc. Report, 1908. p. 3-29. Phil., 1908.) The Socialist Partv Information Department and Research Bureau. {Nat. Mun. Rev. 2: 500-01.) The bureau is in Chicago under the direction of Mr. Carl D. Thompson. Sterne, Simon. The prevention of defective and slip-shod legislation lAmer. Bar Assn. Report, v. 7, p. 275-301.) Stimson, Frederic J. The legislative reference of the future. (A. L. .\ Bui. Brclton Woods Conference v. 3: 301-08, Sept., 1909.) . Need of Parliamentary Draftsmen. (In his Popular Law Making. 1910, p. 361-63.) Appendix 393 Tolman, F. L. Reference problem of the state library. (A. L. A. Bui. Sept., ♦ VVallis, Mary S. The Library' side of the Department of Legislative Reference Baltimore. {Spec. Libs. 1: 73-75, Dec, 1910.) Whitten, Robt. H. Comparative legislation in legislative reference work. (Nat Assoc, of State Libraries. Proceedings June 30, 1906. 5 p.) . Development of special libraries. (Lib. J. Dec 1909 p. 546-47.) * 7—- ^^^ library of the N. Y. Public Service Commission. (Spec. Libs. v. 1: 18-20, Mar., 1910.) . Special libraries {Lib Journal, v. 31: 12-14. Jan., 1906.) —. Two decades of Comparative legislation. {Law Library Journal, Oct., 1909. 6 p.) Why Special libraries? {Pub. Libs. 15: 238, June, 1910.) Uisconsm Legislative Reference Department. (L.J. 30: C242-46.) Wisconsm Legislative reference work. {Wis. Lib. Bui. 2: 53-6 July 1906.) Woodruff, Clinton Rogers. Improvement of legislation through co-operation and trained ^ experts. {Ltvirig Church, Feb. 6, 1909, 5 p.) *— — • Legislative reference work and its opportunities. {Pub. Lti. Oct., 1908. V. 13: 300-303.) Same in Nat. Assoc, of State Libraries. Proceedings. 1908. v. 2: 278-83. QUALIFICATIONS OF THE LIBRARIAN. Bostwick, Andrew Linn. Relation between the Municipal Library and the Legislator. (In Spec. Libs. 4: 163-65, Sept.-Oct., 1913. Dudgeon, M. S. Qualifications of Legislative and Municipal Reference Libra- rians. (In Spec. Libs. 2: 114-15, Dec, 1911.) — — . Scope and Purposes of the Special Library. (In Spec. Libs. 3: 129-32, June, 1912: especially p. 131-32.) U. S. — ^Library, Senate Coqimittee on. Legislative Drafting Bureau and Reference Division. 145 p. Wash., 1913. (62d Cong. 3d Sess. Sen. Doc. 1271.) See especially testimony on p. 107. 114-15. 122, 128, by Dr. McCarthy, Speaker Clark, Mr. Mann, Mr. Beaman and Mr. McKirdy. LAWS. Alabama General Acts 1907, p. 318. Illinois Laws 1913, p.' 391-92 Indiana Acts 1913, p. 694-96 Michigan Public Acts 1907, p. 405-06 Mebraska Session Laws 1911, p. 310-13 New Hampshire Laws 1913, Chap. 206 394 Appendix LAWS (continued). Laws 1907, p. 382 1913, p. 8-10, 604, 639 1913, Chap. 149 1909, p. 208 1911, p. 76 1913, p. 250-51,769-770 Chap. 38 1907, no. 1471 1908, no. 1554 1913, Chap. 935 1907, p. 395-96 1909, Chap. 70 1912-13, p. 14-16 Sec. 373. f. 1913, Chap. 772, sec. 55 and Sec. 172-23. 1913, Chap. 760, Sec. 5. LAWS RELATING TO OTHER OFFICIAL BILL-DRAFTING AGENCIES. North Dakota Ohio Oregon Pennsylvania Rhode Island South Dakota Te.\as Vermont Wisconsin Rev. of 1909 Public Laws Acts and Resolves Sess. Laws General Laws Session Laws Session Laws Laws California Connecticut Massachusetts New York South Carolina Laws 1913, Chap. 322 Gen. St. Rev. 1902, title 2, Sec. 37, Rules of the Sen. and House. Parts of Rules X and XIII. Register and Manual, 1913, p. 119-20. House Journal Jan. 2, 1913, pp. 42-43 Manual 1913, " Rules of the Senate;" 20, 21. 33 Consolidated Laws 1909 Legislative Law V. 3, p. 2116 Assembly Rules No. 19 Code 1912,v.l,p.31,§23, §716. BILLS. National. H. R. 31536 H. R. 4703 H. R. 12155 H. R. 1720 H. R. 18720 S. 8335 S. 8337 H. R. 3396 S. 1240 H. Res. 35 S. Res. 45. In 62 Cong. 3d Sess. Sen. Report 1271 other bills are suggested on p. 21, 23, 62. 61st Cong. 3d Sess 62nd " 1st 3d 63d 1st Appendix 395 Stale (Selected) A. B. 970 S. B. 872 S. B. 951 (same as A. B. 970) s. B. 1490 s. B. 252^ s. B. 274 H. B. 28 H. B. 47 A. B. 37 A. B. Int. 1936 S. Int. 1452 California, 1913 Illinois, 1913 New York, 1913 DOCUMENTS AND REPORTS. American Bar Association. — Legislation, Committee on Improving Methods of. Report. (In Amer. Bar Assn. Reports. 1886. p. 284-86.) * American Bar Association. — Legislative Drafting, Special Com- mittee on. Report, 49 p. 1913. Contains as Appendix A, "Summary of Existing State Laws and Rules relat- ing to Legislative Drafting and Reference Agencies, together with an analysis of measures designed to establish similar agencies in other states ana in Washington, by H. Goddard, of the Legislative Drafting .-Association of New York. As Appen- dix B, "Report to the Committee on existing agencies for rendering expert assistance to members of Legislatures," by J. David Thompson. An exceed- ingly illuminating document. Arizona — Governor. Message, 1913. Baltimore. — Legislative Reference, Dept. of. Annual report, 1907-. Bait. 1908-. . New Department of Legislative Reference, Baltimore. Re- marks at a round table. Feb. 26, 1907, by Theodore Marburg and others. 43 p. 1907. Bryce, James. Statement p. 7-22. (In Hearings before the committee on the library. House of Representatives, on various bills proposing the establishment of a congressional reference bureau. Feb. 26 and 27, 1912. 114 p. Wash. 1912.) Connecticut — Governor (Woodruff). Message, Jan., 1907. p. 5-7. Georgia, H. C. R. 18. 1913. (Authorizing a committee to investigate and report upon the subject of a legislative reference bureau for Georgia.) Illinois — Governor (Deneen). Message, Jan. 4, 1911. (p. 27 of Sen. Journal.) Massachusetts — State Library. Annual report, 1912, p. 9. Minnesota — Governor. Message, 1913. ^' See as introduced Jan. 29 and as amended June 3, 1913. 396 Appendix National Association of State Libraries — Legislative Reference, Report. Special Committee on. (2 L. L. J. 80-81, June, 1910.) Ohio — State Library-. Need of a legislative reference department for Ohio. Articles bv H. W. Crist, C. B.Galbrcath and J. A. Lapp, with biblio. 27 p. Springfield, 1910. Progressive National Committee. Legislative Reference Bureau. (In its Progressive Service Documents. D. 1, March, 1913, p. 4-5, 10-12; D. 6, March, 31, 1913, first quarterly report of the National Progressive Service, p. 19-22.) Statement of the Purposes and Advantages of a Legislative and Municipal Reference Bureau for the State of Illinois. [4 p., 1911.] Statement of the Purposes and Advantages of a Legislative and Administrative Reference Bureau for the State of Illinois. [4 p., 1913.] U. S. — Library, House Committee on. Congressional Reference Bureau. Hearing on various bills proposing the establishment of a Congressional Reference Bureau. Feb. 26 and 27, 1912. 114 p. Wash. 1912. . . Legislative Counselors. (62d Cong. 3d Sess. H. Rept. 1534.) . . Legislative Reference Bureau in Library of Congress. 4 p. 1913. (62d Cong. 3d Sess. H. Rept. 1533.) U.S. — Library, Senate Committee on. Legislative Reference Bureau of the Library of Congress, 7 p. 1913. (63d Cong. 1st Sess. S. Rpt. 73.) . . Legislative Drafting Bureau and Reference Division. 145 p. Wash. 1913. (62d Cong. 3d Sess. Sen. Rpt. 1271.) A report favoring S. 8337 as amended and containing as "Appendix A" 62d Cong. 1st Sess. S. Doc. No. 7. supra and as "Appendix B" the Hearings, supra. U. S. — Library of Congress. Legislative reference bureaus. Letter from the librarian of Congress transmitting special report relative to legislative reference bureaus. Wash. Govt. Print, off. 1911. 36 p. (62d Cong. 1st Sess. Senate. Doc. 7; also in its Annual Report for 1911, p. 183—237 ) . — '-. Report. 1912. p. 108-09. . . 1913. Wash. 1913. "Appendix IV: Legislative Reference Bureau, Bills and Reports in Con- gress." (p. 247-6L) Washington — State Library. Washington, Legislative reference department. 9th Biennial report. 1906. p. 29-31. Wisconsin — Free Library Commission. Legislative Reference Department. 30 p. Jan., 1908. {Cir- cular of information, No. 6.) Ed. 2, 30 p. 1911. Ed. 1 was reprinted in Paul S. Reinsch's i?efldj»£5 onAmer. State Govt. 1911. p. 63-74. Wisconsin — Governor (McGovern). Message Jan. 12, 1911, p. 29-30. Appendix 397 A List of References on Bill-drafting, Statutory Con- struction AND THE Interpretation of Statutes. Based, with additions, on "A Select List of Books on Statute Law" in Chester Lloyd Jones's Statute Law Making (Pref. p. Lx-x) and James McKirdy's "Works on Bill Drafting, Statutory Construction and Kindred Subjects," in his Bill Drafting, a paper read at the Annual Meeting of the National Associa- tion of State Libraries, Ottawa, Canada, June, 1912, published at Harrisburg, 1912. The Bibliography attached to this pamphlet also appeared in Si>ec. Libs. 3: 19-20. Feb., 1912.28 American Bar Association — Legislation, Committee on Improving Methods of. Report. (In Amer. Bar Assn. Reports, 1SS6. p. 284-86.) Judge Baldwin, Chairman. American Bar Association — Legislative Drafting, Special com- mittee on. Report. 49 p. 1913. Anson, Sir W. R. Law and Custom of the Constitution. 2 vols. Oxford. 1896. Beal, Edward. Cardinal Rules of Legal Interpretation. London. 1908. Bedwell, C. E. A., Ed. The Legislation of the Empire. 4 vols. London. 1909. Bentham, Jeremy. A General View of a Complete Code of Laws. Nomography; or, the Art of Inditing Laws. . Introduction to the Principles of Morals and Legislation. London. 1823. — ; — . Theory of Legislation. 2 vols. Boston, 1840. Bill-drafting. (Exhibit 10 of Letter from the Librarian of Congress Transmitting Special Report Relative to Legislative Reference Bureaus. 62d Cong. 1st Sess. S. Doc. No. 7.) This Doc. No. 7 was also published in the Report of the Librarian of Con- gress, 1911, p. 183-237, and as Appendix A to 62d Cong. 3d Sess. S. Report Bill-drafting. (See especially the testimony of C. B. Lester, Charles McCarthy, James McKirdy and Ernest Bruncken in House Hearings. See Bryce, post.) Binney, Charles Chauncey. Restrictions upon Local and Special Legislation in State Con- stitutions. Philadelphia. 1894. Bishop, Joel Prentiss. Commentaries on the Written Laws and their Interpretation. Boston. 1882. Black, Henry Campbell. Constitutional Law. St. Paul, Minn. 1910. . Handbook on the Construction and Interpretation of the Laws. St. Paul, Minn. 1911. =^ Certain titles in the preceding bibliography are appropriate to this list also. 398 Appendix Brown, W. Jethro. The Underlying Principles of Modern Legislation. London. 1912. Bruncken, Ernest. Defective Methods of Legislation. {Amer. Pol. Sci. Rev. 4: 167-79, Mv. '09.) . Hints on Drawing Legislative Bills. 12 p. 1908. (Cali- fornia State Lihrary, Legislative Reference Bulletin No. 1.) Brvce, James. Testimony. (In Hearings of the Committee on the Library, House of Representatives, Feb. 26, 1912.) Hearings were published separately and also as "Appendix B" to 62d Cong. 3d Sess. S. Report 1271. Buckalew, C. R. An examination of the Constitution of Pennsylvania. 1883. Coode, George. Legislative E.\pression, or the Language of the Written Law. (In Great Britain — Poor Law Commissioners. Report on Local Taxation. 1843). First published as an introduction to the appendix of this report. Reprinted in Lau' Library X. S. v. 44, 1848. . Ed. 2. 1852. Cooley, Thomas M. A Treatise on the Constitutional Limitations. Boston. 1903. Craies, William Feilden. A Treatise on Statute Law. London, 1906. Dealey, James Quayle. Our State Constitutions. Philadelphia. 1907. Dicey, A. V. Conflict of Laws. London. 1908. Dickinson, Reginald. Summary of the Constitution and Procedure of Foreign Parlia- ments. London. 1890. Dillon, John F. Commentaries on the Law of Municipal Corporations. 5v. Bost., 1911. Especially Chap. 5 (v. 2) : Ordinances and By-Laws. . Statute and Constitutions. Albany. 1875. Dwarris, Fortunatus. Treatise on Statutes. Albany. 1871. Endlich, G. A. Commentaries on the Interpretation of Statutes. Jersey City. 18S8. Flack, Horace E. Scientific Assistance in Law Making. (In Amer. Pol. Sci. Assn. Proceedings, F"eb., 1914, in press.) Followed by discussions from Dr. McCarthy, Mr. Lapp, and Professor Merriam. Appendix 399 Freund, Ernst. Das Offentliche Recht der Vereinigten Staaten von Amerika. 387 p. 1911. {Das Offentliche Recht der Gegenwart. v. 12.) . Police Powers. Chicago. 1904. . The Problem of Intelligent Legislation. (Amer. Pol. Sci. Assn. Proceedings 1907; 4: 69-79.) Function of the Legislative Expert. (Editorial) Calif. L. Rev. 255-56, Mar., 1913. Gael, Samuel Higgs. Legal and General Composition. London. 1840. Gilbert, Frank B. Statutes; Review of Legislation. Albany. 1903. (N. Y. State Library Legislation Bulletin 22b.) Gilfry, Henry H. Precedents. Decisions on Points of Order with Phraseology in the United States Senate. Washington. 1909. Goodnow, F. J. Comparative Administrative Law. 2 v. N. Y. 1893. Great Britain — House of Commons. Manual of Procedure in the Public Business of the House of Commons. 3d ed. London. 1912. Griggs, John W. Lawmaking. (Am. Bar Assn. Reports. 1897.) Hardcastle, H. The Construction and Effect of Statute Law. Ed. 3. London. 1901. Hawkins, F. Vaughn. (Remarks) in Thaver's Preliminary Treatise on Evidence. Apx. C. p. 585. Hinds, Asher C. Digest and Manual of the Rules and Practice of the House of Representatives of the United States. Washington. 1908. . Hinds' Precedents of the House of Representatives of the United States. 8 v. Washington. 1907. Hutchins, F. E. Construction — Some of its Uses and Abuses. (Ohio State Bar Assn. Reports, 1897.) Ilbert, Sir Courtenay. Legislative Methods and Forms. Oxford. 1901. . Methods of Legislation. London. 1912. Jenkyn, Sir Henry. British Rule and Jurisdiction beyond the Seas. Oxford. 1902. See Preface. Jones, Chester Lloyd. Statute Law Making in the United States. Boston. 1912. Reviewed by Professor J. \V. Garner in S III. Law. Rev. 74-76, May, 1913, and by Thomas J. Parkinson in 13 Col. Law Rev. 562-63. The Use of Expert Aid in the Betterment of American Statute Law. (Amer. Pol. Sci. Assn. Proceedings, Feb., 1914, in press.) 400 Appendix Lapp, John A. ^ ' ., . . Hints on Bill Drafting. 9 p. 1910. (Ind. St. Liby. Legis. Ref. Dept. Bulletin Xo. 4.) Lieber, Francis. . , . , ^ Legal and Political Hermeneutics; or, Principles of Interpreta- tion and Construction in Law and Politics. St. Louis. 1880. McCarthy, Charles. r. , c- • a Remedies for Legislative Conditions. (Am. Pol. Sci. Assn. Proceedings, v. 4: 69-89-102). 1907. . The Wisconsin Idea. New York, 1912. Especially p. 194- 232. McConachie, Lauros G. Congressional Committees. X. V. 1898. McKirdv, James. Bill' Drafting. 21 p. Harrisburg. 1912. McQuillin, Eugene. A Treatise on the Law of Municipal Corporations. 6 v. Chicago 1912. Mahi, Robert von. Die Abfassung der Rechtsgesetze in Staatrecht, \olkerrecht, und Politik. 2 v. Tubingen, 1862. See II: 375-613. An elaborate discussion of the best methods to be pur- sued in preparing measures destined to become laws in Germany, (of. Freund, supra, p. 71.) Making and Revision of Law. (In Amer. Pol. Sci. Assn. Proceedings 4: 69-140.) 1907. Papers by Ernest Freund, Charles McCarthy, C. B. Lester. M. S. Dudgeon, J. Jenks, and others. Maxwell, Peter Benson. Interpretation of Statutes. 4th ed. London. 1905. Mill, John Stuart. Representative Government. People's ed. 1876. p. 39. Monnett, F. S. Statuton.' Construction. (Ohio State Bar Assn. Reports, 1895.) Munson, F. G. The Drafting of Federal Statute Law. {American Law Review 43: 121-28, Jan.-Feb., 1909.) Oliver, A. L. Statutory Revision. (Mo. Bar Assn. Reports, 1908.) Ordronaux, John. Constitutional Legislation. Phil. 1891. Parkinson, Thomas I. Legislative Drafting. N. Y. 1912. {Publications of the Acad- emy of Political Science. Ill: 142-54.) Patton, John W. Festina Lente. {Penn. Law Rev. 59: 203-14.) Prentice, \V. P. Police Powers. N. Y. 1894. Reinsch, Paul Samuel. American Legislatures and Legislative Methods. N. Y. 1907. Appendix 401 Russell, Alfred. Police Powers. Chicago. 1900. Sanderson, J. F. Validity of Statutes in Pennsylvania. Phil. 1898. Sedgwick, Theodore. Rules which govern the Interpretation and Construction of Statutory and Constitutional Law. Ed. 2. N. Y. 1874. Smith, E. Fitch. Commentaries on Statute and Constitutional Law and Statu- tory Construction. Albany. 1848. Stimson, Frederic Jessup. American Statute Law. 2 v. 1886. . Federal and State Constitutions. Boston. 1908. . Popular Law Making. N. Y. 1910. Story, Joseph. Conflict of Laws. Boston. 1883. Sutherland, G. Necessity for Greater Care in Making Laws. Ohio Law Bui. 54: 173-76, May 10, 1909; also in Chi. L. N. 41: 378, June 19, 1909. Sutherland, J. G. Statutes and Statutory Construction. 2 v. Chicago. 1904. Symonds, Arthur. The Mechanics of Law Making. London. 1835. Thring, Lord Henry. Practical Legislation. Boston, 1902. U. S. — Senate. Senate Manual containing the Standing Rules and Orders of the United States Senate. Washington. 1909. Wade, William P. Retroactive Laws. St. Louis. 1880. Wharton, Francis. Conflict of Laws. Rochester, 1905. White, Thomas Raeburn. Commentaries on the Constitution of Pennsylvania. Phil. 1907. Wilberforce, Edward. Statute Law. London. 1881. Willard, Ashton R. A Legislative Handbook. Boston. 1890. Wisconsin Free Library Commission. Legislative Reference Department. 30 p. 1911. (Circular of Information No. 6. Ed. 2.) Especially p. 10-21. Wyman, Bruce. Principles of the Administrative Law Governing the Relations of Public Officers. St. Paul. 1903. 402 Appendix 6. SUGGESTED CLASS PROBLEMS ON LEGIS- LATIVE REEERENCE WORK. University of Illinois Library School. Legislative Referenxe Work: Problem L 1. Describe the New York State Library's Year Book of Legislation, mentioning particularly its scope, and parts, and explaining its use and system of classification. 2. In what states is the weekly payment of wages compulsory? Problem H. 1. What would you place at the disposal of a legislator asking for material that would aid him in drawing up a state law on any one of the following topics. Name definite titles and indicate in addition other types of material you would find. (Choose one of the following only.) a. Old age pensions. b. Minimum wage law for women workers. c. To abolish the public drinking cup. d. Employers' liability. e. Colonies for epileptics. f. To restrict immigration. Problem IH. 1. Find a compilation of laws relating to industrial education in this country. 2. What section of the constitution of Delaware, 1897, relates to the bribery of voters. 3. How much monev was appropriated for the care of the University of Minnesota Campus, August 1, 1910-July 31. 1911?^ 4. Are street cars included in the term "motor vehicles" as the term is used in the law of Maryland which licenses motor vehicles? 5. Find the title of a treatise on the French law of responsibility for automobile accidents. Optional Question. 6. Prepare a short list of select references to material >ou would make available to a California legislator wishing exact knowl- edge in regard to California's right to pass a law preventing the Japanese from owning or leasing land in California. Appendix 403 III. MUNICIPAL REFERENCE. 1. Ordinances and Laws Relating to Municipal Reference Work. BALTIMORE. Laws of Maryland, 1906, Chapter 565. Entitled "An Act to add three additional sections to Article 4 of the Code of Public Local Laws of Maryland, entitled 'City of Balti- more,' sub-title 'Charter,' to follow immediately after Section 208, and to be known as Sections 208A, 208B and 208C, creating a new Department, to be known as the Department of Legislative Refer- Sec. L Be it enacted by the General Assembly of Maryland, That three additional sections be added to Article 4 of the Code of Public Laws of Maryland, entitled "City of Baltimore," sub-title "Charter," to follow immediately after Section 208, and to be known as Sections 208A, 20SB and 208C, creating a new Department, to be known as the Department of Legislative Reference, and to read as follows: Sec. 208A. There shall be a Department of Legislative Reference of the Mayor and City Council of Baltimore. The head of said Department shall consist of a Board composed of the Mayor of Baltimore, the City Solicitor, the President of the Johns Hopkins University, the President of the Municipal Art Society, and the Presi- dent of the Merchants and Manufacturers' Association of Balti- more City; and the members of said Board shall serve without pay. The said Board shall employ a competent statistician as its executive officer, to organize and conduct the said Department; and the said executive ofificer shall hold office from the first day of January, 1907, during good behavior, and shall be subject to removal by the said Board, or a majority thereof, for incompetence or neglect of duty. Sec. 208B. It shall be the duty of said executive ofificer to in- vestigate and report upon the laws of this and other States and cities relating to any subject upon which he may be requested to so report by the Mayor of Baltimore, any committee of the City Council or the head of any city department; to accumulate all data obtain- able in relation to the practical operation and effect of such laws; to investigate and collect all available information relating to any matter which is the subject of proposed legislation by the General Assembly of Maryland or the City Council of Baltimore; to examine acts, ordinances and records of any State or city, and report the result thereof to the Mayor of Baltimore, any committee of the City Council, or the head of any city department requesting the same; to prepare or advise in the preparation of any bill, ordinance or resolution when requested so to do by any member of the City Council; to preserve and collate all information obtained, care- fully indexed and arranged so as to be at all times easily accessible 404 Appendix to city officials and open to the inspection of the general public; to perform such other duties as the said Board may prescribe; and to make a full and comolete report thereof on or before the first day of P>bruar>- of each and ever>- year to cover the work for the previous fiscal year ending December thirty-first. . ^ .. Sec. 20SC. The Board of Estimates shall provide, m the Ordi- nance of Estimates for the year 1907 and annually thereafter, for the payment of the salary of said executive officer, which shall not be less than S2,000 per annum, and also a sum sufficient to pay all other expenses of the said Department of Legislative Reference. CHICAGO. {Chicago Code, 1911, p. 761.29) CH.A.PTER LXX. BURE.\U OF ST.\TISTICS. 2380 BURE.'\U EST.\blished] There is hereby established a bureau in the executive department, to be known as the bureau of statistics. 23S1 City St.\TISTICIAN-OFFICE created.] There is hereby created the office of city statistician. He shall be appointed accord- ing to law, shall be the head of the bureau of statistics, and shall act as librarian of the municipal library. There shall be in said bureau an assistant city statistician and such other employes as the city council may by ordinance provide. 2382 Duties.] It shall be the duty of the city statistician to collect, compile and publish, whenever directed so to do by the citv council or the mayor, statistics and information relating to the city of Chicago, and statistics relating to the government and operation of other municipalities. He shall keep on file all reports, printed or published by the city, or any of its departments, relating to the government, management or control of said city, or any of its departments, and shall perform such other duties as may from time to time be required of him by the mayor. An Ordinance.^" CRE.\TING the BURE.A.U OF INFORMATION AND PUBLICITY. Be it ordained by the City Council of the City of Chicago. Sec. 1. There is hereby created a bureau in the executive depart- ment of the municipal government of the City of Chicago which shall be known as the Bureau of Information and Publicity and shall embrace a Commissioner of Information and Publicity, a Chief Statistician and such investigators, assistants and employes as may be provided by ordinance of the City Council. Sec. 2. There is hereby created the office of Commissioner of Information and Publicity. He shall be appointed by the Mayor in the manner provided by law and shall have charge of the general " Repealed by the next ordinance. ^ This ordinance had not been put into operation nor the bureau organized. (Dec. 1913.) Appendix 405 management and control of all matters and things pertaining to said bureau. Sec. 3. There is hereby created the office of Chief Statistician. He shall be appointed by the Mayor in the manner provided by law and shall act as municipal librarian and shall perform such other duties relating to the conduct of said bureau as may be required of him by said Commissioner. Sec. 4. Said Commissioner and said Statistician shall, before enter- ing upon the duties of their respective offices, each execute a bond to the City of Chicago in the sum of five thousand ($5,000.00) dollars, with sureties to be approved by the City Council, conditioned for the faithful performance of the duties of their respective offices. Sec. 5. The salary of said Commissioner of Information and Publicity is hereby fixed at the sum of five thousand ($5,000.00) dollars per annum. The salary of the said Chief Statistician is hereby fixed at the sum of three thousand ($3,000.00) dollars per annum. Sec. 6. It shall be the duty of said Commissioner to cause to be collected and compiled under his supervision, information relating to all branches of the municipal government and, in so far as it may be of material assistance in the conduct of the municipal govern- ment of the city, he shall collect and compile or cause to be col- lected and compiled, information relating to the conditions and activities of other municipalities or governments. Sec. 7. It shall be the duty of said Commissioner to keep on file all reports printed or published by the City of Chicago, or any of its departments or bureaus; and also to collect and compile or cause to be collected or compiled, statistics and information con- cerning public service corporations operating under grants from the City of Chicago or other municipalities, including the ordin- ances, laws or statutes under which such public service corpora- tions operate; and also to report upon request of the Mayor or the City Council, or any committee thereof, upon the laws of any other city or municipal corporation, and to accumulate all public data possible in relation to the practical operation and effect of any such laws; and also to investigate and collect all available informa- tion and data regarding any matter which is the subject of proposed litigation by the City of Chicago, and to properly file, index and preserve all information and data collected and obtained by him. Sec. 8. All books, papers, documents and records of any depart- ment or bureau of the municipal government of the City of Chicago shall be open to the inspection of said Commissioner. Sec. 9. Said bureau shall be open to the public and the public shall, subject to such reasonable rules and regulations as may be prescribed by said Commissioner, have access to and may consult all files and documents of said bureau. Sec. 10. That Sections 2380, 2381 and 2382 of the Chicago Code of 1911 be and the same hereby are repealed.'^ " See preceding ordinance for text of sections repealed. 406 Appendix Sec. 11. This ordinance shall be in full force and effect from and after its passage. Passed Jan. 22, 1912. [The same committee, to whom had been referred (March 24, 1913). an order to place the Municipal Reference Library in charge of the Chicago Public Librar>-, submitted a report recommending the passage of the order. Unanimous consent was given for the consideration of the said report. Aid. Richert moved to concur in the report, and to pass the said order. The motion prevailed and the said order was passed. The following is the said order as passed:] Where.aS, An ordinance was passed by the City Council, January 15, 1912, creating a Bureau of Information and Publicity, whose functions were to absorb those of the Bureau of Statistics and Munici- pal Reference Library, and Whereas, The Budget of 1913 does not contain an appro- priation for such Bureau of Information and Publicity, which fact renders said Bureau inopjerative for the present and the Municipal Reference Library has been continued as before notwithstanding the repeal of the ordinance placing it in charge of the Bureau of Statistics, and \\'here.a.s. The Chicago Public Library has recently organized and installed a Civics Room which in many respects parallels the Municipal Reference Librar>% and \Vhere.a.S, a merging of the Bureau of Statistics and Municipal Reference Library with the Civics Department of the Public Library would save the City a considerable sum by preventing duplication of effort and expenditure and at the same time strengthen the re- sources of the Municipal Reference Library and add to the efficiency of this feature of the Chicago Public Librar>-'s work, and Whereas, By such amalgamation of forces the Municipal docu- ments obtained from other cities of the United States and of Europe would be unified instead of being scattered through the various libraries, therefore, // is hereby Ordered, That from and after March 26, 1913, the Mu- nicipal Reference Library in the City Hall shall be placed in the charge of the Chicago Public Library with full control as to the organization of its materials and the conduct of its work, provided, however, that the said Municipal Reference Librarv' shall be maintained as heretofore in the room now provided, with such interchange of printed materials with the main collection of the Chicago Public Library as will best serve to promote the interests thereof and of the Civics Room of the Chicago Public Library, And be it further Ordered, That the officials in the Municipal Reference Library' shall render to the City Statistician such assistance in the prosecution of his work as shall be found possible and reason- able, including such service of the stenographer as may be required by the statistician, A nd be it further Ordered, That on and after said date above men- tioned the said statistician shall not act as librarian of the said Appendix 407 Municipal Reference Library, but shall continue to act as City Statistician and shall maintain his office and headquarters as at the present time located in the City Hall. [The same committee, to whom had been referred (March 24, 1913), an order directing heads of departments to set aside copies of reports and documents published for use of the Municipal Refer- ence Library, submitted a report recommending the passage of the order. Unanimous consent was given for the consideration of the said report. Aid. Richert moved to concur in the report, and to pass the said order. The motion prevailed and the said order was passed, by yeas and nays.] The following is the said order as passed : Ordered, That all heads of departments issuing departmental reports or other documents from time to time be and they are hereby directed to set aside for the use of the Municipal Reference Library and the said Public Library, 100 copies of each of said reports and documents as may be found useful in procuring, by exchange, docu- ments published by cities elsewhere in the United States and other countries, such reports and documents to be used by the said Muni- cipal Reference Library and the Chicago Public Library in making such exchanges with other municipalities. Ordered March 31, 1913. Bureau of Statistics and Municipal Library.^^ Salaries and Wages — City Statistician $3,000.00 Assistant City Statistician 1,320.00 Junior Stenographer 960.00 $5,280.00 Furniture, fittings and library 40.00 Printing, stationery and office supplies . . . 912.00 Services, benefits, claims and refunds .... 10.00 Total $6,242.00 CINCINNATI. An Ordinance No. 631-1912. Authorizing the use by University of Cincinnati of portion of City Hall for Municipal Reference Bureau and prescribing conditions of such use. Be it Ordained by the Council of the City of Cincinnati, State of Ohio: 32 This sum appropriated in 1913 was transferred to the Public Library, with the exception of the salary of the City Statistician, for the use of the Municipal Reference Library according to the foregoing ordinance. 408 Appendix Sec. 1. That the University of Cincinnati is hereby granted permission to occupy and use, for the establishment and main- tenance of a Municipal Reference Bureau, such space or quarters in the Cit\- Hall as may be assigned for said purposes by the Director of Public Service; and said Director is hereby requested to provide suitable quarters or space, for said purpose, adjacent to or in the neighborhood of the Council Chamber: such use to be upon the following terms and conditions: a. Said bureau to be for the use and information of the City Council, the several city officers and departments and all such citizens of the city who may desire to consult same. b. Said bureau to be under the direction, supervision and charge of a Director of Municipal Reference Bureau, who shall be elected by the Board of Directors of the University of Cincinnati upon the nomination of the President of the University and confirmed by this Council, shall be an expert in political science, political economy and public law, shall hold ofifice during good behavwr and shall be subject to removal only in accordance with the rules governing the appointment and removal of members of the faculty of the University of Cincinnati. c. It shall be the duty of said Director to collect and compare the ordinances of this and other cities and the laws of this and other states, and to report upon the laws and ordinances of other states and cities, as well as those of Cincinnati and the State of Ohio, pertaining to any subject upon which he may be requested to report by his Mayor, any committee or member of the City Council, any city officer or the head of any city department; to collect all available information relating to any matter which shall be the subject of proposed legislation by the City Council; to prepare or advise in the preparation of any ordinance or resolution when requested to do so by the City Solicitor; to collect such information as may be useful to the City of Cincinnati in the preparation of state legis- lation and to advise and assist in the preparation of measures for introduction in the General Assembly of the State of Ohio, when requested to do so by the Mayor, City Solicitor or any committee of the City Council; to preserve and collect all information obtained and carefully index and arrange the same, so that it may be at all times easily accessible to the members of the City Council, other city officials ard to the general public for reference purposes; to secure such books, pamphlets, periodicals, documents and other literature from the University Library, the Public Library of Cin- cinnati and other libraries and sources as may have material of use to the City Council or other city officials or as may have bearing upon any question or questions under discussion or consideration by the public officials of the City of Cincinnati herein mentioned, and to keep same on file in the quarters of said Bureau, temporarily or permanently, according to the time for which such literature may be needed or may be available. It shall further be the duty of said Director to collect, compile, classify and index the charters, fran- Appendix 409 chises, ordinances and departmental reports of this and other cities; to accumulate data and statistics regarding the practical operation and affect of municipal charters, laws and ordinances in this and other cities. d. It shall be the duty of the Director of the Municipal Reference Bureau to submit to the President of the University of Cincinnati, at the times and in the manner prescribed for the submission of departmental estimates for the annual budget and semi-annual appropriation ordinances, estimates respectively of the expense of maintaining the Municipal Reference Bureau for the following year and the ensuing six months periods. Such estimates shall be the basis of the estimates for said Bureau as submitted by the Univer- sity of Cincinnati to the Mayor and Council. All payments for the support and maintenance of the Municipal Reference Bureau shall be made only upon the recommendation of the Director of the Municipal Reference Bureau, and the authorization of the Board of Directors of the University of Cincinnati. e. Subject to the limitations of the appropriations duly made for such purpose, the Board of Directors of the University of Cin- cinnati shall appoint, upon the nomination of the Director of the Municipal Reference Bureau, a cataloger, a stenographer, and such other assistants as shall be required for the proper care and main- tenance of the Municipal Reference Bureau. The salaries of the Director of the Municipal Reference Bureau and of all other employes shall be fixed by the Board of Directors of the University of Cin- cinnati in such amounts as shall be deemed appropriate, which salaries shall be paid in the same manner and at the same times as the salaries of other employes of the Board of Directors of the Uni- versity of Cincinnati. f. The Board of Directors of the University of Cincinnati shall duly pass and adopt such rules, resolutions and regulations as will carry out and put into effect the establishment of said Bureau and the use therefor of said space or quarters upon the terms and con- ditions specified in this ordinance. The said Board may from time to time adopt any rule or regulation concerning said Bureau which may receive the recommendation of the Director of said Bureau and may be consistent with this ordinance. The said Board of Directors shall, previous to the occupancy of any portion of the City Hall for the use of said Bureau, formally consent to such use upon the aforesaid terms and conditions and certify such consent to the Clerk of this Council. Section 2. It shall be the duty of each officer of the city, the head of each city department and of the committee of the City Council, to aid and assist the Director of the Municipal Reference Bureau by furnishing to him reports and copies of such correspondence, opinions and decisions as in the opinion of the Director may be of value for future reference. Sec. 3. This ordinance shall take effect and be in force from and after the earliest period allowed by law. 410 Appendix KANSAS CITY, MO.« An Ordinance to Create a Municipal Reference Library for Kansas City. Outlining its Scope and Providing for The appointment of Trustees, A Librarian and Other Employees for the Same. Be it Ordained by the Common Council of Kansas City: Sec. 1. There is hereby established for Kansas City what shall be known as the Municipal Reference Library for the use of the Common Council, city officials and heads of departments of the city government to help them in making a thorough investigation of all municipal problems that may arise and thus to aid them in the discharge of their duties. Such library shall be located in the City Hall or in close proximity thereto. It shall be the duty of the Board of Public Works to provide suitable quarters for such library. Sec. 2. The Mayor of Kansas City, the President of the Commer- cial Club, the President of the Industrial Council, the President of the Kansas City Bar Association, and the President of the City Club shall, during their incumbency of their respective offices, be ex officio trustees of such library. They shall receive no compensation for their services. The trustees shall have general control over the library and of all additions thereto and shall make all appointments of employees therein subject to the provisions of Article XV. of the City charter entitled "Civil Service." Sec. 3. There shall be a librarian who shall have immediate charge and supervision of such library. It shall be the duty of the librarian to collect, compile, classify and index charters, laws, ordinances, official and department reports of this and other cities; to gather all data, reports and statistics on municipal subjects from other cities; to collate facts from magazines, newspapers and reports of organizations working along the lines of municipal reform and civic betterment; to accumulate all data and statistics obtainable regard- ing the practical operation and effect of municipal laws and ordi- nances in this and other cities; to collect all available information relating to any matter which may be the subject of proposed legis- lation by the Common Council; to make a written report to the Common Council or any committee thereof, any city official, or head of department, or member of the state legislature from Jackson County of the laws, ordinances, reports, statistics, or other available information relating to any particular subject of municipal concern; to prepare or advise in the preparation of any bill, resolution or ordinance, when requested so to do by any member of the common council, city official, head or department, or member of the legislature from Jackson County; to preserve and collate all information obtained, all books, reports, statements and documents and carefully arrange and index the same so that it may be at all times easily accessible to the common council, city officials, heads of departn ents, " This bureau was taken over by the public service committee of the council, on an order from the Mayor, after the council had failed to appropriate for its maintenance. Appendix 411 and members of the legislature from Jackson County; to keep the library open to the inspection and use for reference purposes of the general public and to secure such literature from the public library of the school district of Kansas City, and keep it on file either tem- porarily or permanently as may have bearing upon any question under discussion or consideration by the public officials, provided, arrangements can be made with the directors of said district for that purpose. Sec. 4. It shall be the duty of the head of each city department and city official to aid and assist said Librarian of the Municipal Reference Library by furnishing reports and also all other documents and copies of such correspondence, opinions and decisions, as in the opinion of said librarian may be of value to said reference library. All exchanges, books, documents, and reports issued by this city with other cities shall be made through said librarian. Annually the Hbrarian shall issue a city manual giving statistical and other information about the city and its government. Sec. 5. The trustees of the Municipal Reference Library shall have power to make rules and regulations for the government of said library as well as the use of all books, documents and reports therein contained and the taking of the same therefrom and to amend, alter or repeal any such rule. Sec. 6. Any member of the Common Council, head of depart- ment or city official, shall have the right to take any book, report or ordinance, document or statistical publication from the said library for use in his office or department, and shall have the right to retain the same for a reasonable time, to be fixed by rule, provided how- ever, that the same shall not be taken from the City Hall. Any person taking or receiving any such book, document, ordinance or report, shall be personally liable for the return thereof, and in case of its loss or destruction, for the value thereof. Section 7. The salary of said librarian shall be $L800.00 per year payable monthly as other city officials are paid, and he shall be required to give bond in the sum of $2,000 with proper sureties conditioned for the faithful discharge of his duties and that he will honestly account for all property belonging to said city which shall come into his possession. Sec. 8. The Purchasing Agent shall supply said Library with all needed books, filing cases, shelves, tables, desks, and other furniture and equipment necessary to equip the same, and shall upon requisition from said Trustees supply all needed stationery and supplies. A Reference Room shall be provided in said library, furnished with tables, chairs, etc., necessary for the use of all persons entitled to use the same. Sec. 9. The trustees may employ a stenographer at a salary of not to exceed $60.00 a month, whenever said trustees shall decide that such employment is necessary. Sec. 10. The librarian shall make a complete inventory of all books which he shall receive from any source and keep the same 412 Appendix constantly on file in his office. He shall make a report to the trus- tees and they in turn to the Common Council of all their transactions at the close of each fiscal year. Sec. 11. It shall be the duty of all city officials and heads of departments to make reports from time to time in writing of all matters occurring in their office or department which shall be of public interest. Such reports shall be made to the Mayor, but shall be filed and preserved in the Municipal Reference Library and in the discretion of said trustees may be printed for public dis- tribution. Sec. 12. It shall be the duty of the city counselor to designate one of his assistants to act as draughtsman to aid the librarian in the preparation of any bill, ordinance or resolution which he may be requested to prepare. Sec. 13. All ordinances or parts of ordinances, are, insofi>.r as thev conflict with this ordinance, hereby repealed. Passed Aug. 15, 1910. MILWAUKEE. 128 — An Ordinance To create a Municipal Reference Library for the City of Milwaukee and outlining the scope of same and the duties of the librarian, and to repeal an ordinance entitled "An Ordinance to create a Municipal Reference Library for the City of Milwaukee and outlining the scope of same and duties of librarian, passed Feb- ruary' 3, 1908, as amended by an ordinance passed June 1, 1908." The Common Council of the City of Milwaukee do ordain as follows. • Sec. 1. The Board of Trustees of the Milwaukee Public Library is hereby authorized and directed to establish in the City Hall a branch or department of said public library, to be known as the Municipal Reference Library of the City of Milwaukee; and the Department of Public Works is hereby authorized and directed to arrange and prepare proper and permanent quarters therefor. Sec. 2. It shall be the duty of the trustees of the Milwaukee Public Library, within thirty (30) days after the passage and publi- cation of this ordinance, and thereafter whenever a vacancy shall occur, to elect upon the nomination of the Librarian of the Mil- waukee Public Library, an officer who shall be called the Librarian of the Municipal Reference Library. The Librarian of the Municipal Reference Library so appointed shall be an expert in political science. political economy and statistics. He shall hold office during good behavior and shall be subject to removal in accordance with the rules governing other employes of the Milwaukee Public Library. Sec. 3. It shall be the duty of such Librarian to collect and compare the laws of this and other states and the ordinances of this and other cities, and report upon the laws and ordinances pertaining to any subject upon which he may be requested to report by the Mayor, any committee or member of the Common Council of said city, or the head of any city department of said city; to accumulate Appendix 413 all data obtainable in relation to the practical operation and effect of such laws and ordinances; to collect all available information relating to any matter which may be the subject of proposed legis- lation by the Common Council; to prepare or advise in the prep- aration of any bill or ordinance or resolution when requested to do so by any member of the Common Council; to preserve and collate all information obtained and carefully index and arrange the same so that it may be at all times easily accessible to the city officials and open to the inspection and use for reference purposes by the general public, and to secure such literature from the Public Library and keep it on file, either temporarily or permanently, as may have bearing upon any question or questions under discussion or con- sideration by the public officials of the City of Milwaukee herein mentioned. All such duties as are herein defined shall be performed under the supervision and direction of the Librarian of the Milwaukee Public Library, and said Librarian of the Milwaukee Public Library, and no other person, shall be considered the superior officer of the Librarian of the Municipal Reference Library. Sec. 4. It shall be the duty of the head of each city depart- ment to aid and assist said Librarian of the Municipal Reference Library by furnishing reports and copies of such correspondence, opinions and decisions as in the opinion of said Librarian of the Municipal Reference Library may be of value for future reference. It shall be the duty of the City Attorney of said city to aid said Librarian of the Municipal Reference Library in the preparation of any bill, ordinance, resolution or other measure, when so requested by said Librarian. Sec. 5. The trustees of the Milwaukee Public Library shall adopt all rules and regulations for the use of the Municipal Reference Library. Sec. 6. The salary of said Librarian of the Municipal Reference Library and other employes thereof shall be fixed by the trustees of the Public Library in such amounts as they shall deem appropriate which salaries shall be paid at the same time and in the same manner as the salaries of other employes of the Public Library. Sec. 7. It shall be the duty of the Board of Trustees of the Milwaukee Public Library to provide such additional help as may be necessary for the proper care and maintenance of the Municipal Reference Library. Sec. 8. For the purpose of maintaining said library and paying the salary of the Librarian and employes thereof, there is hereby annually appropriated the sum of five thousand (5,000) dollars from the general city fund and added to the funds of the Milwaukee Public Library. Any surplus which may remain from said annual appro- priation shall become and continue to be a part of the funds of the Milwaukee Public Library, and any deficit which may arise as the result of maintaining said Municipal Reference Library shall be paid from the funds of the Milwaukee Public Library. 414 Appendix Sec. 9. The Board of Trustees of the Milwaukee Public Library shall provide the said Librarian with all furniture and other equip- ment needed for said library and may add to the same from time to time as required, and shall supply said Librarian with all needed stationery and supplies. Sec. 10. All material and equipment, books, documents and data of every kind and nature now held by the Municipal Reference Library of the City of Milwaukee is hereby transferred to the Mil- waukee Public Library; provided, however, that the said Milwaukee Public Library shall maintain the said Municipal Reference Library' as a branch of the said Milwaukee Public Library, to be installed in the City Hall, as hereinbefore in this ordinance specifically pro- vided. Sec. 11. An ordinance entitled "An Ordinance to create a Muni- cipal Reference Library for the City of Milwaukee and outlining the scope of same and duties of Librarian," passed February 3, 1908, as amended by an ordinance passed June 1, 1908; and all ordi- nances or parts of ordinances contravening the provisions of this ordinance, are hereby repealed. Sec. 12. This ordinance shall take effect and be in force from and after its passage and publication. Passed Jan. 3, 1911. An Ordinance Creating the Bureau of Municipal Research '^ and providing for the appointment, fixing term and salaries and prescribing duties of officers and employes thereof. The Mayor and Common Council of the city Milwaukee do ordain as follows: Sec. 1. There is hereby created in and for the city of Milwaukee a department to be known as the "Bureau of Municipal Research," and the offices of director of Bureau of Municipal Research and assistant director of Bureau of Municipal Research, and the position of stenographer in said bureau, are hereby created. Sec. 2. The director shall he appointed by the mayor and con- firmed by a majority of the members elect of the Common Council. The director, before entering upon the duties of his ofifice, shall take and subscribe the oath of ofiice prescribed by the constitution and laws of the state, and file the same, duly certified by the officer administering the same, with the city clerk. Sec. 3. The term of office of the first director shall begin upon his confirmation and qualification as provided for in section 2 of this ordinance, and shall continue until the third Tuesday of April, 1914, and until his successor shall have been appointed and con- firmed and shall have qualified. The term of office of each suc- ceeding director shall be co-extensive with the term of office of the '^This bureau supplanted the former Bureau of Economy and Efficiency; the municipal reference library still remains. Appendix 415 mayor by whom he shall have been appointed, and until his suc- cessor shall have been appointed and confirmed and shall have qualified. Sec. 4. In case of a vacancy in the office of director, the mayor shall appoint a successor, who shall hold office during the unexpired term and until his successor shall have been appointed, confirmed and shall have qualified. The provisions of section 2 hereof shall apply to all appointments to fill vacancies. Sec. 5. The assistant director and the stenographer shall be appointed by the director, subject to and in accordance with the civil service laws applicable to the city of Milwaukee. The assis- tant director shall, before entering upon the duties of his office, take and subscribe the oath of office prescribed by the constitution and laws of the state, and file the same, duly certified by the officer administering the same, with the city clerk. Sec. 6. The director shall receive a salary of three thousand dollars ($3,000.00) per annum. The assistant director shall receive a salary of one thousand eight hundred dollars ($1,800.00) per annum. The stenographer shall receive a salary of sixty-five dollars ($65.00) per month. Such salaries shall be paid monthly out of the city treasury in the same manner as other city salaries are paid. All sums of money shall be chargeable to the fund provided for the Bureau of Efficiency and Economy during the remainder of the present fiscal year, and until a fund is created, as provided by law, in the next budget. A separate fund shall be created each year in tlie budget for the purposes of this ordinance. Sec. 7. The director shall be under the direction of the comp- troller in regard to making audits, which shall be made at such times as the mayor may direct, of all financial books, records and accounts of the city and the several departments thereof, and of all boards or commissions which receive or disburse municipal funds, and also under the direction of the comptroller to devise forms and methods for bookkeeping and accounts for the several departments of the city, and assist the officers and employes of the several depart- ments in the installation and use of the same; and it shall also be his duty, under the direction of the mayor, to apply tests of efficiency of departments and persons in the service of the city; to gather and tabulate all available statistics of municipal governmental activities that in his judgment or the judgment of the mayor may be of service or benefit to the city, whether such governmental activities apply to this city or not, and he shall make monthly reports to the major showing the result of the work of such bureau, both in its com- pleted and in its progressive stages, and to make an annual report to the Common Council showing in final summaries the result of all work undertaken by the bureau, said annual report to be made on the first day of June in each year. Sec. 8. The comptroller and director shall at all times comply with all requests or demands made by the mayor for investigations , audits and reports. 416 Appendix Sec. 9. The assistant director shall perform such duties as may be assigned by the director. In case of vacancy in the office of director of Bureau of Municipal Research, the assistant director shall have full power and authority, and it is hereby made his duty to exercise the powers and perform the duties of director of Bureau of Municipal Research until such vacancy shall be filled by appoint- ment of a successor, as provided in section 4 hereof. Sec. 10. Each and every' officer of the city shall, upon request of the director, submit such books, records, vouchers, papers and other matters pertaining to the accounts of the city or of the several departments thereof and in the possession of any such officer, to the director for his examination. Sec. 10-a. All parts of ordinances contravening the provisions of this ordinance are hereby repealed. Sec. 11. This ordinance shall take effect and be in force from and after its passage and publication. Passed September 30, 1912. ST. LOUIS. [On January 27, 1911, the following joint resolution was passed by the Municipal Legislature:] "Be it resolved by the Council of the City of St. Louis, the House of Delegates concurring therein: "That the Board of Directors of the St. Louis Public Library be and they are hereby requested to establish with all convenient expedition a branch of said Library- in the City Hall, to be known as the Municipal Reference Branch, to be located, if possible, upon the first "or second floors of the City Hall and readily accessible to the Houses of Legislation. ".■\nd that the Slayor, President of the Board of Public Improve- ments and other appropriate officers of the city be and they are hereby requested to provide and assign proper quarters for said Branch in the City Hall." PUBLICATIONS OF BUREAUS OF MUNICIPAL RESEARCH AND MUNICIPAL REFERENCE LIBRARIES. Baltimore. Bureau of State and Municipal Research Institutional Supplies. 19i:j. Baltimore — Legislative Reference, Department of. Annual Report, 1907-, Baltimore, 1908-. . Summary of the Expenditures of the various States. 8 p. 1909. Chicago. Chicago Bureau of Public Efficiency. Publications. 191 1-. Appendix 417 1. Method of preparing and administering the Budget of Cook County, Ilhnois. 53 p. January, 1911. 2. Proposed Purchase of Voting Machines by the Board of Election Commissioners of the City of Chicago. May, 1911 3. Street Pavement Laid in the Citv of Chicago: An Inquiry into Paving MateriaL, Methods and Results. June 1911 4. Electrolysis of Water Pipes in the City of Chicaeo. 71 n July, 1911. ^' 5. Administration of the Office of Recorder of Cook County Illinois. 63 p. September, 1911, 6. Plea for Publicity in the Office of County Treasurer 11 p. October, 1911. 7. Repairing Asphalt Pavement: Work done for the City of Chicago under Contract of 1911. 20 p. October 1911 8. Municipal Court Acts: Two Related Propositions upon which the Voters of Chicago will be Asked to Pass Judgment at the Election of November 7 — Vote No. Oct. 31 1911 r^ u ■ '^T^T^ ^y^^^" ^'^'■^^ System of the Citv of Chicago. By Dabney H. Maury. December, 1911. 10. Bureau of Streets: Civil Service Commission; and Special Assessment Accounting System of the City of Chicago. 112 p December, 1911. ^' 11. _ Administration of the Office of Coroner of Cook County Illinois. December, 1911. 12. Administration of the Office of Sheriff of Cook County Ilhnois. December, 1911. 13. Administration of the Office of the Clerk of the Circuit Court and of the Office of Clerk of the Superior Court of Cook County, Illinois. 50 p. December, 1911. iqff' ^^^ Judges and the County Fee Offices. 15 p. Dec. 19, 15. General Summary and Conclusions of Report on the Park Governments of Chicago. 16 p. December, 1911. .u^•^■r^^^^■ ^^.^^ Governments of Chicago: An Inquiry into theirOrganizationand Methods of Administration. 182 p Decem- ber, 1911. 17. Offices of the Clerks of the Circuit and Superior Courts- a Supplemental Inquiry into their Organization and Methods ot Administration. 27 p. November, 1912. 18. Administration of the Office of the Clerk of the County in*^ ^kh County, Illinois. 43 p. November, 1912 19. Officeof Sheriff of Cook County, Illinois: A Supplemental Inquiry into its Organization and Methods of Administration. 2b p. November, 1912. 20. Growing Cost of Elections in Chicago and Cook County. ty p. Uec. oO, 1912. 21. The Voting Machine Contract. A Protest Against its Recognition in any form by the City Council of the City of Chicago. 12 p. Jan. 1, 1913. 418 Appendix 22. Officeof County Treasurer of Cook County, 111.: An Inquiry into'the Administration of its Finances with Special Reference to theQuestionof Interest on Public Funds. 67 p. November, 1913. 23. The Nineteen Local Governments of Chicago. 31 p. Charts, Tabs. maps. Dec, 1913. Chicago — Chicago Commission on City Expenditures. Preliminarv Report: Department of Electricity. 39 p. 1910. . House of Correction, 40 p. 1910. . Street Paving, 34 p. 1910. Chicago Public Library — Municipal Reference Library. Rates of Fare of Public Motor Vehicles in Fifteen Large Cities. [8 p.] Chicago, 1913. {Municipal Reference Bulletin No. I.) Chicago — Statistics and Municipal Library, Bureau of. Catalogue of the Chicago Municipal Library, 1908. 149 p. [Chicago] 1908. . Chicago City Manual, 4 v. 1908-1911. Chicago, 1908-11. . City of Chicago Statistics (Quarterly) 1902-. Chicago, 1902-. Cincinnati. Cincinnati Bureau of Municipal Research. (Publications.) Cincinnati, 1910-. Contents: Paving Reports Nos. 1-6. Reply of Director Sundmaker to Paving Report No. 1 and Rejoinder of Bureau. Reply to Chief Engineer's Communication to Director of Public Service in re the Bureau's Paving Report No. 5. The Cincinnati Bureau of Municipal Research: Its First Year's Work, 1910-1911. Street Lighting Report No. 1. Budget Report No. 1: The City's Annual Budget. The Board of Health. Deposit of City Funds. Second Annual Report. 1911-1913. Juvenile Court of Hamilton County. Information for Citizens, Nos. 1-2. Over-.Age in the Cincinnati Elementary Day Schools. The House of Refuge. Report on the Truancy Department of the Board of Education (abridged). Schools as Social Centers. 6 p. 1913. D.^YTON, Ohio. Davton (O.) Bureau of Municipal Research. Appropriations for the Fiscal Half Year, ending June 30, 1913. 31 p. Dayton, 1913. Appendix 419 . Government by Deficit. No. 1-, 1913-. . Health Bulletin. 1-. 1913-. . A Plan to Place the Water Works upon a Self-sustaining Basis and to Complete the Proposed Additional Water Supply and Betterment of the Distributing Mains for Dayton ... 28 p. Dayton, 1913. . Shall we change our City Government? A Statement of three Types of Municipal Administration ... 16 p. Dayton, 1912. Bibliography p. 16. Kansas City (Mo.) Kansas City-Municipal Reference Library. The Municipal Reference Library as a Business Investment, by Charles H. Talbot, Municipal Reference Librarian. 8 p. Kansas City, 1912. Memphis. Memphis Bureau of Municipal Research. Report. Oct., 1909. 202 p. A critical study of some phases of municipal government in Memphis. Milwaukee. Milwaukee — Economy and Efficiency, Bureau of. Bulletins, No. 1-19, Milwaukee, 1911-12. Contents. 1. Plans and Methods, 29 p. 1911. 2. Alarm Telegraph Systems, 23 p. 1911. 3. Garnishment of Wages, 27 p. 1911. Published by Wis. Bureau of Labor and Industrial Statistics. 4. Women's Wages in Milwaukee. 18 p. 1911. Published by the Wisconsin Consumers' League. 5. The Refuse Incinerator. 1911. 75 p. 6. Citizens' Free Employment Bureau. 15 p. 1911. 7. Free Legal Aid. 16 p. 1911. 8. The Newsboys of Milwaukee. 96 p. 1911. 9. Review of the Bureau's Work. 12 p. 1911. 10. Plumbing and House Drain Inspection. 33 p. 1911. 11. Water Works Efficiency — 1. Water Waste Survey. 39 p. 1911. 12. Garbage Collection. 24 p. 1911. 13. Health Department — 1. Milk Supply. 45 p. 1912. 14. Water Works Efficiency — 2. Present Capacity and Future Requirement. 23 p. 1912. 15. Health Department — 2. Education and Publications. 16. Water Works Efficiency — 3. Operating Efficiency. 30 p. 1912. 17. Recreation Survey. 31 p. 1912. 420 Appendix 18. Health Department — 3. Communicable Diseases. 37 p. 1912. 19. Eighteen Months' Work. 44 p. 1912. Milwaukee — Municipal Research, Bureau of. Standardization of Salaries of the City of Milwaukee. 96 p. 1913. New York. Bureau of Municipal Research.'^ 1906-. Budget. Cincinnati's First Municipal Budget. How Sould Public Budgets be Made? How to Keep Watch on the City Budget. .Making a Municipal Budget. New York's Budget Kindergarten. Scientific Budget Making. Would a Budget Exhibit Help Your City? Charities. Report on Department of Charities, Syracuse, N. Y. City Government. Efficiency in City Government. (Pamphlet.) Municipal Reform through Revision of Business Methods. Organization and Administration, Atlanta, Ga. Organization and .Administration, Dayton, Ohio. Organization and .\dministration, St. Louis, Mo. Organization and .\dministration, Springfield, Mass. Organization and Business Methods, Portland, Oregon. Opportunity and Need for Civic Co-operation with Public Officials in the Four Oranges. Preliminary Survey, Milwaukee, Wis. Survev of Certain Departments, Pittsburgh, Pa. What Should New York's Next Mayor Do? Education. Conditions and Needs of Rural Schools in Wisconsin. Digest of New York School Inquiry. Health and Education, Atlanta, Ga. Health and Education, Syracuse, N. Y. "Compiled from lists submitted by the Bureau. In addition to these titles the Bureau or the members of its staff have pub- lished other matter along similar lines as follows: Allen, Civics and Health, Efficient Democracy, Woman's Pari in Government ; Bruere, New CityGovernmetit; Cleveland, Organ zseti Democracy, Municipal Administration and Accounting; Sneddcnand AWen, School Reports and School Efficiency; Denison, Helping School Children. Appendix 421 Outside Co-operation with the Public Schools of Greater New York. Questions Answered by School Reports As They Are. School Progress and School Facts. School Stories. Illustrated Guide to School Subjects of Interest. Waterbury and St. Paul. Help Your School Survey. Finance. Department of Municipal Audit and Examination. Finance, Budget and Accounting Methods, Syracuse, N. Y. Investigation of the Office of Commissioners of Accounts. New York City. Handbook on Municipal Accounting (A Compilation of the "Short Talks on Municipal Accounting and Reporting," issued separately.) Memorandum of Matters relating to New York City's Debt that suggest the Necessity for Judicial Ruling or for Legislation. Outline of a Municipal General Ledger. New York City's Debt: Facts and Law. To Mayors, Comptrollers and Auditors; Scientific Accounting Methods. What Should New York's Next Comptroller Do? Health. Division of Child Hygiene, New York City. Efficiency and Next Needs of St. Paul's Health Department. Health and Education, Atlanta, Ga. Health and Education, Syracuse, N. Y. Health Needs and Civic Action. Health Violations in East Side Slaughter Houses. Organization and Administration of the Department of Health, Dayton, Ohio. Sanitary Survey of Hoboken, N. J. Parks. Park Question. Pt. I: Administrative and Accounting Methods. Pt. II: Revenue and Deposits. Police. Business Methods of New York's Police Department. Report of the Special Committee of the Board of Aldermen. Street Cleaning. Some Phases of the Work of the Department of Street Cleaning of New York City. Tenement Houses. Tenement House Administration. 422 Appendix Training for Public Service. Report on Training School for Public Service. 1911. Same. 1912. . Training Men and Women for Public Service. Training School for Public Service. Water. Collecting Water Revenues. Public Watering Places for Manhattan's Horses. General. Efficient Citizenship, Weekly Bulletins. (About 655 issued to date.) Municipal Research. (Weekly.) 1913-. Purposes and Methods of the Bureau of Municipal Research. New York (City) — Municipal Reference Library- (Department of Finance). Bulletin, 1913. July. 1913. List of Books on Engineering. Sept., 1913. List of Books on Accounting and Budget making. . Municipal Reference Library established by Hon. William A. Prendergast, Comptroller, and dedicated to the Citv of New York in opening exercises held Monday, Mr. 31, 1913. 35 p. PHlL.\DELPni.-\. Bureau of Municipal Research of Philadelphia. Citizens' Business . . . (Weeklv), 1913-. See especially issue of Dec. 11, 1913; No. 84: Seven Years of Municipal Finance. The weights and measures situation in Philadelphia. Mr. 3, 1911. 153 p. Phil., 1911. (Report No. 1.) St. Louis. St. Louis — Municipal Reference Library. Municipal Regulation of Dance Halls. 1913. St. Louis, (Mo.) — Public Library. Monthly Bulletin, n.s. v. 10, No. 7, July, 1912. "Municipal Reference Number" containing a report on Municipal Lodging Houses in the United States by Jesse Cunningham, p. 322-48. University of C.'\liforni.\. University of California — Bureau of Municipal Research. Preliminary announcement of the Bureau of Municipal Research, 1913-1914. 6 p. Berkeley, 1913. U.NIVERSITY OF TEX.^S. University of Texas — Bureau of Municipal Research and Reference. A Model Charter of Texas Cities. 23 p. Austin, Feb. 10. 1914. (University of Texas 5m//€/im, "Municipal Research" Ser. No. 1.) By Prof. Herman G. James. Appendix 423 University of Washington. University of Washington — University Extension Division. Bureau of Municipal and Legislative Research. 8 p. Seattle, 1912. University of Wisconsin. University of Wisconsin — Extension Division. Municipal Reference Bureau. 8 p. Madison, 1909. (Univ. of Wis. Bulletin. Serial no. 320: General Series. No. 186.) MUNICIPAL REFERENCE LIBRARIES AND RE- SEARCH BUREAUS: A BIBLIOGRAPHY. (A few of the more important titles are starred. [*]) Bibliographies. Flack, Horace E. Bibliography of Legislative Reference Work, State and Munici- pal. (In his "Municipal Reference Libraries," Proceedings of the Nat'l. Conf. for Good City Gov't, Buffalo, 1910; v. 18: 457-59.) Also reprinted as a separate 8 p., and republished in Spec. Libs. March- 1911. p. 2. Meyer, H. H. B. Select List of References on Special Libraries. (In Spec. Libs. 3: 172-76, Oct., 1912. "Legislative Reference," including Municipal Reference Libraries, p. 174-76.) Watts, Irma A. List of articles on Municipal Reference Work. (In Pub. Libs. 17: 164. May, 1912.) General and Descriptive. Aldermen learning Value of a Library. {Wis. L. Bui. 4: 1 12.) Allen, William H. How mav the Public Library help City Government? (In Pub. Libs. '17: 160-61, May, 1912; also in Lib. J. 37: 186-87, Apl., 1912.) * Baltimore — Department of Legislative Reference. Annual Report, 1907-. Baltimore, 1908-. . New Department of Legislative Reference, Baltimore; remarks at a round table Feb. 26, 1907, by Theodore Marburg and others. 43 p. Baltimore, 1907. Baltimore's New Reference Department. (In Public Service Sept., 1907.) Bostvvick, Andrew Linn. Relation between the Municipal Library and the Legislator. {In Spec. Libs. 4: 163-65, Sept.-Oct., 1913.) Emphasizes the part played by the personality of the librarian. 424 Appendix BrigK^. W. B. Public Librar>' and the City Government; or, what Public Libraries should do for Municipal Departments and Officials. (Liby. Jour. 33: 385-90, Oct. '08; also separate. 5 p.) Campbell, R. A. Legislative and .Municipal Reference Department. (News and notes of California libraries. Oct., 1910, p. 534.) •Cecraft, Earl \V. The Municipal Reference Library (in Nal. Mun. Rev. 4: 644-53, Oct.. 1913.) A thorough study of the origin and development of the municipal reference library as distinguished from the municipal research bureau and the bureau of municipal statistics; printed in the Revirw in place of any report from the National Municipal League's committee on Municipal Reference Libraries and .Archives for this year. Chicago — Bureau of Statistics and Municipal Library-. Catalogue of the Chicago Municipal Library, 149 p. 1908. (The) Danger in the Movement for the Establishment of Legisla- tive and municipal Reference Departments. {In Spec. Libs. v. 2:33. April, 1911.) Darlow, G. Municipal Section of a Public Library'. {Pub. Libs. V. 13; 4-6, Jan., 1908.) Dudgeon, M. S. t The Scope and Purpose of Special Libraries. (In Spec. Libs, 3: 129-33. June, 1912.) Flack, H. E. Department of Legislative Reference in Baltimore. {Municipal Engineering, Sept., 1908, 7 p.) • . Importance of ^Iunicipal Reference Libraries. (Nat'l. Municipal League. Proceedings of the Pittsburg Conference for Good City Government. 1908. p. 308-16; also separate, 9 p.) . Municipal Reference Librarian. {Municipal Journal and Engineer, v. 30. p. 82-84.) Jan. 18, 1911. * . Municipal Reference Libraries. (Nat. Mun. League Conf. for Good City Government. BufTalo, 1910. v. 18, p. 452-59.) "Bibliography Legislative Reference Work. Stateand Municipal." p.457- .")9. .Also published separately, 8 p. . . Nat. Mun. Rev. 3: 223-23, Jan. 1914. • . Municipal Reference Libraries and Archives. {L.J. Feb., 1912, p. 87-88, also in NatU. Mun. Rev. Jan., 1912, apx. p. 13-15.) . Present Status of Municipal Reference Work. {Spec. Libs. V. 2: p. 110-11, Dec, 1911.) (Aj General Municipal Reference Bureau. {Nat. Mun. Rev. 2: 143-44, Jan.. 1913.) People's Institute, Xew York City. Greene, Charles S. Municipal Reference Library Movement in the United States and especially in Oakland, California. {Pacific Municipalities, Oct., 1912. p. 461-67.) Appendix 425 Hadley, Chalmers. J^unicipal Reference Work. {Pub. Lib. v. 12, p. 232-4, June, Haines, Charles G. A Municipal Reference Library (in League of Pacific Northwest Municipalities Proceedings 1: 43-52, Oct. 1912 Hall, E. ' Plea for a Municipal Reference Library. Survey 28: 770-71. Hibben, Paxton. A T^^imo°f''^^^'^^ Municipal Service. (In Nat. Mun. Rev. 2: 318 Api., lyio.) ' Hoholl, Mrs. A. W. von. A Trf ^"c'''P'''^^^^''f^i'H Library in New York. (In Spec. Libs. 4. Ibl-b2, Sept.-Oct., 1913.) A brief account of its first three months' work Holsworth, J. T. Municipal Reference Library. (In his Report of the Economic Survey of Pittsburgh, 1912, p. 226-9.) Kaiser, John B. '?nn"'^'^^' Reference Libraries. (In the Nation, Feb. 1, 1912 p. lUy. Reprinted in the New York Evening Post, Feb 8 1912 ) -—. The Special Library and the Library School; a Suggested Outline of a Library School Course in Law, Legislative and Muni- cipal Reference Libraries. (L. J. Apr., 1912, p. 175-79 ) Lapp, John A. '^ Municipal Reference. {Indianapolis News, Oct. 14. 1909 n 6 ) *Legler, Henry E. . , h- .y How the Chicago Public Library is being developed in its Industrial and Civic Resources. {Chicago Commerce, April 26, A y 1 ^ , p , Zo — Zt . ) Lighthall, W. D. ^S International Municipal Bureau. {Nat. Mun. Rev. v 1 p. 78-79, Jan., 1912.) inlmfricSSsewte.'''"'"""''""'^'^^^^^ "^"°-' - -°P-- Lindholm, Mari Fay. A Review of Chief Sources of Material for Special Library Collections. (In Spec. Libs. 4: 139-46, Sept.-Oct., 1913 ) Includes 2. General reference foundation. 3. Chief reference sources for a "i^unirlZr^f ^°'"")!f'°'^ or corporation library. 4. A financia fubrary 5 f'i^^f^Paireference library 6. Current books and special reports. 7. Period- n.nt" .h government and state reports. 9. Society publications. 10. Com- ?o^/"'^ ^""^de publications. 11. Legislation. Legal decisions and briefs of thYsType"'^aiialle^.'"^' "=°^'^^' ^'"^-''""^^- ^^^'^ ^ne of tV best' ardcfis *McAneny, George. The Municipal Reference Library as an Aid in City Administra- tion. {Liby. Jr. 38: 509-13, Sept., 1913.) *MacGregor, Ford H. o^J^of Wisconsin is doing for its Cities. (In Nat. Mun. Rev.l: 078-85, July, 1912.) 420 Appendix •McCarthy, Charles. City Library as a Business Investment. {A. L. A. Bui. v. 2, p. 190-96. Sept., 1908.) .\lso in Natl. Mun. League Conference for Good City Government, Pitts- burfih. 1008. p. 317-27. Merchants Association of New \ ork. List of the Business or Commercial, Civic, Board of Trade, Municipal, Legislative Reference Libraries, and Departments of Public and other Libraries Devoted to these Topics. 2 p. 1909. Mcrriam, Charles E. and Milton, J. F. Proposed Department of Information and Publicity. (Chic. City Qub Bullethi, v. 2: 165-70, Jul. 8, 1908.) Mever, E. C. ,^ . . ' Helping Cities to help themselves; how the State University through its Extension Division is placing the practical Assistance of Experts at the Disposal of Wisconsin Cities. (In LaFollette's, Sept. 25. 1909. p. 8-9.) •Mitchell, Dubois. Municipal Reference Work. (In Pacific Northwest Library Association Proceedings, June 12-14, 1913; p. 47-54.) Mowry, D. E. Municipal Reference Libraries. (In City Hall, v. 10, No. 4, Oct. ,1908. 131-33.) Reference Libraries in Cities — Baltimore as a Type. {Pub. Lib. V. 12, p. 387-91. Dec, 1907.) Municipal Legislative Reference work in Baltimore. {Dial, May 7, 1907, p. 277.) Municipal Reference Bureau. {Amer. Municipalities, Apr., 1907.) Municipal Reference Department. (Oakland Free Library Thirty- fourth Atinual Report, 1911-12, p. 12-16.) Municipal Reference Libraries. {Mun. Jr. and Eng., Nov. 13, 1907.) Municipal Reference Libraries (an editorial). (In I nited Improve- ment Association 5M//e/zn, May 1, 1912, p. 12-13.) Municipal Reference Libraries. {\n Spec. Libs. Mar., 1911, p. 1-2.) Part of H. E. Flacks 1910 report to the Nat. Mun. League, followed by a bibliography of 2.5 references. Municipal Reference Libraries. (In Survey, v. 26, p. 8/2-73, Sept., 23, 1911. Also in Pub. Lib. v. 16: 377-78, Nov., 1911. •.Municipal Reference Library-: City of New York. 35 p. (1913). Speeches at the opening exercises, March 31. 1913. Municipal Reference Library in Milwaukee. {Milwaukee Sentinel, Dec. 14, 1907; also in Wis. Liby. Bui. v. 4, p. 18, Jan., 1908.) Munro, William Bennett. Government of American cities, p. 376-77. N. V. Macmillan, 1912. •Ranck, S. H. Municipal Legislative Reference Libraries; should they be estab- lished and maintained as a part of the Public Libran.- of a City or as an independent Department or Organization? {Lib. J. v. 34, p. 345-50, Aug., 1909. Also separately. 6 p.) Appendix 427 . Municipal Reference Libraries. {Mun. Jr. andEngr., Jan. 18, ♦ . The Public Library as a Factor in Civic Betterment. (Nat I. Mun. L. Conf. for good city gov't., Buffalo, 1910. v. 18, p. 385- 94). Public Library as a part of Municipal Government. {Pub. Lib. V. 12, p. 386-87, Dec, 1907; also in L. J. v. 32, p. 432-33.) Rex, Frederic. -^ , ,. . / ,r ,^ Chicago's Bureau of Information and Pubhcity. {^at. Mun. Rev. 1:740-41, Oct., 1912.) . Municipal Library. {Education, bi-monthly, v. 4, p. 286-89, Apr., 1910.) . Sources of Municipal Information. {Spec. Lib^. Dec, 1910, p. 75-76.) Robinson, J. N. i o c- - The German Stadtetag. {Ann. Amer. Acad, of Pol. & Soc. bci. V. 31, p. 703-06, May, 1908.) Saint Louis — Public Library. Annual Report. 1912. p. 27, 111-13. Southern, T. W. ^^ .^ ^ Municipal Libraries and their Development. {Lib. Assoc. Record. Oct., 1899, v. 1, p. 607-18.) Taggert, Frederick T. Value of Municipal Libraries. {California Municipahhes, Mar., 1900, V. 2: p. 52-3, discussion, p. 54-5.) ♦Talbot, Charles H. The Functions of a Municipal Reference Department. (In League of Kansas Municipalities: Proceedings, v. 3. p. 52-57. 1911.) See also City Hall, 22: 184-87. * . Municipal Reference Library as a Business Investment. Kansas City, Mo. 8 p. 1912. Thvvaites, Reuben Gold. Relations between the State and Municipal libraries. (Amer. Lib. Assoc. Bulletin, v. 2: 285-90, Sept., 1908.) Tiefenthaler, Leo. . ,-, r> , Municipal Reference Library and Municipal work. (In Pub. Lib., V. 18: p. 162-63, May, 1912.) Whitten, Robert H. Proposed Library of Municipal Affairs and City Department libraries. (L. /. v. 33, p. 224-26, June, 1908.) . Special Libraries. (L. /. v. 31, p. 12-14), Jan., 1906. Wisconsin Free Library- Commission. Municipal Reference Libraries. (In its Circular of Information. No. 6, p. 24-26. Ed. 1. Jan., 1908.) . . p. 24-25. Ed. 2. Jan., 1911. Woodruff, C. R. ^ ^. ,, r r Municipal Reference Libraries and Archives. (In L. J. V. 36, p. 578-79; also in Pub. Libs. v. 15, p. 377.) * . Sources of Municipal Material with Reference to a Clearing House of Information. {Spec. Libs. Dec, 1911. p. 112-114.) 428 Appendix LiBR-ARY Technique. The following articles on the technical side of special library work are of value in this connection although the work is not in all cases municipal reference. •Clcland. Ethel. ^ .i o>. r i. Indiana Legislative Reference Department. (In ^pec. Libs. Oct., 1910, p. oS-60.) Considers the technical library details and is followed by a bibliography of legislative reference work, 20 items. •Imhofif, One Mar>'. /t c^ r •;, c * Cataloging in Legislative Reference U ork. {\nbpec. Libs, bept., 1012. 149-54, also in A. L. A. Proceedings, 1912, p. 238-45. Johnston. R. H. ^ ■ ,-, c- t u Library- of the Bureau of Railway Economics. (In ^pec. Libs. V. 3: p. 1-4), Ja., 1912. Especially valuable as showing the methoas adopted in a special library recently established. Lee, G. W. Library of Stone and Webster. {Spec. Libs., June, 1910, V. 1:44^6.) •Wallis, Marv S. . t. , r, , • Librarv Side of the Department of Legislative Reference, Balti- more. {Spec. Libs., Dec, 1910, v. 1: p. 73-75.) This library does both legislative and municipal reference work. Whitten, Robert H. r xt i- ■ The Librarv of the Public Service Commission of New York, First District.' {In Spec. Libs. 1: 18-20, Mr., 1910.) QUALIFICATIONS OF THE LIBRARIAN. Bostwick, Andrew Linn. Relation between the Municipal Library' and the Legislator. (In Spec. Libs. 4: 163-65, Sept.-Oct., 1913.) Dudgeon, M. S. Qualifications of Legislative and Municipal Reference Libra- rians. (In Spec. Libs. 2: 114-15, Dec, 1911.) . Scope and Purposes of the Special Library. {In Spec. Libs. 3: 129-32, June, 1912; especially p. 131-32.) U. S. — Librarv-, Senate Committee on. Legislative Drafting Bureau and Reference Division. 145 p. Wash., 1913. (62d Cong. 3d Sess. Sen. Doc. 1271.) See especially testimony on p. 107, 114-115. 122. 128. by Dr. McCarthy. Speaker Claik. Mr. Mann, Mr. Beaman and Mr. McKirdy. ORDINANCES AND LAWS. B.\LTIMORE. Marsland — Legislature. Laws of Maryland. 1906. Chap. 565. (Reprinted in Balti- more Department of Legislative Reference Annual Report. 1907. p. 16-17.) An amendment to the Baltimore city charter. Appendix 429 Chicago. Chicago Code 1911. p. 761. Sees. 2380-2382. The ordinance creating the Bureaus of Statistics; repealed by the next ordinance. Chicago — City Council. An Ordinance creating the Bureau of Information and Pub- licity. Passed Jan. 22, 1912. . An order to place the Municipal Reference Library in charge of the Chicago Public Library. March 31, 1913. Cincinnati. Cincinnati — City Council. An ordinance authorizing the University of Cincinnati to use a portion of city hall for Municipal Reference Bureau and prescrib- ing conditions of such use. No. 631: 1912. Kansas City, Mo. Kansas City — Common Council. An ordinance to create a Municipal Reference Library. An- proved Aug. 19, 1910. Sec. 8, p. 411, infra, appears as amended the following year. Milwaukee. Milwaukee — Common Council. An ordinance to create a M unicipal Reference Library. Passed Feb. 3, 1908, as amended Jan. 3, 1911. . An Ordinance creating the Bureau of Municipal Re- search. Passed Sept. 20, 1912. St. Louis. St. Louis — City Council. Resolution requesting the Public Library to establish a Muni- cipal Reference Branch. Jan. 27, 1911. STATE UNIVERSITY BUREAUS. Library of Municipal Documents at the University of Minnesota. {Lib. J. V. 37, p. 566, Oct., 1912.) *MacGregor, Ford H. Municipal Reference Bureau. (The Municipality 12: 52-56 Sept., 1911.) ' . Municipal Reference Work of Wisconsin. (Amer. City Feh 1910, p. 65-8.) ' Price, R. T. Municipal Reference Bureau (League of Kansas Municipalities Proceedings, v. 3, 1911, p. 17-18.) ♦University of California — Bureau of Municipal Research. Preliminary' Announcement ofthe Bureau of Municipal Research 1913-1914. 6 p. Berkeley, 1913. ♦University of Washington, Seattle. Extension Division — Muni- cipal Research Bureau. Circular, 1912. 430 Appendix •University of Wisconsin. — Extension Division. Municipal Reference Bureau. (Univ. of Wis. Bulletin, serial No. 320, gen. ser. 186. 8 p. Sept., 1909.) BUREAUS OF STATISTICS AND MUNICIPAL RESEARCH. Allen. William. Municipal Bureau of Statistics (and) Brief for Establishment of an Institution for Municipal Research. (In his Efficient Democracy, N. V. Dodd, 1907; Chap. 12 and 14.) •Bureau of Municipal Research, New York. Si.\ Years of Municipal Research for New York City, Record for 1906-11. 80 p. 1912. •Bureaus of Municipal Research. {Ann. of the Amer. Acad, of Pol. & Soc. Science, May, 1912. p. 235-78.) •Cerf, Myrtle. Bureaus of Public Efficiency. (June, 1913. Nat. Mun. Rev. V. 2: 39-47.) •Cleveland, Frederick A. An Agency of Citizen Inquiry — the Bureau of Municipal Research. (In his Chapters on Municipal Administration and Accounting, p. 346-61. N. Y. Longmans, 1909.) Connelly, James J. Newark's Bureau of Statistical Information. {In Municipal Economist 1: 14-17, Jan., 1909.) Efficiency Bureau of San Francisco. {Nat. Mun. Rev. 2: 156, Jan., 1913.)' Halbert, L. A. Board of Public Welfare of Kansas City. {Nat. Mun. Rei'. 1: 417-20, July, 1912.) Harvard Bureau of Research. (In Nat. Mun. Rev. 1: 307-08, April, 1912.) •Milwaukee-Bureau of Economy and Efficiency. Eighteen Months Work. 1912. (Bulletin 19.) Reprinted with additional comment in John R. Commons' Labor and .Id- minstralion. 1913, p. 195-218. Newark's Bureau of Statistical Information. {City Hall, Sept., 1908, 2 p.) Newark — Common Council. Bureau of Statistical Information. (In its Manual, 1913, p. 120-21.) St. Louis — Civic League. Committee on Municipal Finance and Taxation. Work of a Municipal Efficiency Bureau. 8 p. 1911. •Sait, Edward M. Research and Reference Bureaus. ( Nat. Mun. Rev. p. 2: 50-56), Jan., 1913. •Sikc's, (^orge C. Chicago Bureau of Public Efficiency. {Nat. Mun. Rev. 1: 455- .57.) Appendix 431 ♦Silbergleit, H. Das Statistische Amt der Stadt Berlin, 1862-1912. 81 p. Berlin, 1912. Description of the Library, p. 62-68. Treleven, John E., and Meyers, P. H. Milwaukee Bureau of Economy and Efficiency. (In Nat. Mun. Rev. 1 : 420-25, July, 1812.) 5. SUGGESTED CLASS PROBLEMS IN MUNICIPAL REFER- ENCE WORK. University of Illinois Library School. Municipal Reference Work: Problems. I. 1. Find two good lists of periodical publications dealing with municipal affairs. 2. What periodical is the organ of the Iowa, Nebraska and Kansas Leagues of Municipalities? Under what several titles has it been published? 3. Find a good discussion of the question "The relation between the city and the state." 4. How many members were there in the city council of Phila- delphia in 1906, and what was the salary of each? 5. Find a collection of city charter provisions on the question of the right to a referendum on specific city ordinances. 6. What is meant by the "Municipal Control of Public Utilities?" Find 4 references on this subject. II. 1. Write out a brief comparison between the collected docu- ments of Bangor, Me., Cambridge, Mass., (1910-1911), Boston, 1909, and Cleveland, Ohio, 1910. Bring out the points of likeness and difference, good features and bad features, and recommend improvements in the form of publishing. 2. Write out a brief statement showing the kind of data found in a city auditor's report, a city treasurer's report, and a city council manual. (Make a general survey of the kind of material shelved in rooms 411 and 415 Lincoln Hall, the Municipal Research Bureau.) III. 1. Name two sources for keeping up on current municipal legis- lation. 2. Find three good discussions of city charters or charter-making. 3. Where are current municipal documents noted? Where reviewed? 4. Since 1903 what issues of the Annals of the American Academy of Political and Social Science have dealt exclusively with municipal problems? 432 Appendix 5. Name five good, fairly recent bibliographies or lists of books on municipal affairs in general. ... 6. Name five lists of books on special phases of municipal govern- ment or on some phases of municipal activity. IV. 1. A city not having the recall privilege wishes to remove a certain local officer. Name a good authority for explaining the proper procedure. 2. A local council member of a village in Michigan writes asking whether his council can contract for the construction of a water works simply by a resolution of the council or is an ordinance necessary. What would you advise? 3. A certain town abolishes the public drinking cup by rule of the local board of health. "A" disregards the rule and is arrested. He pleads that it was not illegal to have such a cup because it was prohibited only by a rule of the local board of health and not by statute or ordinance. Is he right? 4. Is an "enacting clause" essential to the validity of an ordi- nance? 5. A municipal efficiency commission wishes to inspect the records of a city department which refuses it permission. Has it the right to insist. Where is your answer found? Optional Problem. 1. Write a reply to the following letter assuming that you are the librarian to whom it was sent. Librarian, Cleveland, Ohio. Dear Sir: I understand that many of our large cities are receiving valuable assistance from so-called municipal reference libraries. I should be glad to have you let me know something of the work of these institutions and what is your opinion on the question of establishing one here. Should such an institution be under the control of the public library? Where should it be located? What qualifications are needed in the executive head of such a library and how should he be selected? Have any other cities ordinances on this subject that you would suggest as models for us to follow? Very truly yours, Mayor.. Suggested Additional Questions. 1. Find arguments for and against a bi-cameral municipal council. 2. What are the exact meanings of the following terms applied tij municipal legislation? — "Ordinances"; "Regulations"; "Reso- lutions"; "Orders." Appendix 433 3. Cities cannot pass ordinances putting an unreasonable restraint on business. Where would you find out whether a proposed ordinance was an "unreasonable restraint?" 4. What is the difference between "Public Utilities" and "Public Works?" 5. How would you assist a council member attempting to fix by ordinance a reasonable taxi-cab rate? 7. What is the difference between municipal law and municipal corporation law? INDEX. EXPLANATION. The following pages provide a detailed index in one alphabet to all subjects discussed in the text and appendix, to all names of authors both personal and institutional, in whatever connection mentioned — whether quoted from, cited as authority, merely men- tioned by way of illustration, or given with a fully annotated title — to all periodicals cited whether simply mentioned or fully described, and in many cases where the importance seemed to warrant it, sub- ject and title entries appear in the index in addition to author entries for publications cited in the text as illustrative only. The index does not contain references to individual authors listed in the appendix bibliographies. These can easily be found as the entries are arranged alphabetically by authors. Subheads are arranged in the index alphabetically in indented paragraphs. The initial word of the paragraph is not repeated and no dash is used to note its omission. Abbreviations are arranged as if written out in full except where the abbreviation occurs in the original title of a publication; i.e. A.L. A. Booklist. United States government departments, bureaus, etc., are indexed under the specific name omitting the "United States"; e.g. Education Bureau. Special attention is called to the fact that all bibliographies men- tioned, described, or presented in the text and appendix are listed alphabetically by subject in this index under the word "Bibliog- raphies." The bibliographies published by the Library of Congress in the fields of Economics and Political Science are included. All compilations of laws mentioned or given are found listed alpha- betically under the heading "Laws, Compilations of"; compilations of ordinances under, "Ordinances, Compilations of." It is believed that most of the abbreviations used in the index are self-interpretive. A few are explained below. aflf affairs des described in the text art article cited docs documents bd bound efi efficiency bib bibliography fed federal com commission fin finance comm committee for foreign commr commissioner H Hcuse conf conference L. C Library of Congress const constitution or legis. . .legislative or legislation constitutional legis. ref. wk legislative conv convention reference work def definition given lib library 430 Index min minimum Mo. Cat. . . Motilhly Catalogue of the Superintendent of Docu- ments mun municipal n note (footnote) nat national N. V. S. L. S. . . New York State Library School proc proceedings ref reference res research References are to pages in all cases; none to section numbers. References to footnotes are indicated thus: 217n; referring to note on p. 217 and not to note 217. rev review rpt report rptr reporter S Senate Sen Senate sess session St State U. S. Cat. . United States Cata- log of Books in Print. .... univ university of wk work INDEX. A. L. A. Booklist, 146; (des), 164; docs, in, 113; Catalogue 1904, 61, 92, 309; 1904-1911, 61, 309; Index, 167; Manual of Library Economy, 45n, 189n; Subject-headings, 53. Abbot, H. S., 291. Abbreviations, legal; where in- terpreted, .59-60. Academv of Mun. Admin., Diis- bcidorf, 261, 26 In. Adams, E. D., 54n. Administrative Law, 15n. Agricultural Co-operation, doc. on, 121; Europe (des), 97; Ag. Credit, Europe, doc. on, 97; Germany (des), 97; Ag. Educ. in secondary' schools, 106; In- struction in High Schools, 106; in secondary schools, 106. Agriculture, Department, 271; laws, 153. Aiyar, 1.50. Alabama, Legis. ref. in, 76; Law, 347. Alameda County Tax .Assn. 26 In. Albany Citizen, 304; Mun. ref. in, 251. Albrecht, Adalbert, 64. Algeria, mun. fin., 296. Allegheny County Law Liby., 54n. Allen, William Harvey, 256, 288, 337n. Allgemeine Bibliographic der Staats- und Rechtswissen- schaften, 39. Allied real estate interests, N. Y. 305. Amcr. Acad, of Pol. & Soc. Science .4 n?m/5, 299; (des), 165; Index, 168. Amer. andEng. Ann. Cases (des), 18; Cyc. of Law, Ed. 2, 59; (des), 30; Railroad Cases, X. S., 18; Annotated Cases (des), 18; Assn. for Labor Legisla- tion, 153, 198; of Law Li- braries, 37n, 169; of Park Supts., 299n; Ballot Laws (1888-1910), 120; Bank- ruptcy Reports, 1899, 18; Bar Assn. Comparative Law Bur.: Index 437 Ann. Bui. (des), 147-50; criti- cized, 149-50; objects, 147-48; Reports, 156; Spec. com. on legis. drafting, 224; Casebook Series, 19; Catalogtce 1876-84, 1890-5, 125; City, 250, 298, 322; City Bureau, 250, 309; Civic Assn. Bui., 300; Colonial Law, bib. of, 44; Common- wealth, 80; Corporation Cases, 1868-87, lOv., 18; Decisions (des), 18; Digest: Century Ed. (des), 22; Decennial Ed. (des), 22; Manual, 22n; system (des), 22, 22n. Amer. Econ. Assn. Index, 168; pubs., 300; Econ. Rev. ,128, 144, 145, 300, 322; (des), 165; docs, in, 113; Electrical Cases, 1872- 1903, 8v., 18; Executive and Executive Methods, 212n; Fed- eration of Labor, 207; Federa- tionist, 144. Amer. Gaslight Journal, 299; His- torical Ass'n., 44n; Institute of Criminal Law and Criminol- ogy, 61; Journal, 65, 145, 154; Journal of International Law, 64; Supp. 87; Journal of Sociol- ogy, 300; (des), 165; Labor legislation rev., 201n; (des), 153; Law Directory, Martin- dale's, 45; Law Review, 64, 145; Legislatures, 69-72; Library Annual, 143n, 146. A. L. A. Comm. on Pub. Docs., 117; Amer. Municipalities, 298 Negligence Reports, 1896-, 18; Amer. Political Science Ass'n, 68, 229; Index, 168; Proceed- ings, 145, 300; Report on bill drafting, 225; Political Science Review, 128, 144, 145, 188, 198. 229, 274, 300, 322; (des), 165; docs, in, 113; indexed, 168; Public Health Ass'n, 299n. Amer. Public Library (Bost- wick), 45n; Amer. Reports, (des) ,.18; Amer. School of Cor- respondence, 276; Amer. Social Progress Series, 141; State Reports (des), 18; State Series, 141; Statute Law, 42; bibliog- raphy, 42; (Mass.), 41 ; in legis. ref. lib, 88; Amer. Tobacco Company Case, decision, 35; Amer Waterworks Ass'n, 299n. Amer. Year Book, 295. Ames, John G., Comprehensive Index (des), 110. Andronici, Dr. Carol, 250. Animal Industry Bureau, 272n. Annals of the Amer. Acad, of Pol. and Soc. Sci., 144. Annotated Constitutions, 25. Annuaire de Legislation du Trav- ail, Belgian, 116; de Legisla- tion Franqaise, 151; Inter*' national de Legislation Agricole, 153. Annual Library Index, 32, 166, 320; (des), 168; Magazine Sub- ject-Index, 143n, 146, 169. "Annual Poole", 146; Annual Re- view of Legislation, 119. Annuario Statistico delle Citti italiane, 296. Anti-trust decisions, 35, 36n. Anuario de Legis. y Jurisprud. Espanolas, 152. Appropriations, legis. ref. wk. 225-27; Indiana, 173, 184; Penn. 185; table of, 226; Wis. 184; mun. ref. wk., 341. Arbitration treaties, 26. Arizona, Constitution of, 82; legis. ref. proposed, 232; Univ., legis. ref. in, 77. Arnold, J. H., 9n. Arrangement, see Shelf-arrange- ment. "Articles of Confederation," 123. Aschaffenburg, Gustav, 64. Ashby, A. W., 133. Assn. of Amer. Law Schools, 61 ; of the Bar, N. Y. C, 40. Atkinson, C. R., 238n. Atlanta, 305; Mun. res. in, 252. Atlantic City Comm. Gov't., 302. 438 Index Atlantic Monthly, 143; Reporter, 16. Attorncv-Gencral, as bill-drafter, 360n;'in S. C. 372-73; Opin- ions, 34n; U. S. 34, 34n; Opinions, 20; Fed. Anti-Trust Dec, 36n. Australia, 114; Bill-drafting in, 376-78: Min. Wage law, 202, 207n; (Wise; 135. Austria, Mun. Yearbook, 296. Babbitt, Charles J., 43, 43n. Bailev. William L., 117. Baker, M. X.. 270n, 29on. Baker. Voorhife & Co., 42. Baldwin, Simeon E., 135. Baldwin, William, H., 157. Baltimore, 324. 327; Bur. of St. & Mun. Res. 2.52; Gov't of, 307; Legis. Ref. Dept. Ann. Rpt, 241 n; Legis Ref. in, 240, 327n; law 403-04; Pubs. 416; Mu- nicipal Journal. 312; Mun. Ref. Appropriation, 340, 341; Mun. Ref. in, 240, 241, 252. Bancroft-Whitney Co., 42. Banker's Magazine, 144. Banking Law Journal, 154. Banks Law Pub. Co., 42. Bar Assn. Rpts., Shelf- Arrange- ment, 57. Bar Associations, indexes to Pubs., 31, 32. Bar, Ludwig von, 62. Bates, Frank G., 172, 245. Beale, Joseph Henrv, 291, 332. Beaman, M. G., 27n, 53n, 217n. Beard, Charles A., 72n, 136, 139, 167, 259, 264, 275, 290, 304n, 315. Beavers, Genevieve W., 255. Beef Industry doc, on, 102. Beldon, Charles F. D., 43. Bell, Thomas S., 62. Belloc, Hilaire, 138. Beman, L. T., 142. Bemis, Alton A., 291. Benefit F"unds, doc. on, 107. Berkeley, Mun. Eff. in, 252. Berlin, Ger; M. Res. in, 259; Statistics Bur., 259, 259n, 296, 303. Berliner S talis tik, 303. Bernaldo de Quiros, C, 64. Berolzheimer, Fritz, 63. Berry, W. J. C, 49n. Bibliographia Economica Univer- salis (des), 166. Bibliographical Society of America, 37n. Bibliographie der Sozialwissen- schaften, 164. Bibliographie Generale et Complete des Livres de Droit et de Juris- prudence, 37. Bibliographies. American Colo- nial Law, 43^t4; American Statute Law, 36, 41, 42, 45 Anglo-Saxon Interests, 103n Arbitration, Industrial, 103n International, 103n; Bill-draft- ing, 164; Banks and Bank- ing, 103n; 397-401; Boycotts, 103n; Brookline, Mass., 287; Brooklvn, N. Y., 283-84; Budget, 103n; Cabinets, 103n; Canadian Statute Law, 45; Capital Punishment, 103n, 141; "Central Bank", 141; Charters, 275, 286, 315, 317; Child Labor, 103n, 142; Child Study, 106; Child Welfare, 318; Chinese Immigration, 103n; Cigarette Smoking, 105n; City Planning, 105n, 315, 318; Colonization, 103n; Com- merce Court, 105n; Com- mission Government, 103n, 142, 290-91, 316, 318-19; "Compulsory Arbitration, In- dustrial," 142; Compulsory voting, 105n; Congressional inquiries into gov't Bus. 1789- 1911, 101; Conservation, 103n, 142; Constitution, U. S., 103; Const. Conv. Proceeds, 84; Constitutions, foreign; (Dar- este) 86, 87; (Dodd) 85; Con- suls, 103n; Corrupt Practices, Index 439 Elections, 103n; Cost of Living, 103n; Criminal Law and Criminology, 162; Crim- inology, 98; Currency, 103n; Current books, 187-88; Cur- rent, where listed, 166, 320- 21; Dictionaries, legal, 30; Direct Nominations, 120; Direct "Primaries," 142; District of Columbia, 273n; Docs. 316; financial, 285; mun. 283-87; State 125-28; U. S. 91-92; Drinking cup, 105n; Economics, 296; and Pol. Sci. 164-66; and soc. 162; for 1909, 296, 317; Education in Agriculture and Home Economics, 106; Educational Publications, current, 106 Educational Topics, current 106; Eight-Hour Day, 103n Elections, Corrupt Practices 103n; "Election of Senators U. S.," 142; Employers Liability, 103n; Employment of Blind, 120; "Enlargement of Na\T. U. S.," 142; Ex- ceptional Children, 106; Fac- tory Legis., 135; Far East, 103n; Federal Control of Com- merce and Corporations, 103n; "Federal Control of Inter- state Corporations," 142; Fire Prevention, 105n; Fourteenth Amendment, 104n; "Free Trade versus Protection," 142; Garbage Disposal, 319; Gov- ernment, Business of, 135-37; ownership, 104n; of railroads, 142; Home Rule Charters, 275; Housing, 319; Immi- gration, 104n; Impeachment, 104n; in Journals, 164-66; in legis. ref. wk., 162-67; Income tax, 104n, 142; In- dustrial diseases, 154; Indus- trial Education, 102; Indus- trial, Vocational, and Trade Education, 106; Inheritance Tax, 120; Initiative, 104n; "Initiative and Referendum," 142; Insurance, 104n; Work- men's, 104n; Iron and Steel in Commerce, 104n; Juvenile delinquency, 319; Labor, 163; and strikes, 104n; "Latin American Laws," 45; Law libs. 345-46; Law Study, 38; Legal, 149; annotated list of, 37-40; ethics, 38, 162; Legis. ref. laws, 393-94; Legis. ref. wk., 388-96; Life Insurance, 120; Medical Inspection, 106; Minimum wage, 203-07, 203n- 07n; negative refs. 205-07; Monetary Question, 104n; Mo- tion Pictures, 105n, 315; Muni- cipal Affairs, 104n,286, 308-21 ; Municipal Corp. law, 291-93; Municipal Gov't, 288-91, 314- 16; Canada, 301; individual cities, 289; "Municipal Owner- ship," 142; Mun. ref. wk., 423- 31 ; Mun. res. wk., 423-31 ; Mu- nicipal Utilities, 164; "Navy. U.S. Enlargement", 142; Ne- gro Question, 104n; New York City, 284, 316, 319; (Reynolds) 249n; N. Y. (City) docs., 284; N. Y. (State) Pub. Service Comm., 249, 249n; Northern Securities Case, 104n; Occupa- tion of Philippines, 104n; Open Shop, 105n; "Open versus Closed Shop," 142; Order De- partments, 45n; Parcels Post, 104n, 142; Pardoning Power, 105n; Pensions for Mothers, 105n; Old Age and Civil Ser- vice, 104n; Periodicals, mun., 317; Pitts, docs., 285; Play- grounds, 319; Political Move- ments, 139-40; parties 104n, 138-39; Postal Savings, 104n; Preferential Voting, 105n; Pri- mary Elections, 104n; Public Drinking Cup, 105n; Public Service Rates, 105n; Public Utilities, 315; (See also Spec. Libs.) "Published During the 440 Index Year." 146; Railroads. 104n; Gov't regulation in foreign countries, 104n; valuation and capitalization, 104n; Recipro- city, 142; with Canada, 104n; Recognition in International Law, 104n; Recreation, 317; Representation, proportional, 104n; School-hygiene, 320; schools, 319;Scientific Manage- ment and Efficiency, lOon; Sen- ators, Election of, 104n; popu- lar election of, 104n; Session Laws, 43-44; Sewage dis- posal, 320: Short Ballot, lion, 315; Smoke nuisance, 320; pre- vention, 317; Social ethics, 163; Social politics, 163; Social Science, 164-66; Societies, State, Municipal and other Government Officials, 105n; Southern States, law of, 44; Special Libraries, lOon; State Charities, 105n; State Docs., 116-17; Statutory construc- tion, 396-401 ; Subsidies, Mer- cantile Marine, 104n-05n; Sugar, Economic Aspect, lOon; Supreme Court, U. S., lOon; Sweating System, 204— 07; Tariff, lOon; foreign, 105n; Taxation and Finance, local, 317; Texas laws, 44^5; "Trade Unions," 143; Trading Stamp Business, 105n; Train Crew Legislation, lOon; Trials, 24; Trusts. 10.5n; Wages. lOon; Water Supply, 320; Water- ways, Deep. 103n; Where noted, 229; "Woman Suf- frage," 143; Women, Employ- ment of, 142; Wool, lOon. Bibliography, division, L. C, 105n; legal, .37^5, 37n; Crim- inal Law and Criminology, 162; Legal Science. 162 (des), 38-39; Social Science, 164. Bill (de(), 89. Bill-drafting, 208-12, 231n: Bill-drafting agencies, laws on, 366-79, Cal. 366-69, Conn. 369-70. Mass. 370-71, New York 371-72, S. C. 372-73, Great Britain 373-76, 378-79, British Colonies 376-79, Can- ada 376, Newfoundland 376, Australia 376-79, N. S. W. 376-77, Queensland 377, \'ic- toria 377, Western Australia 377-78, France 379, Germany 379; laws, list of, 394; (see also legis. ref. depts., laws). Amer. Bar Assn. on, 224; Amer. Pol. Sci. Assn. on, 22.5 ; assistance in, authorized, 171 ; Bib., 397-401 ; California (Brunckenon) 212n; code for, 233, 233n; Def. 72; Indiana, 212n; in England, 80: instruction in, 223; Mc- Kirdv, 217n: (Parkinson) 208- 212, 212n; Penn., 185; Wise, 175-83; Wise. Forms used, 177, 179, 181, 183; Wise. Rules, 181. Bill-travel Card, illus. of, 215- 216. Bills, b'd vols. 89, 230; Indexes 230: current, exchange of, 89-90; daily record of, 215- 17; enrolled, 214; index to, 217; in legis. journals, 90; in legis ref. wk. 89; limitation on the number of, 69; progress of through legislature, official copies, 90, 213-17; U. S., how obtained ,94 ; when printed, 90, 214. Bispham, G. T., 13n. Black, Henr\- C, 30, 59. Blackstone, 29. Bliss, 131. "Blue Books," 82; British, 114. Board of Trade Journal, publi- cations noted in, 115. Boards of Trade, pubs., 305. Bogart, Ernest L., 212n. Bolton, Charles K., 286. Bonger, W. A., 64. "Book Collectors, Private," 168. Book numbers in law libs. 47. Index 441 Book Review Digest, 146; des. 164. Books in legis. ref. liby, 131-43; in mu n. ref. wk. 288-95 ; in print , see United States Catalog, 3d ed., and Cumulative Book Index. Borchard, Edwin M., 37n, 38, 149, 162; Guide (des), 38. Bosanquet, Helen, 206. Boston, 245, 305, 341. Boston Book Co., 42, 169; city record, 302; docs, in index, 281; finance com. 252. Monthly Record, 302; mun. res. in, 252. Bostwick, Andrew Linn, 242n, 258. Bostwick, Arthur E., 45n; (quoted) 238. Bourne, 167. Bouvier, John, 30, 60. Bowker, Richard Rogers, 125. Bowman, Ralph, 256. Boyaval, Paul, 203, 203n, 204, 205. Boyd, James Harrington, 133. Braddock (Pa.) Lib. 312. Bradford, Ernest Smith, 290, 316. Brief Making, 14n, 16, 24n, 38, 53n, 60, 346. Briefs of Counsel, 23, 24; cata- loguing of, 54; for U. S. S. C, where located, 24; in legis. ref. wk., 130-31; shelf-ar- rangement of, 56-57. Brauer, Herman A., 261. Brissaud, Jean, 62. British colonies, bill-drafting in 376-79, legis. of, 151. British parliamentary' papers, 114; indexes, 114. British Social Politics, Hayes, 203. Broadhead, Henry, 133, 205. Brockway, Zebulon Reed, 140. Brooklyn, docs, of, 283-84; mun. reL in, 252; pub. liby., 318, 319. Brooks, Robert C. 136; Bib. (des), 309-10. Brooks, Sidney, 205. Broom's Legff/ Maxims, 211. Brown, Charles Harvey, 286, Z\b;Bib. (des), 310. Brown, H. LaRue, 206. Brown v. Hoffmeister, 71 Mo. 411 (Cited) 7n. Bruere, Henry, 246n, 256, 290. Bruncken, 212n. Brj^ant, J. M., 279. Bryce, James, 80, 136, 224, 379 (quoted). Buenos Aires, 290, 304. "Budget" (Cleveland) 101; National, docs on, 100-01. Buffalo, Mun ref. in, 252. Bulletin de L'Ofifice du Travail, 115; de Statistique et de Legislation, 116; International Labor Office, 202-03; Bulletin of Bibliography, 166-69; Inde.xes to liVy ref. lists, 1901-, 321 ; of labor bur., U. S. (des) 102. Bulletins of Educ. Bur. U. S., 114; index in Rds. Guide, 114; Labor bur., U. S. indexed in Rds. Guide, 114; preparation of in mun. ref. wk., 329-30. Bullock, E. D., 142-143. Bureau of mun. res. N. Y. C, 337; of railway economics, classification in, 191. Bureaus of Mun. Ref. & Res.,5f<;Mun. Ref. Bur; Mun. Res. Bur. Burk, Dr. Jesse D., 252. Burlington, \a.. Council Pro- ceedings, 302. Burns, Allen T., 257. Butler, Henry, 87. Caen, France, 304. California, 171; bill-drafting in, 212n; doc. index, 126; Equali- zation Bd., 270; legis. counsel bur. law, 366-69; manual, 123; legis. ref. in, 74; pubs. 379; Legislature of 1909, 137, of 1911, 137; Lib. Comm. 442 Index 170; min. wage in, 200-1, 201 n; Municipalities, League of, 302; State Liby., 74; mun. ref. in, 245, 245n; Univ., mun. ref. in, 244, 260, 260n; mun. res. in, 244n, 422. Caiisse, Carlo, 62. Callaghan cS: Co., 42. Cambridge, Mass., 245; Pub. Liby.. 318. Campaign books, 138; speeches, 197. Campbell, Robert A., 245n. Canada, 114; bill-drafting 376; docs., llo; Legal Systems, 37n; Yearbook, 295. _ "Canadian Laws", 37n; Mun. Journal, 298; Statute Law, 45. Canterbury Conciliation Bd., 205; Employers' Assn., 205, 207. Card Cat. for correspondence, 307; in legis. ref. wk., 194; Index, of Bills drafted. Wis., 182; numbers of L. C. ( U. S. Cat.) 163. Carnegie Foundation, 145, 146; Institution, 125, 287; bibs, of, 162. Carranza, Arturo B., 87. Carswell & Co.. 42. Carter, A. T., 13n, 14n. Case arid Comment, 32. Case-book (def), 19; case-books, mun. corp. law. 287. "Cases and Points," 23. Cases Brought in Commerce Court, 34; on Mun. Corp. Law, 291- 92; Tables of. 22. Catalogues of Law Libs.. 40-^1; list, 40-41; printed versus card, 51. Cataloguing, in law libs., 51-54, 54n; are L. C. cards advis- able? 53; in legis. ref. wk., 192-04; in mun. ref. wk., 326- 28; in spec. libs.. 120n, 192n; in Wis. legis ref. dept., 174. Census Bur., 270n, 271, 271n, 312. Central Law Journal, 31. 64, 145. Centralia, Wash., Proceedings, 302. Century, The, 143; Century Digest, (des), 22. Chamber of Commerce of the St. of X. v., Mo. Bui, 305; of the U. S. A. 378. Chamberlin, Joseph L.. 63. Chambers of Commerce, pubs., 305. Charities, St. Control, 269. Charity Organization Review (London). 206; Society. 207. Charlemagne Tower Collection of Amer. Col. Laws, 44. Charles, Garfield {Treaties), 26. 36n. 87. Charleston, docs., Index, 281; Yearbook, 294. Charter-making. 275. Charters, 119, 263-64. 275-76, 286; and ordinances, current, 280; collections 264; colonial, 82-83; model, 276. Chattanooga, Mtin. Rec, 302. Checklist of Current mun. docs., 285-86; Checklist of U. S. Docs., 1st ed.. 112; 2d ed.. 112; 3d ed., 1789-1909, 33n, 191n; (des), 91, 112; of state docs.. 12.5-28. Cherokee, 124. Chesterton, Cecil, 138. Chicago, 330; Bur. of Informa- tion and Publicitv, 253; Bur. of Pub. Efficiency, 248. 248n. 253, 253n; Bur. of Statistics and Mun. Liby.. 312; charter. 275; charter convention, 1906, 264; charters, 264; City Club Bui., 304; City Council Jour- nal, Mun. Ref. Ordinances, 253n; Com. on City Expen- ditures. 248; Commerce, 305; Harbor Com. 269; Law In- stitute, 40: Mun. Code. 265; Mun. Lib. 282; Mun. Ref. in, 242, 248; ordinances 404-07; pubs. 416-18; mun. ref. and Index 443 res. in, 252-53, 253n; mun. ref. appropriations, 341; police situation, doc. on, 270; Pub. Libv., 253, 312, 313, 317; Bui. 322; Checklist, 286; normal school, 310; School of Civics and Philanthropy, 286n; Univ., 248; Law School, 223n. Chickasaw, 124. Child Labor Bui., 145: legislation, 99. Children, docs, on, 98. Choctaw, 124. Cincinnati, Ann. Reports, 267; Bur. of Mun. Res., 342n; pubs. 418; Citizens Bui., 305; Mun. Ref. in, 254; ordinance, 407-09; Mun. Res. in, 246n, 341; Univ. 254; Mun. Ref. in, 260. Circuit Courts of Appeals (U. S.), Reports, sale, 33; circuit courts, U.S., 17; abolished, 14n. Circulation, see loaning books. Citation Books, 23; catalogue, 54; Citator, 23; citators, 23. Citing law books, abbreviations explained, 59-60; methods, 59. Citizens Lib^y of Econ., Politics, and Soc, 141. Citizenship laws, 123. City Affairs, 304. City, anagt. of St. gov't., 262-63; "City and the State" 262; (City charters, see Charters;) City Club of Chicago, 286; City Clubs, 304n; Council Procedure, 332-33, 333n; (city) docs., see docs, mun.; City Hall, 298n; Midland Mun., 298n; Life and Mun. Facts, 305; (city) Manager Char- ters, 275; Planning Conference 299n; wastes, 270. Civics Assns., 197; Bib. for Greater N. Y., 249; (des),316; Clubs, pubs., 304; Civic Room, Chi. 253, 253n; Room, Cinn., 254; Room, Detroit, 254. Civil Service, 136; Chronicle and Police Chronicle, 305; Com- mission, U.S., 102; C. S. Cooper- ators' News, 113; laws, a party measure, 200; reform, 300. Clark, Champ, 217n, 220. Clark, W. D., 12n. Clark, W. L., 13n, 14n, 24n, 29. Clarke, John, 38. Classification (Cutter), 47; in law libs., 47-51; arguments for, 48; against, 48-49; G. E. Wire on, 48-49; of N. Y. S. L. 50-1; (Berry on) (Wire on) 49n; in legis. ref. wk., 189-92; alphabetical, 191; Bur. of Railway Econ., 191, in legis. ref. wk., 232; decimal, 190; Indiana, 190; L. C, 191-92; N. Y. Pub. Serv. Comm., 191; R. I., 191; Whitten, 190-91; Wis., 190; in mun. ref. wk., 324-26; N. Y. St. Law Libv., 50-51; Spec. Libs., 192n; need in mun. ref. wk., 342; text- books, legal, 48-49; U. S. Doc. Office, 92; Yr. Bk. of Legis. N. Y.), 119. Clef, Myrtile, 251n. Clerk at Speaker's Table, 129, 185. Cleveland, Frederick A., 101, 246n, 256. Cleveland, Bur. of Information and Publicity, 254; Mun. Assn., 83; Mun. Bui. 305; Mun. Ref. in, 242, 254, 261; Pub. Liby., 261. "Clipping Bur. and the Liby." (Luce), 161n; in legis. ref. wk., 158-62; in mun. ref. wk., 307-08. Coal Mines (min. wage) Act, 1912, 202. Code, 28, Def. 27. Coke, 29; Coke on Littleton, 29. Cold Storage, doc. on, 120. Cole, Theodore Lee, 44. Coleccion de las Instituciones Politicas y Juridicas de los Pueblos Modernos (des), 152. 444 Index College Debating, Yearbook oj (Nichols), 204n. 205. College of the City of N. Y., 336-37; mun. ref. in, 259. Collier, John, 250. Collier's. 143. Colorado, legis. ref. in, 232; legis. ref. in St. Univ., 77; Min. Wage in, 200-01; Colo. Springs, Summary of Pro- ceed i figs, 302. Colson, Frederick D., 221. Columbia La'w Journal, 04: Univ., 209; Univ. Studies, 146, 317; Mun. Ref. in Univ., 259. "Coming Events," 113. Comite de Legislation (France) 116. Commerce and Labor Dept., 107. Commerce Court, 15; abolished, 15n; Decisions, pub. by Atty- Gen., 34n; Decisions, where pub., 34, 34n. Commerce, Dept. of, 271. Commercial Laws of the World, 133; news, 305; organizations 197. Commission Gov't., 264; books on. 290-91; Law, Iowa (Beard &Schultz), 167. Commissioners on L'niform St. Laws, 154-56. Committee hearings, how ob- tained, 94; where noted, 113; Comm. of Fifty, 111., 157. Committees, reports of, bills in, 90. Common Good, 305; common law, def., 11-12, 12n. Commons, John R., 139, 247, 310. Comparative data, cat'g of, 326-27; Law Bur. (.\mer. Bar .Assn.) objects, 147-48; Law, cat'gs of, 40, in for. docs., 115-16; "Comp. Law in the Blue Books," 115, 151; Stud- ies, 1.33-35; Studies in Comp. Law, 115; Comparative Law, see also Laws, compilations of: Comparative Legislation, 116n, 147-57; rules (Wis.) 330; (Dodd) 116n; in St. docs., 120- 21; Societies, 149-52; (Whit- ten), 73n; see also Laws, compilations of. Comparative Parliamentary Law, 213; see also procedure, legis. Compiled Ordinances, ' 265; Statutes, (U. S.) 27. Comprehensive Index (des), 110. 'Comptroller of the Treasury," 20n. Concerning Mun. Ownership, 299. Conciliation and Arbitration, 102n. Conference for Good Citv Gov't, 1910, 241n, 295; of Commrs. on Uniform St. Laws, 154-56, 156n, 157n. Congress, Business of, 137. Congressional Directory, 19; legis. ref. bur. hearings, 187n; legis. ref. bur. proposals, 79-80; 186-87; legis, ref. bur. pro- posed appropriation, 187, 22(>- 27; Record. Ill, 113, 188; Set, 93-96; Set, introduction of serial no. 112; Set, with- drawal of reports from, 93-94. Connecticut, Bill-drafting in, 171; Laws on, 369-70; legis. ref. in, 74; Pubs. 380; Regis- ter and Manual, 369, 3fi9n; St. Liby. mun. docs, in, 283; Taxation of corporations pay- ing ta.xes totheSt.spec. comm. 122. Conrad, 131. Consolidated Index, 111. Constitution, Oklahoma. 123; U. S.. 123; Economic Inter- pretation of, 139; where pub., 85; when ratified, 85; index to, 85; latest cd., 85n. Constitutional amendments, files of, 90; convention proceed- ings, 24-25; conventions, bib. of proceedings, 84; provisions on mun. gov't, 263. Index 445 Constitutions, 24-25, 81; an- notated, 25; foreign, com- pilations of (des) 85-87; Indian nations, 124; Latin- American 86-87; new, where pub., 87 new, summarized, 119; State 84; St. compilations of, 82-84 St., where pub., 81-84 (Thorpe), 35, 35n. Continental Legal History Series (des), 61-62. Convict labor, doc. on, 102. Cooley, Roger W., 14n, 29, 38, 346n. Co-operation in legis. ref. wk., 173, 228-30; in mun. ref. wk., 342-43. Co-operative Credit, doc. on, 121. Cornell, Univ. Liby., 313; mun. docs, in, 283. Corporations, U. S. Bur. of, pubs., list of, 102. Correspondence in mun. ref. wk., 306^7; value of in legis. ref. wk., 158. Corrupt and Illegal Practices Prevention Acts, 134. Corwin, Edward S., 88. Cost of Living, 102n; doc. on (des), 98; U. S. doc. on (des) 97. Cotton Exchange, doc. on, 102; Tare, doc. on, 102. Council of law reporting, 16; council proceedings, 265. Councils, see city councils. Court decisions. Constitutional law, 119; in legis. ref. wk., 88; see also court reports. Court of Claims, 15; (des), 15n; Reports, sale of, 34; of Cus- toms Appeals, 20; Reports, 20n; Reports, sale of, 34. Court reporting, England, 16; Reports, 13-19 and notes; arrangement of, 55-56; his- tory, U. S., 14n; Eng., (trea- tises on) 14n; how cited, 15; sale of 33-34, 33n; in federal docs. 33-35. Courtney, 166, 320. Courts, the (McLaughlin) 139; Courts of the State of N. Y., 14n: U. S., 14-21. Cranch's Reports, 15. Crandall, Samuel B., 87. Crane, Robert T., 260. Criminology and Penology, (books on), 140; docs, on (des), 98. Cumulative Book Index, 146, 163, 166; (des) 164. Cunningham, Jesse, 159n. Currency, Comptroller of the; Digest of Nat. Bank Decisions, 20, 34n. Current Events Index, 146. Current Law (des), 22. Currier, Albert H., 140. Cutter Classification in L. Libv, 47. Cyc. of Amer. Gov't., 27n; of Law and Procedure (des) 30. Daily Consular and Trade Re- ports, 115, 271. Dallas, mun. ref. in, 254; Re- ports, 15. Dareste de la Chavanne, 86. Dates, indexes to, 169-70. Davenport, Chas. B., 133. Dawson, Miles M., 134, 163. Dayton, 305; mun. ref. in. 254; mun. res. pubs. 418-19. Dealey, Jas. Quayle, 84. Debaters^ handbook series, 141^3. Decimal classification, see Dewej'. Decennial Digest, 22, 60. Decisions, 81, on mun. questions, 287; of administrative [offi- cers, fed. 19-20; state, 20-21; see also court decisions, court reports. Declarationof Independence,123. Definitions, legal, 30. Delaware, doc. index, 126. Delinquent, 145. Deming, Horace E., 264n, 276, 288. 44G Index Democratic Republican Organi- zation of N. v., 1904 (Macy) i;i.S. Denmark, rural, 134. Denver, 77; Citv of, 302; Gov't of, 294; Mun. facts, 302. Des Moines, charter, 275; mun. ref. in, 2.54. Departmental pubs., U. S., 101- 09. Deploige, Simon, 134. Depository Cat., 46, 46n; libs., 34, 93, 93n, 94; selection of docs, by, 95; Set, 93-96. Descriptive Word Index, 22n. Detroit, mun. ref. in, 254; pub. lib., 313. Detroiter, 305. Deutscfter Reichsanzeiger, 202. Dewey decimal classification, expansion of, 190-95; for clip- pings, 160; for correspondence, 307; in law. libs., 47; in legis. ref. wk., 190-95; in mun. ref. wk., 32.5-26. Dewev, Melvil, 73. Dial, 322. Dictionaries, legal, 9, 10, 11; law-French, law-Latin, 30; list of 30. Dictionary cat. (def.), 51. Digest of City Charters, 264; of State Banking Statutes, 100; of state constitutions, S3; of nat'l bank decisions, 20; of official opinions of attorneys- general, 20; of opinions of Judge-advocates-general, 20. Digesting data in mun. ref. wk., 329-30. Digests, 21-22. Dijon, France, 304. Dillon, John Forrest, 291, 331, 332, 333n. Direct Primary law, Calif., 138. Directories, legal, 45. Directory of publishers, 168; and booksellers, 14n. Distributive or store co-opera- tion, doc. on, 121. District courts, U. S., 17. Dist. of Columbia, 272, 272n; doc. on, 99; gov't of, 290. Docs, as gifts, 188-89; Canada, 115; current, 228-29, current, lists of, 127-28; Fed. on mun. affs., 270-73; 288; foreign, 114- 16; foreign, noted in Journals, 11.5-16, 116n; gov't inlaw libs. 33-36; Great Britain, see also parliamentary' papers; Index, 95; mun. check-lists of, 283-87; mun. collected, 266-«8, 283; mun. current, 285-86; mun. dept. 268-69; editing of, 267; exchange of, 323; mun. (Greathouse) 113; in law libs., 36; in legis. ref. wk., 128; indexes, 281-82; on finance, 285; pub. and distribution, 266-67; selection of, 267; where listed, 322 ; office, classification, 191; office U.S., 110; state and mun. as sources of information, 270; St. check-lists, 127-28, St. Current, 128, St. dept., 124-25; St. (Greathouse), 113; St. in law, liby., 36; in legis. ref. wk., 116-28; St. in lib. of Cong., 127; St. indexes and check-lists, 125-28; St. on mun, aflf. 269; U. S. 91-114; U. S. Cloth binding, 94-95; U. S. compilations of St. laws in, 101- 09; U. S. current, where noted, 109, 112-14; U. S. distribution, 93, 93n, 94; U. S. Indexes, check-lists, etc., 109-11; U. S. Lib. of Cong., card nos. for, in Mo. Cat. HI; U. S. (Omis- sions from depository sets), 96n; value of, 95-96; U. S. (Wyer on) (Everhart on) 91; where noted, 113. Dodd, \V. F., 27n, 85, 86n, 87, 116, 116n, 150, 151, 152, 273n, 289 (rev. of Thorpe), 83. Dougherty, J. Hampden, 136. Drafting of ordinances, 239-40; 330-32; aids in 331. Index 447 Draftsmen, ideal, 217n, instruc- tions to, 233; training of, 217n, 217-24. Dresdner Anzeiger, 303. Du Faure, 116. Dublin, Louis I., 163. Dudgeon, M. S., 217n, 219. Dunlop, Geo. H., 303. DiJsseldorf, mun. college, 337, 337n; mun. res. in, 261. Eakins, W. G., 45n. Eclectic Lib. Cat. 113. Economic Journal (des), 165. Editorial Gongora, 152. Education Bur., 273; Buls. in- dexed, 114; pubs., 106. Education in Germany, 106. Educational directory, 106; Re- view, 144. Efif. Comm. State, 261n; in city gov't., 341-2; "Standards," 341. Election of Senators, doc. on, 98. Electric Railway Journal, 299. Elliot, Chas. B., 291. Elliott, Edward C., 108. Elster, 131. Ely, Richard T., 141. Employers Assn., 207. Emrich, J. O., 54n. Encyclopcedia of Local Gov't, Bd. Requirements, 293; legal, 30. Engineering Mag., 144, 300; News, 300. England, 114; Gov't of (Lowell) 378-79; local gov't in, 289; local gov't, books on, 291-93; Local Gov't (1908-9), 292; min. wage laws, 202; see also Great Britain. Englemann, Arthur, 62. English Reports, Full Reprint (des), 17; Ruling Cases (des), 18. Engrossment of bills, 214. Enrolled Bills, 214. Epileptics, colony care, 157; in 111., 157. Equitable Life Ins. Soc. of U. S. v. Goode, (101, la. 160 cited), 7n. Equity, 12, I2n; Series, 145. Ernst, Geo. A. O., 252. Esmein, A., 62. European Countries, legis. of, 151. Evans, L. L., 267n. Everhart, Elfrida, 91, 96, 96n. Everts, Leslie L., 247. Everybody's, 143. Exchange, 323; in legis. ref. wk., 189; in mun. reL wk., 342; of laws, 46. "Executive and the Legis.", 212n. Explosives, model laws, 156. "Factories," comfort, health and safety in, 154. Factory legis., 134. Fairlie, John Archibald, 136, 260, 270, 287, 288, 303n, 311, 314, 331, 332, 333n. Fanning, C. E., 141, 142. Farmers' Bulletins, 101-02, 271, 271n; indexed in Rds. Guide, 114; Institutes, doc. on, 107. Farnam, Henry W., 162. Fed. docs, see docs. U. S. Fed. Reporter, 17. Ferri, Enrico, 64. "Festina Lente," 211-12. Filing methods in legis. ref. wk., 194; in mun. ref. wk., 328. Finance, Com. Boston, 252. Financial Statistics, state doc. on 1890 and 1895, 120. Finch, J. A., 36n. Finley, John H., 136, 212n. Fire and Water Eng'r'g., 300. Fire Insurance, Zartman, 200; marshal assn. of Amer., 156; marshal law, model, 156. "First Reading," 213. Fish, Carl Russell, 136. Flack, Horace E., 251n, 252. Flagg, Samuel B., 279. Fletcher, 29. Flies, doc. on, 271n. 448 Index Flood. T. H. & Co., 14n, 42, (iO. Flov. Hinrv, 293. Foltz. El Bic K., 136. Fulwcll, Amary Prescott, 294. Foreign and domestic commerce, bur. of. 271. Foreign codes accessible in Eng- lish. 148; law collections in U. S.. 148, 149; compilations, 36; mass. cat. of, 41; (see also comparative law); laws, guides to. 38; relations (U. S.) comm. on (Senate) 35n, 36n; Tariff Notes, 107. Fort Wavne, Indiana, mun. ref. in, 254". Forum, 143. Fosdick, Raymond B., 238n. Fouilles, A., 63. Foulke, \Vm. Dudley, 343n. Fo'ci'ler V. Gilmore, (30 Tex. 432 cited) 7n. France, 114; bill-drafting in, 379; docs, of, 115; legis. ref. in, 151; Ministere d'Interieur, 296: mun. finance, 296. Franchises, 294. Frankel, Lee K., 134, 163. French Spoliation Claims, Con- densed Findings, 35. Freund, Ernst, 68-71; quoted, 68, 223n. Frost, Harwood, 294. Fuld, Leonhard Y., 293. Galveston, charter, 275. Game laws, 102; doc. on, 107. Protection, doc. on, 107. Garbage disposal Doc. on, 270. Gareis, Karl, 63. Garland, Jas. Smith, 291. Garner, Jas. W., 62. Garnishment of wages, laws, compilation of, 121. Garofalo, Raffaelle, 64. fiarraud, F"rancois, 62. Gary lib., 40, 149. Gavlord, binders, 195. Geldart, W. M.. 12n. Georgia, constitution of, 82; legis. ref. proposed, 232; reso- lution, 347-4S. German Imperial Banking Laws, 100; Industrial Education, 106; Stock Exchange Regulations, 100. Germany, 114; Ag. credit in, doc. on, 97; bill-drafting in, 379; legis. ref. 150; min. wage law, 202; mun. admin, in, 289; Yearbook, 295. Gibbon, 134. Gifts in legis. ref. wk., 188-89; in mun. ref. wk., 323; to law libs., 47. Gilbert, Frank B., quoted, 7. Gillican, E. O., 255. Giron, Vicente Romero, 152. Gladstone, 373. Glasson, E., 62. Globe Wernicke files, 178, 180. Glynn, Geo. A., 87. Godfrey, Mollis, 293. Gomme, Geo. Laurence, 311. Good Gov't., 300; assn., 314; roads, 300. Goode, J. P., 269. Goodnow, F. J., 15n, 136, 139, 289, 314. Gov't, accountant, 300. Gov't, business of (books on), 135-37; congressional inquiries into, list of, 101 (docs, see docs.); of Amer. cities, 246n; officials, quasi-judicial deci- sions and opinions of, 20-1 ; societies of, 304; pubs. (Great- house) (des), 113; interest in mun. afT. 343, 343n. Governor 89, 214; signature, 214-15; messages of, 128, 197, 224; messages, cat., 194; mes- sages, digest, 119; messages, N. Y. Index, 120. Graft exposures, 238, 238n; prosecutions, 238n. Grand Rapids, mun. ref. in, 254; pub. liby, 241, 286, 318. "Grandfather Clause," 200. Gray, Justice, 19; (quoted) 29n. Index 449 Gray's Inn, 40. Great Britain, bill-drafting in, 373-76, 378-79. Bd. of trade, 115; docs, of, 114-15; legis. ref . 151; min. wage laws, 202; Yearbook, 295; see also Eng- land. Greater Dayton, 305. Greater New York, 305. Greathouse, Mary C, 113. Green Bag, 31, 32, 64. Grey, Wm. Edward, 130. Grinnell College, Iowa, mun. ref. in, 244, 259. Gross, Chas., Bib., 311; Hans, 64, 150. Growth of Cities, 307. Guides to foreign laws, 38, 162. H. M. Stationery Office, 114. Haggard, H. Rider, 134. Haines, Chas. G., 261. Haines, Lynn, 136-7. Halbert, L. A., 255n. Halle a/S., Gov't of, 289n. Hamilton, John Judson, 290. Hammond, M. B., 207n. Handlist of Amer. Statute Law (Mass.) 43-44; (des), 41. Hanmer, Lee F., 279. Hardy, Rives B., 158. Harper's, 143. Harris, Henry J., 303n. Harrison, A., 134. Hartford, (Conn.), City Plan Comm., 277. Hartwell, Edward M., 303n. Harvard Law Rev., 31, 64-65, 145; (des), 32; Library, 9n; school, 40; lib. 43; lib. cat., 25, 51. Harvard Univ., 163; mun. ref. in, 244-45; 259; mun. res. in, • 244n, 245. Haskins, 269. Hasse, A. R., 44, 125, 127, 285, 287, 311; Index to Econ. Ma- terial, 126-27. Hastings, W. G., 63. Hatton, A. R., 261; Digest, 264, 275. Havana (Cuba), 290; sanitation of, 273. Hayes, Carleton, 203, 207. Health, public, see Public Health. Hearings, state legis. com. 124. Hering, 269. Henry, Robt. L., 63. Hershey, 88. Hichborn, Franklin, 137. Hicks, Frederick C, 38, 59. Hinds, Asher C, 129. Hind's Precedents, 129. Hindu Law, Leading Cases on, 150. Hirst, Francis W., 289. Hitchcock, Henry, 84. Hoboken, mun. ref. in, 255. Hodder, Frank H., 311. Hohoff, A. W. von, 256. Hoke, H. G., 279. Holmes, G. S., 281. Home rule charters, 275. Hookstadt, Carl, 113. Hopper, Franklin F., 45m, lS9n. Hornbook Series, 29n. Horr, Norton Townshend, 291. Horton, Henry P., 64. Hotchkiss, Wm. E., 20n. Hough, Franklin B., 83. House Document Room 94. House Docs., 94; annotated list of, for legis, ref. liby., 100-1; Journals, 94; Manual (U. S.), 129, 129n; of Commons, Man- ual oi, 130; Reports, 94:; (des), 96. Housing, 293. Houston, 302. Howe, Frederic G., 137, 139, 2.50. Howell, Rapelje, 62, 64. Howland, Wm. B., 297, 317. Hubner, Rudolf, 62. Hufeland, Otto, 282. Hunt, Meyer, 267. Hupper, R. H., 52, 52n. Husik, Isaac, 63. Hutchins, B. L., 134. Huvelin, Paul, 62. 450 Index Hvgienic Laboratory (U. S.), '272. Ihering, Rudolf von, 63. Ilhcrt, Sir Courtney, 12n; quoted 373-74. Illinois, bill drafting in, 171; doc. index, 126; doc. list, 127; doc. on, educ. com., 122; doc. on occupational diseases, 122; on pub. charities, 122; on town and county gov't, 270; efif. comm., 261n; legis. pro- cedure, 130; legis. ref. appro. 226; law, 348-50; legis. ref. wk., 75-7; mayors assn., 302; Univ., 77, 324; libv. school, 124, 221, 328; problems 346^7, 402, 431-33; univ. mun. res., 244, 260; univ. Studies, 307; Illuminating Engineer, 300. ImhofT, Ono Mary, 192, 193. Immigration, Report of the Imm. Comm., 42v., 98. Income Tax, doc. on, 121. Incorporated law society, Lon- don, 41. Incorporation of business corps., 155. Independent, 143. Index Analysis of the Federal Salutes, 53, 53n; review of, 27, 27n. Index of Econ. Material in Docs, of the States, 287; (des), 126-7. Index of Legislation, 274; classi- fication, 191. Index to Current Events (des), 170. "Index to Dates of Current Events," 146, 168; (des), 170. Index to Legal Periodicals and Law Libv Journal, 31, 143n, 147, 169;' (des), 32. Index to Legislation, N. Y., 119. Index to Ref. Lists, :i21. Index to Subj. Bibs., 321. Indexes, to Bibs., 320-21; to bills, 194, 217; to books, 167- 68; to collected city docs., 281; to docs., 109-12; to docs., state, 125-28, to gen. mag., 323; to legal periodicals, 32; to legal pubs., 31, 32; to N. Y. Manuals, 282; to newspapers and dates of current events, 169-70; to periodical and society proceedings, 168-69, 168n. Indexing, uniform, needed in legis. ref. wk., 232. Indian Nations' Constitutions, 124; treaties, 44, 124; tribal laws, 44. Indiana, Bill drafting in, 171, 212n; legis. ref. in, 76, 228, 232, 324; legis. ref. appropria- tion, 173, 226; leg. ref. classi- fication, 190; leg. ref. law, 350- 51, organization, 171-73; pubs. 380; mun. ref. in, 245; State Librarian, 172; State library, 41, 319; University, 172, 245; Mun. ref. in, 244, 260. "Indices to legal literature," 32n. Individual Cities, Gov't, of , 289- 90. Industrial Arts Index, (des), 169; Democracy — Webb's, 206; diseases, 153; education, doc. on, 107; education in U. S., doc. on, 102. Inheritance tax, doc. on, 99. Initiative, Referendum and Re- call, 139, 140, 167. Insane, Care of, 134; doc. on, 122. Institut de Droit Comparee Revue, 152; of Actuaries, Jour- nal, docs, noted, 116. Institute of Agriculture in Rome, 153; of Bankers, Journal, docs, noted, 116; Guiridico della R. University di Torino, 152; Ibero- Americano de Dere- cho Positivo Comparado, Re- vista (des), 152. Insurance, Compulsory, 142;Lau) Journal, 154; see also work- men's insurance; employers' Index 451 liability, workmen's compensa- tion. Interior Department and Gen- eral Land Ofifice Decisions, 19, 34n. Intercollegiate Debates, 204, 205, 206. International Assn. of Chiefs of Police, 299n; Harvester Co., doc. on, 102; Institute of Legal Bibliography, American edi- tion, Journal, 38-39; Institute of Social Bibliography, Jour- nal, 164; Labour Office, 5m/- letin,\bZ, 202 ; Latw (Hershey), 88; Law and Continental Law, Bibliography of, 38; Law Digest, (Moore) 35, 35n, 88; Mun. Congress, 271, 343, 343n; In- ternationale Vereinigung fiir Vergleichende Rechtswissen- schaft und Volkswirtschafts- lehre, Jahrbuch (des), 151. Interstate Commerce Commis- sion Decisions, 19, 34n; Laws, 154; Investigations, where noted, 128, 228-29, 287; see also Legisla- tive Investigations; also Cor- porations, Bur. U. S., 128. Iowa, Employer's liability Com- mission, 123; leg. ref. in, 74; pubs., 380; mun. ref. in, 259; municipalities, 298n. Italy, Yearbooks, 296. Ivins, William M., 294. Jackson, Hilton E., 30. Jahrbuch (comparative law) des., 151; fiir Nationalokonomie und statistik Indexes, 169. James, E. J., 264, 276, 289; Her- man G., 260, 276. Jameson (rev. of Thorpe), 83. Jastrow, Mrs. R. S., 63, 64. "JefTerson's Manual," 129. Jelf, Ernest Arthur, 134. Jersey City, mun. ref. in, 255. Johns Hopkins University Stud- ies, 146, 301. Johnson, T. R., 293. Jones, Chester Lloyd, 72, 72n, 130, 138, 164, 212n, 213; Hilda Vernon, 114; L. A., 31, Index, (des), 32. Josephson, 320. Journal of Criminal Law and Criminology (see also Amer. Inst, of Crim. Law, & Crim., 65); Political Economy, 144, 165, 296n, 300, 317; see also Periodicals. Journals, Bills in, 90. Joyce, Joseph Ashbur^', 294. Judge-Advocate General of the U. S. Army; Opinions, 20; Digest of, 34n. Judicature Acts, 13n. Justice Dept. (U. S.), 41, 60; Liby. 43. Kaiser, J. B., 231n; 317. Kallen, Horace M., 64. Kansas City, 324, 327; Mun. ref. in, 241, 243, 255; ordinance, 410-12; pubs. 419; mun. ref. wk., appropriations, 340, 341; public Hbrary, 313. Kansas, legis. ref. in, 74; pubs. 380; mun. ref. in,244n; munic- ipalities, 298n; univ. mun. ref. in, 244. Kates, PhiUp, 343, 343n. Keeler, Harris S., 248, 253. Keeper of the Seals, France, 115-116. Kelley, Florence, 134; Joseph I., 64; & Son, London, 42. Kentucky, doc. index, 126; legis. ref. in, 76. Kerr, J. W., 278. Key-number system (of Am. Digest system), 22n. King, Clyde Lyndon, 164, 291, 294; P. S. & Son, 115; Printer and Controller of Stationery, Canada, 115. Kite, Elizabeth S., 122. Klingelsmith, Margaret C, 37n. Kocourek, Albert, 63. 452 Index Kohler, Josef (men), 63. KommunaUs Jahrbuch, 295. Korkunov, N. M., 03. Kroeger, Alice \i.,Guide,^l, 117, V21;Guidf (Ed. 2) and Siipp., 92, 1()9, IGS, 31 In. L. R. A. Cases as Authorities, 23. Labor and Labor Disputes, N. Z., 133. Labor, L'. S. Commr. of, 102-3; Dept. U. S. Buls., indexed, 114; depts. of, 203; laws, 153; laws, foreign, 102n; laws ot U. S., 102n; docs, on, 102; legislation of 1912, 102; legis- lation (Pic J (des), 135; St., Index to, through 1912, 103; office, France, 115; statistics, bur. of, 19S. LaFollette, Senator, 79; Weekly, 144. Lalor, 131. Lambeth v. Milton, 2 Robinson (La.) 81, 7n. Langworthy, C. P., 270. Lapp, John A., 173, 195, 212n, 229, 342. Latin- Amer., Mun. Organization in, 290; laws, 45. Latin countries, legis. of, l.'JO. Laughlin, J. L., 206. Law (def.) 11. Law Books; arrangement, 54-59; in a pub. liby., 60-5; diction- aries (Black, Bouvier) 59-60. Law, enforcement (Whithall), 135; libs, (assn., court, gov't, dept, private, school, state), S, 9; libs, list of, 8; libs, reading- list, 345-46; topical outline, 1-7; "Lib." 7n; assn. of St. Louis, 41; in legis. ref. 81; Journal, 146, 169; "Making and Revision of," 68; law liby. wk. problems, 346-47. Law-making, defects in, 69-72; Scientific, 2'.i\x\\ Statute (Jones), 72-72n; reporting, l4n; re- porting CO., 230n; "law study," 38; where found, 81. Laws, compilations of: agricul- ture, 153; Australia, 135; auto- mobile, loS; Ballot laws, Amer. (lSSS-1910), 120; banking, 100; benefit funds, 107; bud- get making, 100; child labor, 98-9; (1907), 120; Commercial laws, 133; compulsory atten- dance, 120; Co-operation and marketing, 121; convict labor, 158; copyright, 135; epileptic colonies, 157; family deser- tion and non-support laws, 157; farmers' Institutes, 107; game, 102, 107; Garnishment of wages, 121; illuminating gas, 272, 272n, 277; Immigra- tion, Fed. and St. Legis., 98-9; Industrial Educ, 102, 107; Ind. Ins., 133; inheritance tax, 98-9; insane, care of, 122, labor, 102, 116n; list by Hasse, iq7n; Local gov't, 292- 3; marriage, eugenics, 133; min. wage, foreign, 202-3, 202n-203n; min. wage, U. S., 200-1, 201n; motor vehicles, 158; navigable waters, 123; nursing, 108; occupational diseases, 122; patents, 135; poisons and drugs, 108; prison labor, 135; prisoners, treat- ment of, 145; public drinking cup, 108; pub. health authori- ties, 278; pub. serv. corps. 154; railroads, 154; recreation, 279; road laws, 108; school laws, 108; school tax, 122; state laws in fed. docs. 101-09; strikes and lockouts, 115; tariff, 101; tariffs, foreign, 107; taxa- tion, internal, France, 116; tax of corps., 109, 122; trademarks, 135; where noted, 229; weights and measures, 109,280; work- men's benefit funds, 102; work- men's compensation, 109, 123, 133; workmen's insurance, 134; Index 453 workmen's ins. Europe, 102; see also comparative law; also ordinances, comp. of. Laws, editing of, 230; federal 26-7; in force, federal, 88; how found, 27; model, 156- 158; needed in a pub. liby, 65; omitted from compilations by mistakes, 28; state, 27-8; state on mun. gov't. 263-4; see also legislation. Lawyer and legislator, 81. Lawyer's co-operative pub. co., 4n, 42. Lawyers' ed. U. S. Supreme Court Reports, 17; Lawyers' Reports Annotated, 17. League of Amer. Munic, 295, 298n. Lee, Joseph, 206. "Legal Ethics," 38. Legal periodicals, list of for a pub. liby, 64-5. Legislation, Annual Rev. of, 151; comparative, see comparative legis. "Current Mun." 274, 280; Ethical Gains Through, 134; factory, 134; social, Ger- many, Eng., France, Australia, Canada, 114; N. Y. Year Book of, 119; pending, status of, 215-7, 230, 230n; to be proposed, source for, 195-8; subjs. of, ref. wk. on, 75; trend of, 197; uniform (in U. S.), 154-6; see also laws; also comparative legis. "Legislative Apportionment" (Reed), 83; Legis. Buls. (N. Y.) 382-83; drafting bur., 209; drafting, report on, 231n; information service, 230n; in- vestigations, lists of, 128, (see also investigations) ; manuals, state, 123-4; procedure, see procedure, legis. Legis. Ref. Bur., Amer. Bar Assn. reports on, 170n; hear- ings on (U. S.), 170n; pubs. of, 118, 118n; Putnam's Re- port, 170n; Thompson's Re- port, 170n. Legis. ref. depts. pubs., 379-87; Cal. 379, Conn. 380, Ind. 380, la. 380, Kan. 380, Mass. 380, Mich. 380-81, Mo. 382, Neb. 382, N. Y. 382-83, N. D. 383, Ohio 383, Penn. 383, R. L 386, S. D. 386, Tex. 386, Vt. 386, Va. 386, Wis. 387; table of, 384-85. Legis. Ref. Librarian, qualifica- cations, 217-220; 217n, 393. Legis. Ref. Libs., acquisition of material, 187-89; classification and cataloguing in, 192n; organization in, 170-87, 170n; (Ray), 139. Legis. Ref. Liby. select, 81. Legis. Ref. Wk., appropriations for, 225-7; table of, 226; basis of, 68-72; bib., 388-96; Bills, 394-95; def., 70; desiderata, 232-33; laws, list 393-94; (full) texts, 347-65, (Ala. 347, Ga. 347-48, 111. 348-50, Ind. 350- 51, Mich. 351-52, Neb. 353- 54, N. H. 355, N. D. 355, Ohio, 356-57, Oregon 357-58, Penn. 358-61, R. I. 361, S. D. 361- 62, Tex. 362, Vt. 362-64, Wis. 364-65), materials of, 80 sq.; new lines of wk. proposed, 230-31 ; N. Y. St. Liby. School, 220-21 ; organization (general), 185-86; organization Indiana, 171-73; Penn. 184-86; Wis. 173-84; origin and develop- ment, 72-80; preparing for a session, 195-99; "Present Sta- tus," 75n,231n; problems402; success of, 224-5; bill-drafting a factor in, 225; tendencies in, 186, 228-33; topical outlines, 66-67; training for, 217-224, 217n; 111. Univ. Liby School, 221 ; Wis. Univ. course, 221-3; without specific legis. 74; by specific legis. 74. 454 Index Legi>latiirc, Wis.; relation to Icgis. rcf. dcpt. 176. Lejjislalures, Amcr. 69-72, 71n; and Legislative Methods, Anier., 137; synopsis of proceedings, 90. Legk-r, Henrv E., 253. Leon. Morgand, 292. Lester, C. B., 7on, 221. Lexington, Ky., The City of Lexington, 303. "Libraries in L'. S. and Canada, select list of," 168; of the World, leading, 168. Librarian of Congress, Report relative to legis. ref. bur. 79, 79 n. Library Buls. bibs, in, 312-4, 317-20, 321; comms., indexes to newspapers 170; Journal, 4.5n, 117, 146. Library of Congress, 127, 314; bibs, on Pol. Sci. and Econ., list of, 103n-105n; division of bib., IO.'mv. card nos. for U. S. docs., Ill; cards for law collection, 51, 53; classifica- tion, 325; classification in legis. ref., 191-92; depository cat., 46, 46n; docs, state, index, 287; law collection, 149; law division, 41, 52, 53, 53n; legis. ref. in, proposals, 79; hear- ings, 79, 79n, 80, 80n; mun. docs, in, 267, 283; printed card nos. ( U. S. Cat). 163. Library of pub. serv. com., 249n. Libv. Schools, mun. ref. wk. in, 338-9; Wis., 173. Lihy. wk., 58n. Life and Labor, 205. Lighthall, W. D., 343, 343n. Lima, Peru, 290. Lincoln, Charles, 120n. Lincoln's Inn, 41. Lisle, John, 62, 63. Literary Digest, 143. Liltle,'Brown & Co., 42. Littleton, 29. Living Wage, Snowden's, 203. Loaning Books, 58-9. Local Acts, 263-4. Local Gov't, 1740-1835 (Eng.), 293; law, ency. of, 292; Board, cases and decisions, 292; Board, 280. Lombroso, Cesare, 64. London, 304; County Council, 304; Times, index, 169-70. Loose Leaf Digest, 264. Lorenzen, Ernest G., 62. Los Angeles, charter, 275; Mun. News (des), 303, mun. ref. in 255; pub. liby, 255. Lowe, 373, 375. Lowrie, S. Gale, 254, 260. Luce Clipping Bur., 161n. Luce, Robert (on clipping bureaus), 161. Lumber Industry', doc. on, 102. M., J., 206. McAnenv, Geo., 256n. McCall, 'Samuel \V., 137. McCarthy, Dr. Chas., 74, 139, 174, 175, 176, 184, 198-99,217n; testimony at Wash., 184. McClain, 19. McClelland, Ellwood, H., 317. McDowell, Mary, 203, 205. McElrealh, Walter, 82. McFarland, J. Horace, 343n. McGovern, Gov., 184. MacGrcgor, Dr. Ford H., 243, 243n, 261, 301, 316, 339; (quoted) 329. McKay, K. W., 301. McKce, T. H., 138. McLaughlin, Andrew C, 139. McClure's, 144. McKirdy, Jas., 212n, 217n. MacMorran, Alex., 292. MacMorran, Kenneth M., 292. McXamara, A. K., 27n, 53n. McOuillin, Eugene, 275, 292, 331, 332, 333n. McSweeney, Edward, 206. Mac\'icar, John, 343n. Macy, 332. Macy, Jesse, 138. Index 455 Macy, John Edward, 292. Magazine Indexes, 288; Subj. Index, 32. Maine, doc. index, 126; Icgis. ref. in, 76. Maitland, F. W., 13n. Malaria, 271n. Malloy {Treaties), 25; 35n, 87. Maltbie, W. H., 252. Man and Abnormal Man, 98. Mann, 220. Manson, Edward, 62. "Manuals and Registers," City, 266n; manuals, council, 266. Manufactures Bur., 107, 271. Maps, local, 308. Marks, Marcus M., 206. Marriage, laws on, 155. Martindale, 45. Martinus Nijhoff, 42. Marvin, J. G., 39. Maryland, legis. ref. in, 241n; law 403-04; St. Law Liby, 41. Mason, H. A., 302. Mason, Herbert D., 294. "Mass. and the Min. Wage," 206; Bill-drafting in, 171; 370-71; civic league, 302; cold storage of food, comm. to investigate, 120; doc. index, 126; Eff. Comm., 261n; legis. procedure in, 130; legis. ref. in, 74; Pubs., 380; Liby Com., 170; Manual, 129n; Min. wage in, 200-1; Sen. Rules, ^10-1\; State lib., 41, 43, 73. Matches, model law, 156. Mathews, J. M., 249n. May, Sir Thos. Erskine, 130. Mayors' Conf. in N. Y., 251; messages, 265. Medical Benefit; Germany and Denmark, A study of the Ex- perience of (des), 134. Medical Educ. in U. S. and Canada, 146. Memphis Comm. Gov't., 303; mun. ref. in, 255-6; mun. res. pubs., 419. Merriam, C. E., 140, 248, 253n. Mews' Eng. Case Law Digest, 22, Mexico City, 290. Meyer, Ernest, 270n. Meyer, H. H. B., 105n. Michigan, bill-drafting in, 171 constitution of 1850, 83; 1907 84; legis. man., 123; legis. ref in, 74; min. wage in, 200-01 municipalities, league of, 302 St. Law Libv, 12, 41, 320 law 351-52; pubs. 380-81 univ., mun. ref. in, 244, 260. Middle Temple, 41. Midland Municipalities, 298n. Miles, Rufus E., 254. Milk and Pub. Health, 272; care of, 271n.; supply, Chicago, 272; Wash., 272. Millar, Robt. W., 62, 64. Miller, W. G., 13n. Milton, ]. P., 2.53n. Milwaukee, 330, 341; Bur. of Econ. and Eff., 121, 242, 242n, 243n, 341, 342n; Hist, of, 301; origin, 247; pubs. 419- 20, mun. ref. appropriation, 341; mun. ref. in, 255; or- dinance 412-14; mun. res. in 242, 246n; ordinance, 414-16; pubs. 419-20, papers, index, 170; pub. liby, 242-3; mun. ref. branch, 255. Mines, Bur. of, 273. Min. wage, 200-8; bib., 203-07, 203n-07n; citations to st. laws, 201n; foreign laws, 202- 03, 202n-03n; negative ref., 205-07; states having laws, 200-01. Minneapolis, mun. ref. in, 256. Minnesota, Eff. Comm., 261n; legis. manual, 123; legis. ref. in, 76; Legislature of 1909, 136; Legislature of 1911, 137; min. wage in, 200-01, 201n; univ., mun. ref. in, 244, 260. Miraglia, Luigi, 63. Mississippi, legis. ref. in, 76, 79. Missouri, legis. ref. pubs. 382. Mitchell, J. G., 254. 450 Index Mittormaier, C. J. A., 62. Model By-laws 2S0; "Charters," 270; clauses in bills, 233n; laws, 156, 15S; laws, auto- mobile, 158; ordinances, 277, 280. Modern Criminal Science Series, 61, 64, 150. Modern Legal Philosophy Series, 61, 63. Moll, A. A., 278. Monthly Catalogue, 188, 288, 322, (des)', 111, 112, 147. Money and banking, docs, on, 100" Montana, legis. ref. in, 74, Monthly list of State pubs., 147. Moore, J. B., 35, 35n, 88. Moreno, Alejo Garcia, 152. Morgan, J. E., 142. Moritz, Eugen, 259n. Motion pictures, 277. Mudge, Isadora Gilbert, 92, 168, 301n. Miihlbrecht, Otto, 39. Munich, 304. Mun. accounting, Ohio, 269; Administration and Account- ing, 246n; affairs, 298, 309, 310; aff. current information sources, 321-23; affairs, federal burs, interested in, 270, 270n, 343, 343n; affairs national bur. interested in, 270; st. control of, 269-70; code, 265; corp. acts, 292; corp. cases, 1900- 1904, llv., 18, 332; corp. law, 331-32; law books on, 291-93; corp law, case books, 332. Mun. Development Mag., 305; (Iocs., Amer., 266; Eff. Comms., 247, 248, 247n, 248n, 2.")ln; Engineering, 144, 299, 322; finance, Mass., 269; Ga- zettes, 303n; gov't and Admin, books on, 288, 291; gov't, delegated power only, 262, "index," 323; Journal, Lon- i\i)n, 299; Journal, X. V., 299; Journal and Engineer, 144, 299, 322; "Library and the Legislator," 242n; lighting plant recommended to Kan- sas City, 340; lodging house 306-07; markets, doc. on, 121 museum, N. Y., 336, 337n ordinances, 331. Mun. Ref. Librarian, qualifica- tions, 217n, 333-39, 428; train- ing, 333-39. Mun. Ref. Libys. 234-343; and archives, 251n; Bib. 423-31, classification in, 324-26; for- eign, 259; pubs. 416-23; pur- pose, 237-8; topical outline, 234-37; as a business invest- ment, 328. Mun. Ref. Service, in legis. ref. wk., 232, 245-6. Mun. Ref. Wk., 234-343; ap- propriations 341; by national or federal bur. 250; desiderata, 342-43; future possibilities, 342-43; in Indiana, 172-73; in Universities, 259-61; mate- rials, 261; need, 238-39; Or- dinances and laws, list, 428-29; texts, 403-16; (Bait. 403-04, Chi. 404-07, Cin. 407-09, Kansas c. 410-12, Milw. 412- 16, St. Louis, 416) ; origin and development, 237-61; origin, Baltimore, 240; problems 431- 33; purpose, 237-38; scope, 239^0; staff needed, 334-36; success and support, 339-42; table of cities, 251-61; train- ing for, 336-39. Mun. Reform and Reformers, 297; Research and Reference wk., 24&-47, 251-61; research bureaus, 246-47, 246n-47n; (arts, on) 429-31; mun. res. bur. pubs. 416-23; (Bait. 416, Chi. 416-lS, Cin. 418, Davton 418-19, Kansas Citv 419, Memphis 419, Milw. 419-20, New York 420-22, Phil. 422, St. L. 421, Univ. of Cal. 422, of Tex. 422, of Wash. 422, Index 457 of Wis. 423), research in other cities, 251n. Mun. Res. Bur., in Universities, 243-45, 243n-45n. Mun. Res., table of cities, 251- 61; revenues in Illinois, 301 statistical offices, 303n; statis- tics, 303n, 312; utilities, 294 Yearbook, 1902, 295; Yrbk of the U. Kingdom, 295; Yr Bks., 294-96; World, 302. Municipalities, Dept. of, pro- posed, 250. Municipality, 301. Munro, William Bennett, 140, 246n, 2.59, 262, 262n, 276, 289, 297n, 298, 314, 317, 331, 331n, 333n; Guide 311, quoted, -246, 275. Muscogee (Creek), 124. Myers, P. H., 247n. Nachtmann, Mrs. Alice New- man, 321. Nation, 143, 322. National Anti-Sweating League, 204n, 205; Assn. of Railway Commrs. Proceedings (des), 154; Assn. of State Libraries, 37n, 212n; Bibliography, 166; Board of Censorship of Motion Pictures, 277; Board of Fire Underwriters, 156, 280; Bureaus, interested in Mun. AfT. 250, 270-73, 342-43; Child Labor Committee, 145; Civic Fed. Rev., 300; Com- mittee for Mental Hygiene, 134; Conference of Charities and Corrections, Proc. 144; Conventions and Platforms, 1789-1905, 138; Dept. of Mun- icipalities, 343, 343n; Edu- cation Assn., Proc. and Ad- dresses, 145; Monetary Com- mission, 100; Mun. League, 241n; 276, 295, 297, 343; Mun. League "Municipal Program" 264-64n; Mun. League (quoted) 333, 334; Mun. Rev., 128, 173, 188, 229, 274, 280, 286, 286n, 287, 299, 321, 322, — des. 165, 311; — docs, in 285-86; Prison Assn., Proc, 145; Progressive Party Legis. Ref. wk., 250-51; Progressive Party, M. R. wk., 250-51; Progressive Service of the Prog. Party, 261n; Reporter System, (des), 16-17; Retail Dry Goods Assn., 207; Tax Assn's Annual Conference on state and local Taxation, 145. Nebraska, Bill drafting in, 171; Legis. Procedure in, 130; Legis. ref. appropriation, 226; Legis. R. in, 76-77, 230-231, 232; law, 353-54, pubs. 382; Min. wage in, 200-01, 201n; Mun. Ref. in, 245; Munici- palities, 298n; State Histori- cal Society, 76; Univ. of, 77. Negotiable Instruments Law, 155. Nelson, Congressman, 79n. New England Town Law, 291. New Freedom (Wilson), 140. New Hampshire, Bill-drafting in, 171; doc. index, 126; legis. ref. in, 74; law, 355. New Haven Public Lib., 313. New Jersey — Charities and Corrections, Dept. of, 122; Eff. Comm. 261n; Legis. ref. in, 76. New York (State) ; Bill-drafting in, 171; laws 371-72, Con- stitutional Convention Manual, 83; Constitutional Convention, 1894. Manual (des), 87; doc. index, 126; Eff. Comm. 261 n; Legis. Manual, 123; Legis. ref. in, 74; pubs. 382-83, be- ginning of legis. ref. in, 73-74; N. Y. Mayors' Assn., 302; Minimum wage in, 200-01; Pub. Serv. Com., First Dist. Classification in lib., 191; State Factory Investigating Com., 204; State Law Library, 458 Index 41; State Legis. Ref. Bureau, Classification in. 190-91; St. Lib., 73, 225, 274; St. Lib., Classification in, o0-51; St. Lib. Legislation Bulletins, 119; St. Lib. School, 220-21, 338. New York (City); New York, 30."), 330; Bureau of Mun. Res., 24t>-47, 246n^7n, 251n, 342n; pubs. 420-22; Charter, 275; City Club, 304; The City Record, 303; Docs, of, 284; Manuals, indexes, 282; Mun. Gov't. Assn., 302; Mun. Ref. in. 256; Public Librar\-, 125, 127, 204, 205, 256, 319, 320; Public Library Bulletin, 283- 85, 287, 322; Pub. Lib. Mun. docs, in, 267, 2S3; Public Service Com. Library 19.5; School of philanthropy Li- brary. 318; Year Book, 296; New York Daily Tribune, Index, 169; Department Re- ports, 21; Law Journal, 19; Libraries, docs, noted, 117; Libraries, doc. list, 127; Sup- plement, 17; Times, Index, 146, 170. New South Wales, Bill-drafting, 376-77; Min. wage law, 202. New Zealand, Min. wage law, 202; Regulation of Labor in, 205. Newark, Mun. Ref. in, 257; Public Library, 257. Newfoundland, bill-drafting in, 376. Newman, T. H., 83. Newport, R. L Civic League Bulletin, 304. News and notes of California Libraries, doc. list, 127; docs, noted, 117. Newspaper indexes, 169-70. Nichols, Egbert Ray, 204, 205, 2(J6. .Nijhoff, Martinus, 42. Nolen, John, 279. Non-Statutory law, def., 11. North American Review, 144. North Dakota Bill-drafting in, 171; legis. ref. in, 78-79; law, 355, pubs. 383. Northeastern Reporter, 16. Northwestern Reporter, 16. Northwestern University Law- School, 149. Norwalk, Civic League, 305. Notation, not needed in law libraries, 47. Nursing, doc. on, 108. Oakland Mun. Ref. in, 242; 257; Pub. Lib. Report, 1912, 257n. Occupational Diseases, doc. on, 122. Oesterreichisches Stddtebuch, 296. Ohio Bill-drafting in, 171; Constitutional Conv'ention, 83; doc. index, 126; State Board of Health, Annual report, 270; Legis. ref, appropriation, 226; legis. ref. in, 232; law 356-57; pubs. 383; library commission, legis. ref. by, 78-79; mini- mum wage in, 200-01; Mun. Assn., 302; State Grange, 207; Supreme Court Law Library, 41, 60. Oklahoma, Constitution of, 82; Red Book (des), 123-24. Old Age Dependency, 140. Omaha, Mun. Eff. in, 257; Mun. Statistics, 303. Ontario, Mun. Gov't, in, 301; Mun. Organization in, 301. "Order and Accession Depart- ment," (Hopper), 189n. Order department. Arts on, 45n. Ordinances, Comp. of, 276-80; Building Codes, 276; City Planning, 277; Curfew, 277; Garbage Collection, 277; Height of Buildings, 277; Illuminating Gas, 277; Motion Pictures, 277; Municipal Courts, 278; Public Health, 272, 272n, 278; Recreation, 279; Sanitation, 272, 272n; Index 459 Sidewalks, 279; Smoke Pre- vention, 279; Street lighting, 279; Weights and measures, 280; See also. Laws, Comp. of. Ordinances, current, 280; (def.) 264-65; drafting; 330-32, aids in, 331; drafting of, 239- 40; (McQuillin on), 292; Model, 277, 280; on Mun. ref. wk. (des), 241-42; Police, 291; See also, drafting of ordin- ances; also Bill-drafting. Oregon legis. ref. in, law, 74; 357-58, Min. wage in, 200-01, 201n; "Popular Gov't in", (Bourne), 167; Univ., Mun. Ref. in, 244, 260. Organized labor, demands of, 197. Osage, 124. Osterhout, Pub. Lib. (Wilkes- Barre), 319. Ostrogorski, M., 137. Outlook, 143. Owen, Senator, 79, 79n. Pacific Coast Assn. of Fire Chiefs, 299n; Municipalities, 280, 302; Reports, 16. Palgrave, 131. Palmer's Index (Lond. Times) 169-70. Pamphlet Boxes, 88, 194-95; (Lapp), 195; "Pamphlet laws," 27. Pamphlets, filing of, _194-95; in legis. ref. wk., 157-S; in mun. ref. work, 306. Pan-Amer. Union, Bulletin, 290. Pandex of the News, 1908, (des), 170. Paquette Habana (quoted), 29n. Paris, France, 304; mun. ref. in, 259; statistics, 296. Park and Cemetery and Land- scape Gardening, 299. Parkinson Thomas L, 209, 212n; (quoted) 209. Park, Orville A., 31. Parliamentary Counsel for the Treasury, 80, 378-79, (des), 373-74; Salarv, 227; Debates, 207; Law, 129-130; law, com- parative, 213; law, English, 130; law, see also Procedure (legislative); Papers, British, where noted, indexes to, Pur- chase of, 114-15; Procedure, British, 80. Parmelee, Maurice, 141. Parsons, 269. Partnership Act. 155. Party Platforms, 1912 (Ray) 138-9. Pasadena, Mun. Ref. in, 257. Patents Commissioner, Decisions of, 19, 34n. Patton, John W., 211-12. Pending Legislation, Status of, 215-17, 230, 230n. Pennsylvania, Bill-drafting, 171; doc. list, 127; Efficiency Com., 261n; Election laws. Com- mission to Revise and Codify, 121; Historical Society, 44; Law School, 211-12; legis. man., 123; legis. ref. appro- priation, 226; legis. ref. dept., 227; appropriation, 185; legis. ref. dept. organization, 184- 86; legis. ref. in, 76; laws 358-61; pubs. 383, State Li- brarv, 41. Pensions, (Squier), 140; teachers, 145. People's Institute, 250, 261n. Periodicals, for the small library, 143n; in legis. ref. wk., 143- 47; in mun. ref. wk. 297-305; legal, list of, 31; legal, Shelf- arrangement, 57; Municipal, Classification, 297-98; on mun. aff. best, 322. Petroleum Industry, doc. on, 102; Transportation of, doc. on, 102. Petzholdt, 320. Phelps, E. M., 142. 460 Index Philadelphia, 303, 341; Bur. of Mun. Res., 342n: pubs. 422; City Club of, 304; mun. ref. in, 257; mun. res. in, 246n. Philbrick. Francis S., 62. "Photostat," 392. Pic, Paul, 135. Pinanski, A. E., 249n. Pittsburgh, Carnegie Library, 319. 320; Bulletin, 322; Civic Bulletin, 304; docs, of, 285; mun. ref. in, 257; Year-Book, 296. Platforms, Political, 197. Playground, 299. Plunkett, Martin F., 258. Poisons and Drugs, doc. on, 108. Police, 293; Ordinances, 291; "Scandal," 238n. Political Movements and Ten- dencies (books on), 139; Par- ties, 197. Political Science Quarterly, 145, (des), 166, 198, 300. Pollock, Sir Frederick, 12n, 14n, 16. Poole's Index, 32. Poor Law, 292; Administration, 133. Poore, Benjamin Perley, 83; (des), 110. Portland, Me., 305. Portland, Oregon, 305; Public Librarv', 318, 319; mun. ref. in, 242, 257. Potter, Marion E. 163, 312. Precedents, parliamentary, 129- 130. President of the Senate, 89, 214; of the U. S. on Leg. Ref. wk., 224. Presidential succession, Laws as to, 123. President's Commission on Econ- omy and Efficiency, 93, 93n, 100, 226, 261n, 307; Homes Commission, 99, 273, 273n; Message, 119. Prevention of Crime Act, 1908 (Quinton), 141. Price List, Canadian docs., 115; of U. S. docs., 112. Price, Richard R., 244n, 260. Prices, Doc. on, 98. Primary Elections, 140. Printed Cat. Cards, Lib. of Congress, 52. Prison Labor, platform provi- sions, 135. Procedure in city councils, 332- 33, 333n; in State Legisla- tures, 212n; (legislative), 130, 212-17, 212n; in manuals, 123; on Private Bills, England (Spencer), 293. Progress, Atlanta, 305. Progressive Houston, 302; Legis- lation, 197; Prog. Nat. Serv. Legis. Ref. Bur. Gen. Inf. Bulletin, 201n; Party, 261n. Prohibition, Oklahoma, 123. Providetice, Board of Tr. Jr., 305; City Library, 282; Public Library, 321. Public, 144, 300; Affairs Infor- mation Serv-ice, 128, 173, 287; Bulletin, 188, 230; (des), 228- 29; documents (def.), 33; Drinking Cup, doc. on, 108; Libraries, 45n, 117, 146; "Li- braries, as a factor in Civic development," 241; Library, Law Books, 60, 65; Health, 293; Health and Marine Hos- pital Service, 272n; Health Reports, 272-72n, 280; Health Ser\-ice, 272; Officials Mag., 305; Service, 144, 300; Service Commission, Library, N. Y., 195; Com'ns, 249, 249n; Service Commission, reports received, 128, 128n; Service Corporation Valuation, 249, 49n; Utilities, 293; Utilities in N. v., 269; Welfare Board, Kansas City, 255. Publishers and Dealers (law books) list of, 41-42; Directory, 146, 168; Weekly, 146, 322; (des), 164. Index 461 Purchase, 323; in legis. ref. wk., 189; law books, 46._ Purdue University, 172. Putnam, Dr. Herbert, 45n, 79n; (quoted), 159. Quarterly Index to the N. Y. Times, 146; Journal of Econ- omics, 145, 300, (des), 166; index, 169; List of Official Pubs., 114. Quarterly list of Parliamentary Pubs. 114. Queensland, Bill-drafting in, 377; min. wage law, 202. Quinton, R. F., 141. Rabies or Hydrophobia, 271 n. Railroads, laws, 154. Raines, C. W., 44. Ranck, Samuel H., 241. Ransom, \Vm. L., 140. Rastall, B. M., 247. Rawlinson, Sir Christopher, 292. Ray, P. Orman, 138. Raynaud, Barthelemy,202n,203, 204, 206. Readers' Guide, 32, 143n, 146; (des), 168; use with clippings, 160; {Abridged) docs, noted in, 113; and Supplement, 143n, 146, (des), 169. Reading, Pa., mun. ref. in, 258. Redlich, Josef, 289. Reece, E. J., 116n, 117n, 127. Reed, Alfred Z., 83. Reference and Research work in legis. ref. libs., 185-86; in legis. ref. libs, min. wage law as an illus., 199-208; in Wis. legis. ref. dept, 174 sq.; work, legal, 10-11; on subjs. of legis., 75. Referendum in Switzerland, 134. Reform Organizations, 298. Reichsgericht, Leipsic, 41. Reichsjustizamt, 41. Reichstag liby., 41. Reinick, Wm. R., 117. Reinsch, Dr. Paul S., 117, 137, 167, 212n, 366n. Remedies for defective legis., 69-72. Reporters, court, citation by name of, 55. "Research and Reference Bur." 341. Research work, legal, 10-11. Responsibility, individual, lack of, in legis., 69. Retail prices, 102n. "Review of Labor Legis." 198; R. of Legislation, 197-98, 274; R. of Reviews, 144. Revised Reports (des), 18; Stat- utes (U. S.), 27. Revisers of bills, Vt. 363. Revista de los Tribunales y de Legislacion Universal, 152. Revue Communale, 299; de Droit International et de Legislation comparee, 153; de Science et de Legislation Financieres {des) , 166; des Sciences Politiques (des), 166; Economique inter- nalionale (des), 166; Generale du Droit, 153. Rex, Frederic, 253n, 312. Reynolds, Jas. B., 249n, 286, 315; Civic Bib. (des), 316. Rhode Island, doc. index, 126; legis. ref. appropriation, 226; legis. ref. in, 74, 75, 75n; law, 361; pubs. 386; St. Liby., classification in, 191; filing methods, 195; legis. ref. wk. in, 185. Richards, Clara A., 175n. Rio de Janiero, 290. Road Laws, doc. on, 108. Roads, 294. Robbins, E. C, 141, 142, 291, 316. Robinson, W. C, 12n, 24n. Rockford, (III), pub. liby., 319. Rodriguez, Jose Ignacio, 86. Rogers' Citations (111), 23. Roosevelt, Theodore, 140. Roumania, min. wage law, 203. 462 Index Rowe. Leo Staunton, 289. Royal Statistical Soc. Journal, docs, noted, 116. "Rules for the Drafting Room," Wis.. ISl. Rural Educ. in U. S., 106. Russell, 29. Russel Sage Foundation, Div. of Educ, 135; div. of Recrea- tion, 317. Sacramento, Mun. Gazette, 303. Sage, L. H., 58n. St. Joseph, pub. libv., 313. St. Louis, 306, 324, 327; charter, 275; Civic League, 248, 304; mun. ref. in, 238, 242, 258, 286; pubs; 422, Resolution, 416; pub. libv., 242n, .306-07, 318; Annual 'Report, 1911-12, (quoted) 23Sn; BuL, 322. St. Paul, mun. ref. in, 2.58. Sait, Edvsard M., 251n, 259, 341. Salaries in legis. ref. wk., see appropriations. Saleilles, Raymond, 64. Salem, (Mass.) pub. libv., 313. Salmond, J. W., 13n. Salvio, Alphonso de, 64. San Francisco, charter, 275; earthquake, 273; law liby., 41; mun. ref. in, 258; Mun. Record, 303. Sanderson, John F., 136, 212n. Sanford, Jas. A., 230n. Santiago de Chile, 290. Schaffner, Margaret .\., 275. "Schedule of Volumes," 95. Scholefield, Joshua, ed., 292; Encyclopedia, 292. School tax laws, doc. on, 122. Schurmann, Ernst, 310. Scott, .Mrs. E. F., 63. Scott. (;. W., 27n, 29n, 53n.; Henry W., 14n, 278; Jas. Brown, 19. Scranton, Pa., 305. Scribner's, 144. Sears, 29. Seattle, 77; Mun. League News, 305; mun. ref. in, 258; Mun. News, 303; pub. liby., 313, 318. Second Reading, 214. Secrecy in bill-drafting, Wis., 178. Sec'y of State, as exchange agt. for laws, 46. Sells, 269. Senate Doc. Room, 94; docs. 96; suitable for legis. rf. wk., annotated list of, 96-100: Journals, 94; Manual, \j. S., 129, 129n; Reports, 94; Re- ports (des), 96; U. S. from 1907-1912, 137; Rules, 130. Senators, U. S. election, 142. Serial No., 91, 91n; for U. S. docs., intro. of, 112; when dropped, 95; pubs, in mun. ref. wk., 297-305. Session laws, 26; federal, 27; stumbling blocks and pitfalls in, 43n. Sewage Pollution, 279. Sewers, 294. "Sham Universities," 146. Shame of the Cities, 238n. Shanghai, China, 304; Mun. Gaz., 303. Shaw, A. B., 73. Sheep Set, 93-96. Shelf-arrangement, in law libs., 54-.59; state as unit, 54; form of pub. as unit, 5.5-59. Shelving in mun. ref. wk., 328. Shepard's citations, 23. Sherbrooke, Lord, 373. Short Ballot Charters, 264, 275, 290, 315; organization, 299n. Short title cards, suggested, 54. Shortt, Adam, 301. Shultz, Birl E., 139, 167. Signatures on bills, 214. Signet Liby, Edinburgh, 41. Sikes, Geo. S., 248n, 253n. Silbergleit, Heinrich, 259n, 303n. Simpson, John, 62. Singer, Berthold, 135. Index 463 Situs of real and personal prop- erty for purposes of taxation, 155. Six Years of Mun. Res. for N. Y. City, 247n, 251n, 341. Slavic countries, legis. of, 151. Slip laws, federal, 26-27; state, 27; list of, 27n. Smith, Jeremiah, 292; John Wil- son, 292. Smithers, Wm. W., 147. Smoke Prevention, 273. Smull (Penn. Manual), 123. Snowden, 203, 207. Snyder, Henry G., 82. Social Conditions N.J. (doc. on), 122; Wash., doc. on, (des) 99. Societe de Legislation Comparee Annuaire (des), 150; Bulletin Mensuel (des), 151; de Statis- tique de Paris, Journal, docs, noted, 116. Society of Comparative legis- lation, 376; Journal, (des), 151; docs, noted in, 115; of Icon- ophiles, 282; Society Proceed- ings in legis. ref. wk., 143-57; in mun. ref. wk., 297-305. Somerville, (Mass.), pub. liby. 313. Soule, Chas. C, 39, 60. Sources of information, in re new pubs., 187-88. South Australia, bill-drafting in, 377; min. wage law, 202; South Carolina, bill-drafting, laws, 372-73; legis. ref. pro- posed, 232. South Dakota, bill-drafting in, 171; legis. ref. in, 74; law 361- 62, pubs., 386. Southeastern Reporter, 16. Southern Hist. Assn., 44. Southern Reporter, 16. Southwestern Reporter, 16. Spain, legis. of, 152. Speaker of the House, 89, 214. Special Libs., 113, 128, 146, 173, 188, 190n, 229, 287, 300, 322; Assn., 37n; report on clipping bur., 159-60; bibs, in, 315; classification and cataloguing, 192n; (des) 166; L. C. Bibs, in, 104n, 105n; (Dudgeon on) 217n. Special Librarian, best training a debated question, 219. Spence, Mrs. F. H., 134. Spencer, F. H., 293. Spiegal, Frederic S., 63. Spokane Official Guide, 303. Squier, Lee Welling, 140. Stammhammer, Josef, 40, 163. Stammler, Rudolf, 63. Standards, Bur., 272, 277, 280. "Standard Oil Case," decision, 35. State, dept. of, 271; docs., in- dexing of, 230; Eff. Comm., 261n; Gov't, Readings on, (Reinsch), 117; Lib'y., 230; lib'y employees, Penn., 185; Ofificers, recommendations of, 197; pubs., 322; State Pubs. (L. C.) Mo. List of, 127, 147, 188, 287; state constitutions, see constitutions, state; Govt. Amer. (Reinsch), 167; Insur- ance, Wash. (doc. on) 122; lib'y, Calif., 74; libs., 75; libs, legis. ref. in, 72-76; libs., original purpose, 72-73; pubs., (Bowker), 125; school system, doc. on, 108; universities, 106. State, The, Wilson, 137. "Statistical Compilations," 296. Statistics bureaus, arts on, 430- 31, of Cities, 271, 271n, 295; mun. burs., 303-04, 303n. Statistisches Jahrbuch, 295; der Stadt Berlin, 296. Statute law (def.), 11-12; shelf arrangement, 54-57; see also code; law; laws; compilations of; legislation. Statutes, 27; see also laws, at Large, 26, 27, 87; htdex to, 27, 27n. Steel Industry, doc. on, 102. Steffens, Lincoln, 238n. 404 Index Stein. 320. Stevens & Havnes, 42; & Sons, 42; Frank, '255: Rob't L., fund, 255. Stimson, Frederic J., 84. Street, Arthur L. (Pandex), 170. St. Rail' y Journal, 299; Rev., 299. Strikes and Lockouts, doc, on, 102; British, 115. Subj. -headings, clippings filed by. 160; in Icgis. ref. wk., 232; Wis., 193; in mun. ref. wk., 327-2S; legal, 52-53, 52n, 53n; Hupper's list, 52-53, 52n, 53n; in Lib'y of Cong., 52-53, 52n, 53n. Subjects on which legis. may be expected, sources for, 195-98. Supt. of docs., 33, 33n, 91, 93, 112, 127n, 191, 288, 322; sale of court reports by, 34, 34n. Supreme Court Reporter, 16; Re- ports, U. S., 15; sale of, 33. Survey, 128, 145, 188, 300, 322. Surveys, local, 308. Sweating, 205; and the Legal Min. Wage, 204; System, Bib. 204-7. Sweet & Maxwell, 42, 60. Swisher, B. F., 279. Syracuse pub. lib'y., 313. Tables and Index, (des), 112; of cases, for A mer. Digest, (covers 1658-1906), 22; for Eng. Cases to 1897, 32. Tacoma, Mun. Bui. 303. Talbot, Chas. H., 255, 327, 340, 341. Tarde, Gabriel Raoul de la Grasserie, 62, 64. Tariff laws, dec. comp. of, 101; Series, 107. Taylor's Citations (N. Y.), 23. Taxation of Corp., doc. on, 109, 122; internal (France), 116. Taxes, separation of, doc. on, 270. Taxing corps, in the various states, 102. Teich, Emma L., 163. Tendencies in legis. ref. wk., 228-33. Terry, Chas. Thaddeus, 156, 158 Texas, bill-drafting in, 171 cities, model charter of, 276 legis. procedure in, 213n legis ref. in, 74, 232; law, 362 pubs. 386; liby. and hist comm., 170, 231n; libs. doc. list, 127; mayor's assn., 302 Univ., mun. ref. in, 244, 260, 276; pubs. 422. Text books legal, 28-29; as authoritv, 29n; classification of, 48-49; local, 29; legal, shelf arrangement, 57. Thayer, 19. Theses, indexes to, 301n. Third reading, 214. Thomas, Thaddeus, P., 301. Thompson, J. David, 170n, 217n, 231n. Thorpe, Francis Newton, 35, 35n, 82-83. Thring, 373. Tiedeman, 29. Tilden Com. 270. Tobacco Industry', doc. on, 102. Toronto, Univ. Studies, 301; mun. ref. in, 242, 259. Torrens System of Registration of Land Titles, 155. Tourtoulon, P. de, 63. Townes, J. C, 40. "Trade Boards Act," 202-03. Trade School for Girls, Worces- ter, Mass., 106. Training school for public ser- vice, 337, 337n. Transportation by water in U. S., doc. on, 102. Trask, John W., 278. "Travel" of a bill, how indicated, 216. Treasury, Comptroller of. Treas- ury Decisions, 20, 34n ; sale of, 34, 34n. Treaties, 25-26, 81 ; comp. of U. S., 25-26; in force, comp. Index 465 of, 36n; current, where pub., 26, 26n, 87 ; where pub. 87 ; with Indians, 124; "treaty making power," 87-88; Series, 26,26n, 87. Trend of legislation, 197, 274; 1890, 120. Treleven, John E., 247n. Trials, bib, 24; shelf arrange- ment, 57. Tribune Almanac and Pol. Regis- ter, 138; Almanac (Chicago), 138. "Trinity" (des), 18. Tucson, 77. Typhoid Fever, 271n. Uniform Legislation, 1.54-55, 1.54n, 155n; Records and Re- ports, 106. Union of Canadian municipali- ties, 295, 298, 343. U. S. Gov't. Docs, in Small Libys. (Ed. 3, rev.) (des), 92; see docs. U. S. U. S. Catalogue, 3d ed. 163, 166, 312; docs, noted in, 114. Universities, legis. ref. in, 76-77, 232; mun. ref. in, 243-45, 243n-45n; "Sham", 146. University bureaus of mun. res. (arts on) 429-30. University of, see names of states and cities, i.e. 111., Univ., Chi. Univ. University "Studies", 145; on mun. topics, 301. Upson, L. D., 254, 351. Utah, min. wage in, 200-01. Unwritten law, 12; def. 11. "Usual Number," 94. Valuation of Pub. Serv. Corps. (Whitten), 249n; of Pub. Utility Properties, 293. Vanni, I., 63. Vecchio, G. del, 63. Veiller, Lawrence, 269, 293. Vermont, bill-drafting in, 171; doc. index, 126; legis. ref. appropriations, 226; legis. ref. in, 74; law 362-64, pubs. 386; revisers of bills, 196. Vertical files, 88; classification in, 325; filing, 195. Veto and Approval of Bills, 212n; veto power, 69. Vice Comm. 207. Victoria, bill-drafting in, 377; min. wage law, 202. Vigilance, 299. Virginia, legis. ref. in, 76; pubs. 386. Votes in Constitutional Amend- ments, 119. Wages and Hours of Labor, 102n; doc. on, 98. Walker, 29. Wallace, J. W., 14n, 16. Walla Walla, Whitman College, mun. ref. in, 261. Wallingford, Conn., mun. ref. in, 258. Walter, Frank K., 143n. Walton, 37n. War Dept., 273. Washington, D. C, 225; gov't of, 290; mun. ref. in, 2.58; reports of, 272. Social conditions, doc. on (des), 99. Washington, (State) Indus. Ins. Dept., (doc. on), 122; legis. ref. in, 74, 77, 232; Univ. of, 77; bur. of mun. and legis. res., 77; min. wage, 200-01, 201n; Univ. mun. ref. in, 244, 244n, 261; pubs. 422. Water Laws, doc. on, 123; power dev^elopment, doc. on, 102. Watkins, Sloan D., 320. Wayne Co., Bur. of Mun. res., 261 n. Webb, 206. 466 Index Weber, Adna F., 307. Webster, T. Lonsdale, 130. West Australia, bill-drafting in 377-78; min. wage law., 202. West Pub. CO., 42, 53, 53n; Digests, 52-53. Westchester Co., Res. Bur., 261n. Western Xew Eng., 305. Western Reserve Univ., mun. ref. in, 244, 261. Whinery, 269. Whitin, E. Stagg, 135. Whitlock, Brand, 135. Whitman College, mun. ref. in, 244, 261. Whitten classification, 190-91; Rob't H., 73n, 191, 195, 249, 249n, 294, 325. Wholesale Prices, 102n. Wigmore, J. H., 40, 62, 63, 162. Wilco.x, Delos P., 140, 289, 294, 312. Wildy & Co., 42. Wilkes Barre, pub. lib., 319. Williamson, 30; Dr. C. C, 205; 297, 297n, 298n, 317. Willoughby, W. W., 141. Wilmington, Inst. Free Librarv, 314. Wilson, H. W. Co., 113, 168; Woodrow, 137, 140, 224. Winthrop, Talbot, 163. Wire, G. E., on classification for law libs., 48-49, 49n. Wisconsin, 139; bill-drafting in, 171; free lib'y comm., 78, 170, 173, 196, 217n, 219, 314; training class, 217n; Idea, 139; legis. ref. \vk., 74; legis. ref. dept., 173-83, 227, 232, 275, 330; appro. 184, 226; bill- drafting, 173-83; circular letter of, 196-97; classification, 190; forms used, 177, 179, 181, 183; organization, 173-83; legis. ref. in, 74, 78, 173-83; law, 364-65; pubs. 387; lib'y comm., circular of information, 198ni min. wage in, 200-01, 201n; miin. ref. liby, 325; municipalities, league of, 301; pub. aflf. St. bd. of, 121; st. hist. soc. lib'y. co-operation with legis. ref. dept., 184; tax comm., 121; Univ. of., 173, 175; co-operation with legis. ref. dept., 184; lib'y school, 221, 338-89; mun. ref. in., 243, 243n, 261; pubs. 422; Univ. Bui., 301; water powers, forestry and drainage, spec, legis. comm., 123. Wise, B. R., 135. Wolff, Frank A., 343n. Woman's Civic Club, 304; In- dustrial Council, 207; labor Reports on condition of woman and child wage earners in U. S., 19v., 99. Woman's mun. league, 304. Wood, A. E., 293. Woodburn, Jas. Albert, 139. Woodruff, Clinton Rogers, ed., 29l,297n, 312. Woolley, Clarence N., 156. Worcester County, (Mass.) law lib'v, 48; Trade school for girls, 106. Words and Phrases Judicially defined, 30. Workingmen's Insurance in Europe, (des), 134; Com- pensation laws, 123; Insurance and benefit funds in the U. S., doc. on, 102; Insurance and Compensation, 102n; Insurance and compensation systems in Europe, doc. on, 102. World's Almanac, 138; Work, 144. Worcester Mag., 305; (Mass.) pub. lib'y, 314. Written Law, 12. Wver, James Ingersoll, 91, 96, 109; (quoted), 110, HI; U.S. Gov't, docs, (des), 92. Wyman & Sons, 115. Index 467 Yale Review, 300. Year Books, municipal, 294-96. Year Book of Legislation, N. Y., 73-74; 185, 225, 274; classi- fication of, 190-91; (des) 118- Zartman, 200. 20; of Agriculture, 114. Zion, E. R., 258. LMVERSITV OF CALIFORNIA LIBRARY Los Angeles This book is DL'E on the last date stamped below. MAY 1 9 1973 OCT 16 1S7b NOV iib *J*- WM USE W Form L9-Series 4939 UNIVEKSii Y OF CALIFORNIA LOS ANGELES AA 000 769 811 1