GIFT OF Digitized by the Internet Archive in 2007 with funding from IVIicrosoft Corporation http://www.archive.org/details/americanchambersOOsturrich AMERICAN CHAMBERS OF COMMERCE COIttltamjs College DAVm A. WELLS PEIZE ESSAYS #utn&ec4 AMERICAN CHAMBERS OF COMMERCE BY KENNETH STURGES, M.A. PRINTED FOR THE DEPARTMENT OF POLITICAL SCIENCE OF WILLIAMS COLLEGE ^p iHoffat, parH anli €ompanp» Bm |9odi 1915 W. F. BRAINARO BOOK MANUFACTURER NEW YORK TO MY MOTHER 298906 PREFACE This is the fourth essay published by the Department of Political Science of Williams College in accordance with the will of David Ames Wells of the class of 1847. Under the terms of the bequest, a prize of $500 "in gold coin of standard weight and fineness, or in the form of a medal of gold suitably inscribed, at the option of the recipient," is offered annually for the best essay upon a subject in any one of a number of branches of political science. The will provides that, if no essay deemed worthy of the prize be presented in any year, the award shall be withheld for that year. The competition is limited to Senior under- graduates and to graduates of Williams Col- lege of not more than three years' standing. The prize was first awarded in 1905, the successful essay, "The Contributions of the Landed Man to Civil Liberty," by Elwin Lawrence Page, being published in that year. viii PREFACE The second award was to Shepard Ashman Morgan, whose essay, "The History of Parh- amentary Taxation in England," was pub- lished in 1911. The third was to William Smith McClellan. His essay, "Smuggling in the American Colonies," was pubhshed in 1912. The subject of the present essay was an- nounced in June, 1913. The competition was open to the classes of 1911 to 1914 inclusive, and the prize was awarded to Kenneth Mon- tague Sturges of the class of 1911. The following provision of the will of the founder of the competition governs the selec- tion and treatment of the subjects of the es- says : "No subjects shall be selected for competi- tive writing or investigation and no essay shall be considered which in any way advocates or defends the spoliation of property under form or process of law; or the restriction of com- merce in times of peace by legislation, except for moral or sanitary purposes; or the enact- ment of usury laws ; or the impairment of con- tracts by the debasement of coin; or the issue and use by Government of irredeemable notes PREFACE ix or promises to pay intended to be used as cur- rency and as a substitute for money; or which defends the endowment of such *paper,' 'notes,' and 'promises to pay' with the legal tender quality." Mr. Sturges and his competitors were noti- fied that, while the form of the essay and the treatment of the subject were left to the dis- cretion of the writer in each case, it was de- sired that the following be included in the essays : (a) The origin and early history of boards of trade, chambers of commerce and kindred organizations in the United States; (b) A survey of the functions of these bodies, contrasting those of the early period with those of the present; (c) A study of some one organization based on its publications and activities. H. A. Garfield, President. Williams College, WiLLIAMSTOWN, MaSS., DeC. 1, 1914. INTRODUCTION In recent years chambers of commerce have been recognized as important factors in the growth and welfare of our cities. The aim of the present study is to show the development of these bodies in the United States, with par- ticular reference to their modern functions as civic organizations. In this country the terms "board of trade," "commercial club," and ''chamber of commerce" are synonymous, rep- resenting the common type of association com- posed of business men. They are, therefore, used interchangeably in the following pages. The scope of this book and the arrangement of material require some words of explanation. As indicated by frequent notes, the volume is not an original treatise, but in many respects a compilation of facts and ideas from a va- riety of sources. The newness of the subject and the resultant lack of available literature combine to lend value to this attempt to collect the material scattered through periodicals, or- xii INTRODUCTION ganization reports, and pamphlets. While it does not pretend to cover all phases of the sub- ject, the book aims to point out the main lines of the evolution of the chamber of commerce from a business organization to a civic agency, and to suggest where a fuller treatment of any particular point may be found. For this rea- son and in order to provide a means of tracing facts to their original sources, the notes have been made as complete as possible. The libraries visited in the search for data include the New York Public Library, the New York Municipal Reference Library, the Brooklyn Public Library, Montague Street Branch, — formerly the Mercantile Library of Brooklyn, — and the Library of the School of Commerce, Accounts, and Finance, New York University. The author is indebted to Secre- tary Sereno S. Pratt of the New York Cham- ber of Commerce for valuable information concerning the New York Chamber as well as for the opportunity to secure historical data in the Chamber of Commerce Library. Approximately half a hundred letters have been received from commercial secretaries and others active in organization work in response INTRODUCTION xiii to inquiries. By this means the author has supplemented and revised to the present time the statements found in reports and articles under various dates. Thanks are especially due to Secretary Munson Havens of the Cleve- land Chamber of Commerce, Mr. Ryerson Ritchie, Ex-President of that body, and Pres- ident Garfield of Williams College for their generous assistance in the preparation of this volume. Assistant-Professor Cherington of the Harvard University Graduate School of Business Administration kindly acted as critic of Chapter IV, The Federation Movement, while Mr. Edwin Baxter, Former Industrial Commissioner of the Cleveland Chamber, un- dertook a similar task in the revision of Chap- ter VII, The Cleveland Chamber of Com- merce. Kenneth Sturges. New York, Dec. 1, 1914. TABLE OF CONTENTS CHAPTER PAGE I Origins ^ ^ II Eaely History in the United States . 11 ^ III A Century of Development . . . 41 \ IV The Federation Movement . . . 55^ V Modern Structural, Principles . . 81 - VI The Training aijtd Work of the Com- mercial Secretary 117 VII The Cleveland Chamber of Commerce 137 VIII City Government Reform . . . .169 IX Co-operation with Municipal Author- ities 193 "^ X Civic Improvement 215 "^^ XI Competition Between Cities . . . 231 Appendix 257 Bibliography 265 Index 269 ORIGINS AMERICAN CHAMBERS OF COMMERCE CHAPTER I ORIGINS Commercial organizations developed from the primitive methods that brought together buyer and seller, facilitating the distribution of products and manufactures. The fairs and merchant guilds of mediaeval Europe were, however, the actual prototypes of the modern board of trade. Since the time when these or- ganizations flourished, the essential character- istics of trade and commerce have not changed. The fairs of the twelfth century were a re- Mediaeval Fairs suit of the church festivals, which periodically drew crowds of people to the towns and thus enabled them to meet for the exchange of com- modities. Growing in importance until the fifteenth century, the fairs then began to de- cline. This fact was due to the establishment 3 4 AMERICAN CHAMBERS OF COMMERCE of markets in the principal cities, which ren- dered it unnecessary to wait until fair-time in order to purchase supplies. Having lost their original function, fairs developed into places of amusement and have ever since retained this character. The merchant guilds arose in feudal times and were at first private institutions, formed Merchant to protect the interests of their members, Ouilds wealthy traders who found themselves excluded from aristocratic society by virtue of their plebeian occupation. With the breaking up of the feudal system the guilds grew in power and in the twelfth century became semi-public bodies in England as well as in some conti- nental cities, holding charters which entitled them to a monopoly of the local trade. As it provides a meeting-place for traders, the mod- ern commercial association to this extent re- sembles the mediaeval fair, and in protecting the interests of its members it is like the mer- chant guild. In the fifteenth century the guild system gradually disintegrated and this fact accounts for the founding of chambers of commerce to supply the needs of the traders. The name. / ORIGINS "chamber of commerce," was first applied to pirgt an association formed by merchants of Mar- co^erce*' seilles early in the fifteenth century, though not definitely organized until 1650. In addi- tion to dealing with trade matters this body exercised limited administrative authority. From early times chambers of commerce in France have been closely affiliated with the government and this is also true of these or- ganizations in several European countries. Thus German chambers of commerce, about 150 in number, are regulated by laws of the various German states, while having the char- acter of official institutions. Their functions are to promote and to represent the interests of commerce and industry. In Germany, moreover, the chamber of commerce proper corresponds to the board of directors in an American body. While a German chamber of commerce, as an organization, includes all the registered business men of the locality who pay a certain tax and thus have the right to participate in the chamber's elections, the ex- pression, "chamber of commerce," in a stricter sense means only the council chosen by the voters. AMERICAN CHAMBERS OF COMMERCE First Board of Trade History The first board of trade was formed in 1636 by Charles I of England. At that time regu- lation of commerce was a royal prerogative and the board acted as an advisory committee. In 1655 Cromwell re-established this council. It is still an important part of the English gov- ernmental system, having existed with the ex- ception of a few years continuously since Cromwell's time. "Board of trade" is clearly an Anglo-Saxon term, meaning in general a local body formed in the interests of commerce. On the European continent, however, this term or its equivalent is frequently applied to bourses or stock exchanges. For further details of the history of commer- cial organizations in England and European countries the following authorities are avail- able: C. A. Legg, The Law of Commercial Exchanges, 1913. L. H. Bisbee and J. C. Simonds, The Board of Trade and the Produce Exchfinge, 1884. Lorenzo Sabine, "The Ori- gin of Boards of Trade," contained in 1859 Annual Report of the Boston Board of Trade, and reprinted in Bankers' Magazine, Vol. XIII, pages 678-692. Frederick Fraley, "Origin and History of Boards of Trade, ORIGINS 7 Chambers of Commerce, Etc.," contained in 1889 Annual Report of the Philadelphia Board of Trade. J. H. Ricketson, Boards of Trade, Their Origins, History, Etc, pamphlet issued by the Pittsburgh Chamber of Com- merce, 1878. Wilfred H. Schoff, American Commercial Institutions: Fourth of a Series of Monographs on American Social Economics, 1900. Special Agents Series, No. 78, Ger- man Commercial Organizations, published by the Department of Commerce, Bureau of For- eign and Domestic Commerce, Washington, D. C, 1914. The English board of trade and the conti- nental chamber of commerce have at the pres- ent time little in common with American or- ganizations similarly named. The most im- portant distinction arises from the fact that our commercial bodies have not yet acquired an official status. The attempts of chambers of commerce to secure governmental recogni- tion in this country are described in Chapter IV, The Federation Movement. American boards of trade and chambers of commerce may be defined as bodies of local business and pro- fessional men, engaged in improving trade con- 8 AMERICAN CHAMBERS OF COMMERCE ditions, urging legislation beneficial to com- merce and the social welfare, and, most impor- tant, encouraging the growth and prosperity of their several communities. EARLY HISTORY IN THE UNITED STATES CHAPTER II EARLY HISTORY IN THE UNITED STATES The oldest commercial organization in this country is the Chamber of Commerce of the New York State of New York, fomided 1768 in New commerce^ York City. The period in which this associa- tion was formed was one of great historic in- terest. For several years the American col- onists had resented the imposition of taxes by the English government. The Stamp Act of 1765, prescribing an additional tax, excited the spirit of a people that had failed to obtain the right of representation. New York led the opposition to this tax, which was to take effect November first, 1765. Before that date the stamps arrived in New York harbor, on board a merchant vessel. As a precautionary measure the English governor promptly ordered them transferred to one of the ships of war and, later, to his own quarters inside the fort. The day before the tax was to become effective, representative New York 11 12 AMERICAN CHAMBEES OF COMMERCE traders met and resolved not to import any goods from England. Street riots and dem- onstrations followed; and, the demand for the surrender of the obnoxious stamps becoming insistent, the governor caused them to be placed in the hands of Mayor John Cruger on behalf of the citizens. Early in the following year the tax was repealed and in 1770 the grateful colonists erected a statue to William Pitt, the English statesman and champion of their cause.^ In the midst of these stirring times twenty New York merchants met at Bolton and Sigel's Tavern^ and founded the Chamber of Com- merce, stating the purpose of their organiza- tion in these words : *' Whereas, mercantile societies have been found very usefull in tradeing cities for pro- moting and encouraging commerce, support- ing industry, adjusting disputes relative to 1 Charles King, Charter and By-laws with a History of the Chamber of Commerce of the State of New York. Published 1855 by the New York Chamber. Reference is to pages 43-46. Another edition of this work is: Chamber of Commerce of the State of New York, 1848. 2 Later known as Fraunces' Tavern (often written Fraunce's, in error), where Washington bid farewell to his officers, December 4, 1783. The building still stands on the south- east corner of Broad and Pearl Streets. EARLY HISTORY IN THE UNITED STATES 13 trade and navigation, and procuring such laws and regulations as may be found necessary for the benefit of trade in general. . . . For which purpose and to establish such a society in the City of New York the following persons con- vened on the first Tuesday in, and being the 5th day of, April, 1768. . . ." ^ Here in the records follows the list of twenty founders. Among them are to be noted John i^^ Cruger, Mayor of New York and first presi- dent of the Chamber; and Isaac Low, the so- ciety's seventh president. The latter is an ex- ceptionally notable figure in the history of the Chamber of Commerce. At the beginning of the disputes with England he sympathized with the colonists, but later changed his views and became "the victim of steadfast loyalty." * This fact caused him to lose his American es- tates in 1779 through confiscation by the new government; and at the end of the war he left the country and took up his residence in Eng- land. In 1769 the members of the Chamber of Commerce moved their headquarters and be- a J. A. Stevens, Colonial Records of the New York Chamber of Commerce, 1768-1784, page 5. King, op. cit., page 46, gives date as 1758, evidently a typographical error. * King, op. cit., page 63. 14 AMERICAN CHAMBERS OF COMMERCE gan to hold meetings, by permission of the Mayor and Corporation, in a room over the Merchants Exchange.^ In the course of this year the Enghsh Parliament passed an act im- posing duties on tea, paper, and other articles, professedly for revenue and not with a view to regulate commerce. This explanation, it seems, did not please the colonists and almost immediately associations were formed by mer- chants in Boston, New York, and Philadel- phia, for the non-importation of English goods. This movement spread over all the Colonies:^ The New York Chamber included among its members, however, many who con- tinued throughout to be loyal British subjects; and in the taxation disputes its attitude was not hostile to England. In 1770 President John 8 A building constructed on arches across the foot of Broad Street on a line with Water Street. Under these arches itinerant preachers occasionally held forth. After the Revo- lution the building was destroyed. King, o'p. cit., page 51. 6 The Assembly of the Colony of New York approved the popular feeling and in the minutes of the Chamber, May 2, 1769, is the following: "The President reported that the Hon- ourable the House of Assembly had directed him to signify their thanks to the Merchants of this City and Colony, for their patriotic conduct in declining the importation of goods from Great Britain at this juncture — and until the acts of Parliament, which the Assembly had declared unconstitutional and subversive to the rights and liberties of the people of this Colony, should be repealed." EARLY HISTORY IN THE UNITED STATES 15 Cruger petitioned Lieutenant Governor Col- den of the Province of New York for a royal charter, so that the society might be incorpo- rated as a body politic. The petition was duly granted^ The first period of the early history of the First Chamber of Commerce covers seven years, — Period from its origin to 1775. In the first six years the activity of this organization was well sus- tained. Particularly efficient work was done by the Arbitration Committee, appointed every month for the hearing and adjustment of commercial disputes.^ A source of great trouble at that time was a depreciated and ir- 7 In the royal charter of 1770 this organization was desig- nated as "The Corporation of the Chamber of Commerce in the City of New York, in America"; but in the confirma- tion of the charter by the New York State Legislature in 1784 it was called "The Corporation of the Chamber of Commerce of the State of New York." This name is still retained though the Chamber is not a state organization. The name may be explained by the fact that when re-incorporated in 1784 the New York Chamber was the only association of its kind in the State. 8 See J. W. Spangler's "Commercial Arbitration." Bankers* Magazine, Vol. LXXXV, page 356, for work of arbitration com- mittees in the New York Chamber of Commerce. Also: Earliest Arbitration Records of the Chamber of Commerce of the State of New York. Committee minutes, 1779-1792, printed from the original manuscript in the New York Public Library with biographical and other notes. Press of the Chamber, 1913. 16 AMERICAN CHAMBERS OF COMMERCE regular currency; foreign coins, diminished in value by a variety of means, were being circu- lated. To meet this condition of affairs, it was resolved on the motion of Mr. Isaac Low, August 1770: **that the members of the Corporation will in future pay and receive half Johanneses ^ weigh- ing nine pennyweight at three pounds four shillings, and for every grain they weigh more to allow three pence and to deduct four pence for every grain they weigh less." 10 In the minutes of the January meeting, 1774, it is stated that the Chamber was com- pelled to reverse a resolution to the effect that its members would neither receive nor deal in New Jersey paper money at its current rate, as many members had resigned "to avoid the obligation of this resolve" and the organization was in danger of going out of existence be- cause it was impossible to obtain a quorum for a meeting. ^^ On motion, all those who had re- signed were then invited to submit their names to be voted on for membership. During the months July 1774 to May 1775 » Portuguese gold coins, now obsolete. 10 Stevens, op. cit., page 106. 11 King, op. cit., page 58. EAELY HISTORY IN THE UNITED STATES 17 no business was transacted, but at the end of that time a meeting was called for the election of officers, Isaac Low receiving the presidency. His long administration from 1775 to 1783 second marks the second period of the Chamber's early Period history. During these years the British forces occupied New York, aided actively by the New York Chamber of Commerce. At that time its membership consisted almost entirely of Loyalists, those who opposed the British rule having either entered the service or fled from the city.^^ During this period the records of the Chamber refer to the Americans as "rebels" and designate the war as "unnatural." ^^ In 1779 the association made another move, establishing its headquarters in the Merchants' Coffee House,^* where it remained until 1795.^^ At the first meeting of the Chamber after the evacuation of the city by the British in 1783 there were proposed for membership the names 12 King, op. cit., page 64. 13 King, op. cit., page 62. 1* Located at the southeast corner of Wall and Water Streets. 15 Stevens, op. cit., page 341, follows the original minutes of the Chamber in which this date, through error, is given as 1817; but his Erratum at the end of the book makes the proper correction. 18 AMERICAN CHAMBERS OF COMMERCE of many who had been absent during the war or engaged in the American service. In 1784 the total nmnber of members since the found- ing of the organization was one hundred and thirty-five and the average attendance at meet- ings was twenty-six/^ A meeting on April 20, 1784, was called un- Be-incor- dcr a law passcd by the Legislature of the State of New York, "upon the petition of many members who dis- sented from the course of the Chamber while the city was in the occupation of the British and were advised that the charter was forfeited by reason of the misuser and nonuser of the same and therefore required a new sanction from the new state." ^^ Following this re-incorporation the Cham- ber enjoyed several active years. Prominent among its minutes is a resolution in 1784 to prevent by all possible methods "the scandal- ous practice of smuggling." Other interesting matters brought up for discussion were "a pro- posal to connect the City of New York by arti- ficial navigation with the Great Lakes" in 1786 and a memorial in the same year, "setting forth 16 Stevens, op. cit., page 300. 17 King, op. cit., page 65. EAELY HISTORY IN THE UNITED STATES 19 the evils and immorality of a scheme for issu- ing paper money and making it a legal tender." In 1795 the society moved to the Tontine Cof- fee House.^^ A yellow fever epidemic visiting New York inactivity: in 1798 interrupted the regular meetings of the Chamber and was the cause of their subsequent omission during the summer months of the year. Beginning in 1807 came a long period of inac- tivity. It was not, in fact, until two years after the 1815 Peace Treaty with England that the members took steps to reorganize, meetings being resumed at the Tontine. Un- der the leadership of Cornelius Ray, a wealthy New York merchant, the Chamber of Com- merce began an active existence which has con- tinued unbroken to the present time. The New York Chamber has always main- Present tained a conservative policy. It was estab- impo^rtance lished to promote the commercial, financial, and industrial interests of New York and has been eminently successful in so doing. Its founding marked the beginning of organized commerce in this country. The routine work 18 Located at the northeast corner of Wall and Water Streets. The narrow range of the Chamber's migrations shows the historic continuity of New York's business center. 20 AMERICAN CHAMBERS OF COMMERCE of this body, now located in its own magnificent building on Liberty Street/^ centers in a meet- ing held once a month, at which time an address is made by some prominent speaker and com- mittee reports are presented. The policies of the Chamber are not determined by an execu- tive committee or board of directors as in many commercial bodies, but by the whole member- ship. The success of this arrangement, known as the "town-meeting" plan, is attributable to the fact that the Chamber takes up relatively few matters, so that the members can give each one their thoughtful attention. The number of members is limited to fifteen hundred and the privilege of membership is regarded as a coveted honor. An interesting story attaches to the Great Great Seal of the Chamber of Commerce, "bearing the date 1770, the year of the society's incorpora- tion. Manufactured in England at a cost of nineteen guineas, the seal is of solid silver and about three inches in diameter. When the British forces evacuated New York in 1783 the seal disappeared ; but by mere chance years 19 For an account of the dedication of this building see: "The New Chamber of Commerce." The Outlook, 1903, Vol. LXXIl, pages 665-666. Seal EAELY HISTOEY IN THE UNITED STATES 21 afterward it was found in a sort of curiosity shop in London. Attempts have been made to explain its removal, but no facts are obtain- able.^*^ Until 1905 the original seal was in active service, and at that time, being much worn from constant use, it was replaced by a new seal, its exact dupUcate. The varied history of the New York Cham- ber of Commerce has attracted many writers. For instance see: Lorenzo Sabine, "The Ori- gin of Boards of Trade," see above, page 6. Richard Wheatley, "The New York Chamber of Commerce," Harper's Magazine, Vol. LXXXIII, page 502 ff. September 1891. Walter L. Hawley, "New York's Oldest Cor- poration," Munsey's Magazine^ Vol. XXVI, 20 A letter written by Prosper M. Wetmore, Secretary of the Chamber of Commerce, 1843-1849, and addressed to Charles King, the author of a history of The New York Chamber of Commerce, furnishes a reasonable explana- tion of the disappearance of the seal. "If I mistake not," writes Mr. Wetmore, "Anthony Van Dam, who was the first Secretary of the Chamber, and continued to hold the office until the close of the Revolution, went to England among the Royalists expatriated at that period. ... Is it not fair to suppose that through some inadvertency of his, as he was the legal custodier of the article, our seal found its way to Lon- don, and after his death, into the hands of the dealer in sec- ond-hand wares?" King, op. cit., page 82. Another theory is that the seal left the country in the possession of Isaac Low, the last President of the Chamber in the Colonial Period of its history. 22 AMERICAN CHAMBERS OF COMMERCE page 39 ff., October 1901. Franklin Mat- thews, "The Organized Conscience of the Rich," in The World's Work, Vol. IV, pages 2626-2631, October 1902. "History of The New York Chamber of Commerce," Harper's Weekly, Vol. XL VI, pages 1720-1722, Nov. 15, 1902. MERCANTILE ASSOCIATIONS IN BOSTON The early history of commercial organiza- tions in Boston, as in New York, reflects the unrest of the Revolution. When the New York Chamber of Commerce received its royal charter from England in 1770, the Boston merchants were out of favor with the English government and could not have secured like recognition. So actively did they resist the laws of trade and navigation that England sent soldiers and ships to awe them into submission. Troops were quartered in the very room that the traders used as an exchange. The Eng- lish government also adopted radical measures, ordering vessels and merchandise seized; and many offending merchants were summoned to the Royal Admiralty Court and forced to pay ruinous fines.^^ 21 "The Origin of Boards of Trade," address by Lorenzo EAELY HISTORY IN THE UNITED STATES 23 The harsh discipline meted out to the Bos- ton merchants effectually frustrated their first attempts to form an organization. About the Early year 1805, however, the Boston Importing Bodies Company was started for the purpose of regu- lating the trade with London and Liverpool, "in a way best to suit the importers." ^^ The company purchased three or four ocean vessels and kept them employed until the War of 1812 interrupted commerce with England; where- upon the association closed its affairs. After the Peace of 1815 there was organized the New England Society for the Promotion of Manufactures and Mechanic Arts. For several years this body conducted semi-annual public sales of domestic goods. These sales were very successful, purchasers coming to Boston from various parts of the country. In 1859 the society was reported as still retaining its corporate existence.^^ On January 11, 1836, the merchants and Sabine, Secretary of the Boston Board of Trade, read at a meeting of the Board at its rooms, 35 Merchants' Exchange, Wednesday, January 19, 1859. Printed in the 1859 report of that body; reprinted in Bankers' Magazine, Vol. XIII, pages 678-692. 23 Sabine, op. cit., page 24. 22 Sabine, op, cit., page 24. 24 AMERICAN CHAMBERS OF COMMERCE Chamber traders of Boston met at the Old Council Commerce Room, Court Square, for the purpose of form- ing a chamber of commerce. A week later the association adopted a constitution and by- laws, the number of members being two hun- dred and twenty-four. William Sturgis was elected president and three vice-presidents: Thomas B. Wales, Robert G. Shaw, and David Henshaw, were chosen.^* The original stand- ing committees were the Committee of In- quiry and the Committee of Reference. It is not stated what their functions were, but the latter was probably a board of conmiercial ar- bitration.^^ The early minutes of the Chamber record frequent action on commercial questions, for example, a recommendation to dealers in ex- change on England to buy, sell, and quote the pound sterling in federal money. There also appears the resolution, "that in the measure- ment of cotton, woollen, and linen goods, a yard is just thirty-six inches and not the 24 Sabine, op. cit., page 25, says: "In this mention of the principal oflBicers of the Chamber, we pronounce names that will never disappear from the annals of the humane and lit- erary institutions of Massachusetts; names widely known and widely blessed." 25 Sabine, op. cit, page 26. EARLY HISTORY IN THE UNITED STATES 25 breadth of the thumb more," an early effort to establish uniformity in mercantile usages.^^ Notwithstanding the activity of the Cham- ber of Commerce during the first years of its existence the members soon lost interest in the association's welfare, with the result that in Dissolution 1842, only six years after its founding, disso- lution was proposed. On February first of that year the Chamber voted: **that a meeting of the President and Directors be called for the purpose of taking measures, if any can be devised, to infuse more vigor into the operations of this association, that it may be more useful to the mercantile commu- nity, and if in the opinion of the officers no such measures can be taken, then to consider the ex- pediency of dissolving the association." 27 On April fifth following, the matter was taken up by the directors, who postponed their decision indefinitely. The last business trans- acted was in March 1843, when the secretary submitted a communication from Canada, "on the subject of a railroad in the direction of that colony." ^^ 2« Sabine, op. cit, page 26. 27 Sabine, op. cit., page 26. 28 Sabine, op. cit., page 26. 26 AMERICAN CHAMBERS OF COMMERCE In 1854, eleven years later, the Boston mer- Board chants formed the Board of Trade, incorpo- Trade rated the same year by an act of the Legisla- ture.^^ The "Government" consisted of forty- six persons: a president, three vice-presidents, the members of four standing committees, twenty-four directors, and a treasurer. The "admission fee" was five dollars and annual dues, payable in advance were a like sum.^* In addition to a standing committee of arbitra- tion, a committee of appeals was instituted, and under certain conditions members of the Board of Trade were permitted to appeal from the decision of the conmiittee of arbitration.^^ The two remaining regular committees were 29 Report of Boston Board of Trade 1859, page 216:— "An Act to Incorporate the Boston Board of Trade: Section 1. James M. Beebe, Silas Potter, James C. Converse, their associates and successors, are hereby made a corporation, by the name of the Boston Board of Trade for the purpose of promoting trade and commerce, in the city of Boston and its vicinity, with all the powers and privileges, and subject to all the duties, liabilities and restrictions, set forth in the forty-fourth chapter of the Revised Statutes; provided how- tver, that this act shall not be construed to authorize said corporation to traffic in goods, wares, or merchandise of any description.'* 30 Report of the Boston Board of Trade, 1856, page 154. By-laws; Section V. Articles 1 and 2. 31 There could be no appeal if the amount in dispute did not exceed $100, — or in any case that had been decided unanimously by the whole committee, imless the amount was EARLY HISTORY IN THE UNITED STATES 27 those of finance and of "inquiry into the causes of shipwrecks." The former audited the ac- counts of the organization and directed its financial poHcy. The function of the latter committee was to investigate and, when possible, fix the sMpwrecks responsibihty for maritime accidents.^^ In 1857 the number of casualties to Boston- owned vessels or to vessels entering the port of Boston was 385. The five members of the committee, though limiting their investigations to cases referred to them by underwriters and ship-owners, were unable to do all that was re- quired of them and accordingly petitioned the Board of Trade for a paid assistant. This re- quest being denied, the committee became dis- over $500. Report of Boston Board of Trade, 1856, page 154. By-laws, Sec. VI, Art. 4. 32 "The many shipwrecks and serious accidents which have at all times happened to vessels and especially the sad losses of the past year, have occasioned the appointment of a Standing Committee, whose duty it is to inquire into and record the causes of any shipwrecks or serious accidents which may hereafter happen to vessels owned or insured in Boston, or the cargoes of which may be insured here. It is thought that this will result, in the course of a few years, in a very valuable statistical register of the causes of disasters at sea, — valuable to underwriters, to all owners of vessels, and persons engaged in navigation, — and particularly that it wiU have an immediate good effect in inducing to more care and attention to duty on the part of practical navigators.'* Re- port of Boston Board of Trade, 1855, page 3. 28 AMERICAN CHAMBERS OF COMMERCE gruntled and renewed it in annual reports un- til 1862, when as a compromise they were given two additional members, bringing the number up to seven. But, unfortunately, during the year following they were not asked by ship- owners or insurance firms to examine into any causes of shipwrecks. This fact terminated the series of detailed reports by the committee, although the annual table of maritime casual- ties was not discontinued for several years. In the first annual report of the Board of KembeTsMp Trade issued by Secretary Isaac C. Bates in 1855 and containing thirty-eight pages, it is stated that the number admitted to member- ship at the date of organization was 769. But the number of paid memberships according to the Treasurer's report of that year was only 562, to which must be added a few delinquents in calculating the actual roll of the society. This discrepancy is explained by the fact that the Board of Trade took it for granted that the former members of the extinct Chamber of Conmierce would wish to join the new organi- zation. It happened, however, that when noti- fied of election 191 refused, "doubtless because all (of) them were admitted without their EAELY HISTORY EN THE UNITED STATES 29 knowledge or consent, and because they had no very definite idea of what we intended to do." '' Contemporary with the Boston Board of Boston ^ Trade was the Boston Corn Exchange, estab- Exchange hshed in 1855. Its meeting place for nearly twenty years was on Commercial Street within a stone's throw of the eastern end of Quincy Market. In accordance with the customs of that day the merchants who convened there wore tall silk hats almost without exception. The business of the Exchange was interrupted at eleven and four o'clock daily, the members then adjourning to some neighboring tavern. "Some merchants indeed made more frequent pilgrimages." About 1873 the name of the Corn Exchange was changed to that of the Boston Commercial Exchange, which later on moved to the former post office building on State Street. That building occupied the site of the present Ex- change Building, and the trading room, that of the present Boston Stock Exchange. Over the entrance to the building was an especially sa Report of the Boston Board of Trade, 1855, page 15. The secretary adds: "A little consideration we trust will change their decision.'* 30 AMERICAN CHAMBERS OF COMMERCE Seal of the Chamber Commercial Bodies Merged fine example of stone carving, said to have been executed by an Irish sailor. When the old building was demolished the stone was pre- served and placed in the walls of the present Chamber of Commerce, and the design has since been adopted as the seal of the Chamber. It represents an American eagle flying above a globe which is surrounded by several allegor- ical emblems. Beneath, resting upon bales of merchandise, are two cornucopiae pouring forth a wealth of agricultural and horticultural products.^* In 1885 the Boston Commercial Exchange and the Boston Produce Exchange were united under the title of the Boston Chamber of Com- merce. A consolidation of all the important commercial organizations in Boston occurred in 1909, brought about largely by the construc- tive and executive genius of Mr. Ryerson Ritchie, Ex-President of the Cleveland Cham- ber of Commerce. The bodies now merged in the Boston Chamber of Commerce were for- merly the Boston Merchants' Association, the Chamber of Commerce of 1885, and the Asso- ciated Board of Trade. The present Chamber 3* Boston Chamber of Commerce Journal, Nov. *09, pp. 48-50. EARLY HISTORY IN THE UNITED STATES 31 of Commerce building, valued at $600,000, stands at the corner of India and Milk Streets. On this site Boston vessels formerly anchored. The work of the Boston Chamber of Com- merce, one of the largest and most efficient or- ganizations of its kind in the country, is partly described in Chapter XI. PHILADELPHIA COMMERCIAL ORGANIZATIONS In the year 1801 a Chamber of Commerce chamber was formed by the merchants of Philadelphia.^'^ commerce Its purpose was to further the commercial in- terests of the city "by carrying into effect, such rules and regulations as may from time to time be established, with respect to commerce." The by-laws provided for the adjustment by an arbitration committee of mercantile differ- ences arising among its members. The society had its origin in the City Tavern, a noted hotel of the day.^' 35 See W. H. Schoff, American Commercial Institutions, for early history of the Philadelphia Board of Trade. Note that through typographical error the date of its founding is there given as 1802. 36 "Origin and History of Boards of Trade, Chambers of Commerce, etc.," address by Mr. Frederick Fraley, delivered at a meeting of the Philadelphia Board of Trade, January 28, 1889; printed in the 56th annual report of that body. Reference is to page 52. S2 AMERICAN CHAMBERS OF COMMERCE An early authority thus describes the func- Fimctions tions of the Chamber of Commerce : "Agreeably to the rules of the association published, they are to meet once a month: thirteen members to constitute a quorum. The officers are, a president, two vice-presidents, a treasurer, and a secretary, chosen annually, on the first Monday in January. The secre- tary is to have a salary, to be fixed by the presi- dent and vice-presidents. On the day of their election, or as soon after as possible, the presi- dent and vice-presidents form sixty of the members of the society, into twelve classes, for the purpose of serving as monthly committees;, for the ensuing year: each class to consist of five members, three of whom shall be competent to the transaction of business. Members neg- lecting to attend the meetings of the commit- tees, pay fifty cents for every neglect. "The duty of the monthly committee is, to adjust and determine all mercantile disputes which may be laid before them, and to report their proceedings to the next general meeting. All awards are to be recorded, with the reasons of the award. "The members shall in no case refuse to submit any matter of account in dispute, or any mercantile difference between them to the final arbitration or adjustment of those mem- bers who may be chosen for that purpose : but it shall be at the option of the parties to sub- EAELY HISTORY IN THE UNITED STATES 33 mit such difference to the committee of the month, or each to choose a member of the so- ciety, who, together with the chairman of the month, shall determine the matter in dispute. . . . Members must be citizens of the United States, and residents of Philadelphia ; and must be nominated one month before they can be chosen." ^^ Of importance is the additional fact that the Membership old Chamber of Commerce was further re- stricted in its membership to owners of vessels, importers and exporters of merchandise, and marine insurance brokers.^^ This shows that the organization came into existence primarily to foster the shipping interests of Philadelphia. In the files of Hazard's Register during the 1820's and '30's there are numerous reports of action taken by the Chamber, indicating that it was at that time an effective body. In 1833 while the Chamber of Commerce was still in existence, the Philadelphia Board Board of Trade was organized on a more liberal plan Trade by several merchants who met October fifteenth 37 Dr. James Meases' Picture of Philadelphia, published in Philadelphia, 1811. Pages 67-68. See also Philadelphia in 1830 by E. L. Carey and A. Hart. Philadelphia, 1830. Page 95. 38Fraley, op. cit., page 31. 34> AMERICAN CHAMBERS OF COMMERCE of that year, **to take into consideration the propriety of forming an association by means of which the commercial and trading com- munity may be enabled to act with united ef- fort on all subjects relating to their inter- ests."^^ At this meeting twenty-four direc- tors were elected and on October 22 the mem- bers, numbering 220, chose a president. A constitution was adopted January first, 1834. The first move of the new body was to in- crease the transportation facilities. In 1833, within a month after its organization, delegates were sent to a convention at Warren, Ohio, called for the purpose of uniting the canals of Pennsylvania with those of Ohio.^^ By the publication and distribution of the proceedings of that meeting and by continued action on the general subject of constructing canals and rail- roads, the Board of Trade rendered efficient service in opening a means of communication with the West. The organization was incor- porated in 1838. While this body was flourishing the Chamber of Conmierce gradually lost ground and was 38 Sabine, op. cit., page 22. *o Fraley, op. cit., page 53. EARLY HISTORY IN THE UNITED STATES 35 finally united with the Board of Trade in 1845 consoiida- through a friendly conference between commit- tees of both bodies. This consolidation was later ratified by an act of the Assembly.*^ For many years the Board of Trade had no fixed meeting place. At first the meetings were held at Wade's Hotel/^ and the Mer- chants' Coffee House, and after 1834 in an apartment in the Exchange. In June 1858 two large rooms with an office were fitted up for the use of the organization on the second floor of a new fire-proof building opposite the Mayor's office and Independence Hall on Chestnut Street.'^ At the present time the Board of Trade is Present- located at the Philadelphia Bourse. It is ac- ganizations tively devoted to the material prosperity of the *i Fraley, op. ciL, page 51. 42Fraley, op. cit., page 52f, says: "Carrying my recollec- tions back to my first knowledge of that house of entertain- ment, I recollect that it was kept, in 1826, by Mrs. Catherine Yohe, who was a most admirable landlady, and attracted, — by the goodness of her table and her genial and affable con- duct towards her guests, — large numbers of merchants from the South and West, — the then great sources of our Phila- delphia trade." Mr. Fraley was Secretary of the Board of Trade in 1838, the year of its incorporation by act of the Assembly, and his report of its early history is authoritative as well as interesting. *3 Sabine, op. cit., page 24. 36 AMERICAN CHAMBERS OF COMMERCE city, the membership representing every de- partment of industry. Other prominent com- mercial organizations are the new Chamber of Commerce, organized in 1891, and the Com- mercial Exchange, organized in 1854 as the Corn Exchange Association. The Chamber of Commerce aims to promote the business wel- fare of the city, while the Commercial Ex- change is closely identified with the grain and produce interests.*^ 44 The Port and City of Philadelphia, by F. H. Taylor and W. H. Schoff. Page 110. Boston's unified Chamber of Commerce contrasts strongly with the several commercial organizations supported by Phil- adelphia citizens. The author invited Secretary Schoff of the Philadelphia Commercial Museum to state the reasons, in his opinion, for the lack of unity now existing in Philadelphia. Mr. Schoff's letter follows: "... I think the situation in Philadelphia as regards combination of its Trade Bodies is largely a personal one, and while ultimately a combination may be brought about, it seems to me more likely that it will come through gradual growth of the strongest body and ab- sorption of the other bodies and that it may not be fully consummated during the lifetime of some persons active in this work. . . . While there has been considerable agitation of the matter of combining our Trade Bodies, the agitation itself has not been entirely free from personal or political motives, and this has perhaps prevented it from commanding general confidence. "I do not believe that it can be accepted as axiomatic that absolute combination into one body is necessarily beneficial, although it cannot be denied that the division of interest in Philadelphia has lessened the effectiveness of organization work here." EAELY HISTORY IN THE UNITED STATES 37 The 1911 Annals of the American Academy- furnish interesting early history of some of the great produce exchanges of this country, nota- bly, the Chicago Board of Trade, — pages 507- 523; N. Y. Produce Exchange, — pages 524- 539; the Merchants' Exchange of St. Louis, — pages 540-544; and the Philadelphia Commer- cial Exchange, — pages 562-567. New Eng- land, edited by George French and pubUshed 1911 by the Boston Chamber of Commerce, sketches the founding and early history of com- mercial organizations in New England, — • pages 344-360. A CENTURY OF DEVELOPMENT CHAPTER III A CENTURY OF DEVELOPMENT In 1801 four chambers of commerce existed isoi in this country, located respectively in the cities of New York, New Haven, Conn., Charleston, S. C, and Philadelphia.^ From the previous description of the New York and Philadelphia bodies it is apparent that they were composed of business men meeting regularly to discuss trade matters and to pass resolutions on cer- tain important commercial questions. The other chambers of commerce closely resembled them. These pioneer mercantile associations were the forerunners of the various bodies that have since been founded. During the first half of the nineteenth cen- tury commercial conditions showed relatively ^American Commercial Institutions by Wilfred H. Schoflf (now Secretary of the Philadelphia Commercial Museum), — fourth of a series of Monographs on American Social Eco- nomics written at the request of the Department of Social Economy of the United States Commission for the Paris Ex- hibition of 1900. Published in Philadelphia, 1900. Refer- ence is to page 5. 41 42 AMERICAN CHAMBERS OF COMMERCE 1B58 little progress. The telegraph was not in reg- ular use and the transatlantic cable had not yet been laid. The increase in the number of com- mercial bodies during the half -century was, nat- ^ urally, only slight. In 1858, according to one authority there were ten chambers of commerce and twenty boards of trade in the United States.^ They were voluntary associations of business men, without political influence or patronage, but generally possessing limited charter privileges. The laying of the cable in 1866 and the de- velopment of telegraph and railway lines revo- lutionized trade conditions and resulted in the formation of numerous boards of trade and similar associations. A prominent effect of the extension of railroads was to deprive inland waterways of much of the freight that had for- merly been theirs. The commerce of some river-cities actually decreased for a time. An address contained in the records of the Pitts- burgh Chamber of Commerce for the year 1878 Civic states that Pittsburgh was seriously affected; Aroused and it is particularly valuable for showing how one commercial organization came to take an 2 Sabine, o'p. cit., page 20. A CENTURY OF DEVELOPMENT 43 interest in the city's welfare.^ By the very urgency of the situation the Pittsburgh Cham- ber was forced to adopt a public-spirited point of view. For over a century there have been commer- cial organizations in this country, but for the greater part of this period they have been de- liberative bodies, meeting infrequently, debat- ing problems of local or national interest, and adjourning. It is different in the case of the modern chamber of commerce. Evolution has Evolution produced a new organization, conducted by the commercial best type of citizens and business men, and in- terested not only in the upbuilding of commerce but also in the betterment of community life. In the words of Ex-President Wheeler of the U. S. Chamber of Commerce, the commercial organization of to-day is "the most beneficent 3 "Boards of Trade: Their Origins, History, Uses, and Usefulness," — address by John H. Ricketson, Esq., before the Pittsburgh Chamber of Commerce, June 4, 1878. He said in part: "Situated on the eastern edge of the Mississippi basin, with river communication with the mouth of the Father of Waters, only 450 miles from the largest sea-coast city, and much nearer to two next in rank, with a delightful climate, a fertile soil, a rich back country, and . . . the largest and finest deposit of coal for manufacturing purposes, we have grown in spite of ourselves. . . . But now a change has come over the spirit of our dream. Artificial highways have been created and our natural advantages are beginning to be neu- 44 AMEKICAN CHAMBERS OF COMMERCE force that community life in America has ever known." * By constantly enlarging their field of use- fulness and by taking an active part in the so- lution of civic problems, modern trade bodies have made themselves invaluable to their cities. The "doing" body of to-day, as Mr. Chering- ton observes, has gone so far beyond its "resolv- ing" forebear that we are prone to forget that it is still a "voluntary association of business men working for the common good." ^ He ac- counts for this evolution by the fact that the voluntary association has not only realized its own strength but has also come to appreciate the true meaning of the common good. As stated above, there were four commercial organizations in this country in 1801, their number increasing to thirty in fifty-odd years. tralized. . . . The changes the railroads first made on their maps they are now making on the face of the land itself." See also development of transportation facilities in United States. New England, page 272. * Speech before the San Francisco Chamber of Commerce, July 14, 1913, reported in The Nation's Business, Vol. I, no. 14, page 5. 5 "The Secretarial Field for College Graduates," by Asst.- Prof. Paul T. Cherington of the Harvard Graduate School of Business Administration. The Nation's Business, Vol. I, no. 14, page 7. A CENTURY OF DEVELOPMENT 45 Figures for 1898 are given by W. H. Schoff, i898 Secretary of the Philadelphia Commercial Museum, in his pamphlet, American Commer- cial Institutions. From a specially compiled list of local boards of trade and other commer- cial organizations Mr. Schoff finds a total of 2944. To this, he says, must be added about 100 national commercial bodies, as for example the National Business League and the Na- tional Board of Trade. In December 1912 the Senate directed the official _. /» ^ T , /. statistics JDepartment of Commerce and Labor to fur- i9i3 nish a Ust of National, State, and local commer- cial organizations, and the compilation was made by the Bureau of Foreign and Domestic Commerce of this Department and printed February 1913. A description of the pam- phlet is given on page 78. Careful analysis of the hst shows that at the date of issue there were approximately 3356 commercial organi- zations in this country. Of those mentioned 243 are interstate, national, or international bodies, 183, state and territorial, and 2930, local. To the first of these three classes belong such organizations as the New England Busi- ness Federation, the Pan American States As- 46 AMERICAN CHAMBERS OF COMMERCE sociation, and, in addition, many national trades organizations which are not related to chambers of commerce and boards of trade. Among the state bodies may be cited the Cali- fornia Development Board, a consolidation of the California State Board of Trade, the Man- ufacturers' and Producers' Association of Cal- ifornia, and the California Promotion Com- mittee. This Board was organized to promote the commercial development of California. In New York State, since the publication of the Government list, a body known as the Asso- ciated Chambers of Commerce of New York I State has been founded, having as its purpose j the systematic interchange of information re- garding the attitude of New York State com- mercial bodies toward state legislation. These two examples of state federations are sufficient to indicate the wide diversity of causes which bring these state bodies into existence. Of the 2930 local commercial organizations Civic mentioned in the official compilation, a large runctlons . . , ,...,. majority, 2274, are interested m civic and in- dustrial development, as conveniently indicated therein by symbols. Although there is a great variety in the names of local bodies, a trifle A CENTURY OF DEVELOPMENT 47 more than 60 per cent, of them are designated as chambers of commerce, boards of trade, and commercial clubs, with numerous variations of the last-named. There are listed 414 cham- bers of commerce, 490 boards of trade, and 868 commercial clubs, commerce clubs, commerce leagues, and commercial associations. The Names of . . Organiza- ngures mdicate that these descriptive terms tions are in particular favor. The accompanying table shows the average number of chambers of commerce, boards of trade, and commercial clubs, respectively, per hundred of commercial organizations in each of the main divisions of this country : ^ Division Ch.C'm. Bd.Tr. C'm.Cl No. Atlantic States. ...13.. ...41.. . 3... So. Atlantic States. ...28.. ...34.. . 5... No. Central States.. ... 6.. ... 4.. .49... So. Central States . . ...12.. ...10.. .32... Western States ...30.. ...11.. .30... It is interesting to note the high percentage of boards of trade and chambers of commerce 7 These figures are not contained in the official report but have been compiled from it by the author. See Appendix, page 257, for statistics showing (1) commercial organizations by States and (2f) those commercial organizations, by States, that are interested in civic work. 48 AMERICAN CHAMBERS OF COMMERCE in the East, and the correspondingly small pro- portion of commercial clubs, whereas the cen- tral states show the figures reversed. In the West chambers of conmierce and commercial clubs exist in equal numbers, California alone having as many as sixty-nine chambers of com- merce. It should be carefully understood, however, that the selection of one name or an- other for a commercial organization engaged in civic and industrial development is only ar- bitrary. But it is probably justifiable to as- sume that the existence of large commercial clubs in the principal cities of the central states accounts for the sectional popularity of their name. And the Atlantic states very naturally retain the terms, board of trade and chamber of commerce, as their inheritance from the Old World. The World's Work, August 1913, page 479, says editorially: "At the present time there are over 4500 commercial organizations in the United States, and over 1000 of sufficient importance to jus- tify membership in the National Chamber of Commerce." A CENTURY OF DEVELOPMENT 49 No figures are given to show how this ap- parently excessive estimate was obtained. It includes, of course, as do the lists for 1898 and 1913 above mentioned, many special organiza- tions such as stationers' boards and real estate associations which do not properly belong to the class of commercial bodies treated in this volume. Along with the rapid increase in the number improved of American commercial organizations has come a satisfactory advancement in their meth- ods and functions. For example, they have been largely instrumental in improving the re- lations between the transportation companies and the commercial interests. Through their traffic bureaus they settle the freight claims that the business man willingly turns over to them for adjustment.^ The agricultural pos- 8 Practical suggestions for the management of a traffic bureau, examples of traffic bureau efficiency, etc., are con- tained in the following: Special Agents Series — No. 60. Commercial Organizations, by E. A. Brand. Washington, D. C, 1912. Page 18— "Transportation Departments." Special Agents Series — No. 79. Commercial Organizations in Southern and Western Cities, by Geo. W. Doonan. Washing- ton, D. C, 1914. Page 6— "Traffic Bureaus." S. H. Clay, City Building, Chapter VIII, "Transportation." J. H. Seek, "Transportation," in the Proceedings, Fourth Annual Conven- tion, the Central Association of Commercial Secretaries, pages 27-30. E. J. McVann, "Traffic," in the Proceedings, Fifth 50 AMERICAN CHAMBEES OF COMMERCE sibilities of the territory adjacent to the cities are being investigated by commercial organi- zations.^ In conjunction with the Depart- ment of Commerce, boards of trade also keep the local merchants informed of foreign trade opportunities and, carrying out their original purpose, supervise the transactions in ex- changes and arbitrate commercial disputes/^ Fire and accident prevention is an impor- tant part of their work in many places. Sani- tary surveys conducted by these bodies have lowered the death rates and made living safer and more comfortable for whole communities- Charitable and settlement work is coming to be included in their field of service. In the mat- ter of community building boards of trade now make industrial investigations, analyzing the Annual Convention, the Central Association of Commercial Secretaries, pages 39-40. ©Clay's City Building, Chapter XIII, "Agriculture in Co- operation with Farmers and Growers." See page 248 for additional references. 10 For accounts of the work of commercial bodies in whole- sale and retail trade extension see: W. S. Whitten, "Trade Extension," in the Proceedings, Fourth Annual Convention, Central Association of Commercial Secretaries, pages 19-24. E. H. Clifford, "Trade Extension," in the Proceedings, Fifth Annual Convention, Central Association of Commercial Secre- taries, pages 32-33. S. H. Clay, City Building, Chapters V and VI. A CENTUEY OF DEVELOPMENT 51 needs and advantages of their cities, and plan- ning to acquire new factories and industries. The constructive work of commercial organi- zations is more particularly described in Chap- ter X, Civic Improvement, while their im- portant relations with city governments are treated in Chapters VII, VIII, and IX. THE FEDERATION MOVEMENT CHAPTER IV THE FEDERATION MOVEMENT Of the great elements in our national life, com- merce has been the slowest to secure nationally organized representation in governmental af- commerce fairs. The laborers in this country are a more organize or less cohesive body. Through their local groups to their State and national organiza- tions they make their wants known to the gov- ernment. Likewise, agricultural interests have combined in granges and other sectional and national groups and they also are able to command governmental recognition. But chambers of commerce and boards of trade, representing the commercial interests, have un- til very recently existed only as independent units and as a result have received little atten- tion from the Federal Government. Public officials dare not discriminate by recognizing any particular board of trade to the exclusion of the rest. The formation of one central body representative of all these organizations 55 56 AMERICAN CHAMBERS OF COMMERCE Central Body Advocated National Board of Trade is evidently the means to the solution of this difficulty/ In the 1859 report of the Boston Board of Trade there was recommended the formation of a United States Government Board of Trade, "not to replace but to help the local chambers of commerce by bearing some of the labor and expense." Presumably the Boston organization had in mind a body similar to the English Board of Trade, but at all events the Government did not act favorably upon the recommendation. The plan of forming a fed- eration which should be truly representative and entitle commercial organizations to official recognition was considered at a meeting of delegates held in Detroit in 1867. Since that time American trade bodies have made at- tempts to carry out the plan and the term "federation movement" has been applied to this phase of their history. The year 1868 marked the first attempt, when the plan of the National Board of Trade i"A National Chamber of Commerce" by Edward F. Trefz, Pield Secretary of the Chamber of Commerce of the United States. Address made at the Fourth Annual Conven- tion of the Central Association of Commercial Secretaries, Indianapolis, Indiana, 1912. Reported on page 34 of the Proceedings of tliis convention. THE FEDEEATION MOVEMENT 57 was drawn up at a convention in Boston. Organization was effected the same year at Philadelphia, the delegates meeting there at the city's invitation. The new body adopted a constitution June fifth, 1868, briefly sum- marizing its purposes as follows: "In order to promote the efficiency and ex- tend the usefulness of the various Boards of Trade, Chambers of Commerce, and other chartered bodies, organized for general com- mercial purposes, in the United States; in or- der to secure unity and harmony of action in reference to commercial usages, customs, and laws, and especially in order to secure the proper consideration of questions pertaining to the financial, commercial, and industrial in- terests of this country at large, this Associa- tion on the fifth day of June 1868 is hereby formed by delegates now in session in the City of Philadelphia, " ^ K. • • It was provided by the constitution that every local board of trade, chamber of com- merce, or other body organized for general conmiercial, and not for special or private, purposes, and duly chartered under State or national laws should be entitled to member- 2 Preamble to the Constitution of the National Board of Trade, quoted in the 1868 Report of that body, page vii. 58 AMERICAN CHAMBERS OF COMMERCE Original ship, the representation of each body to be on the basis of its number of members. The original enrohnent consisted of thirty-two as- sociations, probably a large majority of all the commercial organizations existing at that time.^ The report of the executive council of the National Board of Trade in 1878, reviewing the first decade of its existence, states that the Board was recognized as the leading repre- sentative commercial body and, continuing, says: "The result of conservatism and disinterest- edness on the part of the National Board of Trade has been that when the executive council or any committee of the Board has had occa- sion to wait upon the President or upon the heads of departments at Washington, or to ap- pear before the committees of Congress, it has had a cordial reception and a respectful hear- ing. Its recommendations have not always been immediately adopted but they have been recognized as entitled to weight and have sel- dom failed to exert due influence." ^ 3 Report of the National Board of Trade, 1868, page v. 4 "The National Board of Trade: Its Past and Future." Report of a committee of the executive council as adopted December 12, 1878, Boston. Reference is to page 4. THE FEDERATION MOVEMENT 59 Though it is admitted that the National Not a ReprcMiita- Board of Trade was measurably successful and tive Body worked faithfully to secure proper recogni- tion for commercial organizations, it was not in fact a representative body. As time passed, the growth of its membership did not keep pace with the rapid increase in the number of commercial bodies.^ Nevertheless the organ- ization continued its activity until 1912, having held annual meetings with only three excep- tions since the date of founding. THE NATIONAL COUNCIL OF COMMERCE An effort to establish closer relations be- * tween commercial organizations and the Gov- 5 An attempt to explain this fact appears in the minutes of the 1911 Annual Meeting of the National Board of Trade, as follows: "A writer in a recent magazine article, comment- ing on the success of two or three well-known commercial bodies, conveys the impression that we have several thousand commercial organizations in the tJnited States. We have a very large number of organizations, created for special pur- poses, whose membership never meets and whose existence is on paper only; these cannot be classed among commercial bodies eligible for membership in the National Board of Trade. It is improbable that at this time there are more than 200 active commercial organizations as distinguished from industrial and trading associations, identified with the civic interests of their respective localities, and of these it is doubt- ful if more than one-quarter have sufficient income to meet their local demands." 60 AMERICAN CHAMBERS OF COMMERCE eminent was made at one time by the Depart- ment of Commerce and Labor and, though un- successful, it is worthy of mention. On October 23, 1907, Secretary Straus addressed a letter to a selected number of trade organ- izations. Part of it is here quoted : "Gentlemen: The Department of Com- merce and Labor was created by the act of February 14, 1903, and Congress had chiefly in view . . . the fostering, promoting, and developing of foreign and domestic com- merce. . . . "With the view of developing the most prac- tical plan for rendering this Department of greater service to the commercial interests of this country, and at the same time to enable the Department to enlist the co-operation of such interests, I have invited the chambers of commerce and boards of trade from some forty of the leading cities of the country to appoint committees to meet in the Department of Com- merce and Labor on Thursday, December 5 ... to consider with me ways and means of accompUshing the objects above set forth. . . ."^ ^National Council of Commerce: Proceedings of a meet- ing of delegates from the chambers of comnnerce, boards of trade, and trade organizations of the leading cities of the United States, in conference with the Secretary of Commerce and Labor, December 5 and 6, 1907. Printed Washington, D. C, 1907. Secretary Straus's letter appears on pages 3-4. THE FEDEEATION MOVEMENT 61 At the meeting a plan of organization was National Council adopted providing for two closely connected, Formed yet distinct bodies: (1) a National Council of Commerce and (2) an Advisory Committee, appointed by the Council. The National Council was composed of representatives from all of the leading commercial and in- dustrial organizations in this country. Its function was to hear and act on the reports of the Advisory Committee and in turn to bring to the latter's attention any important sug- gestions."^ One of the chief services planned for this Council was that of acting as an in- termediary between the local commercial bodies and the Department of Commerce and Labor in making useful the information col- lected by the Department concerning foreign trade. For a number of reasons the National Coun- cil never fulfilled the expectations of its found- ers. After its first annual meeting the membership steadily lost interest and upon the organization of the Chamber of Commerce of the United States of America in 1912 the 7 Page 14, 1907 Proceedings of the National Council of Commerce. 62 AMERICAN CHAMBERS OF COMMERCE Voted out Council voted itself out of existence, turning istence over to the new body the contents of the treas- ury which amounted to several hundred dol- lars. THE CHAMBER OF COMMERCE OF THE UNITED STATES OF AMERICA In 1910 the Boston Chamber of Commerce, a charter member of the National Board of Trade, endeavored to bring about a reorgan- ization of that body in order to make it more effective. But the general sentiment of those organizations which were not members of the old Board of Trade was that it would be better to form a new body. Accordingly in 1912 National President Taft, through Secretary Nagel of Conference the Department of Commerce and Labor, in- vited commercial organizations generally to at- tend a National Commercial Conference in Washington to consider the advisability of carrying out this plan.^ 8 See Secretary Nagel's article : "A National Chamber of Commerce." Harper's Weekly, August 10, 1912, page 9. He says: ". . . Intelligent development, legislative or otherwise, must in very large measure depend upon the opportunity and ability on the part of officials of the government to confer with accredited representatives of commerce and industry in general." Also see Chamber of Commerce News (issued by THE FEDEEATION MOYEMENT 63 Seven hundred and fifty delegates, repre- senting commercial organizations of every state in the Union, attended the meeting on April 22, 1912. At this time there was formed xr. s. Chamber the Chamber of Commerce of the United Formed States of America.^ This body has no offi- cial connection with the National Board of Trade. The latter is still in existence, though inactive and holding no meetings. Its mem- bers have been advised by the ofiicers to sup- port the new Chamber of Commerce and the Board of Trade will resume operations only in case the other is not successful. Subject to the call of the president, the National Board can be brought forward again at any time to work in the interests of organized com- merce. ^^ the Boston Chamber of Commerce) Vol. II, No. 52, page 1: "New National Commercial Body,'* showing the activity of the Boston Chamber in connection with the founding of the Chamber of Commerce of the United States of America. The World's Work, Vol. XXVII, page 610, April 1914, gives editorial conmient under the title "A National Chamber of Commerce." 9 Greater New York, Vol. I, no. 9, page 8. "Federal Cham- ber of Commerce Formed." 10 Letter of Mr. William H. Douglas, Dec. 26, 1913. Mr. Douglas, formerly Second Vice-President of the National Board of Trade, is now a member of the Board of Directors of the Chamber of Commerce of the U. S. A. 64. AMERICAN CHAMBERS OF COMMERCE The purpose of the United States Cham- Purpose ber of Commerce is to establish closer relations between the commercial interests of this coun- try and the Federal officials, and thus to bring about a better mutual understanding. It aims in the words of the by-laws : "to secure co-operative action in advancing the common purposes of its members, uniformity and equity in business usages and laws, and proper consideration and concentration of opinion upon questions affecting the financial, commercial, civic, and industrial interests of the country at large." ^^ By comparing the purposes of this organiza- tion with those stated half a century ago in the "Preamble" of the National Board of Trade ^^ it will be noted that the by-laws com- mittee of the newer body thought it necessary to add "civic interests" to the financial, com- mercial, and industrial interests named by its predecessor. It is reasonable to expect that, 11 Published in The Nation's Business, Vol. I, no. 4, page 7. See also: The Nation's Business, Vol. I, no. 2, page 2: "The Relation of the U. S. Chamber of Commerce to the Govern- ment." Same, Vol. I, no. 5, page 12: "The Chamber and Con- gress." Same, Vol. I, no. 14, page 5: "Purpose of the U. S. Chamber of Commerce." Speech of Pres. Wheeler at San Francisco Chamber of Commerce July 14, 1913. 12 See above page 57. THE FEDERATION MO^^EMENT 65 as the commercial organizations represented in the United States Chamber of Commerce con- tinue to extend their civic functions, becoming increasingly valuable to their cities, they will in due course be enabled to secure govern- mental recognition and legislative support. Following the advice of Secretary Nagel in Federal his address at the National Commercial Con- sought ference which marked the founding of the Chkmber, the board of directors was ordered to take steps to secure a Federal charter.^^ A bill was therefore prepared and introduced in the House of Representatives on June fourth, 1912, and referred to the Committee on Judici- ary. The bill was promptly returned with the recommendation that it be passed and these significant comments : **As the purpose of the corporation pro- posed in this bill is to encourage trade and commercial intercourse among the States, the District of Columbia, the territories, and in- sular possessions of the United States and with foreign nations — in other words, as its pur- pose is to encourage, stimulate, facilitate and extend our commercial relations, there can be 13 The Nation's Business, Vol. I, no. 7, page 4: "Federal Charter Sought for U. S. Chamber of Commerce." 66 AMERICAN CHAMBERS OF COMMERCE no question as to the right and the power of Congress to grant the proposed charter. "While we have many commercial bodies in the country . . . they are all purely local in their character, intended only to benefit the particular conmiunities in which they are lo- cated, and we have no organization of a na- tional or quasi-national character, such as it is proposed in this bill to organize. . . . "In the collection, publication and distribu- tion of the latest conmiercial statistics alone it can do incalculable good. "It can and ought to greatly increase the commercial standing and importance of the United States among foreign nations by ma- terially extending our foreign trade and by creating a higher standard of business ethics." Although the House of Representatives Charter favorcd the bill, it failed to pass the Senate, Bill Defeated owing partly to the fact that the latter's Com- mittee on Judiciary did not report the bill, and partly to the pressure of other important mat- ters.^* The Chamber has urged the constitu- ent members to work for the passage of the Federal charter bill when it is next presented. Recognition of this body by Congress would enable it to treat on equal terms with the na- 1* The Nation's Business, Vol. I, no. 9, page 1, "Federal Charter Bill Defeated." THE FEDERATION MOVEMENT 67 tional commercial organizations of other coun- tries. Mere incorporation by a State or by the District of Columbia would not be expres- sive of its national purpose and would inevita- bly lead to its confusion with local organiza- tions. The activities of the Chamber center in the annual meetings held in various large cities and attended by delegates from all the constit- runctions uent organizations. On these occasions ques- tions of a national character are discussed and voted on. In the interval between meetings the "referendum plan" is largely used, the vote of the members being obtained through the mails. The by-laws provide that any associa- tion desiring to present a subject for the con- sideration of the Chamber shall communicate with the General Secretary. He, in turn, places the question before the board of direc- tors who decide whether it is of national im- portance. If they find in the negative, the proposing member may appeal to the National Council, a body consisting of delegates from all the organizations, each organization having one representative. If the subject is finally • decided by the directors or the Council to be 68 AMERICAN CHAMBERS OF COMMERCE worthy of consideration, a printed statement of it is sent out to the members and a date set within which votes must be returned. If the general sentiment of the members is favorable, the responsibility of making the action effec- tive rests with the board of directors. The first referendum of the Chamber contained the plan of a national budget, and, owing to the great importance of this subject, all the commercial organizations in this country and in the in- sular possessions, whether or not they were members of the U. S. Chamber, were invited to express their opinion. The returns showed a strong sentiment in favor of the plan. The nature of the Chamber's work is in- Referenda dicatcd by a brief statement of the seven subse- quent referenda which have thus far been is- sued. The Chamber's second referendum advocated the creation of a permanent tariff commission. The third condemned an objec- tionable rider on the Sundry Civil Bill. Spe- cific amendments to the Banking and Cur- rency Bill were made the subject of the fourth referendum. Following the affirmative vote of the constituent organizations, delegates from the National Chamber were invited to THE FEDERATION MOVEMENT 69 present their amendments to the Senate Com- mittee. The Chamber was thus enabled to take an active part in perfecting the bill which has since become law. Referendum, number 5, advocated the ex- pansion of the powers and functions of the Bureau of Foreign and Domestic Commerce. The sixth and seventh referenda proposed, re- spectively, the establishment by Congress of a bureau, or bureaus, of legislative reference and bill-drafting; and the creation of an in- terstate trade commission. The eighth refer- endum contained detailed recommendations on the pending trust legislation and on the pro- posals for regulating business practices.^^ In order to keep the organization fully in- formed on national questions affecting com- merce, a number of standing committees have standing: been appointed, whose function it is to investi- gate and make reports whenever required to do so. A committee consists of twenty mem- bers and is divided into four sub-committees, each located in, and representing, one of the four great geographical divisions of this coun- 15 For a review of the Chamber's referenda with the excep- tion of No. 8 see The Nation's Business, Vol. II, no 2, page 7. 70 AMERICAN CHAMBERS OF COMMERCE try, — eastern, north central, south central, and western. Over 600 commercial organizations Membersiiip are included in the membership of the National Chamber. There are, moreover, a large num- ber of individual memberships, 1716 being the figure given in the Directors' Report for 1913. Individual members must be members in good standing of an organization affiliated with the Chamber and have no vote except through the organization to which they belong. In return for annual dues of $25 they receive direct all the services of the Chamber, have the use of the facilities at the Washington office, may attend the meetings, and have the privilege of the floor at these functions. The official publication of the National Chamber, The Nation's Business, is issued monthly from the headquarters at Washing- ton, D. C. As the National Chamber is still in the rnture of formative period, any statement regarding its Chamber permanent value to organized commerce would be imprudent. In the personnel of its found- ers, the practical value of its proposed en- deavors, and the friendly attitude of the Fed- eral Government, the Chamber of Commerce THE FEDERATION MOVEMENT 71 has had from the first most desirable assets. Its future will depend largely upon the ability of its directors to combine the heterogeneous elements which are represented in the member- ship and to guide the organization as a unit in accordance with wisely-chosen policies. INTERNATIONAL CONGRESS OF CHAMBERS OF COMMERCE An organization which tends to bring about government co-operation with American com- mercial bodies, and to raise them to the posi- tion occupied by European trade associations, is the International Congress of Chambers of Commerce, representing the business men of the entire world. It was founded at a meet- ing held in Liege, Belgium, in 1905, which resulted in the appointment of a permanent committee and the decision to hold meetings every two years. The second Congress took place at Milan, Italy, in 1906 and at intervals of two years thereafter meetings were held in Prague, 1908, London, 1910, Boston, 1912, and Paris, 1914, respectively.^^ 18 For details see: Bulletin of the Pan- American Union, 1912, Vol. XXXIV, pages 52S-525; "Fifth International Con- gress of Chambers of Commerce." (Same) , Vol. XXXIV, pages 72 AMERICAN CHAMBERS OF COMMERCE Classes of Delegates Subjects Discnssed Delegates to the International Congress are of two classes : first, the official delegates desig- nated to attend the Congress by the Govern- ments of the leading commercial nations; and second, the delegates appointed by the busi- ness organizations affiliated with this body. The purpose of the International Congress is to secure harmony of action on all interna- tional questions affecting commerce and trade by enlisting the co-operation of the various na- tions to obtain uniform laws with respect to commercial matters. At the biennial sessions it therefore considers the current problems of the world's trade. Questions are selected by the permanent committee from among those suggested by the constituent organizations and are announced in advance of the meetings. At the recent Paris Congress, attended by over 2000 delegates, the following were among the subjects discussed and voted upon: a fixed date for Easter, the universal adoption of clocks numbering the hours 1-24, saving of daylight in the simamer months by putting time 873-896. The Nation's Business, Vol. I, no. 18, page 16: " In- ternational Chamber of Commerce Resolutions." New York Times, July 26, 1914, magazine section, page 8: "Sixth Inter- national Congress of Chambers of Commerce." THE FEDERATION MOVEMENT 7S ahead one hour, May 1 to October 1, uniform legislation regarding the arbitration of com- mercial disputes between private parties of dif- ferent countries, and a uniform bill of lading/^ If the action taken by the delegates at the biennial sessions is favorable, it then becomes the duty of the permanent committee to take steps to make the decision effective. This is done either by urging some government to call a diplomatic conference or by entering into negotiations with the different governments. The relations between the leading commercial organizations of Europe that are included in the International Congress and the various European governments have always been of a very cordial nature.^^ THE PHILADELPHIA COMMERCIAL MUSEUM The Philadelphia Commercial Museum is an institution that indirectly contributes to the federation movement since commercial organ- izations of all countries are represented in the membership of its international advisory board. IT See Chicago Commerce, Vol. X, no. 6, pages 20-22. Also The Nation's Business, Vol. II, no. 7, pages 11-13. 18 The Nation's Business, Vol. I, no. 2, page 1. 'The In- ternational Congress of Chambers of Commerce.^* 74 AMERICAN CHAMBERS OF COMMERCE The purpose of the Museum is to develop American export trade by supplying manu- facturers with commercial information and statistics. In 1893 the Chicago World's Fair suggested Plan to Dr. Wilham P. Wilson, then of the Uni- Sn guested versity of Pennsylvania, the plan of organiz- ing a commercial museum and reference bureau. The city of Philadelphia thereupon authorized him to obtain material for a museum of foreign trade products. By conferring with foreign commissioners at the Exposition and with their respective governments, he ob- tained by purchase and gift a large number of specimens. In Philadelphia he secured the support of the late Dr. William Pepper, Provost of the University of Pennsylvania, and on June 15, 1894, there was organized the Philadelphia Commercial Museum, of which Dr. Wilson was subsequently appointed Director. For the government of the Mu- seum's affairs a board of trustees was chosen, its members including the Governor of Penn- sylvania, the Mayor of Philadelphia, and other State and city officials. In 1899 at the time of the official opening of THE FEDERATION MOVEMENT 75 the Museum there was held an Export Ex- Musenm . 1 Opened position and a Commercial Congress at which there were delegates from commercial bodies in most of the important countries of the world. The Museum is supported by the city of Philadelphia, the State of Pennsylvania, and the Federal Government, deriving an ad- ditional income from business firms which pay annual amounts varying in accordance with the services rendered to them by the institu- tion.'^ BUREAU OF FOREIGN AND DOMESTIC COMMERCE As the purpose of the federation movement is to secure official recognition for commercial organizations, it is interesting to note that the Federal Government is inviting the co-opera- tion of these bodies through the Bureau of Foreign and Domestic Commerce. This 19 Schoff, American Commercial Institutions, page 30. Other articles on the Philadelphia Commercial Museum are: P. T. Cherington, "Philadelphia Commercial Museum," The World Today, Vol. XIV, pages 500-507, May 1908; R. A. Foley, "Philadelphia Commercial Museum," The World's Work, Vol. II, pages 1258-1260, October 1901. "Pioneer Commercial Museum," Harper's Weekly, Vol. XL VI, page 514, April 19, 1902. J. A. Stewart, "Where Science Is Allied to Commerce," Chautauquan, Vol. XXXVIII, pages 264t-266. November 1903. 76 AMERICAN CHAMBERS OF COMMERCE Bureau was formed in 1912 by the consolida- tion of the Bureau of Manufactures and the Bureau of Statistics, both in what is now the Department of Commerce. Its function is to promote and develop trade at home and abroad by collecting and publishing useful commercial information. This material is se- cured from many sources, mainly by a corps of commercial agents, employed to make in- vestigations and submit reports. A pamphlet entitled: Miscellaneous Series — No. 6, Pro- motion of Commerce, Washington, D. C, 1912, gives a brief outline of the service main- tained by the Federal Government for the promotion of trade. In 1912 Mr. E. A. Brand, Commercial Tonrof Agent of the Department of Commerce and Investiga- tion Labor, as it was then named, made a tour of several of the eastern and central states, visit- ing seventy commercial organizations. The primary purpose of the inquiry was to estab- lish a basis for co-operation between the local commercial organizations and what is now the Bureau of Foreign and Domestic Commerce.^*^ Mr. Brand made a general recommendation 20 See Remarks of E. A. Brand of the Bureau of Manu- THE FEDERATION MOVEMENT 77 that the commercial bodies file trade data con- cerning their constituent members so that in- formation of foreign trade opportunities, fur- nished by the Bureau, could be directed to those interested.^ ^ As a result of this tour of investigation Mr. Brand wrote: Special Agents Series — No. 60. Government ^ ' -I ^ . • -TTT • Publications Commercial Organizations, Washmgton, D. C, 1912. This 48-page pamphlet cites the leading activities of the organizations visited, including efforts to aid in civic development, foreign trade, manufacturing industries, indus- trial expositions, campaigns for conventions, publicity, development of wholesale and re- tail trade, and the improvement of transporta- tion facilities. Supplementing this report, in 1914 the factures, Department of Commerce and Labor, at a meeting of Cleveland Manufacturers interested in Export Trade, held under the auspices of the Committee on Export Trade of the Cleveland Chamber of Commerce, May 8th, 1912. 10 pages. Published by Cleveland Chamber of Commerce 1912. 21 See E. A. Brand, American Commercial Organizations, in Daily Consular and Trade Reports, December 8, 1911, page 1217 ff. Through typographical error this citation is made to read December 6 in Special Agents Series — No. 60. Commercial Organizations, page 47. See also "Bureau of Foreign and Domestic Commerce," page 35 of pamphlet en- titled. Some Activities of the Rochester Chamber of Com- merce during 1913, showing co-operation between the Bureau and the Rochester Chamber. 78 AMERICAN CHAMBERS OF COMMERCE Bureau of Foreign and Domestic Commerce issued: Special Agents Series — No. 79. Commercial Organizations in Southern and Western Cities, — by Geo. W. Doonan, Wash- ington, D. C, 1914. As the general features of commercial organization work were treated in the previous bulletin, Mr. Doonan's mon- ograph discusses in some detail the character- istic work of the associations in twenty-five isouthern and western cities and the methods which they have adopted to meet conditions peculiar to their respective fields. The Bureau is also responsible for the com- pilation of a list of national, state, and local commercial organizations, issued 1913, cover- ing the first 81 pages of the pamphlet entitled: Miscellaneous Series — No. 8. Commercial and Agricultural Organizations of the United States. Washington, D.C., 1913."" The list contains the names of practically all commer- cial organizations in towns of 2000 inhabitants or more, and in addition a concise statement of facts regarding each organization, — its dues, income, membership, special interests, committees, and bureaus. 22 See page 45. MODERN STRUCTURAL PRINCIPLES CHAPTER V MODERN STRUCTURAL PRINCIPLES When a chamber of commerce is established the members commonly draw up a statement defining the pm-poses of the organization, and at the same time prepare a constitution and by-laws, giving to the organization its struc- tural form. The purposes declared by the founders are chief factors in determining what this form is to be. The system is adapted to the work in view. The present type of commercial organiza- tion, according to Mr. S. C. Mead,^ is the Purpose of result of commercial and industrial evolution, commerce In his opinion the main purpose of a chamber of commerce is to stimulate, foster, and pro- tect the commercial and industrial activities of the community, through co-operation and i co-ordination on the part of the citizens. ' iS. C. Mead, Secretary of the New York Merchants* Asso- ciation, "Methods of Commercial Organizations." Address at the Second Annual Convention of the Chamber of Commerce of the U. S. A., in Greater New York, Vol. Ill, no. 8, page 6. 81 82 AMERICAN CHAMBERS OF COMMERCE Collateral subjects such as civics, social better- ment, and welfare work, are to be approached by the commercial organization only in so far as they are related to the commercial and in- dustrial situation. Mr. Ryerson Ritchie also properly insists First upon the fact that the first duty of a commer- Dnty cial body is to the financial and industrial in- terests of the community: "It is only when the chamber takes its proper place as the guardian of the city's commercial credit and stability, the representative of busi- ness as a whole, that it engenders a spirit of confidence and respect that gives it power and influence." ^ Warning against the over-zealous reform work attempted by some organizations he has said: "When ycJu find a commercial body that be- gins with politics and ends with business you will find one that misses a fundamental element of efficiency as a public agency. The effective commercial organization begins with business and wins by forcing business into politics." ^ 2 Ryerson Ritchie, "The Modem Chamber of Commerce." National Municipal Review, Vol. I, page 161. 3 Ryerson Ritchie, "Chamber of Commerce and the People.*' The American City, Vol. V, pages 74-77. MODERN STRUCTURAL PRINCIPLES 8S The best structural form, then, for a com- mercial organization is that in which the col- lateral interests are properly subordinated to the promotion and stimulation of the com- munity's industrial development. The con- stitution and by-laws should be framed with this in mind. CHAMBER OF COMMERCE BY-LAWS STANDARDIZED The most important single contribution of recent years to the strengthening of commer- cial bodies throughout the country is the set of by-laws formulated in 1914 by the Com- Committee on Stand- mittee on Standardization of Commercial ardization Organizations. This committee, appointed in 1912 by the American Association of Com- mercial Executives and including in its mem- bership many prominent secretaries and or- ganization experts, made a close study of the characteristic structural forms of American chambers of commerce.^ A preliminary re- 4 The personnel of the committee in 1913-14 was, with few exceptions, the same as in 1912-13. The following men have at one time or another served as committee members: Munson Havens, Chairman, Secretary of the Cleveland Cham- ber of Commerce. Secretary Baker of the Ottawa Board of Trade. 84. AMERICAN CHAMBEES OF COMMERCE port was submitted by the committee's chair- man, Mr. Mmison Havens, at the 1913 an- nual meeting of the American Association.^ J. F. Carter, Jr., New Orleans Association of Commerce. Secretary Chapman of the Portland Commercial Club. P. T. Cherington, Harvard University Graduate School of Business Administration. Secretary Clendening of the Commercial Club of Kansas City. Secretary Davison of the Worcester (Mass.) Chamber of Commerce. G. Grosvenor Dawe, Chief Editorial Division, Chamber of Commerce of the United States. C. F. Dehoney, Manager, Development and Publicity, Cincin- nati Chamber of Commerce. Secretary Deland of the Denver Chamber of Commerce. Secretary Gitchell of the Detroit Board of Commerce. Secretary Guild of the Greater Dayton Association. Secretary Kennedy of the Montgomery Business Men's League. Vice-President Lynch of the San Francisco Chamber of Com- merce. Secretary McKee of the Pittsburgh Chamber of Commerce. Secretary McKibben of the Boston Chamber of Commerce. Secretary Mead of the New York Merchants' Association. H. F. Miller, Business Manager, Chicago Association of Com- • merce. Secretary Morley of the Toronto Board of Trade. Secretary Saunders of the St. Louis Business Men's League. Managing Secretary Snell of the Charlestown Chamber of Commerce. Secretary Strong of the Minneapolis Civic and Commerce Association. Secretary Wiggins of the Los Angeles Chamber of Commerce. Secretary Woodward of the Rochester Chamber of Com- merce. 5 First report of the Committee on Standardization of Com- mercial Organizations made by Chairman Munson Havens, Secretary of the Cleveland Chamber of Commerce, at the 1913 Annual Meeting of the American Association of Com- MODERN STRUCTURAL COMMERCE 85 This report contains a statement of ten struc- tural principles which in the committee's opin- ion should be observed in the by-laws of all commercial organizations. It is rendered in- teresting by the inclusion of the main argu- ments advanced by members of the committee in support of their views on disputed points. Supplementing the preliminary report the committee prepared a set of by-laws, based on the ten structural principles and suitable for chambers of commerce in cities ranging from 10,000 to 100,000 population. These by-laws standard have been approved by the National Associa- Approved tion of Commercial Organization Secretaries, a body recently formed by the consolidation of the Central and American Associations. Owing to the great practical value of the ten structural principles and the standard by-laws for chambers of commerce which are attempt- ing to organize or to reform their organiza- tion, these principles and by-laws are given below in full. mercial Executives, St. Paul, Minn., September 25 to 2T, 1913. See also speech of S. C. Mead, made at the Second Annual Meeting of the Chamber of Commerce of the U. S. A. The Nation's Business, Vol. II, no. 3, page 13, and Greater New York, Vol. Ill, no. 8, page 6. 86 AMERICAN CHAMBERS OF COMMERCE STRUCTURAL PRINCIPLES 1. The scope and purpose of the organiza- tion are stated in terms sufficiently broad to include every activity to be undertaken. 2. The qualifications for membership in- clude all eligible persons, with reasonable re- quirements as to their character, financial re- sponsibility, and sympathy with the objects of the organization. A member may be sus- pended or expelled for cause. 3. Meetings of the entire organization are held at intervals, the members being also em- powered to enforce a demand for a special meeting and to prevent the precipitation with- out notice of a subject and action thereon at any meeting. 4. Sufficient income is provided at regular intervals to enable the organization to do its work. The expenditure and auditing of funds is in accordance with business methods. 5. The source of nomination for the gov- erning group of the organization is the mem- bership at large, the members exercising a choice in the election of nominees to the gov- erning group. MODERN STRUCTURAL PRINCIPLES 87 6. The governing group has ample power and certain jurisdiction; but its action may be reversed in a regular manner by the organiza- tion. At stated intervals the governing group is required to present a report to the member- ship. 7. The governing group elects the officers of the organization. 8. Committees are named by the president subject to confirmation by the governing group, their actions being subject to review by the governing group before becoming the actions of the organization. But, general policies and their interpretation having been fixed by the governing group, a committee has reasonable freedom of action in specific cases. 9. The executive officer of the organization is elected by the governing group, and has the power of appointing and discharging all em- ployees. Salaries are fixed by the governing group or by a committee duly delegated. 10. Proper facilities are afforded for the amendment of the by-laws. 88 AMERICAN CHAMBERS OF COMMERCE BY-LAWS Article I OBJECTS ^ 1. Objects Defined The Chamber of Commerce is organ- ized for the purpose of advancing the com- mercial, industrial and civic interests of the city of ; to promote integrity and good faith; just and equitable principles in business; uniformity in commercial usages; and to ac- quire, preserve and distribute industrial, com- mercial and civic statistics and information of value; to discover and correct abuses; to pre- vent or adjust controversies; to have a part as representing our city in the consideration and decision of state and national issues. 2. Limitation of Methods This chamber in its activities shall be non- partisan, non-sectional and non-sectarian, and shall take no part in or lend its influence to the election or appointment of any candidate for state, county or city office. MODERN STRUCTURAL PRINCIPLES 89 Article II MEMBERSHIP 1. Classes of Membership The Chamber of Commerce shall be composed of active members and honorary members. Men of good standing, interested in the com- mercial, industrial and civic progress of the city shall be eligible for active membership. Distinction in public affairs shall confer eligi- bility to honorary membership. Honorary membership shall include all the privileges of active membership except that of holding office, with exemption from the payment of all fees and dues. 2. Active Candidates for active membership shall make written application to the board of direc- tors and this application shall be regarded as a guarantee on the part of the applicant of his interest in and sympathy with the purposes of the organization, and of his adherence, if elected, to its by-laws, rules and regulations. Election to active membership shall require 90 AMERICAN CHAMBERS OF COMMERCE the recommendation of the membership com- mittee and an affirmative vote of the directors. Ten days' notice of approval by the member- ship committee shall be posted on the bulletin board. Objection to any applicant recom- mended for election by the membership com- mittee shall be communicated to the board of directors before the meeting of the board at which the name of the candidate is to be con- sidered. At each regular meeting of the chamber the names of members elected since the preceding meeting shall be announced. 3. Honorary Honorary members may be nominated by the membership committee and elected by the board of directors. A proposal to confer honorary membership may be made in writing to the membership committee by any member of the chamber. If the membership committee approves such proposal the name shall be pre- sented in nomination to the directors with a brief statement of the reasons therefor. If such nomination shall be approved by the hoard of directors announcement of such ap- proval shall be posted on the bulletin board for MODERN STRUCTURAL. PRINCIPLES 91 a period of ten days. Objection thereto may be communicated to the board of directors in writing within this period. If a nominee shall receive an affirmative vote of the board of di- rectors he shall be declared elected. Two negative votes shall defeat approval by the membership committee of a proposal for honorary membership and three negative votes shall defeat election by the board of di- rectors. Every election to honorary member- ship shall be announced to the chamber at its first meeting thereafter. An honorary mem- bership may be revoked by the board of direc- tors at any time. 4. Dues Each active member shall pay dollars annually as dues toward the maintenance of the chamber. These dues shall be payable on the first day of . Members elected dur- ing the fiscal year shall pay pro rata for the months intervening between the date of elec- tion and the first day of . 5. Delinquency If any member shall fail to pay his dues within three months after date of maturity. 92 AMERICAN CHAMBERS OF COMMERCE his name shall be posted on the bulletin board for a period of ten days, and written notice of delinquency shall be given to him by the treas- urer. If at the end of ten days he still re- mains delinquent his membership may be for- feited by action of the board of directors. 6. Rebatement The directors shall have the power to rebate the dues of any delinquent member and con- tinue his membership in good standing. The directors may also rebate the dues of any mem- ber unable to avail himself of the privileges of the organization by reason of illness, absence from the city, or any cause, during the period that such cause is existent. 7. Resignations All resignations shall be tendered to the board of directors in writing. A resignation re- ceived after a payment is due shall not relieve the member presenting such resignation from liability for the dues of the year entered upon. 8. Expulsion Any member may be expelled for cause by resolution passed by two-thirds of the entire MODERN STRUCTURAL PRINCIPLES 93 board of directors at any meeting called for this purpose. Such member shall be notified of the intention of the board to consider his expulsion and shall be given the opportunity of a hearing before the board, but shall not be represented by professional counsel. Passage of such resolution shall, without other act on the part of the board of directors, annul such membership. Article III BOARD OF DIRECTORS The government of the chamber, the direc- tion of its work and the control of its property shall be vested in a board of directors consist- ing of fifteen members, who shall be elected annually as hereinafter provided. Their du- ties shall begin within the three days following their election, when they shall meet, qualify and elect from their own number a president, two vice-presidents and a treasurer. They shall also annually elect a secretary and fix his salary. The secretary shall, upon his election, become a member of the board of directors. The directors shall have power to fill all 94 AMERICAlSr CHAMBERS OF COMMERCE vacancies in the board. They may adopt rules and regulations for conducting the business of the chamber. They shall meet not less fre- quently than once a month. They shall sub- mit in writing at the annual meeting a full re- port of the work and finances of the organiza- tion. Article IV OFFICERS 1. President The president shall preside at all meetings of the chamber and board of directors. He shall perform all duties incident to his office and advise such action as may be deemed by him likely to increase the usefulness of the chamber. 2. Vice-Presidents The first or second vice-president shall act in the absence of the president; and in the ab- sence or disability of the three officers named, a member of the board of directors shall be chosen to act temporarily. MODERN STEUCTUEAL PRINCIPLES 95 3. Treasurer The treasurer shall receive and disburse the funds of the chamber. He shall keep all moneys of the chamber deposited in its name. At frequent intervals he shall make reports to the board of directors, which shall require him to give acceptable bond, in such sum as the board may determine, for the faithful per- formance of his duties. 4. Secretary It shall be the duty of the secretary to con- duct the official correspondence, preserve all books, documents and communications, keep books of account, and maintain an accurate record of the proceedings of the chamber, board of directors and all committees. He shall ap- point, have general supervision over and may dismiss all employees of the chamber. He shall perform such duties as may be incident to his office, subject to the direction of the board of directors. He shall give bond for the faithful performance of his duties in such amount as the directors may determine. At the expira- tion of his term of office, he shall deliver to the 96 AMERICAN CHAMBERS OF COMMERCE board of directors all books, papers and prop- erty of the chamber. Article V COMMITTEES 1. Appointment The president shall appoint all committees, subject to confirmation by the board of direc- tors. It shall be his duty to appoint an execu- tive committee and a membership committee. 2. Executive The executive committee, composed of five members of the board shall transact all routine business of the chamber, shall act for the board in the interim between its meetings, shall have authority to order disbursements for the neces- sary expenses of the organization and audit the same for payment. The executive committee shall fix the salaries of all appointive employees of the chamber. It shall have supervision of the rooms and property of the chamber; it shall submit at the meeting of the board re- ports of its actions or minutes of its proceed- ings for confirmation. MODERN STRUCTURAL PRINCIPLES 97 3. Auditing The president shall nominate an auditing committee at a meeting of the chamber prior to the annual meeting. The chamber may- approve or change the personnel of this com- mittee. It shall be the duty of the auditing committee to examine and audit the books and accounts of the treasurer and the secretary at the close of the year's business and report its findings to the board of directors and to the chamber at its annual meeting. 4. Authority of Committees It shall be the function of committees to in- vestigate and make recommendations. They shall report in writing to the board of direc- tors. No standing or special committee shall represent the chamber in advocacy of or op- position to any project without the specific confirmation of the board of directors, or such confirmation as may be clearly granted under general powers delegated by the board of di- rectors to that committee. 98 AMERICAN CHAMBERS OF COMMERCE 5. Committee Meetings Meetings of committees may be called at any time by the president or by the chairman of such committees. 6. Ea? Officio The president and secretary shall be ecc officio members of all committees, unless other- wise ordered. Article VI SUBSIDIARY ORGANIZATIONIS 1. Formation Any number of members who may desire to be associated together as a board, section, ex- change or association, for the purpose of pro- moting more effectively the special trade, in- dustry, business or profession in which they are interested, may form a board of the cham- ber of commerce. 2. Application The desire to form any board shall be com- municated to the board of directors in a peti- tion signed by not less than ten members, who MODERN STRUCTURAL PRINCIPLES 99 would be eligible to membership in such a board if formed, and if the board of directors shall approve the formation of such board, the secretary shall issue a call for a meeting of all members likely to be interested therein. S. Authority If two-thirds of those called shall favor the formation of such board, this fact shall be re- ported in writing to the board of directors, who shall issue a certificate of organization bearing the seal of the chamber and the signa- ture of its president and secretary; but such certificate shall not be issued until the board of directors shall have approved all by-laws, rules and regulations adopted, or proposed to be adopted, by such board. 4. By-laws Each board of the chamber of commerce may adopt such by-laws, rules and regulations as it may consider necessary for its proper gov- ernment; but no by-law, rule or regulation shall be adopted by any board which shall in any way conflict with the purposes and objects of the chamber as set forth in its charter, by- laws, rules and regulations. 100 AMERICAN CHAMBERS OF COMMERCE 5. Indebtedness No board of the chamber, or any member thereof, shall contract any debt in its behalf which shall in any manner, or to any extent, render the chamber liable for the payment of any smn, unless the same shall have been ap- proved by the board of directors of the cham- ber. 6. Resolution No action or resolution of any board shall be binding upon, or expressive of the sense of, the chamber of commerce. 7. Dissolution Any board of this chamber may be dissolved by the directors upon petition approved by two-thirds of the members of said board pres- ent at a meeting officially called for the pur- pose of considering such dissolution; and any board may be suspended or dissolved by the board of directors for any action contrary to the charter, by-laws, rules and regulations of the chamber. 8. Reports Boards or associations, in affiliation with the chamber, shall submit to the board of direc- MODERN STRUCTURAL PRINCIPLES 101 tors reports of their condition and reviews of their proceedings at least once a year. Article VII MEETINGS 1. Annual The annual meeting of the chamber shall be held on the third Tuesday in of each year. Regular meetings of the chamber shall take place upon dates determinable by the board of directors not less frequently than once in three months. Special meetings of the chamber may be called whenever the directors deem it desirable. Twenty members shall constitute a quorum at any regular or special meeting of the chamber. 2. Special A special meeting of the chamber or the board of directors shall be called upon the written request of ten members of the cham- ber. 3. Business At all special meetings of the chamber only such business as the meeting was called to con- sider shall be discussed and acted upon. 102 AMERICAN CHAMBERS OF COMMERCE 4. Executive Upon motion of any member, the chamber may by a two-thirds vote go into executive ses- sion. 5. Speeches No member shall be permitted to speak more than twice or longer than ten minutes each time on a single subject except by a two-thirds vote of those present. 6. Exclusion No one but a member shall address the chamber except by invitation of the directors or by unanimous consent of the meeting. 7. Resolutions A resolution offered at any meeting must be in writing, and no member shall read or offer for action any communication, report or resolution, unless it has previously had the ap- proval of the board of directors, without first making a general statement of the subject matter thereof. Should any two members object to its presentation it shall be referred to an advisory committee of three, to be im- mediately appointed by the presiding officer. MODERN STRUCTUEAL PRINCIPLES 103 After hearing any statement the member of- fering the resolution or the members objecting to its presentation may desire to make, this advisory committee shall report the matter back to the meeting with its recommendation that the matter be presented to the meeting, or that its presentation be deferred. If the com- mittee recommends that its consideration be deferred the resolution in question shall be re- ferred to the board of directors with power to act, subject only to the provisions of Article VII, Sections 2 and 3 of these by-laws. Article VIII ELECTIONS 1. Elections The election of directors shall be held on the Tuesday in of each year. 2. Nominating At the last regular meeting of the chamber prior to the annual election, a vote shall be taken by ballot on open nomination, for the selection of a nominating committee. Due notice of such meeting shall be previously 104 AMERICAN CHAMBERS OF COMMERCE given to each member by the secretary. The five members receiving the highest number of votes cast shall constitute the nominating com- mittee. 3. Official The nominating committee shall prepare a list of twenty-eight candidates, to be known as the "ofiicial ticket," from which members may select fourteen for directors. 4. Report The report of the nominating committee shall be posted, and a printed copy thereof mailed to each member of the chamber at least six days prior to the annual election. 5. Polls The polls shall be open from 12 m. until 5 P. M. on the day of the annual election. 6. Result The fourteen candidates receiving the high- est number of votes cast at the annual election shall be constituted and declared members of the board of directors for the ensuing year. MODERN STRUCTURAL PRINCIPLES 105 7. Tie In the election of directors, should a tie vote occur, the committee of judges shall cast lots and certify as elected the person or persons on whom the selection falls. 8. Unofficial Any twenty-five members of the chamber may nominate a different ticket or tickets by posting the same, over their signatures, on the bulletin board, not later than three days previ- ous to the annual election. 9. Voting All voting shall be by ballot. No proxies shall be allowed. A plurality of the votes cast shall constitute an election. 10. Ldmitation Members shall be limited to one vote each ballot for any one candidate at any election. 11. Judges The president shall appoint and announce at the meeting when the nominating commit- tee is elected, a committee of five judges, who 106 AMERICAN CHAMBERS OF COMMERCE are not members of the board of directors or candidates for election as such, to have super- vision of the election, and such committee shall serve from the opening of the polls until the result has been ascertained. 12. Certificates The committee of judges shall cause to be issued to each director elected a certificate of his election, bearing the signatures of the mem- bers of the committee. Article IX DISBURSEMENTS No disbursements of the funds of the cham- ber shall be made unless the same shall have been approved and ordered by the executive committee or board of directors. All disburse- ments shall be made by check. Checks shall be signed by the secretary and countersigned by the president, or one of the vice-presidents, or the treasurer. No appropriation of money or other prop- erty of the chamber shall be made for any pur- pose other than to defray its legitimate ex- penses, except by the unanimous vote of the MODERN STRUCTUKAL. PRINCIPLES 107 members present at a meeting of the board of directors, or a four-fifths majority vote of those present at a meeting of the chamber. Article X SEAL The chamber of commerce shall have a seal of such design as the board of directors may adopt. Article XI PARLIAMENTARY RULES The proceedings of the chamber meetings shall be governed by and conducted according to the latest edition of Roberts' Manual of Parliamentary Rules. Article XII AMENDMENTS 1. By-laws These by-laws may be amended or altered by a two-thirds vote of those present at any regular or special meeting, provided notice of the proposed change shall have been posted 108 AMERICAN CHAMBEES OF COMMERCE on the bulletin board and mailed by the secre- tary to each member not less than ten days prior to such meeting. 2. Approval All proposed amendments shall first receive the approval of the board of directors. SUGGESTED RULES AND REGULATIONS 1. Hours The rooms of the chamber shall be open daily from 8 a. m. until 5 p. m., except Sun- days and holidays, and Saturdays after 12 m. They shall also be open at other times for meet- ings of the chamber, board of directors, com- mittees or boards, and by order of the execu- tive committee. 2. Use of Rooms The rooms shall be primarily for the use of members and guests, but may be used for meet- ings of public interest, or of any branch of trade, business or profession represented in the membership of the chamber, but permission must be obtained from the executive commit- tee prior to such meeting. MODERN STRUCTURAL PRINCIPLES 109 3. Visitors A member may personally introduce a vis- itor to the privileges of the chamber by record- ing the name and residence of his guest, to- gether with his own, in the visitors' register, which shall entitle such person to the privileges of the chamber for a period of two weeks. A card of membership in any commercial organi- zation of good standing in the United States shall entitle the holder to the privileges of the chamber for a period of not exceeding two weeks. Such period may be extended by ap- proval of the executive committee. 4. Registration Persons not members attending any meeting shall be expected to register. 5. Press The courtesies of the chamber shall be ex- tended to duly accredited representatives of the press. 6. Cards A membership card shall be issued annually to each member, who will present it on enter- ing, when so requested. 110 AMEEICAN CHAMBERS OF COMMERCE 7. Books, etc. No book, publication, or other property of the chamber shall be taken from the rooms, ex- cept by authority of the executive committee. 8. Pictures, etc. No pictures or works of art shall be placed in the rooms without permission of the execu- tive committee. 9. Advertisements No advertisements of any nature shall be placed in the rooms without the consent of the executive committee. 10. Gratuity No member shall give any gratuity to any employee; any employee receiving a gratuity shall be immediately dismissed. 11. Complaint It shall be the duty of the members to pre- sent in writing to the board of directors any complaint, and to offer in writing any sugges- tions, with a view to improvement in the man- agement of the chamber. MODERN STRUCTURAL PRINCIPLES 111 PLAN OF THE NEW YORK MERCHANTS' ASSOCIATION A brief statement of the plan of the Mer- chants' Association will serve to show the prac- tical apphcation of its by-laws to the manage- ment of its affairs. The members elect a board of directors and commit to them all authority and responsibility for the conduct of the or- ganization's business during the year. How- ever, the members reserve the right and the opportunity to control the board by a proviso in the by-laws whereby any five members, with- out the concurrence of any officers or directors, may call a special meeting of the membership. The board of directors meets every month. Meetings special meetings being held as occasion re-' quires. Between meetings the power is in the hands of the executive committee of the board of directors; this committee carefully follows the general policy of the directors. Its meet- ings are held weekly and special meetings may be called at any time. The executive commit- tee is the point at which all the various lines of the organization's activity are co-ordinated and harmonized. The center of responsibil- 112 AMERICAN CHAMBERS OF COMMERCE ity, however, is in the officers, annually elected by the board of directors. Action on the part of the board or the ex- ecutive committee is always preceded by com- mittee investigations and reports. The presi- dent appoints the members of each committee and gives them authority to investigate and recommend, but no power to act. Their recommendation is sent to the executive com- mittee and thence to the board of directors, by whom a final decision is made. After the policy has been determined, re- suff* sponsibility for its administration passes through the secretary to the official staff of the organization. This staff represents the vari- ous lines of the Association's activity: indus- trial development, conventions, publicity, traf- fic, etc. The administrative work of the com- mercial secretary will be described particularly in the next chapter. An objection to a system that vests all the executive authority in the board of directors, though it is theoretically subject to the con- trol of the membership, is that it results in loss of interest on the part of the membership at large. To avoid this criticism the Merchants' MODERN STRUCTURAL PRINCIPLES 113 Association has established a Members' Coun- Members' T • • /» i_ Council cil, representing about 150 divisions oi the membership, and designed to be a connecting link between the machinery of the organization and its members. This Council has no power of action, but may recommend to the board of directors subjects which in the opinion of the Council should be taken up by the Associa- tion.^ The structure herewith described is not pe- culiar to the Merchants' Association, but is found in other representative organizations, modified according to individual opinions and local requirements/ The form is of the sort 6 Greater New York, Vol. I, no. 36, page 9 ff. *The Machin- ery of the Merchants* Association." 7 See S. H. Clay, City Building, Chapter I, "The Commer- cial Organization: Approved Methods of Organizing." Also see The Madison Board of Commerce, issued 1914 by the pub- licity committee of this body. Page 10, "How the Board Does Its Work." The activity of this organization is grouped under three heads: 1, the division of business development; 2, the division of public affairs; and 3, the division of organi- zation affairs. The Commercial Club of Clinton, Iowa, is governed by a board of 15 directors, each being the chairman of a standing committee. This plan makes a strong connecting link be- tween the governing body and the committee members inter- ested in the various branches of the Club*s activity. See Spe- cial Agents Series — No. 79. Commercial Organizations in Southern and Western Cities. By Geo. W. Doonan. Wash- ington, D. C. 1914. Pages 51-54 "The Commercial Club of Clinton, Iowa." 114 AMERICAN CHAMBERS OF COMMERCE that ensures promptness, elasticity, and effi- ciency, — factors which largely determine the success of all co-operative efforts. See Special Agents Series — No. 60. Commercial Organiza- tions, by E. A. Brand. Washington, D. C, 1912. Pages 42- 43, "Membership." Also see Special Agents Series — No. 79. Commercial Organizations in Southern and Western Cities, by Geo. W. Doonan, Washington, D. C, 1914. Page 8, "Methods of Financing." See also Carl Dehoney, "The Financing of Commercial Organizations," pages 40-45, Pro- ceedings, Fourth Annual Convention, The Central Association of Commercial Secretaries. See also J. D. Biggers, "Asso- ciation Revenues," pages 14-17, Proceedings, Fifth Annual Convention, the Central Association of Commercial Secretaries. THE TRAINING AND WORK OF THE COMMERCIAL SECRETARY I CHAPTER VI THE TRAINING AND WORK OF THE COM- MERCIAL SECRETARY The functions of the secretary of a commer- cial organization are so varied and require so wide a knowledge of affairs that modern boards of trade may well be said to have created a new profession. The recent efforts of these bodies to do fundamental things by way of im- proving civic and commercial conditions have opened up a large field of activity. The sec- retary is the executive upon whom the respon- sibility for achievement largely rests. The history of American commercial organi- Three zations is divided into three periods. The first of these covered the wide-spread impulse to form local bodies for the protection of trade interests. In the second period the trade bodies sought efficiency by combining in vari- ous interstate and sectional unions, the move- ment culminating in the formation of the United States Chamber of Commerce. Thus 117 118 AMERICAN CHAMBERS OF COMMERCE methods and policies were formulated and the foundations laid for a new science. The rec- ognition of this science by schools and universi- ties and the recent installation of courses for the preliminary training of commercial secre- taries marked the beginning of the third period. At the first annual banquet of the United Secretarial States Chamber of Commerce in January 1913 Advocated President Taf t said : "You will have to have a school from which the new chambers of commerce can draw their secretaries, who will train the new membership in the way in which the organization can be built up and give them a practical knowledge of how they can do what they are organized to do." -^ This innovation in teaching had already been seriously considered at Harvard Uni- versity, but definite action had been postponed until its practicability could be more fully de- termined. In 1913, however, at a meeting held in Cambridge, attended by Elliot H. Goodwin, General Secretary of the United States Chamber of Commerce, and John H. Fahey, representing the Boston Chamber of Commerce, together with members of the staff WORK OF THE COMMERCIAL SECRETARY 119 of the Harvard Graduate School of Business Administration, a plan providing for two years Harvard Courses of study was drawn up and approved, going into effect in September 1913. . The plan of training combines several exist- ing courses with certain new courses of a highly specialized character. Studies for the first year include commercial organization, business law, municipal government, and a new course in the work and methods of trade bodies. In the latter the various forms of ac- tivity in which chambers of commerce and sim- ilar bodies engage are examined in the light of the actual experience of progressive organiza- tions. The methods employed to secure new industries and better industrial conditions are described in detail. The course provides for a comparison of American commercial organi- zations with those of the other countries and gives a survey of the federation movement. The work is supplemented by actual experi- ence in committee work in the Boston Cham- ber of Commerce and in other organizations. During the second year a course will be given in business policy, together with corporation finance, railroad rate making, and foreign 120 AMERICAN CHAMBERS OF COMMERCE trade. Finally the student learns to deal with the problems of trade body management and examines the various methods of organizing and conducting committee work.^ The first year's enrolment in the Harvard secretarial courses included fourteen men. During the last term of the college year 1913-14 this class conducted an industrial sur- vey of Cambridge, Mass., which Asst.-Prof. Cherington expects to form the basis of some important constructive work to be undertaken by the Cambridge Board of Trade. Mr. Cherington has also succeeded in establishing connections with nearby commercial bodies in New England so as to furnish to the students an abundance of practice work. After completing two years of study a man will be unquestionably well fitted, as far as actual knowledge and practical experience can 1 Harvard University Graduate School of Business Ad- ministration, Pamphlet and Schedule of Courses, 1913-1914. Pages 2S-24. Frequent magazine comment includes the fol- lowing: The Nation's Business, Vol. I, no. 11, page 16; ho. 12, page 2; no. 14, pages 2 and 7. Vol. II, no. 3, page 12. (Boston) Chamber of Commerce News, Vol. IV, no. 1, page 4; no. 48, page 7. The World's Work, Vol. XXVI, page 479. See also speech of Mr. P. T. Cherington at the Fifth Annual Convention of the Central Association of Commercial Secre- taries, page 36 if. of the Proceedings. WORK OF THE COMMERCIAL SECRETARY 121 help him, to fill a position as commercial secre- tary. Whether or not the theory of conscious preparation for the work is sound will in time be demonstrated by the success or failure of graduates of this department of Harvard. Though the field is not large it is rapidly devel- oping in interest and importance. There are, it Estimated - . Number of IS estimated, about 3000 positions now filled by commercial salaried commercial secretaries in this country, and in many organizations, in addition to the secretary, a number of assistants are employed. Harvard has been the first to provide secre- tarial training of the sort just described, though other institutions are now working along similar Unes. The great demand for men trained to analyze municipal problems has resulted in a general movement to provide for their appropriate instruction. In this the University of Wisconsin, Northwestern Uni- commercial versity, the University of Chicago, and the Training University of Pennsylvania have figured prominently.^ The fact that commercial or- 2 In addition to several municipal courses the University of Wisconsin has a course in business organization and man- agement. According to Prof. S. W. Gilman, letter of August 10, 1914, the demand at Wisconsin is insufficient to justify the maintenance of a separate course of training for com- 122 AMERICAN CHAMBERS OF COMMERCE ganizations are turning their attention to civic matters, making it necessary for their secre- taries to acquire a knowledge of this new field, lends particular interest to the recent estab- lishment of several courses in civics. Typical of them is the Cornell University Course "Coursc in Citizenship," endowed by several izenship alumni and alumnae, and inaugurated in the autumn of 1913. The course consisted of lec- tures by non-resident lecturers, alternating with class periods conducted by a member of the department of political science. The scope of this course is indicated by the titles of lec- tures given in the college year 1913-14: ^ "the citizen and his community ; the citizen and the recreation needs of the conmiunity ; the citi- zen and the schools; the citizen and problems of poverty ; the citizen and labor problems ; the citizen and public health; the citizen and prob- lems of crime ; the citizen and the homes of the community ; the citizen and problems of immi- gration; the citizen and the physical develop- ment of his community; the citizen and poli- mercial secretaries. The Wharton School of Finance and Conmierce, a department of the University of Pennsylvania, offers training for civic work or secretarial work covering the last three years of a four-year course at the University. 3 Pages 5-11 Syllabus, of the Course in Citizenship. Cor- nell University, First Term, 191»-14. WOEK OF THE COMMERCIAL SECRETARY 123 tics ; the citizen and the Church ; the citizen and the Press; the citizen and civic and social or- ganizations." Secretary Munson Havens of the Cleveland Chamber of Commerce delivered the lecture on the citizen and the physical development of his community, presenting some of the ques- tions of city planning and improvement. Other prominent speakers were New York City Chamberlain Henry Bruere, author of The New City Government^ and Prof. Jeremiah W. Jenks, Director of the division of public affairs at New York University. In New York City a Training School for TTainin^ ■n 1 T o • 1 1 1 • School for Public Service has been opened, representing Public Service the most notable eflPort yet made to educate men for civic work. Through a gift of Mrs. E. H. Harriman this school was established in 1911 as a department of the New York Bu- reau of Municipal Research. All applicants for admission are examined as to their fitness for public service and only those who are con- sidered to be well qualified are admitted. After that, every student is given an oppor- tunity to show his ability and in case of mani- fest failure he is notified at once. 124. AMERICAN CHAMBERS OF COMMERCE A recent report summarizes the purposes of the school as follows : * 1. To train young men of executive ability for the study and administration of public business. 2. To meet the growing demand for stu- dents and administrators able to test the ef- ficiency of present methods of municipal service and to introduce improved methods. 3. To work out and publish handbooks on various departments of public service and methods of testing and increasing the efficiency of public service in all departments. 4. To furnish a municipal literature for the use of graduate students in schools and col- leges. 5. To emphasize the need for special train- ing on the part of city officials and employees. The work is eminently practical and is based on the fundamental idea that the way to secure the most effective training is to do services that some community needs to have done. The as- signments generally require students to work with public officers or employees, or with the 4 Page 4, 1912 Annual Report. Training School for Pub- lic Service. Conducted by the Bureau of Municipal Re- search, New York City. See further, 1913 Annual Report, Training School for Public Service and Six Years of Munici- pal Research for Greater New York — 1912^ Bureau of Mu- nicipal Research. WORK OF THE COMMERCIAL SECRETARY 125 staff of the Bureau of Municipal Research. Chambers of commerce are looking to the Training School for their secretaries and ac- cording to the 1912 Report of this institution the following extract from an inquiry is typi- cal:^ "The above organization contemplates the employment of a secretary who could give his whole time to the work of the Chamber, his duties to consist of such organization work as would ordinarily be transacted by the secre- tary; in addition to which we should want him to investigate such subjects as might come un- der the heading of Municipal Research and to take care of a publicity campaign to bring be- fore the public at large the advantages of the city. . . ." In addition to the institutions that have been Training by . , 1 ^ J -1 ... Commercial cited we also find commercial organizations Bodies active in the movement to provide civic and commercial training. For example the Chi- cago Association of Commerce during each year conducts several excursions for the sons of its members in order to teach them how large industries are organized and how the work of 5 Page 27, 1912 Report. Training School for Public Serv- 126 AMERICAN CHAMBERS OF COMMERCE the Association is conducted.^ The Detroit Board of Commerce has established a trans- portation school for the instruction of young traffic managers and shipping clerks in the lo- cal manufacturing establishments J The New York Chamber of Commerce, which in 1900 provided for the founding of the School of Commerce, Accounts, and Finance at New York University, is now planning a college of commerce with a museum of commerce and civics, to be controlled by a managing board of trustees of both the Chamber of Commerce and the College of the City of New York. 6 See also J. M. Guild, "The Boys' Dinner," Proceedings of the Fifth Annual Convention of the Central Association of Commercial Secretaries, pages 12-14. The World's Work, Vol. XXVII, pages 616-617, describes the Winston-Salem, (N. C), Plan in which the boys and young men of the community are given an opportunity to aid in industrial development. In May 1914 this periodical, page 113 fiF., cites the work of the Commercial Club of Evanston, 111., in training boys for citizenship. 7 See also The American City, Vol. X, no. 1, page 47, Janu- ary 1914, regarding the foundation of the Syracuse Cham- ber of Commerce Institute, open to employees of all business concerns. Also American Year Book, 1913, page 394, "Chambers of Commerce in Vocational Education"; and A. E. Dodd and C. A. Prosser, What Chambers of Commerce Can Do for Vocational Education, (pamphlet). The Nation's Business, Vol. I, no. 17, page 14, "Commercial Organizations and Educational Benefits." S. H. Clay, City Building, Chap- ter X, "Education." WOEK OF THE COMMERCIAL SECRETARY 127 THE WORK OF THE COMMERCIAL SECRETARY As the secretary is frequently the only sal- aried official in a commercial organization it is natural that he shbuld have supervision of all the necessary routine. In the Boston Cham- Duties ber of Commerce, for instance, the secretary is in complete charge of the administrative and executive work and has the appointment and direction of all employees. He superintends the preparation and publication of reports on commercial, industrial, and public matters. Ex officio a member of all committees he acts as . their secretary, personally or by deputy. The records of the Chamber, the directors, and the committees are in his custody. Moreover, the board of directors of the Boston Chamber may at their discretion assign to the secretary other special duties.* It is a fault of organization if the secretary is handicapped by lack of authority and is com- pelled to wait for the sanction of the directors before taking any active measures. Many bodies have accordingly adopted the plan of ,8 By-laws of the Boston Chamber of Commerce, Article VI, Section 3. 128 AMERICAN CHAMBERS OF COMMERCE making him the manager and authorizing him to act for the association. Under this arrange- ment the board of directors forms a check on mismanagement in accordance with the estab- Kshed principles of corporation control.^ The supervision of routine work in the ma- Thc Secre- jority of Organizations does not by any means tary as an • • n t Expert measure the activity of the secretary. As a paid expert he is also supposed to know how the funds of his organization may most wisely be expended, and in what direction the power- ful influence of its various committees may be turned most effectively.^^ And, since each committee needs as an incentive the idea that it is the real creator of results, the secretary must make the committee feel responsible for these results, though in fact he may be doing the major part of the work.^^ Upon the sec- retary, moreover, devolves the duty of keeping the organization and the membership active. 9 Page 13, S. H. Clay, City Building: a citation of meth- ods in use in more than one hundred cities for the solution of important problems in the progressive growth of the Amer- ican municipality. Clark Publishing Co., Cincinnati, 1913. 10 Editorial: "Profession of Power and Promise," The American City, Vol. VII, page 311. 11 L. E. Wilson, Secretary of the Detroit Board of Com- merce, "Increasing the Effectiveness of Commercial Organi- zations," The American City, Vol. V, page 201. WORK OF THE COMMERCIAL SECRETARY 129 The interest and co-operation of the members can be secured only by informing them of the work that is being accomplished.^^ With this in view efficient secretaries make efforts to secure newspaper publicity for their organiza- tions/^ Several of the larger bodies publish their own periodicals, the task of preparation falling Publications largely upon the secretaries. Among these publications are the following: Atlanta Chamber of Commerce Progress. Chicago Commerce. \ Chicago Municipal Development Maga- zine. Current Affairs (formerly Boston Chamber of Commerce News) . Detroiter. Greater Dayton. Greater New York. New York Chamber of Commerce Bulletin. Providence Board of Trade Journal. 12 S. H. Clay, City Building, page 16. 13 W. B. Wreford, Asst. Secretary of the Detroit Board of Commerce, "Co-operation of Commercial Organizations with the Press," Proceedings of the Fourth Annual Convention of the Central Association of Commercial Secretaries, page 15 ff. provemeiit 130 AMERICAN CHAMBERS OF COMMERCE San Francisco Chamber of Commerce Jour- nal, Scranton Board of Trade and Engineering Journal. Worcester Magazine, The secretary has a great opportunity to Civic im- lead the way in civic improvement, though no constructive work of his can be effective unless he enlists the support of the citizens/* The value of his organization to the community de- pends upon his careful consideration of civic improvements in their relation to one well-sus- tained plan. In view of these facts it is requisite that the secretary, to use a by-word, "know his own city." To this end he should be especially familiar with the local govern- ment and understand thoroughly agricultural and trade conditions.^^ i*See H. H. Strong, Secretary, Minneapolis Civic and Com- merce Association, "Democracy, the Duty and Opportunity of the Commercial Organization," Proceedings of the Fifth Annual Convention of The Central Association of Commercial Secretaries, pages 18-20. Also H. V. Eva, Secretary, Com- mercial Club of Duluth, "Meetings," Proceedings of the Fifth Annual Convention of the Central Association of Commercial Secretaries, pages 21-22. Also same, pages 3&-39, M. C. Huggett, Secretary, Grand Rapids Association of Commerce, "Membership Work*" isThorndike Deland, Secretary, Denver Chamber of Com- WORK OF THE COMMERCIAL SECRETARY 131 As the result of a questionnaire sent to all commercial bodies in the United States having Preliminary a membership of 100 or over Mr. Cherington ^^^^^^^ has discovered an interesting fact regarding the preliminary training of their secretaries. The replies received by him show that in cities of from 10,000 to 50,000 44 per cent, of the secretaries were formerly newspaper men; in cities of over 50,000 this percentage was 34.^^ It is probable that more commercial executives have come from journalism than from any other field. The training in publicity and knowledge of events which they bring with them are invaluable assets in the new profes- sion. A description of the secretary's activities would be incomplete without mention of the secretarial various State and interstate associations of ^®^^®^ commercial executives. Organization into sec- tional bodies is a progressive step taken by the secretaries themselves during the last few years. ^^ Through their meetings they have merce, "Know Your Own City," Proceedings of the Fourth Annual Convention of the Central Association of Commercial Secretaries, page 12 If. 16 The Nation's Business, Vol. II, no. 3, page 12. 17 At a joint convention of the American Association of Commercial Executives and the Central Association of Com- 132 AMERICAN CHAMBERS OF COMMERCE been enabled to discuss methods of increasing efficiency, and to render mutual assistance by exchanging ideas based on the results of their experience. Some of these organizations print the proceedings of their annual meetings, in- cluding the principal addresses and discussions, thus furnishing the secretary with a series of reference books. Another source of information available for Municipal Commercial secretaries is found in the bureaus Bureaus and _ - - ^ t • • i /» v Libraries of municipal rcscarch, municipal reierence li- braries, and university bureaus of research and reference. New York, Dayton, Cincinnati, Baltimore, and Philadelphia are among the more important cities having bureaus of mu- nicipal research. The New York Bureau of Municipal Research, formerly the Bureau of City Betterment, was incorporated in May 1907 and has shown great activity and effi- ciency in collecting data, making municipal surveys, at the instigation oftentimes of cham- bers of commerce, and generally building up mercial Secretaries held in Cincinnati, September 1914, a con- solidation was effected, the new organization adopting the name: National Association of Commercial Organization Sec- retaries. New England, the southern states, and many other sections have secretarial bodies. WORK OF THE COMMERCIAL SECRETARY 133 the foundations of the new civic sciences. Chi- cago supports a Bureau of Public Efficiency. Typical of the reference libraries is the New York Municipal Reference Library, located in the new Municipal Building. The University of Wisconsin has built up a large municipal reference bureau. The American City Bu- reau, New York City, maintains a service for managing exhibits, supplying municipal data, and otherwise assisting commercial and civic secretaries. This Bureau has issued a Selected List of Municipal and Civic Books, and pub- lishes The American City, a monthly maga- zine devoted to municipal topics. All these centers of municipal information act as clear- ing-houses for the vast amount of data con- stantly being collected by civic experts in all branches. It would be impracticable to describe the many fields of work in which commercial sec- retaries are occupied, though each is important and deserving of mention. The modern sec- ^ retary, it is said, is "a business man, an organ- The Modern izer, a diplomat, a strategist, a mixer, and an Defined all-around man of versatile ability." ^^ Many 18 The Nation's Bv^iness, Volume I, no. 5, page 12. See 134 AMERICAN CHAMBERS OF COMMERCE references to his work and influence will be found in succeeding chapters. also J. M. Guild, "About the Commercial Secretary." Pro- ceedings of the Fourth Annual Convention of the Central Association of Commercial Secretaries, pages 8-10; W. G. Bruce, "The Future Status of the Commercial Secretary," Proceedings of the Fifth Annual Convention of the Central Association of Commercial Secretaries, pages 9-11; also pages 43-44, same. P. T. Cherington, "List of Readings for Com- mercial Secretaries," prepared for the Central Association of Commercial Secretaries from reading lists used in the Har- vard Secretarial Courses. THE CLEVELAND CHAMBER OF COMMERCE CHAPTER VII THE CLEVELAND CHAMBER OF COMMERCE Cleveland was the first American city to es- tablish a modern chamber of commerce.^ The latter has been selected for particular study as leadingr it is a leading example of a commercial body Body that is also in the best sense a civic organiza- tion. The secretaries of thirty prominent com- mercial organizations in the United States re- cently voted to place the Cleveland Chamber in the front rank as the body that in their opin- ion had done most to improve its city and to stimulate civic loyalty on the part of the citi- zens.^ The success of the Cleveland associa- 1 "The Modem Chamber of Commerce" by Ryerson Ritchie. National Municipal Review, Vol. I, pages 161, 167. 2 See Appendix, page 259, for details of this vote and two statements of the result, prepared to show the returns in two diflFerent ways. Recently in conferring upon Secretary Mun- son Havens of the Cleveland Chamber the honorary degree of Master of Arts, Oberlin College recognized him as "a man whose enlightened efforts in behalf of the organized commercial activities of Cleveland have been imitated the country over." 137 138 AMERICAN CHAMBERS OF COMMERCE tion in civic work has earned it the title of "Chamber of Citizenship." Cleveland's rapid advance in population Cleveland's during the past twenty years is largely due to the efforts of the Chamber of Commerce to unite the citizens and to make them a cohesive force for civic development. Cleveland has overtaken thirty-six cities and has been passed by none. The famous slogan "Sixth City" in- dicates its present rank in American munici- palities. Mr. Ryerson Ritchie, a keen observer of American municipal affairs, has pointed out that the growth of five midland cities, Cleve- land, Cincinnati, Buffalo, Pittsburgh, and De- troit, within the last two decades has been pro- portional to the relative efficiency of their com- mercial bodies.^ Thus, taking the census figures in 1890, Cincinnati led, followed by Cleveland, Buffalo, Pittsburgh, and Detroit. Ten years later Cleveland was in the first posi- tion, Buffalo was second and Cincinnati had fallen to third, while the standing of the other two cities remained unchanged. In 1910 Cleveland held the lead, closely pressed by 3 Ritchie, "The Modern Chamber of Commerce." National Municipal Review, Vol. 1, page 161. THE CLEVELAND CHAMBER OF COMMERCE 1S9 Pittsburgh; Detroit rose into third place and Buffalo and Cincinnati came next in the order named. Among these five cities Cincinnati, which has not yet succeeded in uniting her citi- zens in a comprehensive body, has fallen from first to last place. In Cleveland, Detroit, and Pittsburgh, the cities that have forged ahead, a healthier civic spirit obtains, stimulated and directed by their respective commercial as- sociations. The recent reorganizations ef- fected by the commercial bodies in Pittsburgh and Buffalo have already been productive of good results. The Cleveland Chamber of Commerce was formerly known as the Board of Trade of the Board City of Cleveland, organized in 1848. The Trade objects of the earlier association as set forth in its constitution were: "to promote integrity and good faith; just and equitable principles of business; discover and correct abuses; establish and maintain uni- formity in commercial usages; acquire, pre- serve and disseminate valuable statistics and information; prevent or adjust controversies and misunderstandings arising between per- sons engaged in trade ; and generally to foster, protect and advance the commercial, mer- 140 AMERICAN CHAMBERS OF COMMERCE Reorgan- ization in 1893 Factors in Success of Chamber cantile and manufacturing interests of the city." ^ The Board of Trade was from the first an efficient body, but kept strictly within the field of business. In 1893 it was reorganized as the Cleveland Chamber of Commerce and in- corporated under the laws of the State. The scope of its activities was then enlarged to in- clude civic work, an entirely new field as far as commercial associations were concerned. At that time, with the exception of certain spe- cial trade bodies there were no other commer- cial organizations in Cleveland. The Cham- ber of Commerce was therefore in a favorable position to make its work valuable to the city. If we inquire into the causes for the instant success of the Cleveland Chamber, it seems reasonable to suppose that three main factors were the stimulus afforded by the increasing importance of the city, the persistent energy of a small group of business men, who paved the way for the founding of the Chamber, and the able management of the Chamber's affairs by Mr. Ryerson Ritchie, the first secretary of * Reprinted page 25, 1912 Annual Report Cleveland Cham- ber of Commerce. THE CLEVELAND CHAMBER OF COMMERCE 141 that body. The rapid industrial growth of Cleveland, together with improved conditions of trade and transportation, naturally created a keen spirit of civic enthusiasm. This spirit had been stimulated, previous to the reorgani- zation of 1893, by the Cleveland Board of Trade Committee on the Promotion of Indus- try. The committee's efforts produced a wider sentiment among business men in favor of progressive measures. They saw the ad- vantage to the city of united work and the necessity of having an organization so well equipped that it would invite the active interest of the citizens. When the Chamber had been established the difficult task of combining all the elements in the new organization was ac- complished by Secretary Ritchie. The history of the Cleveland Chamber since the reorganization of 1893 contains many nota- ble achievements. One of its first acts was the calling together of a State conference of com- mercial associations, resulting in the formation of the Ohio State Board of Commerce in 1893. Under the leadership of President Harry A. consular Garfield in 1899 this body started a movement for the reform of the United States consular 142 AMERICAN CHAMBERS OF COMMERCE service. At that time a bill was drafted and introduced into Congress as the Lodge-Burton Bill. To the Chamber's continued support of consular reform must be attributed the final success of the movement, as the essential pro- visions of the original bill have since been made law. The year 1899 also marked the dedica- tion of the Chamber of Commerce Building on the Public Square. Taking up the problem of the Cleveland slum districts, the Chamber in 1902 appointed Housing: a committee on housing conditions which was Conditions m i p responsible for the enactment of necessary State legislation and the passage of the Cleve- land building code. The latter, which is re- garded as a model, prohibits the erection of unsanitary or unsafe buildings and also over- crowding. To rerfiedy existing conditions the Chamber obtained from the Legislature au- thority for the city to prohibit the occupancy of buildings not conforming to the regulations adopted by the Council. Later the city au- thorities were empowered to condemn and raze all structures which were entirely unfit for oc- cupancy. During the investigation of the housing THE CLEVELAND CHAMBER OF COMMERCE 143 problem the committee found that in one dis- trict of the city, having about 5000 popula- tion, there were only eleven bathtubs, most of them being used for coalbins. This discovery resulted in the appointment of a special com- mittee, through whose efforts a bond-issue was secured, providing for the building of three public baths in this crowded section of the city. Public The total annual attendance at these places is 500,000. Another outgrowth of the housing investigation was the creation of a committee on playgrounds which, in co-operation with several municipal departments, mapped out a system of recreation centers which the city au- thorities duly adopted. Against strong political opposition the Cleveland Chamber in 1904 worked for the passage of a school code drafted by the Cham- ber's committee on education. Though failing of complete success in this instance, the Cham- ber secured the amendment of the successful measure in a number of important particulars. Several major achievements of the Cleveland Chamber are treated individually in subsequent pages. Mention should be made of others, not included, notably the river and harbor improve- 144 AMERICAN CHAMBERS OF COMMERCE ments described in several committee reports published by the Chamber. The installation of efficient meat inspection in Cleveland, the removal of dangerous grade crossings, the placing of high pressure water mains in the business districts, and the adoption of a mod- ern and logical method of street numbering are some results of the Chamber's work which can only be cited without comment. At the present time the general business in- terests of Cleveland are conserved within the Chamber. Compared with other bodies it is unique in embracing all the lines of trade in Sub-Organ- the city.^ In addition to the parent orejaniza- izations . _ , x- o tion there are sub-organizations, for example the Retail Merchants Board, the Manufac- turers and Wholesale Merchants Board, and the Convention Board, which have been formed within the Cleveland Chamber for special pur- suits. Since Cleveland passed the half -million mark in recent years a number of independent sectional organizations have been founded, such as the West Side Chamber of Industry and the South End Board of Trade; also several c"The Cleveland Chamber of Commerce," J. J. Sullivan and F. A. Scott. Harpefa Weekly, Vol. XL VIII, page 628. THE CLEVELAND CHAMBER OF COMMERCE 145 of the special interests have formed bodies, notably the Real Estate Board and the Elec- tric League. The work of these organizations, however, in no way interferes with that of the Chamber, the only commercial body truly rep- resentative of the city's business interests. As evidence of its untiring activity, the Chamber, Meetings its directors, boards, and committees hold from 500 to 700 meetings each year. The thor- oughness with which this organization does its work is illustrated by the conferences of a com- mittee appointed in 1906 to consider one of the phases of the troublesome street railway prob- lem. The committee members, some of the busiest men of affairs in Cleveland, held 36 meetings within three months, thfe sessions averaging two hours. In all important respects the structural form of the Cleveland Chamber of Commerce fol- lows the ten fundamental principles drawn up by the Committee on Standardization and stated on pages 86 and 87. The members stmctnrai elect a board of directors, who in turn choose the officers from their own number. The pres- ident has the appointment of seven standing, and many special, committees. 146 AMERICAN CHAMBERS OF COMMERCE Special Reports The Chamber of Commerce issues no peri- odical, but from time to time prints committee Animal and reports containing matters of general civic in- terest. The Annual Report of the Chamber is in the form of a cloth-bound volume summar- izing the work of the organization during the past year. An indication of the growth of the organization and the constantly widening scope of its activities is shown in the fact that the first published annual in 1894 required but 123 pages; the annual of 1914, 404 pages of con- densed material.^ To the three secretaries of the Cleveland Chamber who have successively held office since 1893 must be attributed in large degree the pre-eminence of this body. Secretary Ritchie, — 1893-1898, supplied the inspiration and "civic vision" which have marked the organiza- tion's achievements. He was elected Presi- dent of the Cleveland Chamber in 1900 and later in effecting the consolidation of the com- mercial bodies in Boston demonstrated the same qualities which made his work in Cleve- land successful. 6F. C. Howe, "Cleveland's Education thru its Chamber of Commerce." The Outlook, Vol. LXXXIII, pages 739-749, show- ing the organization and influence of the Cleveland Chamber. The Cham- ber's Three Secretaries THE CLEVELAND CHAMBER OF COMMERCE 147 Secretary Scott, 1898-1905, made a record for loyal performance of duty. ''Mr. Scott," writes Mr. Ritchie, *Vas the servant of the Chamber and a faithful and able servant. . . . The history of this organization cannot be written without honorable mention of his name and services." '^ Upon his resignation as secretary, Mr. Scott was elected to the board of directors, the va- cancy left by him being filled by Mr. Havens, the present secretary. Under his able man- agement the Chamber has increased in mem- bership and civic importance. THE CLEVELAND FEDERATION FOR CHARrTY AND PHILANTHROPY The rapid increase of population enjoyed by Cleveland has of itself made necessary a considerable increase of the city's benevolences. But these have undoubtedly grown even faster than has the population as a result of the broadening of Cleveland's social interests and the advancement of her civic ideals. In May 1900 there were as many as fifty-one charitable institutions in the city. The Chamber of Com- 7 Letter of Mr. Ryerson Ritchie, September 25, 1914. 148 AMERICAN CHAMBERS OF COMMERCE Committee on Benev- olent As- sociations merce, therefore, in order to be of service to the organizations deserving public support, cre- ated a Committee on Benevolent Associations, ' the first in this country to be connected with a civic or commercial body.^ Its duties were to protect the giving public against solicitation for unworthy purposes and thus to assist worthy and efficient institutions whose income had been adversely affected by the existence of much fraudulent solicitation. To this end the committee carefully investigated all charitable organizations in the city and issued a card of endorsement to those whose work and methods met with the approval of the conmiittee. In order to carry out its policy the committee de- manded compliance with certain requirements, in general that the charitable association should fill an existing need not otherwise properly filled; agree to co-operate with other benevo- lent bodies in promoting efficiency and econ- omy of effort; and collect and distribute its funds according to a method approved by the committee. Members of the Chamber of Conmierce and 8 0. W. Williams, "Cleveland's Federated Givers, of Reviews, October 1913, page 472. Review THE CLEVELAND CHAMBER OF COMMERCE 149 the contributing public were requested to eon- tribute only to those bearing the card of en- dorsement. At first contributors were in- clined to rely on their own judgment, pursuing the policy of former years. The committee found it necessary, therefore, to inaugurate a campaign of education along these lines. When it was found that a contributor had given to an unendorsed institution he was called by telephone and the reason for the com- mittee's refusal to endorse was explained to him. The Chamber by means of circulars, and^ aided by the Press, notified its members of un- worthy institutions that were still receiving public support. Thus after years of education ^ and development the community came to rec-^ ognize the value of the committee's work. The committee committee members have frequently been con- consSiSd^ suited in the preparation of wills and the dis- tribution of estates, with the view of securing an equitable disposition of the funds be- queathed to charity. In 1910 delegates from New York, Pittsburgh, and other prominent cities visited Cleveland to make a special study of the committee's work and to benefit by its ten years' experience. 150 AMERICAN CHAMBERS OF COMMERCE A decade of careful supervision by the Com- mittee on Benevolent Associations was excep- tionally beneficial to worthy organizations. Nevertheless it did not solve certain problems in connection with the philanthropic work of the city. Some of the most reliable organiza- tions experienced great difficulty in raising sufficient money to carry on their work, while other less important societies showed a sur- plus. Moreover, the demands upon a certain class of contributors known to be charitably inclined became a great burden. The commit- tee's report cites the case of one man who spent an entire forenoon listening to solicitors from ten different institutions. It was impossible for him to see three more who subsequently called, though he later learned that they rep- resented the three institutions in which he was most interested. An investigation of the budgets and sub- scription lists of sixty-one charitable institu- tions in 1907 proved to the committee that the people of Cleveland were not supporting char- ities, but that on the contrary the philanthropic work of the city was being financed by less than six thousand contributors in a population of THE CLE^^LAXD CHAMBER OF COMMERCE 151 over half a million. It is significant that thir- teen people gave one-third of all the money so contributed. The facts in regard to the num- ber of contributors were startling even to those who had made a special study of charitable work in Cleveland. It is reasonable, however, to suppose that a similar situation would be discovered in nearly every city if such a can- vass could be made. The Committee on Benevolent Associations Federation Plan tentatively suggested as a remedy the plan of suggested federating the charities, that is to say, their col- lection and distribution through a central board. The suggestion met with favor, but, before a publicity campaign could be started, a financial and industrial depression delayed the undertaking. It was determined that the advent of such an organization should be left to the time when the relative financial needs and resources should have regained their stabil- ity. In 1909 the committee secured new sta- tistics from charitable institutions, which served only to emphasize the former findings. An added objection to the existing system of char- ities was that in practically all cases the ex- pense of solicitation was materially increasing. 152 AMERICAN CHAMBERS OF COMMERCE The cost of collecting the amount annually re- quired from the public was placed at $70,000, about 15 per cent, of the total collected. In one instance a solicitor's commission was 33% per cent. On January 7, 1913, the Chamber of Com- merce gave its sanction to a federation board in accordance with plans submitted by the Committee on Benevolent Associations. After a thorough consideration of candidates, Mr. Charles W. Williams, secretary to the Presi- dent of Oberlin College, was offered the posi- Pederation tion as Organizer of the Federation, a post Organized which he accepted, and as fully constituted the Cleveland Federation for Charity and Philan- thropy began active operations on March first following. Its policies are in the hands of thirty trustees chosen equally by the organiza- tions belonging to the Federation, the contrib- uting patrons, and the Cleveland Chamber of Commerce. Any philanthropic association is eligible to participate in the Federation, pro- viding it makes a legitimate appeal for funds without restriction to religious or other special affiliations. On behalf of the constituent or- ganizations the Federation makes a co-or- THE CLEVELAND CHAMBER OF COMMERCE 153 :4^ dinated appeal, stating the needs of each and ^ giving the contributor an opportunity to des- ignate his beneficiaries or to place his gift for distribution at the discretion of the Federation Board. Persons contributing are freed from any further solicitations for current expenses of any organization in the Federation. The Cleveland Federation for Charity and Philan- thropy has been called "the greatest step in municipal history." The definite results of this plan which unites over fifty charitable or- ganizations include an increase in the amount of gifts, a minimum cost of collection and opera- tion, and a general awakening of philanthropic interest on the part of large numbers of citi- zens. In the fiscal year October 1913-Oc- tober 1914 the Federation distributed about $300,000.' 9 See also: (1) Report of the Committee on Benevolent Associations on the Federation of Contributions for the Charities of Cleveland, 11 pages. Cleveland Chamber of Commerce, January 26, 1909. (2) The Cleveland Federation for Charity and Philanthropy «w Proposed by the Committee on Benevolent Associations of th& Cleveland Chamber of Com' merce. 32 pages. Cleveland Chamber of Commerce. Janu- ary 7, 1913. (3) The Cleveland Federation for Charity and Philanthropy. Comments by Chairman Marks on the Report of the Committee on Benevolent Associations of the Cleve- land Chamber of Commerce. 11 pages. Cleveland Chamber of Commerce, January 7, 1913. (4) "Chamber of Commerce 154 AMERICAN CHAMBERS OF COMMERCE INVESTIGATION OF COAL THEFTS The Chamber of Commerce appointed a spe- cial committee in 1909 to investigate the steal- ing of coal from cars standing on the tracks and at transfer points in or near Cleveland. Although dealing with a subject of minor im- portance compared with others which have come before the Chamber, the report of this committee is interesting and it is also illus- trative of the attention that the Chamber de- votes to all matters affecting the public wel- fare. To accomplish their purpose the members of the committee conferred with the municipal authorities, railway officials, coal dealers, and manufacturers, and also visited the principal localities where coal was being stolen, in order to see the stealing going on. The annual loss to the city from this source was conservatively estimated to be $90,000. A force of twenty- four men was employed by the local coal deal- ers to patrol the tracks and transfer points of the various railroads for the period of one whole to Federate Charities," Charities, 1909. Vol. XXI, page 557-8. (5) National Municipal Review, Vol. II, page 356. THE CLEVELAND CHAMBER OF COMMERCE 155 day, and the report of these men was then sub- mitted to the special committee of the Chamber of Commerce, together with deductions from their findings. On all lines carrying coal into the Cleveland market coal stealing was found to be general, the amount stolen depending upon the accessibility of the coal and the class of people living along the right of way. In cases where the cars had been left standing un- protected at transfer points for several hours during times of railway congestion, coal losses as high as 7,000 pounds per car were recorded. A detailed statement from one manufacturer showed that during eight months in 1907 his losses were 583 tons. The committee learned that practically none of the stealing was being done by organized gangs of men, but that about ninety per cent, of it was due to the persistent work of women and children, mostly for- eigners. "The usual method of procedure," reads the committee's report, "is for the children to climb Report of upon the cars and throw off the lumps, which committee are gathered up by the women and carried away. Very often the children climb upon the through trains and throw off coal as the cars 156 AMERICAN CHAMBERS OF COMMERCE pass near their homes. Many instances have been reported of the smaller children being held up at arm's length by the women in order that they may dislodge the coal within reach. All assist in carrying it away, the children often carrying burdens far beyond their strength. **A large proportion of these people are not in actual need of coal; the men are usually working and the stealing of coal with them is merely a matter of thrift. . . . Where cases were investigated it was found that the families had from one to three tons of coal in their coal bins." ^^ The report further states that, although in European countries, where these families orig- inated, it is a serious offense to trespass on rail- road property and everjiihing of value is kept within fenced inclosures and properly guarded, over here they are given to understand that this is a free country. These immigrants see cars of coal, pig iron, and other valuables left un- protected and they are allowed to trespass on the tracks at will. The bad moral and physical effects upon the people themselves are not the least important considerations. The report of 10 Report of the Special Committee on Coal Stealing: Ap- proved by the Cleveland Chamber of Commerce, March 23, 1909. Page 5. See also The World's Work, 1909, Vol. XVIII, pages 11655-6. THE CLEVELAND CHAMBER OF COMMERCE 157 the special committee, made as a result of the investigation, concludes with the suggestions that the transfer points be adequately fenced and policed, and that probation officers be em- ployed to investigate cases of coal stealing and to see that persistent offenders are appropri- ately punished. In December 1909 one probation officer was Results of ,. . . rt , Investiga- appomted and, at the earnest solicitation of the tion Chamber's committee, an appropriation was made by the Council for his salary. This offi- cial carefully investigated all cases of reported theft, warned those persons who were sus- pected, and impressed them with the fact that punishment will follow coal stealing. The ■ Chamber states that this nuisance has gradually been abated. Cleveland's civic center In 1899 a special committee of the Cleveland Chamber submitted a report on a plan for erecting new public buildings in the center of the city to replace the antiquated structures then existing. The idea received immediate and vigorous support from the Cleveland Chamber of Commerce which perceived its 158 AMERICAN CHAMBERS OF COMMERCE Group Plan Committee Board of Supervision great value ; and this special committee, known at first as the Group Plan Committee, was em- powered to further the project. During the years 1899-1901 this committee devoted its ef- forts to stimulating public sentiment and was remarkably successful. The members of the Group Plan Committee favored the idea of re- placing the four principal public buildings, namely the City Hall, Federal Building, County Building, and Public Library. Later it was found practicable to include plans for a new union railway station. In 1902 the committee continued its efforts by securing the passage by the State Legisla- ture of a law enabling Ohio cities to create supervising boards of architects. This re- sulted in the appointment of the Cleveland Board of Supervision, having general powers of selection of site and plan for public buildings erected within the city of Cleveland. This commission, consisting of Messrs. Daniel H. Burnham of Chicago, Arnold W. Brunner, and John M. Carrere,^^ made a careful study of 11 Mr. Frank B. Meade, a Cleveland architect, was ap- pointed in 1911 to the vacancy in the Board of Supervising Architects created by the death of Mr. Carrere, and Mr. Frederick Law Olmsted has since been appointed to fill the THE CLEVELAND CHAMBER OF COMMERCE 159 the problem and in 1903 proposed two alterna- tive plans for grouping the public buildings. The one they particularly recommended met with general approval, and, although there was no one body that could formally adopt it, the plan has been followed by the authorities in the construction of the Federal Building and the County Building, both of which are now in use, and the City Hall now being constructed/^ The voters of the city have authorized the issu- ance of bonds to erect the Public Library. This plan groups these buildings and the Union Station in the form of a Roman cross, leaving a broad expanse of parking about the buildings included in the group. These structures are later to be connected by a Mall, 600 feet wide, which will also extend from the center of the business district to a park on the waterfront. A considerable portion of the land required for vacancy caused by the death of Mr. Burnham — Letter of Sec- retary Munson Havens, January 31, 1914. 12 See the interesting report of the Special Committee on Material for the County Building. Adopted, Cleveland Cham- ber of Commerce, February 12, 1907. 19 pages. Also report of Committee on Municipal Art and Architec- ture, including the Report of the Sub-committee of Engineers. Concerning the Building of a Power Plant in Connection with the County Building. Adopted, Cleveland Chamber of Com- merce, March 23, 1909. 160 AMERICAN CHAMBERS OF COMMERCE the Mall has already been taken over by the city, including the site upon which the Public Library will be erected. To prevent the erec- tion of buildings not in harmony with the group the city has restricted the property fronting on the Mall. The committee that has rendered admirable service to the city and to the Chamber of Com- merce in its successful campaign for the Civic Center was originally known as the Group Plan Committee, as stated above. In 1908 the scope of this committee was broadened by the Chamber of Commerce to include supervision of the construction of public works. It was then re-named the Committee on Municipal Art and Architecture. To make it broadly representative the Chamber of Commerce in 1911 asked the Cleveland Chapter of the Amer- ican Institute of Architects, the Cleveland Architectural Club, and the Cleveland En- gineering Society to name for appointment on this committee members of their societies who were also members of the Chamber, Succeed- ing municipal administrations have recognized the committee as a quasi-official public body to such an extent that it has become customary for THE CLEVELAND CHAMBER OF COMMERCE 161 the city to submit to the committee for ap- proval the plans of proposed public works. The expenditure by Federal, county, and city governments and by the railroad compan- Cost of ies for Cleveland's Civic Center will aggregate center $25,000,000. Cleveland's new city charter The Cleveland Chamber of Commerce has al- ways been actively interested in municipal gov- ernment. On October 12, 1912, the board of di- rectors requested the Committee on Legislation committee to consider the various questions involved in the Legislation proposed new charter for the city. The com- mittee immediately undertook a study of the important provisions to be embodied in a new city charter, made an exhaustive analysis of other city charters, and studied the published works on municipal government. It also en- deavored to keep in touch as closely as possible with the deliberations of the charter commis- sion. Charters of cities operating under the commission plan were considered, but it soon became evident that the so-called federal plan would be adopted by the charter commission. The committee also endorsed this plan believing 162 AMERICAN CHAMBERS OF COMMERCE it better suited to Cleveland in view of the con- dition prevailing in the community. The report of the Committee on Legislation, entitled ^'Proposals for the City Charter," was adopted by the board of directors April 4, 1913, and is an excellent example of the careful com- mittee work done by members of the Cleveland Chamber. In a general way, according to Secretary Munson Havens, ^^ the report was helpful to the subsequent passage of the bill, although it is reasonable to suppose that the charter would have passed the electorate with- out any action by the Chamber. The com- mittee argued out certain minor differences with the charter commission with considerable success. The report was used mainly to in- form the members of the Chamber of Com- merce regarding the proposed legislation and in that respect was of great value. Cleveland's new charter provides for a form Cleveland's of government modelled in general upon the New Giiarter national government. The legislative branch 13 Letter of Secretary Munson Havens, January 31, 1914. See also: Report of the Committee on Legislation of the Cleveland Chamber of Commerce, February 31, 1906, relative to House Bill 173, etc., 20 pages, at page 4 "The Federal Plan of Government." THE CLEVELAND CHAMBER OF COMMERCE 163 is the city council, with one councihnan from each of the twenty-six wards. The voter at each biennial election receives a short ballot showing only the candidates for mayor and for councilman from his ward, all without partisan designation; and he may vote for a first choice, a second choice, and any number of third choices on the preferential system of vot- ing. All nominations are made by petition and no primaries or party conventions are held. There are six administrative departments, whose heads are appointees of the mayor, as follows : law, public service, public safety, pub- lic utihties, public welfare, and finance. The department heads and their secretaries are ex- empt from civil service examinations, and they are the only officials so exempt. The charter provides for the recall, and for the initiative and referendum on city ordinances. Among its interesting and unusual features is the pro- vision for "excess condemnation" by virtue of which the city may appropriate more property than is required for a public project, and sell the excess, — with restrictions as to its use, if desirable, — thus possibly defraying some of the 164. AMERICAN CHAMBERS OF COMMERCE cost of the work by the increment resulting from the improvement. Industrial Develop- ment Com- mittee INDUSTRIAL DEVELOPMENT Cleveland's industrial development is di- rected by the Chamber of Commerce through the latter's Industrial Development Commit- tee. According to a recent report, the most promising efforts for industrial expansion in Cleveland are those which aim at the fullest development of industries already established there. In the opinion of the Committee, if every small industry now located in Cleveland could reach its highest possibilities there would be no need for new factories. While rendering its greatest service to home industries the Chamber aims to encourage new enterprises. To this end it classifies the needs and resources of the city. Its records include traffic and transportation data, freight records, and cost figures on sites and materials. With the help of these statistics the manufacturer who contemplates moving his plant to Cleve- land is able f o analyze local conditions affect- ing his project. Cleveland firmly refuses to offer bonuses, re- / i THE CLEVELAND CHAMBER OF COMMERCE 165 mission of taxes, or other artificial inducements in order to obtain new factories. "As a general rule," states the 1911 Direc- tors' Report, "Cleveland does not want indus- trial projects which cannot make good in Cleve- land without such aid." ^^ The Cleveland Chamber, as a result of a com- mittee investigation in 1913, decided not to adopt a credit plan for financing industries similar to that employed by the Boston Cham- ber of Commerce and described on page 236. In the judgment of the committee, the financial problem of the majority of manufacturers is not to be solved by credit; invested capital is needed. More recently the Chamber has approved a plan for an investment company with an initial investment Company capital of not less than $500,000 to finance Cleveland industries, — although no definite time has been set for the inauguration of this enterprise. The plan provides for the issuing of stock to the citizens generally, with the full understanding that the company is to operate largely in industrial securities which always in- 1*1911 Annual Report, Cleveland Chamber of Commerce. Page 145. 166 AMERICAN CHAMBERS OF COMMERCE volve business risks, while promising business profits. It is intended that the directors of the company shall have the right of supervi- sion over any firm applying to them for finan- cial assistance. The conservative attitude of the Chamber in relation to industrial development is worthy of the highest consideration in view of the re- sults already obtained. The Industrial De- velopment Conmiittee point out that the real test of their work will be the results ten years hence. They are now laying foundations which should withstand this test. CITY GOVERNMENT REFORM CHAPTER VIII CITY GOVERNMENT REFORM Many phases of the main subject have now Summary and been described and it is reasonable to suppose Forecast that the logical connection between the various parts is in need of clarification at this point in the study. It will be remembered that we first traced commercial bodies from their origins through the early period of their history in the United States and down to the present day. An attempt was then made to show the evolu- tion of trade bodies into civic organizations whose object it is to further the interests of their cities. Next we studied the efforts of these organizations to secure governmental recognition, and examined their structural ma- chinery and the work of that keystone of the whole structure, the commercial secretary. In the previous chapter the Cleveland Chamber of Commerce was used as a type of civic or- ganization and some of its methods and activi- ties were described in detail. 169 170 AMERICAN CHAMBERS OF COMMERCE Having thus briefly reviewed the course of the work up to this point it will be equally ad- visable to forecast the development of the theme in the remaining chapters: VIII, City Government Reform, IX, Co-operation With Municipal Authorities, X, Civic Improvement, and XI, Competition Between Cities. The present chapiter deals with the efforts of commercial organizations to secure efficient local government/ In the majority of cases they have advocated the substitution of some form of commission government for the exist- ing system. City officials holding office under the latter naturally oppose all efforts aimed at their elimination, and radical reform must be accomplished before the next step, co-opera- tion with municipal authorities, is possible. Vitally important to civic development and ex- pansion is efficient municipal government, in which the citizen may take an active interest. Chapter IX, therefore, shows the relation of boards of trade and other organizations of citizens to municipal authorities in several well governed cities. ' i When a good imderstanding has been estab- CITY GOVERNMENT REFORM 171 lished between civic organizations and local authorities, and also when both the authorities and the organizations have earned the confi- dence of the citizens, the results of this harmony of interests are manifested in civic improve- ment as outlined in Chapter X. When once the citizens feel it in their power to control con- ditions the resultant benefit to the community is extraordinary. Civic reform, co-operation, and improve- ment are successive steps in the development of the city. They are the factors that deter- mine its fate in the struggle for existence, the subject treated in Chapter XI. If a city is poorly governed, does not unite the citizens, or is neglectful of their welfare, it will not grow as fast as a rival city where better civic conditions obtain. In June 1913 The Nation's Business, the offi- cial organ of the United States Chamber of Municipal Commerce, received reports from the commer- cial organizations in thirty-eight states regard- ing their attitude toward municipal better- ment. There was a consensus of opinion that the business interests in any city have a right 172 AMERICAN CHAMBERS OF COMMERCE to expect business efficiency in municipal affairs.^ The invasion of politics by the com- mercial organizations is not unwarranted. It represents the organized effort of public- spirited citizens to remedy existing abuses. Moreover, the appHcation of sound business principles to a system of government is un- doubtedly the best means by which to accom- plish reform, for in the performance of many of its functions a municipality must meet pre- cisely the same technical problems that a pri- vate enterprise meets in the discharge of similar functions.^ In many cities the campaign for charter amendments or for administrative re- forms has originated in the business organiza- ci^« tion. Thus the Atlanta Chamber of Com- Surrey merce recently employed two experts from the New York Bureau of Municipal Research to investigate every branch of the city govern- ment. The reports and recommendations sub- mitted by these experts were pubhshed and dis- tributed by the Chamber.^ 1 The Nation's Business, Vol. I, no. 13, page 15. 2 "Efficiency Standards in Municipal Management," by Jesse D. Burks, Ph.D., Director, Bureau of Municipal Re- search, Philadelphia. National Municipal Review, Vol. I, page 364. 3 This organization has also brought about the creation of CITY GOVERNMEXT REFORM 173 A The part which chambers of commerce are probably destined to play in the scheme of po- litical evolution has thus been defined by Presi- dent Garfield of Williams College: "If I may so express it, the center of politi- cal gravity is gradually settling and, if it passes from our legislative bodies to the electorate, there must be found a workable way of secur- ing dehberation among the voters. If it should come about that the only place for free and effective deliberation is among the voters prior to election day, then, plainly, bodies like the Cleveland Chamber of Conmaerce will be- come normal centers for the consideration of public questions, and their influence will be- come increasingly important." ^ the Atlanta Improvement Conmiission, including citizens and city and county officials, to prepare a city plan for Atlanta. See the National Municipal Bevieic, Vol. II, page 349. Also Special Agents Series — No. 79. Commercial Organizations in Southern and Western Cities. By Geo. W. Doonan. Wash- ington, D. C. 1914. Page 10, "Atlanta Chamber of Com- merce." The New York Bureau of Municipal Research has under- taken several other civic surveys. Among them may be cited the one made at Reading, Pa., funds for which were supplied by the Reading Chamber of Commerce. Reading, Pennsyl- vania. Report on a Survey of the Municipal Departments and the School District. Prepared for the Chamber of Com- merce of Reading by the New York Bureau of Municipal Research. December 1913. (8 pamphlets.) 4 Letter of Dr. Garfield to President Johnson of the Cleve- land Chamber of Commerce. Page 217, 1913 Annual Report of the Cleveland Chamber of Commerce. Chambers of Commerce in Political Evolntion 7 174 AMERICAN CHAMBERS OF COMMERCE MUNICIPAL GOVERNMENT BY COMMISSION Commercial bodies favor commission gov- ernment very largely because it can be made efficient from a business standpoint. Its advo- cates urge for the commission form that it does away with the secrecy and shifting of respon- sibility which are the dismay of citizens under other forms of municipal administration. Furthermore, it concentrates public attention upon a commission composed of a few citizens. These men, generally five in number, hold office and conduct the work of their several depart- ments subject always to the control of popular opinion and, in extreme cases, dismissal by vir- tue of the recall. The commission plan is the most signal instance of an American govern- ment that is so sensitive that it dare not dis- obey the public will. It is in design a govern- ment which is completely exposed to popular supervision.^ The history of the commission plan in this country dates back to 1870 when it was tried in several southern cities and proposed for New BChilds, "Reform via Democracy," National Municipal Re- view, Vol. I, page 256. CITY GOVERNMENT REFORM 175 Orleans.^ The Galveston Flood brought commission • 1 /» 1 • • 1 Plan in about the recent revival oi the commission plan, Galveston and the success of the Galveston commission was so marked as to give the experiment an un- usual amount of publicity. Adding to the commission idea the provisions for the initia- tive, referendum, and recall, the people of Des Moines, la., inaugurated in 1908 a new type of commission government, including non-parti- san primaries. This plan has frequently been used as a model by other cities. In 1913 a committee on municipal research was appointed by the directors of the Associa- tion of Commerce at St. Paul, Minn. This ac- tion on the part of the Association followed the adoption of a new municipal charter providing for a modified form of commission government. The latter went into effect in 1914. The pur- pose of the committee was to instruct the cit- izens in the details of the new charter and thus enable them to take an active and critical in- terest in civic affairs. St. Paul is now gov- erned by a legislative and administrative coun- cil of seven, including the mayor, and in this 6 The Making of a Town, by Frank L. McVey. Chicago. A. C. McClurg & Co. 1913. Page 142. 176 AMERICAN CHAMBERS OF COMMERCE respect has followed the usual lines of commis- sion charter practice. A check upon the work of these officials has been supplied, however, in St. Paul's the form of an elective comptroller who has no Comptroller . i.. . n, .,,. part m the administration of the city s business except in connection with finances and the countersigning of documents and contracts. The comptroller is also the civil service com- missioner and publicity officer; his main func- tion is to supply the citizens with exact in- formation concerning the management of the cityJ Commission governments have been created in many cities of moderate size as a result of the efforts of commercial organizations. In Haverhill, Mass., which claims to be the first city in the East to adopt the commission form, the Board of Trade was instrumental in bring- ing about its adoption in 1908. Five years ago the Commercial Club of Topeka, Kans., was responsible for the installation of the commis- sion plan. In September 1913 following its recommendation by a committee of the local 7 "St. Paul's Comptroller: An Interesting Experiment," by J. W. Bennett. National Municipal Review, Vol. II, page CITY GOVERNMENT REFORM 177 Board of Trade, commission govermnent went into effect in Nashville, Tenn.® THE CITY MANAGER PLAN What President McVey of the University of North Dakota terms "the egotism of the democracy" ^ is responsible for a weakness in the commission form of government. In this country it is too often taken for granted that any business man of ordinary talents will make a good governing officer. The human factor in the commission plan is no less important than it is in any other system of government. We have yet to learn that municipal govern- ment should be conducted by experts. In German cities the governments, admitted German Municipal to be the most successful in the world, are di- Government rected by an administrative board known as the Magistrat, Its presiding officer and formal head is the Bilr germeister, a trained executive with general supervisory jurisdiction over the city government. His profession is one of 8 "Commercial Organizations in Social Welfare," edit. The Nation's Business, Vol. I, no. 12, pages 13, 16. Under the heads, "Charities," "Better Homes," "Recreation," "Labor Matters," "Municipal," and "General Service," are cited many instances of civic reforms accomplished by commercial bodies. 9McVey, op. cit., page 144. 178 AMERICAN CHAMBERS OF COMMERCE great opportunity and honor. A Burger- meister who succeeds brilliantly in the admin- istration of a small city is called to more im- portant work elsewhere. Munro, contrasting this German official with the American mayor who generally has had little or no executive training, says : " The Bilr germeister is an expert, a profes- sional administrator, who looks upon his office as a career, who seeks the post on his public record, and who expects promotion upon this alone." ^^ In 1911 the Board of Trade of Lockport, The N. Y., seeinff the advantage of the German "Lockport . ° . ° Plan" idea, drew up a tentative charter for Lock- port and petitioned the State Legislature for its ratification and adoption. The charter provided for a commission of five to be paid nominal salaries and to handle all administra- tive work through an appointive city manager, who in turn would appoint and control the whole administrative staff. Unfortunately political influences at Albany overcame the efforts of the Board of Trade to secure this low. B. Munro, The Oovernment of Europecm Cities, Chapter II. "The Government of Prussian Cities." CITY GOVERNMENT REFORM 179 new form of efficient, non-partisan govern- ment and the bill was defeated in the Legisla- ture. The Board of Trade became interested in the city manager modification of the commission form of government because it seemed a feasi- ble and practical plan to secure good govern- ment for a community that had long been at the mercy of corrupt politics. In their ef- forts to eliminate the possibility of muncipal reform in Lockport, local politicians three years ago organized a rival commercial organ- ization for the purpose of putting the Board of Trade out of existence. According to President W. H. Upson, however, " the Board of Trade still maintains its original position, favoring commission government and espe- cially the city manager modification," and will continue the fight in the interests of good gov- ernment.^^ 11 Letter of President W. Harrison Upson of the Lock- port Board of Trade, February 2, 1914. At the 1914 Session of the New York State Legislature there was passed an optional city government law, whereby any city of the second or third class may adopt any one of six simplified forms specified in the law. One of these forms is the city manager plan. This law eliminated the necessity of Lockport going again to the Legislature before putting the matter to a vote of the citizens. At a general election 180 AMERICAN CHAMBERS OF COMMERCE Olean Charter Defeated Sumter rirst with City Man- ager In 1913 the Olean Chamber of Commerce, after a thorough investigation of the city man- ager plan, framed a charter containing its es- sential features and obtained about 1000 sig- natures petitioning the New York State Leg- islature to pass the Olean Charter Bill. The Bill was duly passed and signed by the Gov- ernor, April 20, 1914. Previous to election day, June 30, following, the Chamber con- ducted a vigorous campaign to inform the Olean voters why they should vote for the adoption of the Charter. Nevertheless it was rejected by a vote of 1059 for, and 1312 against. A recent letter from Secretary Gibbs of the Olean Chamber states that "the old line politicians, the Socialists, an Anti- Vaccination group, and a number of disgruntled ones were responsible for the defeat of the charter." ^^ The first city in America to adopt the city manager plan was Sumter, S. C. Here, also, the local commercial organization initiated the movement, and the successful installation of the new form of government was due largely held in November, 1914, the proposed city manager charter was narrowly defeated. 12 Letter of Secretary Raymond B. Gibbs, Olean Chamber of Commerce^ August 27, 1914. CITY GOVERJ^MENT REFORM 181 to the efforts of the Sumter Chamber of Com- merce. In 1912 a special act of the South Carolina Legislature gave the people of Sum- ter their choice between the regular commission form of government and the new city manager plan. The former provided for a commission of three members elected at large, the other offi- cials being appointive, and a short ballot. In accordance therewith the mayor was to receive $1,200 a year, and each of the other commis- sioners $1,000, all of them being ex ojficio de- partment heads. The Sumter city manager plan, also presented to the voters, gave the commissioners only nominal salaries and left them free to pursue their private careers. They were to be authorized to employ a city manager and to fix his duties and salary. During the brief campaign conducted by the campaigrn by Chamber of Commerce it was pointed out that chamber of the city manager plan involved a substantial salary for only one official, the difference be- tween the two plans in commissioners' salaries being sufficient to give a city manager $2,500 a year. Among local politicians there was some objection on the ground that the impor- tant office of city manager would be likely to / 182 AMERICAN CHAMBERS OF COMMERCE go to a non-resident ; but the town at large did not consider this objection serious, and on June 12, 1912, voted three to one for the city man- ager plan. The most important task before the Sumter commissioners was the choice of a city manager. They hesitated to advertise for fear of being inimdated with applications. However, the secretary of the Chamber of Commerce offered to take charge of the matter and it was duly placed in his hands. The following excerpts are taken from the Press An- announcement that the Chamber handed to the nouncement ,^ ^ Press on October 20, 1912: "The City of Sumter hereby annoimces that applications will be received from now until December the first for the office of City Man- ager of Sumter. . . . This is a rapidly grow- ing manufacturing city of 10,000 population, and the applicant should be competent to over- see public works, such as paving, lighting, water supply, etc. . . . An engineer of stand- ing and ability would be preferred. . . . The City Manager will hold office as long as he gives satisfaction to the commission. He will have complete administrative control of the city, subject to the approval of the board of three elected commissioners. . ,. . There will CITY GOVERNMENT REFORM 18S be no politics in the job ; the work will be purely that of an expert. . . . Local citizenship is not necessary although a knowledge of local con- ditions and traditions will ... be taken into consideration. . . . At the request of the City Commissioners these applications will be filed with the Chamber of Commerce of Sumter." ^^ The newspapers handled this announcement as news and it was widely printed and noticed. The municipal and engineering magazines gave it free space and much comment. Applications poured in to the number of 150. Particularly significant was the fact that applicants saw in the office a fascinating opportunity. The candidates included a number of men of con- siderable note. The successful applicant was Malcolm McLean Worthington, a young civil sumter^s engineer who had specialized in railroad con- agers struction. During his administration he con- centrated his attention upon improvement of the public works. He was succeeded in November 1913 by Major W. F. Robertson, the present manager.^* 13 The Sumter ''City Manager" Plan of Municipal Govern^ ment, published by the Chamber of' Commerce of Sumter, S.C^ February 1913; reprinted April 1913. 14 Statement from E. I. Reardon, Managing Secretary, Sumter Chamber of Commerce, January 31, 1914. 184 AMERICAN CHAMBERS OF COMMERCE The results of Major Robertson's first year Kesuits as City Manager include marked improvement of the streets and drainage system ; the increas- ing by means of wells of an inadequate water supply to a supply "more than necessary for the present and adequate for several years to come" ; and more efficiency in the fire and street cleaning departments. **One of the best features of the City Manager plan," writes Major Robertson, " — whether greatly economical or not — is the improved and prompt service given to the citi- zens. Their municipal needs are generally an- ticipated and when they request or complain, attention is effectively and promptly given by one dependent entirely on his record as an ef- ficient public caretaker of municipal inter- ests." '' The success of Sumter's innovation has been generally conceded and already several other cities have put into effect similar plans. The city manager plan completely unifies the ad- ministration and makes it possible to have a permanent expert in charge of the affairs of the city. Since the manager is always sub- 15 Letter of August 36, 1914. CITY GOVERJ^MENT REFORM 185 ject to the control of the commission, there is no *'one man power." Dayton, Ohio, is the first important city to have adopted the city manager plan. This Dayton's , . City Man- newest form of mumcipal government went ager pian into effect there on January first, 1914. The Dayton Chamber of Commerce, since consoli- dated with other bodies in the Greater Dayton Association, was largely interested in the move- ment. In 1912 the Chamber appointed a com- mittee of five to study the question of commis- sion government. Their investigation led to the forming of a committee of one hundred citizens to work for a new charter, embodying the city manager modification of the commis- sion form. The "home rule" amendment to the Ohio State Constitution which became effective November 1912 gave Ohio cities the right to frame their own charters and aided the efforts of the committee. As a result of the co-operation of Chamber continued activity of the Chamber of Com- with Research merce and the Dayton Bureau of Municipal Bureau Research a publicity campaign was started. The phrase "government by deficit" was used by the Bureau to characterize the existing 186 AMERICAN CHAMBERS OF COMMERCE municipal administration. Copies of the pro- posed charter were widely distributed previous to the general election held August 12, 1913. At this time the charter was adopted by a large majority. ^^ The Dayton city manager plan retains the idea of a commission but is nevertheless a radi- cal advance upon the commission form of gov- ernment. Under the latter, legislative and executive functions are in thie same hands and the executive responsibility is divided among the commissioners in charge of their respective departments. Dayton, however, puts the re- sponsibility of administration upon one man. Abuse of his extraordinary power is prevented by provisions for the initiative, referendum, and recall. ^^ Director L. D. Upson of the Dayton Bureau Results of Municipal Research, reviewing Dayton's first five months under City Manager Henry M. Waite, attributes the success and economy 16 Proposed Charter of the City of Dayton: Prepared and Proposed by the Charter Commission. 64 pages. Dayton, Ohio, 1913. 17 Popular recall provision is adversely criticised in the National Municipal Review, Vol. Ill, page 95. "Defects in the Dayton Charter." CITY GOVERNMENT REFORM 187 of the administration to the centralizing in one individual of authority and responsibility for the efficient conducting of all departments of the city. This individual, the city manager, in turn demands that his department heads produce results, or make way for men who can do so.^® The American City for July 1914 contains Manager Waite's article: "The City Manager Plan — The Application of Business Methods to Municipal Government." In addition to outlining his policies and giving a history of the results to date. Manager Waite takes oc- casion to commend the work of the Dayton Bureau of Municipal Research and the co-op- eration of the Greater Dayton Association, comprising 7000 members in a city of 125,000. ''It may very well be," comments The World's Worh,^^ "that Dayton has taken the step forward that will place the chief adminis- trator of a big city's affairs in a position of such security and dignity that municipal gov- 18 L. D. Upson, "How Dayton's City Manager Plan Is Working," American Review of Reviews, June 1914, pages 714-717. 19 Editorial, The World's Work, Vol. XXVI, page 614. Octo- ber 1913. 188 AMERICAN CHAMBERS OF COMMERCE eminent may become a field for the best busi- ness ability and the most statesmanlike intelli- gence of the country. "Years ago when the recently retired Am- bassador Bryce wrote The American Com- monwealth, city government was the one con- spicuous failure which he had to chronicle. With the wide spread of the commission form of government and the hopeful experiments in city managers the present would afford a much brighter picture." The Ex- Ambassador has accorded the re- Bryce on cent trend in municipal government due notice. Commission . ^ ^t -xt ^ r^- /^i i • Govern- In addrcssmg the New York City Club m 1911 he said: "Your administration is becoming more and more of a business administration, certainly in this city, than ever before, and that is gen- erally true of cities all over the Union. Every- where men are coming to see the importance of fixing responsibility upon definite persons. That is the meaning of the tendency to adopt the commission form. In that respect your forms of government are far better over the country at large than they used to be. ... In all the largest cities where I have been honored by being the guest of chambers of commerce and civic clubs and citizens' associations, I have found organizations in which good citizens have banded themselves together, supplementing ments CITY GOVERNMENT REFORM 1 89 the defects of their local municipal government by making themselves the organs of an alert and enlightened public opinion, stirring up the spirit of the people and impelling by the pres- sure of opinion the municipal authorities to- ward the improvements that are needed." ^^ 20 Cited in National Municipal Review, Vol. I, page 18, January 1912. Recent articles on commission government include the fol- lowing: Bradford: "Financial Results Under the Commis- sion Form of Government," National Municipal Review, Vol. I, page 372; Clay: Chapter XI of City Building; Dana, "Anti-toxin for Municipal Waste," National Municipal Re- view, Vol. I, page 38; Hawkins: "Ideal City Government," Proceedings, Fourth Annual Convention, Central Association of Commercial Secretaries, page 5; Thompson: "The Vital Points in Charter Making from a Socialist Point of View," National Municipal Review, Vol. II, page 416; Upson: "The City Manager Plan of Government for Dayton," National Municipal Review, Vol. II, page 638. Also: "New Orleans Largest with Commission Govern- ment," Nation's Business, Vol. I, no. 2, page 4; "The Com- ing of the City Manager Plan," report of a committee of the National Municipal League, National Municipal Review, VoL III, page 44. CO-OPERATION WITH MUNICIPAL AUTHORITIES CHAPTER IX CX)-OPERATION WITH MUNICIPAL AUTHORITIES The report of a special committee of the Na- tional Municipal League in 1911 on the com- mission form of government does not accord it unqualified praise and characterizes it as only a "relative success," that is, by comparison with other existing forms. According to the report the citizens in commission-governed cities are satisfied with the change, feeling that they are given the opportunity to be more effective pohtically and that the commission form is one of the city's chief assets.^ It is conceded that this form of government shows a marked ad- vance in respect to business efficiency and the 1 "City Government by Commission: a Report," National Municipal Review, Vol. I, page 40. A special committee con- sisting of William Bennett Munro of Colimibia, Dr. Ernest S. Bradford of Washington, Clinton Rogers Woodruff of Philadelphia, Editor of the National Municipal Review, and Richard S. Childs, Secretary of the Short Ballot Association, presented this report at the Seventeenth Annual Meeting of the National Municipal League, Richmond, Va., November 13-16, 1911. 193 194. AMERICAN CHAMBERS OF COMMERCE centralization of responsibility. Theoretically, also, the popular rule provisions, the initiative, referendum, and recall, should provide the citizens with adequate protection against cor- rupt and incompetent administration. Never- theless in practice these provisions are seldom utilized.^ One objection advanced against the com- Criticism mission form is that it does not contain pro- sion Plan visions beneficial to citizens who are disinclined to use the facilities offered them, namely, the popular rule provisions.^ As a matter of fact this criticism is by no means fatal to the case for commission government. No plan can be de-. vised to compel citizens to take an active inter- est in the city administration. More signifi- cant is Mr. Bruere's suggestion that the growing efficiency of city administrations un- der the commission plan will eventually cut off the only outlet of citizen action, by making the 2 The New City Government : a discussion of municipal administration based on a survey of ten commission governed cities, by Henry Bruere, Director of the New York Bureau of Municipal Research. New York, D. Appleton & Co., 1912. 438 pages, 8vo. Reference is to page 376. 3 "A Participating Commission Plan of Government: method whereby citizens may participate in municipal govern- ment through their group organizations," by George H. Mur- doch. The Americcm City, Vol. VI, pages 471-476. CO-OPERATION WITH AUTHORITIES 195 use of the popular rule provisions unneces- sary.* Progress in society is the result of bad, rather Progress, the than good, government for the reason that in Result of case of the former the citizens are roused to act emment and thus perform their proper function in the community.^ If, then, commission govern- ment is merely efficient and requires no atten- tion from the citizens, it would seem to be in this respect undesirable. It is most important to the community to have a government that can be made an internal force in the activities of the citizens. It is true that popular opposition to corrupt government produces good citizens and that an efficient administration does away with the need of reform, thus closing this avenue of citizen action. But, as the commercial organizations in this country have demonstrated, there still remains the opportunity as well as the need for co-operation with the municipal authorities along constructive lines. However efficient and systematic the city administration may be, real development and progress depend in large *Bru^re, The New City Government, page 377. 5 Murdoch, "A Participating Commission Plan of Govern- ment," etc., — see above. 196 AMERICAN CHAMBERS OF COMMERCE measure upon the active civic interest of the citizens. Before describing the work of boards of oroup-Par- trade in this field it will be interesting to exam- ticipation , i /> << me a plan for group-participation" in com- mission cities, devised by Mr. George H. Mur- doch ^and entirely applicable to commercial bodies, though, so far as is known, not yet prac- tically applied. He advocates the passing of a statute by which in any commission-governed city a civic or commercial organization by fil- ing a certificate of certain qualifications shall become a semi-official body. Among these quaUfications are : (1) that the organization states in its constitution the purpose for which it was founded; (2) that the government of the organization be by majority and meetings made open for all; and (3) that the initiative, refer- endum, and recall shall be used within the or- ganization. Mr. Murdoch suggests the fol- lowing privileges which a duly qualified organi- zation would enjoy: (1) the resolutions or positive acts of the organization, whenever it so desires, are to be spread upon the commission « Murdoch, "A Participating Commission Plan of Govern- ment," etc., — see above. CO-OPERATION WITH AUTHORITIES 197 records; (2) the body may call upon the com- mission at any time to produce records, corre- spondence and public accounts; and (3) the body may also call upon the commission under reasonable regulations for a public hearing. Finally it is recommended that all semi-official bodies so constituted be bound under law to perform certain duties, for example (1) serve without pay, and report whenever sub- jects are referred to them by the commission; and (2) send delegates to advise the commis- sioners in considering momentous matters. Under a participating commission plan it is urged that each citizen could select his own field of public influence, and that, moreover, the commissioners, being in intimate touch with large groups of individuals, could thus secure a fair expression of public opinion. CO-OPERATION INVITED BY CITY OFFICIALS To-day it is practically impossible to find an efficient municipal administration that does not invite the active co-operation of the citizens. This is true of cities which do not have com- mission government as well as of those which have adopted the commission form. Cham- 198 AMERICAN CHAMBERS OF COMMERCE bers of commerce are the civic bodies which chiefly make such co-operation feasible. The organized sentiment of the members of these associations acts as a guide to the city officials in addition to supplying an effective check upon their public acts. Accordingly the Boston Chamber of Commerce through its committees on municipal and metropolitan affairs and on city planning is placed in close touch with the various city departments, the City Council, and the Mayor. From time to time these commit- tees request the Chamber to make specific recommendations to the city officials. The Chamber of Commerce volunteers suggestions or criticisms impartially in civic affairs, but above all things evinces a desire to co-operate with the officials whenever it can be of assist- ance. The value of the civic body as a check upon the city administration is emphasized by Dr. The Civic Clyde L. King in his book, The History of the Body as a Check Government of Denver with Special Reference to its Relations with Public Service Corpora- tions, Denver, 1911. He says: **In Denver's own history the real check has never come from the formal institutions, such CO-OPERATION WITH AUTHORITIES 199 as the council, but from the informal institu- tions, the chief of which has been, and is, the Chamber of Commerce." ^ In 1912 the Mayor of Denver, seeing the benefits of citizen co-operation, asked every civic or commercial body in the city to name three of its members to serve on a City Board of Advisers. The Board was duly constituted and conferred with the Mayor several times. Its members then reported back to their re- spective organizations, as a means of giving the fullest publicity to administrative affairs. Ac- cording to the Denver Chamber of Commerce, however, this Board "had very little to do with forming the policy of the city government un- der Mayor Arnold." ® When Denver adopted the commission form of government at the close of his administration the advisory committee went out of existence. Marking an innovation in municipal govern- The Mayor's ment. Mayor Brown of Kansas City, Mo., in cabinet 1910 established a council known as the "Mayor's cabinet." As first constituted it was ■7 King, History of the Government of Denver, etc., page 302. 8 Letter from Asst. Secretary C. M. Kittredge, Jr., Den- ver Chamber of Commerce, December 12, 1913. 200 AMERICAN CHAMBERS OF COMMERCE composed of the heads of the various city de- partments, such as the Public Utihties Com- mission, the Board of Civil Service, and the Board of Fire and Water Commissioners. At the weekly meetings of this cabinet each mem- ber was called upon to offer suggestions re- garding not only his department but also every other department in the city government. Matters of legislation, municipal service, and public improvements were referred to special committees composed of members of the cabinet, and action was taken in accordance with their reports. The Mayor in this way secured information and advice that resulted in many improvements in the municipal service while the various branches of the city govern- ment worked in complete harmony. After about nine months of cabinet meetings it occurred to the Mayor that valuable sugges- tions might be obtained from men not con- nected with the municipal government and that, moreover, citizens engaged in the civic and in- dustrial life of the city should be enabled to present their complaints and criticism through the medium of their respective civic and com- mercial associations. The cabinet was accord- CO-OPERATION WITH AUTHORITIES 201 ingly enlarged to include, in addition to the department heads, one delegate from each of these bodies. The conferences of the cabinet in its new form were of great value to the city. The fact that representative business men were enabled to come into direct contact with munic- ipal department heads resulted in prompt and intelligent action. A concrete case will serve to show the value instance of Co-op- of the cabinet's work. On one occasion a eration manufacturer reported to the Kansas City Commercial Club that he had purchased ground for a factory about 400 feet beyond the city limits and that, although his factory build- ing was completed, he could not begin opera- tions because the city refused to extend the city water main to his factory site unless he would pay for the extension. Upon investiga- tion the Commercial Club found that the loca- tion had been purchased beyond the city limits because the land could be secured at a reason- able figure and a good railroad siding was ob- tainable, — two conditions essential to a success- ful enterprise. It was also evident that the community was growing in the direction of the factory-site and would eventually include it. 202 AMERICAN CHAMBERS OF COMMERCE These facts were presented to the Mayor's cabinet and, the majority of the members agreeing that the manufacturer's request was reasonable, the water main was promptly ex- tended by the city. Upon the termination of Mayor Brown's Cabinet period of officc the Mayor's cabinet was discon- Discon- •Till tinued tmucd and under the next administration was replaced by ward meetings. The cabinet was not, however, without its permanent benefit to the city. "We have learned," said the secretary of the Commercial Club, "that there are more capable men holding public office than we thought, and they have found out that the voice of a well organized body of business men is to be respected. . . . We have discovered many difficulties that confront city officials, and now know . . . that they need friendly encourage- ment . . . from the men who pay a large per- centage of the taxes." ^ 9 "Co-operation of Municipal Authorities with Commercial Organizations," by E. M. Clendening, Secretary, Commercial Club, Kansas City, Mo. Address delivered at the Fourth Annual Convention of the Central Association of Commercial Secretaries, Indianapolis, Ind., September 20 and 21, 1912. Reported page 32 of the Proceedings of that convention. See further, same, page 61, "Advisory Boards of City Gov- ernment." CO-OPERATION WITH AUTHORITIES 203 THE BOSTON CHAMBER OF COMMERCE AND THE CITY GARBAGE CONTRACT In many cases the commercial organizations themselves have taken the initiative and have offered to co-operate with the city. A striking instance of this is furnished by the work of the Boston Chamber of Commerce in the matter of the city garbage contract. Under the old con- tract which expired the first of January 1911, the garbage and waste collected in the city of Boston was removed by a private firm. Previ- ous to its expiration the Commissioner began to draw up the specifications for a new ten-year contract and he also advertised for bids. The only bid received was from the contractor the city was then employing. At this point the Chamber of Commerce Committee on Municipal and Metropolitan Affairs, which had been working on the matter, communicated with the city council and advised campaign calling for new bids. This suggestion was bIL ^^ adopted and the committee was authorized to assist the Commissioner. The first difficulty to be met was that, under the laws of the city of Boston, the Commissioner was not allowed to 204 AMERICAN CHAMBERS OF COMMERCE advertise for bids except in the City Record, the official weekly publication. Ordinarily this paper does not reach engineers and business men, a fact which accounts for the absence of any competitive bids for the garbage contract. To overcome this difficulty the Chamber's com- mittee communicated with the commercial bodies in all large cities, asking them to notify their members that the city of Boston required estimates for garbage disposal. Further- more, one member of the committee at his own expense advertised for bids in several engineer- ing magazines. Seven bids were received as a result of this campaign and the lowest of them was materially less than the original one. The Chamber of Commerce was not yet satis- fied. The bids were not figured uniformly and it was impossible to tell which was actually the lowest. In the face of much opposition the committee urged that these bids also be re- >^ected and new ones secured on the basis of a set of specifications. The city finally yielded the point and permitted the Chamber to draft the specifications in consultation with the city engineer. When the new bids arrived it was found that CO-OPERATION WITH AUTHORITIES 205 the lowest was $500,000 less than any properly largre Saving figured bid previously received. By a vote of Effected seven to two the city council approved the awarding of the contract to the Boston De- velopment and Sanitary Co. whose bid was the lowest in addition to being the one recom- mended by the Chamber of Commerce. This company's process of garbage reduction is the dry-heat system carried on under vacuum; paper and rubbish are incinerated, while ashes and street sweepings are used for filling islands or swamps along the water-front.^ 10 THE HAMILTON CHAMBER OF COMMERCE During the flood disasters of 1913 Hamil- ton, Ohio, found itself deprived of its munic- ipal officials with the result that it was tem- porarily without a government. In this emer- gency the Chamber of Commerce brought into existence a provisional government that proved fully capable of handling the situation. 10 "The Boston Chamber of Commerce and the Garbage Contract." Letter of Herbert J. Kellaway in The American City. Vol. VI, pages 496-7 with editorial note. See also Boston Chamber of Commerce News, June 19, 1911, and October 30, 1911, for further information. Also F. R. Bangs, "Saving the City Half a Million," Boston Chamber of Commerce News, Vol. II, no. 32, page 4. 206 AMERICAN CHAMBERS OF COMMERCE Instead of co-operating with the city officials, a commercial body was forced in this instance to take their place. The co-operative spirit that had marked the previous activity of this chamber of commerce and had made it a use- ful civic organization became the flooded city's greatest asset/^ The Hamilton Chamber has its offices in the Rentschler Building, one of the city's large office structures. In these offices there were six of the leading business men of Hamilton when the first rush of water came on March 25, and there they remained until late the next afternoon, when the flood began to recede. Word reached them that the Mayor could not be located and that the police chief was thought to have been drowned. At this report Presi- Temporary dent Fitton of the Chamber of Commerce Government n i . « called an miormal meetmg of all those present in the building and a temporary government was organized. The first efforts of this body were directed toward the rescuing and protection of those in 11 "How the Chamber of Commerce of Hamilton, O., Met a Great Emergency," by Leo L. Redding. The World's Work, Vol. XXVI, pages 598-9, September 1913. CO-OPERATION WITH AUTHORITIES 20? danger. The Chamber's vice-president, for the time being chief of the commissary depart- ment, communicated with the Mayor of Cin- cinnati, using the only wire left standing, and in less than four hours after the formation of the provisional government twenty-two motor trucks were plowing the roads between the two cities, carrying supplies and provisions. Prom- inent members of the Chamber of Commerce were also placed in charge of the volunteer po- lice force and the morgue. The Chamber's treasurer became custodian of the relief fund, while an ex-president of the organization, to- gether with one of its directors, assumed the responsibility for re-establishing the city's pub- lic works. When provision had been made for Hamil- Restoration ton's most immediate needs the temporary Hamilton government turned over control of the city to a council of thirty citizens, headed by an ex- ecutive committee of six, and the whole com- munity participated in the work of restoring the city. As a result of the flood the four local bridges were piles of debris and the railroads were useless. There was little food in Hamil- 208 AMERICAN CHAMBERS OF COMMERCE ton and no gas, electricity, or drinking water. The first practical work was the temporary re- pair of three of the wrecked bridges. The water supply and the lighting system were next rendered serviceable and finally the streets were cleared. The flood came on March 25 and by April 9 the citizens had repaired the greater part of the damage. The Chamber of Commerce mem- bers who had organized the provisional govern- ment later subscribed to a guarantee fund, ex- tending credit to the business men of Hamil- ton, thus enabling them to get a new start. In order to prevent a recurrence of the disaster, the counties along the Great Miami have formed an organization for the purpose of ex- tending a dam across the river and thus bring- ing it under control. THE CIVIC FIELD FOE COMMERCIAL BODIES A notable feature of the new co-operative spirit manifested by citizens through the me- dium of voluntary associations is their attitude of toleration and forbearance. Thus the Rochester Chamber of Commerce avoids prom- inence in its co-operative undertakings, recog- CO-OPERATION WITH AUTHORITIES 209 nizing the fact that "municipal government carries many responsibihties for the people and, therefore, must be permitted and encour- aged to take the initiative." ^^ Although the city government involves a great many proc- esses of importance, popular action must be limited to a few. Without forethought a commercial body limits / may find itself occupying the same field as the pieid municipal authorities and attempting civic im- provements already contemplated by the city. There must accordingly be limits to the civic work of boards of trade. City clubs and com- mercial organizations are the two main di- visions under which the majority of civic bodies may be grouped. To a certain extent the ac- tivities of these two classes are distinct. The commercial organization is concerned pri- marily with the business interests and cannot interfere in administrative matters as easily as can the city club, for the reason that the former may be criticised, though unjustly, for trying to control the city authorities for its own profit. On the other hand the greater financial resources of the commercial bodies i2Brufere, The New City Government, page 393. 210 AMERICAN CHAMBERS OF COMMERCE place them in a more favorable position to pro- mote civic development/^ Moreover, when the opinions of experts are required by the city officials, individual cases must determine the organization best qualified to render the services/^ To avoid a clash of interests there should be close co-operation between city-plan experts and commercial associations working to pro- mote the city. City-planning unquestionably enhances the value of property and causes civic growth which directly benefits the manufac- turers and merchants. Nevertheless, where co-operation is neglected we may expect to find conflicting aims and a lack of efficiency. ^^ In many instances the efforts of chambers of 13 Thus the San Francisco Chamber of Commerce supports an inspection bureau to inform citizens and taxpayers how their money is being expended in municipal improvements. See Special Agents Series — No. 79. Commercial Organizou- tions in Southern and Western Cities, by Geo. W. Doonan. Washington, D. C, 1914. Page 22, "San Francisco Chamber of Commerce." 14 "The Relation of Civic and Commercial Organizations to Municipal Government." Address delivered before the Inter- national Municipal Congress, September 21, 1911, by Mayo Fesler, Secretary of the Municipal Association of Cleveland. Reported in The American City, Vol. V, pages 274—9. 15 "Town Promotion and City Planning," by Elmer S. Batterson, Associate Editor of The Dry Goods Reporter, The American City, Vol. IV, page 119. CO-OPERATION WITH AUTHORITIES 211 commerce have resulted in great financial sav- Financial Support ing to their cities. It has been suggested that, urged since comparatively few citizens assist in sup- porting commercial organizations, legislation should be passed permitting cities or communi- ties to levy a tax, the proceeds to be payable to commercial bodies and to be expended by them in civic improvements.^^ In Colorado at the present time the counties collect a small tax for the support of commercial and devel- opment organizations. Secretary Adolph Boldt of the Houston (Tex.) Chamber of Commerce, citing the Chamber's successful campaign for the "front foot paving plan," which annually saves the city of Houston thou- sands of dollars by charging two-thirds of the cost of street improvements to the abutting property-owners, urges a monthly appropria- tion from the city's revenues for the support of the Houston Chamber of Commerce. ^"^ 16 Edit. The Nation's Business, Vol. I, no. 13, page 2, July 15, 1913. 17 "Ideal Relations Between the Chamber of Commerce and the Municipal Government," by Adolph Boldt, Secretary of the Houston Chamber of Commerce, Houston, Tex. Article prepared for the author. >:: CIVIC IMPROVEMENT CHAPTER X CIVIC IMPROVEMENT The problems presented by the modern city are more complex than ever before. Half of the people in the United States live in cities. Congestion, crime, and poverty are essentially city evils. Nevertheless, the commercial bodies are rapidly improving conditions in our large municipalities. This phase of their ac- tivity includes city planning, housing and san- itary reform, recommendations for public health and safety, the regulation of charities, and the support of park and playground movements. Moreover, campaigns for good roads and proposals for public works fre- quently originate in these organizations. "The chamber of conmierce is a composite The Brains not only of the city's wealth but of its intelli- gence." * An efficient commercial body knows what is requisite for the growth of the city and 1 Ritchie, "The Modern Chamber of Commerce,*' National Municipal Review, Vol. I, page 161. 215 216 AMERICAN CHAMBERS OF COMMERCE for the well-being of the citizens. The pro- gressive manufacturer has discovered that it is not enough to have a fine equipment ; unless his employees are living in healthy and moral sur- roundings he cannot expect to get the highest efficiency. This consideration alone often causes factory-owners to change the location of their plants. The conditions that affect the welfare of an industrial enterprise are equally important in the case of a community. If only to maintain its population, a city must keep pace with modern requirements. Constructive work by boards of trade is in constrnc- Itsclf their best reward. The advantages pos- sessed by an attractive, healthy city, where good housing and labor conditions prevail, are too apparent to need demonstration. The sig- nal efforts of commercial organizations, whether aimed at selfish ends or actuated by true civic loyalty, as in the majority of cases, are in the field of public service. A committee is the board of trade's most effective instrument. Thus the Commercial Club of Duluth conducts all of its civic work through the Public Affairs Committee. The first committee, appointed ten years ago, con- CIVIC IMPROVEMENT 217 sisted of forty members. At the present time the nmnber is 150. The chairman and mem- bers of the Pubhc Affairs Committee are ap- pointed by the President of the Commercial Club, the chairman later assigning the mem- bers to sub-committees which deal with special subjects. Detailed work is carried on by these smaller bodies and reports are made at monthly meetings of the Public Affairs Com- mittee. Questions that require the opinion of the large committee are also presented in the form of recommendations. Ordinarily the recommendations are accepted without objec- tion.^ COMMERCIAL ORGANIZATIONS AND CITY PLANNING City planning is a phase of civic improve- ment to which chambers of commerce largely devote their efforts. The reasons for this fact are not hard to find. The aims of the city- plan expert are, first, to make a city an attrac- 2 "The Public Affairs Committee," address by H. V. Eva, Secretary of the Commercial Club of Duluth, Minn., at the Fifth Annual Convention of the Central Association of Com- mercial Secretaries, Omaha, Nebraska, September 22, 23, and. 24, 1913. Reported on pages 21-22 of the Proceedings of this convention. 218 AMERICAN CHAMBERS OF COMMERCE tive and healthy place for homes, thus giving it advantages which cause a growth in popu- lation ; and, second, to provide for the handling of traffic on the streets and at the stations and wharves. Mr. George B. Ford ^ thinks the industrial need for the planned city is the most urgent and that, therefore, chambers of commerce should lead in this work. But, illustrating the close co-ordination between beauty and utility in city planning, he says : "No matter how good the industrial features may be, unless the community is attractive to labor, a sound and healthy development is hardly probable." The importance which city planning has as- Recent sumed is shown by the recent passage of a law in Massachusetts, entitled: "An act to pro- vide for the establishment of local planning boards by cities and towns." The Boston Chamber of Commerce, carrying out its educa- tional programme in New England outlined on pages 242-250, distributes weekly to New 3G. B. Ford, member of the city planning committee of the New York Merchants' Association, "Chambers of Com- merce and City Planning," The American City, Vol. X, no. 5, page 448, May 1914. Legislation CIVIC IMPROVEMENT 219 England cities index cards recording new items about city planning. The Board of Trade in Salem, Mass., and the New Haven Chamber of Commerce have been instrumental in the creation of city plans commissions for their respective communities. An effective piece of publicity as well ^s a contribution to the literature of city planning is the volume, Greater Erie, prepared for "Greater Erie*' the city planning committee of the Chamber of Commerce and Board of Trade of Erie, Pa. The unique value of this book consists in its complete study of city planning as related to Erie and the inclusion of suggestive matter re- lating to city planning in this country and abroad. Chapters deal with streets, railroads, waterfront, buildings, open spaces, and the in- dispensability of city planning. On August 28, 1913, the Board of Estimate and Apportionment of the City of New York, New York at the request of Borough President Mc- Aneny of Manhattan, agreed to make an ap- propriation for an exhibition of city planning, providing that half as much could be raised by private subscription. On the same day the Merchants' Association of New York guaran- 220 AMERICAN CHAMBERS OF COMMERCE teed the amount required. An advisory com- mission was duly named, which secured the use of the New York Public Library exhibition rooms and appointed the American City Bu- reau to collect and install the exhibit. The officials of many foreign cities and those of all American cities of over 10,000 popula- tion were asked to co-operate to make this ex- hibition representative. This invitation was also extended to many civic and commercial or- ganizations. The response was wide-spread and so generous in amount that the commission was unable to find room for all of the valuable material. The exhibit took place November 24 to De- cember 7, 1913. Its purposes as defined in the official catalogue were to explain to the public the meaning and scope of city planning; to show, also, the intimate relation between all the different branches of the subject; and, lastly, to prove to taxpayers that efficient plan- ning is one of the best investments a city can make. The bibliography of city planning is already Bibiiog- very large. The New York Public Library has published a Select List of Works Relat- CIVIC IMPROVEMENT 221 ing to City Planning and Allied Topics which was especially prepared for the city planning exhibition. A Selected List of Municipal and Civic Books is obtainable from the Amer- ican City Bureau, New York City.^ THE HOUSTON SHIP CHANNEL A leading example of civic improvement due to the efforts of a chamber of commerce is the Houston Ship Channel, now in course of con- struction. When completed the waterway will enable the largest steamers to reach Hous- ton from the Gulf of Mexico, a distance of •4 Recent magazine articles on city planning and civic im- provement in relation to commercial bodies include: World's Work, Vol. XXVII, pages 354-355, January 1914, "A Commercial Club in a Small Town," describing the work of the Dallas Chamber of Commerce. National Municipal i2«- view, Vol. I, page 236, "The Business Side of City Plan- ning"; page 318, "The Boston Chamber of Commerce and City Planning"; page 325, "Harrisburg Board of Trade and the Billboards"; page 458, "San Francisco's Civic Center"; Vol. II, page 132, "City Planning"; page 210, "Constructive Housing Reform." The Nation's Business, Vol. I, no. 12, page 13, "Commercial Organizations and Social Welfare." See also H. Bruere, The New City Government, pages 384- 393, citing cases of civic improvement by chambers of com- merce; S. H. Clay, City Building, Chapter VII, "Street Build- ing and Cleaning," Chapter IX, "The City Beautiful," and Chapter XII, "Good Roads"; Annals of the American Acad- emy; Vol. XXV, pages 359-401, "Activities of Civic Organi- zations for Municipal Improvement in the U. S."; Some Activities of the Rochester Chamber of Commerce, 1912, (also, same, 1913). 222 AMERICAN CHAMBERS OF COMMERCE fifty miles. This Channel was originally Government known as Buffalo Bayou and existed as a nat- ural arm of the sea. It was sluggish and marshy, besides being too shallow to admit ves- sels of ordinary size. As early as 1871 the United States Government adopted a plan for the improvement of the harbor, to make it one hundred feet wide and twelve feet deep ; and in 1898 the Board of Survey's report for the en- largement of Buffalo Bayou was acted upon favorably. This report recommended a mini- mum depth of twenty-five feet. Work was partially completed in 1909, when, as a result of dredging, the depth had been increased to eighteen feet throughout the entire length. This depth has been sufficient to accommodate small coasting vessels and Houston's annual traffic already amounts to over $55,000,000. For several years previous to 1909 the Houston Chamber of Commerce, Manchester realizing the need for extensive harbor im- Ship Canal provements, made a study of the Manchester Ship Canal in England. The commercial growth of this English city has been due largely to a canal that was built to overcome condi- tions very similar to those found at Houston. CIVIC IMPROVEMENT 22S At a cost of several million dollars the shallow Mersey was dredged and the underlying bed rock, excavated, so that the largest ocean liners can now dock at Manchester. In 1909 the Chamber of Commerce re-named Buffalo Bayou, calling it the Houston Ship Channel, and started plans to secure an appro- priation from the Government to enlarge the Channel to a minimum depth of twenty-five feet and a minimum width of 200 feet. The estimated cost of this work was $2,500,000. After considerable delay Congress granted an appropriation of $1,250,000 on condition that Houston would raise an equal amount. There- upon the business men of the city came for- ward and accepted the proposition, the issue of bonds being promptly taken up by local banks and trust companies. The funds were placed to the account of the Secretary of War ^ork and in 1912 the work now nearing completion completion was started by United States engineers. By the terms of the contract with the Gov- ernment, the city of Houston has agreed to construct adequate wharfage to be maintained forever free to commerce, thus making Hous- ton a free port and exempting from taxes all 224 AMERICAN CHAMBERS OF COMMERCE freight passing over its wharves. The signifi- cance of the immense project may be appre- ciated from the statement that Houston is the furthest point inland on deep water in the State of Texas, and is entered by seventeen Hnes of railroad. As soon as the Channel is completed, Houston will be the logical freight center for the products of fourteen middle-western states bound for South American points via the Panama Canal.^ THE GROWTH OF OKLAHOMA CITY The chamber of commerce in Oklahoma City has been unusually successful in accomplishing civic improvement. This city was founded only a quarter of a century ago and since then has reached a population of approximately 72,000. Between the years 1900-1910 the population grew from 10,000 to 65,000. A few years ago the local civic bodies were consol- idated into one organization, the Chamber of Commerce, which now represents over 1200 business firms. The city's growth and promi- nence can be traced directly to the work of this 8 "The Houston Ship Channel in Epitome," article prepared by the Houston Chamber of Commerce for the author, re- ceived December 12, 1913. CIVIC IMPROVEMENT 225 central civic organization. Moreover, as a re- sult of the Chamber of Commerce's activity, the commission form of government has re- cently replaced the federal plan in Oklahoma City. In 1907, when Oklahoma was granted state- hood, its capital was Guthrie. Through the efforts of the Oklahoma City Chamber of Com- merce a movement was started to make Okla- homa City the capital of the new State. In favor of this plan it was argued that the city was the most central point in the State and had excellent transportation facilities, besides being thejargest city in Oklahoma. The legislation required for this change could be secured only by an affirmative vote of the people of Okla- campaign by homa on an initiative petition. As a result of a Oklahoma State-wide campaign led by the Chamber of Commerce the people by a large majority de- clared in favor of Oklahoma City. At this point difficulties arose. Oklahoma City, in return for being made the permanent home of the State Government, had agreed to provide funds for the construction of a Capitol building. A suit instituted by Guthrie to re- cover its position as capital and the failure of 226 AMERICAN CHAMBERS OF COMMERCE the State legislature to provide certain enact- ments hindered the execution of this project. Finally the State agreed to start construction work on the Capitol building on condition that Oklahoma City would pay over $100,000 in cash and vest the State with a clear title to 665 acres of land, valued at $1,400,000. The land was easily secured by gift ; and, as the city found it difficult to obtain the money, certain public-spirited citizens agreed to do- nate a sufficient amount of land for park and play-ground purposes, the city to issue bonds thereon to the amount of $100,000. Just at this time, however, several financiers signified their intention to build a railroad from Okla- homa City to Woodward, a town in the north- western part of the State, provided that Okla- homa City would furnish the terminals and purchase the right of way as far as the county Bond line. As the advantage of having this railroad Issue Voted was apparent, the citizens voted in favor of in- creasing the bond issue to $250,000 to enable the city to obtain both the Capitol building and the new railway. The plan was executed suc- cessfully and the value of a novel method of CIVIC IMPROVEMENT 227 financing civic improvements was demon- strated.^ It would not be by any means difficult to multiply instances of civic improvement as a result of commercial organization activity. However, the purpose of this volume is not to draw the details with too great a degree of minuteness, but rather to present a general survey of the civic work of American commer- cial bodies. A board of trade or a chamber of commerce is, after all, only a body of citizens. It is but natural that they should wish to im- prove their city. But, that they have devel- oped a powerful co-operative force which en- ables them, in the face of many obstacles, to effect improvements and reforms is a remark- able achievement. 6 "Oklahoma City Unique in Nation," article by W. B. Moore, Secretary of the Oklahoma City Chamber of Com- merce. The Nation's Business, Vol. I, no. 3, page 6. COMPETITION BETWEEN CITIES CHAPTER XI COMPETITION BETWEEN CITIES A MIGHTY competition between cities is result- ing from the growth in influence of commercial organizations in this country. It is becoming increasingly necessary to recognize the board of trade as an important economic factor whose operations may be tremendously significant. The board of trade has been termed the city's garrison, ever alert to sense changing condi- tions, or important movements by other trade centers, and faithful in building up and pre- serving the commercial strength of the city. The words of a speaker before the Phila- Modem . Functions delphia Board of Trade some years ago epit- Epitomized omize the functions of the modern civic and commercial organizations : "Maintain your interest in the great work which lies before you for the education and improvement of the people of our city ; for the development of those impersonal interests un- derlying the prosperity of a great city." ^ 1 Fraley, op. cit., pages 66-7. 231 232 AMERICAN CHAMBERS OF COMMERCE CIVIC ADVERTISING Publicity is an important element in inter- I city competition, but unless a city has impor- tant advantages to offer new industries, money so spent is wasted. In some cases the signifi- cant undertakings of commercial bodies have aroused general interest and newspapers and periodicals have published accounts for their news value. Many boards of trade send out pamphlets and illustrated booklets displaying local industrial and civic advantages.^ The most notable achievement in advertising of this sort is the volume New England: What It la and What It Is to Be, circulated in 1911 by the Boston Chamber of Commerce. 2 See Special Agents Series — No. 60. Commercial Organi- zations, by E. A. Brand, Washington, D. C, 1913. Pages 44-45 "Publicity." Also Special Agents Series — No. 79. Commercial Organizations in Southern and Western Cities, by George W. Doonan, Washington, D. C, 1914. Page 6 "Publicity Work." Chapter X — "Advertising the Town," in The Making of a Town, by Frank L. McVey, discusses modern publicity meth- ods employed by cities. Chapter II— "Publicity," in City Building, by S. H. Clay, gives details and practical suggestions for city advertising campaigns. See H. F. Miller, "Publicity," page 23, Proceedings, Fifth An- nual Convention, Central Association of Commercial Secre- taries. COMPETITION BETWEEN CITIES 233 The assets of the city of Milwaukee, to take Milwaukee' Assets a concrete case, are thus set forth in the 1913 Year Book of the Milwaukee Merchants and Manufacturers Association : ''Health: Figures furnished by the Health Departments of other cities show conclusively that Milwaukee has the lowest death rate of any of the larger cities of the United States. . . . ''Homes: Milwaukee is essentially the 'city of homes,' second to no other city as a place of residence afforded by the elevations which surround the city. ... It has no congested slum or tenement districts. "Parks: , . . Every section of the city has its own park. Its residence streets are beauti- ful, many being over-arched with maple and elm trees. "Shipping: Milwaukee is the largest re- ceiving port and one of the greatest land and rail exchange points on the Great Lakes, con- necting the water route to the East with the rail lines to the West and Northwest. The inner harbor consists of three large rivers, . . . all affording twenty miles of dockage and am- ple connections with railroad warehouses and manufacturing plants. "Civic: Milwaukee is the most orderly and law-abiding city in the nation, having a smaller percentage of crime and vice than any other. 234. AMERICAN CHAMBERS OF COMMERCE "Public Utilities: The rates for water, gas, and electric power and light are most reasona- ble. The city administration maintains a help- ful attitude towards all industrial enterprises.^ INDUSTRIAL DEVELOPMENT The growth of one community as a manu- facturing center may possibly be independent of a corresponding decrease elsewhere, but as a general thing industrial development involves the element of competition between cities. Going concerns remove from one place to an- other in order to obtain increased facilities for transportation or production, or because the new location offers better living conditions. The full value of the economic arguments ad- vanced in favor of civic improvement is thus apparent. Most chambers of commerce maintain in- industriai dustrial burcaus for the purpose of discovering contemplated removals and securing a first hearing for the advantages of their respective cities. A recent Government report* criti- & Commercial Milwaukee: 1913 Year Book of the Merchants and Manufacturers Association, 175 pages 4to. References to pages 6, 7, 10, and 12. See Putnam's, 1910, Vol. VII, pages 673-80, "Era of Civic Advertising." 4 Brands, Commercial Organizations, etc., page 46. A. F» Bureaus COMPETITION BETWEEN CITIES 235 cises the practice of bidding for industrial con- cerns and offering large bonuses and other ma- terial inducements. The first duty of a cham- ber of commerce is to the local enterprises ; by making them healthy, the community will be better off in times of business depression. A report of the Industrial Committee of the conserva- tive Policy Merchants' Association of New York, "in the matter of obtaining, and providing for, new in- dustries in New York city"^ advises a sane, conservative policy and makes these significant statements : "The Merchants' Association should encour- age only carefully considered attempts to bring new industries to New York. . . . The loca- Bacon, "Facts Which Commercial Bodies Must Face," The [dmerican City, Vol. X, no. 6, page 555, argues that the re- sult of attracting industries to a city is likely to be the crea- tion of slum dis.tricts, because the city has not enough decent houses for the accommodation of the new employees and their families. The same idea is brought out by W. L. Finch, "Town Development," page 34 of the Proceedings, Fifth Annual Convention of the Central Association of Commercial Secretaries. 5 Greater New York, Vol. II, no. 3, page 1. See further, same, no. 4, page 1; no. 14, page 8; and no. 27, page 1. Further references on location of industries: Clay's City Building, Chapter III; The Nation's Business, Vol. I, no. 2, page 7, "Detroit"; Vol. II, no. 1, page 10, "Achievements of Commercial Organizations — Locating Industries"; G. H. For- see, "Industries," page 26, Proceedings, Fifth Annual Con- vention, Central Association of Commercial Secretaries. 236 AMERICAN CHAMBERS OF COMMERCE tion of industries worth having is determined by economic factors and not by mere sohcita- tion. . . . The purpose of the Merchants' As- sociation should be to develop the entire terri- tory which is tributary to New York. We deem it wise to steer such enterprises as cannot be secured for Greater New York to Jersey City, Newark, etc., rather than have them lo- cate at Cleveland or some other distant city. . . . We are against the policy of giving arti- ficial advantages to new concerns. .^. . We beheve that the Merchants' Association through the Industrial Bureau should make a thorough study of the whole problem of the location of industrial plants so that it will eventually become known as an authority on the subject." The so-called Williamsport plan for financ- Financing ing industries has frequently been followed by boards of trade, notably in Scranton, Pa.,^ and Boston, Mass. The Boston Chamber of Com- merce was responsible for the organization of an Industrial Development Company. The « See M. K. Edgar, "For Financing Industrial Develop- ment," The American City, July 1914, page 56, describing Scranton's plan. Also, The World's Work, Vol. XXIV, pages 705-706, "Boston Credit Lending"; W. E. Holmes, "The Guaranty Fund," page 29 of the Proceedings, Fifth Annual Convention of the Central Association of Commercial Secre- taries. COMPETITION BETWEEN CITIES 237 latter guarantees on the security of a credit fund the notes of men with enterprises to es- tablish, who have been previously recommended by the Chamber. The officers of the Devel- opment Company have the power to reject such recommendations as they wish. The lia- bility of each subscriber to the credit fund of $500,000, $50,000 of which is paid in, is lim- ited to the amount of his guarantee and all losses are distributed pro rata. The Cincinnati Chamber of Commerce, industrial Survey through its Civic Industrial Department, re- cently started an industrial survey of the city. A circular letter has been sent to manufactur- ers asking them to furnish data regarding the cost of raw materials, freight rates, limits of natural markets, and the cost and availability of labor. These and other facts will enable the officials to supply correct information concern- ing industrial conditions in Cincinnati. In conjunction with this investigation a vocational education survey is being conducted for the purpose of finding out what employees in the different industries need to learn and what part of it they could learn in industrial schools. 238 AMERICAN CHAMBERS OF COMMERCE CONVENTIONS Much competition arises between rival cities to secure the conventions of associations and societies which are annually held in the United States to the number of over 18,000/ The value of conventions to a city grows out of the influx of people and the resultant circulation of new money. The majority of commercial bodies, through their convention boards or com- mittees, endeavor to bring conventions to their respective cities, favoring this means of ob- taining publicity. The Committee on Conventions of the Bos- Fiie of ton Chamber of Commerce maintains a file Data concerning transportation facilities and avail- able hotels and halls, and also keeps track of all the important conventions in the United States. Before inviting a convention to Bos- ton, the Chamber of Commerce makes certain that local organizations are willing to provide 7 Brand, Commercial Organizations, page 34. See above page 77. For practical suggestions regarding the securing and en- tertainment of conventions see S. H. Clay, City Building, Chapter IV, "Conventions." See M. Carmichael, "Conventions," page 24, Proceedings of the Fourth Annual Convention of the Central Association of Com- mercial Secretaries. COMPETITION BETWEEN CITIES 239 proper entertainment for the convention dele- gates. According to the Fourth Annual Directors' Report: "When it is considered that the committee is compelled to work without funds and to bid against the substantial inducements offered to conventions by other cities, the advantages of Boston as a convention city, and the efficiency of this committee as an agency to induce con- ventions to come to Boston should be appre- ciated." « Mr. Ryerson Ritchie, the prominent com- mercial organization expert, though admitting Ritchie on . . 1 /» . , Conventions the advertismg value ol conventions, has pub- licly said that they create an abnormal condi- tion in the city which is not to be preferred to the regular and steady course of business. In his opinion: "The greatest of conventions with baggage and banners is not of as much value as one little factory whose operatives and their families live and move about here 365 days in the year." ^ 8 1912 Report of the Boston Chamber of Commerce, pages 97-8. 9 Ryerson Ritchie, "The Chamber of Commerce and the Peo- ple." The American City, Vol. V, pages 74-7. 240 AMERICAN CHAMBERS OF COMMERCE Campaigning for conventions, nevertheless, is a major activity in even the most prominent commercial organizations. Bonus-giving to secure a convention is discountenanced, and efficient organizations generally ascertain the benefits likely to accrue to the city before ne- gotiating with convention representatives. NEWARK VERSUS NEW YORK CITY The contests in which cities engage may be conducted by strategy as shown in the case of the Passaic railroad bridges. In 1903 the Merchants' Association of New York made ap- plication to Secretary Elihu Root of the War Department for an order to authorize the vari- ous railroad companies to close their draw- bridges over the Passaic River two and one- half hours every morning and afternoon, sus- pending river traffic during these periods. The purpose of this application was to benefit the New York commuters and to forestall the possibiUty of railroad delays in rush hours when dozens of trains pass through Newark and over the Passaic River on their way to New York. The Newark Board of Trade, upon hearing of this attempt on the part of COMPETITION BETWEEN CITIES 241 the Merchants' Association and perceiving that Newark's large river commerce was threatened, communicated with Washington and secured the appointment of a Court of Inquiry, before whom several hearings were held. As a result the Newark Board of Trade received the as- surance that these bridges would not be closed to navigation, nor would they be permitted to remain closed until they had been raised a specified height above low water and until the Government had completed river improve- ments so that tidal conditions would not be a factor in the navigation of the Passaic.^^ In 1907, when Mr. Taft was Secretary of second War, the New York business men, seconded ^^^ by the railroad interests, made another appli- cation for permission to close the bridges at certain hours. In this case the move was planned so quietly that it almost escaped the notice of the Newark Board of Trade. How- ever, twenty-four hours after the first news of this attempt reached the Board, a Newark del- egation was conferring with Secretary Taft in Washington. 10 1903 Report of the Newark Board of Trade, page 59. See also "A New Force for City Efficiency," The World^s Work, Vol. XVIII, pages 11654-6, June 1909. 242 AMERICAN CHAMBERS OF COMMERCE "It was my privilege," writes Secretary Reilly of the Newark Board of Trade, "to off er the brief on behalf of our Board, and as it would have taken twenty minutes' time to read the entire brief and the time left at our dis- posal was only five minutes, I simply quoted one paragraph and the decision of the Secre- tary, Honorable William H. Taft, was sub- stantially in the words of the paragraph as fol- lows: " 'Twelfth: The proper official of each of the railroads should be required to present a statement showing the actual detentions and interruptions to passenger train schedules, un- der affidavit ; such statement to contain the date of detention, the actual cause of detention, the time lost, the point at which detention oc- curred, either through terminal congestion, congestion at the tunnels, or detention caused by the opening or closing of bridges ; such state- ment should be insisted upon before considera- tion is given to the petition to penalize river traffic and river front property by a closed period.' "^^ THE PORT OF BOSTON MOVEMENT The special activity of the Boston Chamber of Commerce known as the "Port of Boston Movement," extends far beyond its funda- 11 Letter of James M. Reilly, Secretary of the Newark Board of Trade, December 16, 1913. COMPETITION BETWEEN CITIES 243 mental purpose, harbor development, and gives us an insight into a great modern strug- gle for commercial supremacy. Boston has long sought the opportunity to contend with New York as a seaport. The thoroughly con- structive work now being done by the Boston Chamber with this end in view has already pro- duced material results/^ By virtue of location alone Boston has un- usual commercial advantages and it was the realization of this fact that caused the Cham- ber of Commerce to undertake the present campaign for port improvement. These ad- vantages include proximity to Europe and to South America. The completion of the Pan- ama Canal, moreover, has given Boston added importance as a shipping center. i Development of the Boston water-front was Appropri- ^ . , . , , . 1.1 ation for nrst seriously considered m 1911, when the Harbor Chamber of Commerce prepared a bill calling ments for a special port board to have complete con- trol over harbor development, and also for a large appropriation available for the immedi- 12 See Brooklyn Daily Eagle, October 19, 1913, "Boston Makes Bid for Shipping Trade." Also "Summary," page 62, 1912 Report of the Directors of the Port of Boston. 244 AMERICAN CHAMBERS OF COMMERCE ate use of this board in the construction of piers, terminals, and track connections. The bill further provided for industrial areas con- tiguous to the terminals. It was presented to the committee of the Legislature which re- ported the bill in somewhat altered form, but providing an even larger appropriation than that suggested by the Chamber. The modified bill received the united support of the Chamber of Commerce and other organizations inter- ested. A state-wide campaign resulted in the passage of the act practically in its original form, creating a Board of Directors of the Port of Boston and appropriating $9,000,000 for their use. This Board was appointed by the Gk)vernor and the Mayor in 1911 and con- sisted of four Directors, all members of the Boston Chamber of Commerce.^^ The first accomplishment of the Directors of the Port was to persuade the Hamburg- Amer- ican Line to make Boston one of its ports for transatlantic passenger steamers.^'* At the same time the lease by which the New York, 13 Report of the Boston Chamber of Commerce, 1911, pages 36-7. 1* The Nation's Bttsiness, Vol. I, no. 8, page 4. COMPETITION BETWT:EN CITIES 245 New Haven, and Hartford Railroad had the exclusive use of the Commonwealth Pier was annulled and the pier was re-fitted to accom- modate the Hamburg-American vessels. Of the original appropriation of $9,000,000 for port improvements, $3,000,000 were ap- portioned for this work alone.^^ In Novem- ber 1913 one-half of the improvements on the pier had been completed and work was pro- gressing rapidly. Three of the largest steam- ships in the world could be accommodated at the Conmionwealth Pier at the same time, its capacity equalling the total capacity of any four other piers in Boston harbor. On State land at South Boston preliminary work is in progress for the construction of a large Sirvdock drydock which will be the largest in the west- Planned ern hemisphere. For this purpose $3,000,000 have been appropriated out of the original fund provided by the Legislature and contracts for the use of the drydock have been made with leading transatlantic steamship companies.^^ Tentative plans have also been prepared for the 15 Letter of Mr. Edwin J. Clapp for the Directors of the Port of Boston, November 29, 1913. 16 Fifth Annual Directors* Report, Boston Chamber of Commerce, November 1913, page 10. 246 AMERICAN CHAMBERS OF COMMERCE Handbook Boston's Construc- tive Progrram modernization of a large pier in East Boston, and for the reclamation of State-owned flats in that vicinity. The work will be financed out of the remaining $3,000,000." In order to follow up the port improvements and to induce New England manufacturers to export their products by way of Boston, the Chamber of Commerce in 1913 issued a Handbook of the Port of Boston, This cloth-bound volume of 265 pages was published under the auspices of the Chamber's Commit- tee on Foreign Trade and contains a compila- tion of useful facts concerning shipping facil- ities, customs regulations, tables of foreign moneys, and weights and measures. The success of the "Port of Boston Move- ment" is vitally connected with harbor devel- opment; but no amount of preparation for handling a greater volume of freight will actu- ally increase Boston's commerce. The build- ing up of the city's trade, as the Boston Cham- ber of Commerce has wisely foreseen, depends upon securing New England's co-operation and the good will of the principal foreign coun- tries. Boston has taken a major part in the 17 The Nation's Business, Vol. I, no. 8, page 6. Tour COMPETITION BETWEEN CITIES 247 activity of the International Congress of Chambers of Commerce. ^^ The energetic work of the Boston delegates at the 1910 Con- gress in London was responsible for bringing the Congress to Boston in 1912, the first time that this organization has met in the United States/^ In the smnmer of 1911 the Boston Chamber organized and conducted a seventy- European day torn* of European cities for the purpose of arousing international interest in the 1912 Congress and of extending formal invitations to many organizations and governments. The effect of this tour was to advertise Boston widely among influential Europeans, and to bring to the Boston Congress 850 delegates, more than twice as many as had attended any previous meeting. Of these about 550 came from the forty-four foreign countries repre- sented in the Congress. The whole city of Boston co-operated in furnishing entertain- ment to the delegates. Mayor Fitzgerald took a personal interest in the arrangements and ob- tained an appropriation from the city. The State of Massachusetts joined with the city and 18 See above, page 71 ff. 19 1911 Report of the Boston Chamber of Commerce, page 43. 248 AMERICAN CHAMBERS OF COMMERCE South America Visited Orgranizingr New Eng- land the business men of Boston in bearing the ex- pense of the Congress. In 1913 the Boston Chamber organized a South American Embassy composed of New England business men and representatives of the professions. This party made a three months' tour of seven of the foremost South and Central American countries and three of the West Indies colonies, covering altogether 16,000 miles. The declared object of the tour, — the establishment of cordial commercial rela- tions between New England and South Amer- ica, — was satisfactorily achieved. Everywhere commercial organizations, both local and na- tional, extended elaborate courtesies. This experiment by the Boston Chamber of Com- merce was closely watched throughout the country and official Washington manifested great interest in the results. While thus effectively advertising Boston to foreign countries the Chamber of Commerce has been concerned even more with uniting the industrial forces of New England and training New Englanders to help Boston in her fight for commercial supremacy.'^ Having provided 20 See also Bert Ball, "Inseparable City and Country," page COMPETITION BETWEEN CITIES 249 for harbor improvements and created a demand for American goods in foreign countries, the Boston Chamber has turned its attention to developing the source of supply. In the fall of 1911 the Chamber of Com- merce presented to the people of New Eng- land an Industrial and Educational Exposi- tion, featuring many New England products and manufactures. The success of this ex- position in drawing the attention of the whole country to New England was marked and led to the Industrial Exposition of 1913, con- ducted on a much larger scale, with the co- operation of the principal civic and commercial organizations all over New England. Reference has already been made to the book, New England: What It Is and What It Is «New to Be, published in 1911 by the Boston Cham- ^^ ^^ ber. This volume, in addition to possessing true advertising value, has done much to create a spirit of solidarity throughout the New Eng- land States. In several chapters the industries, 51, Proceedings of the Fourth Annual Convention of the Cen- tral Association of Commercial Secretaries; J. L. Kling- ler, "The Metropolis and the State," in Commercial MiVwa/O' kee, 1913 Year Book of the Merchants and Manufacturers Association, Milwaukee, page 16. 250 AMERICAN CHAMBERS OF COMMERCE resources, and transportation facilities in this section are attractively described with a view to making the New Englander proud of his part of the country. The Boston Chamber has done well in emphasizing the close relation- ship existing between the city and the agricul- tural districts, and by helping New England communities to grow and prosper it has also succeeded in making them turn to Boston as the commercial center of New England. NEW York's port problems New York harbor has a water-front 748 miles long.^^ For the fiscal year ending June 30, 1913, New York's share of the United States imports was 58 per cent, of the total amount imported.^^ Figures for the fiscal year ending June 30, 1913, show that the value of New York's exports was $917,935,988, about thirteen times that of Boston's exports for the same period. These three facts epito- mize the immensity of New York's com- merce. Various influences have combined, however, 21 Greater New York, Vol. II, no. 30, page 7. 22 Greater New York, Vol. II, no. 29, page 7. COMPETITION BETWEEN CITIES 251 to make insecure New York's commercial su- premacy, and, unless material changes can be effected to relieve congested conditions along the water-front, and to provide modern facili- ties for the transfer of freight from steamers to railroads, there is grave danger that New York will lose much of its commerce. Just as in Boston we found the Chamber of Com- merce leading in port development, so in New York the Merchants' Association and the New York Chamber of Commerce have worked un- tiringly to convince the local Board of Esti- mate and the Dock Commissioners that the need for prompt action is imperative. At the present time only one railroad, the New York Central, has been able to extend its freight tracks on Manhattan Island. These tracks run from Spuyten Duyvil to Canal Street, most of the distance along the west side water-front at grade. The seven other rail- roads entering the west side of the city have their main freight terminals at Jersey City and Hoboken and bring their freight cars across to New York on floats. This necessitates these companies occupying 28^/2 of the 72 piers on the congested portion of the west side water- 252 AMERICAN CHAMBERS OF COMMERCE front extending from Thirtieth Street to the Battery, Obviously, this condition should be remedied. The Merchants' Association, the Citizens' Plan to Union, and the Chamber of Commerce have ex- B-elieve i • . « Congestion prcsscd thcmsclvcs as being m favor of a plan providing for an elevated freight railway along the marginal way from Sixtieth Street to Ful- ton Street. At various points, this plan pro- vides for terminal buildings for the joint use of the railroad companies. The terminal buildings would then be connected by means of freight viaducts with a single water ter- minal to which railroad cars would be brought on floats from the Jersey side. This plan would, if executed, release all of the twenty- eight piers now used by the railroads and make room for steamships which are already ham- pered by inadequate accommodations.^^ The Legislature has recently passed three acts de- signed to make the plan effective and the civic and commercial bodies in New York are en- 23 Arthur C. Ludington, "The New York Water Terminals." National Municipal Review, Vol. I, page 87. See magazine section N. T. Times, page 5, Sunday, July 36, 1914, "City's Piers for Huge Ships WiU Soon Be Finished." COMPETITION BETWEEN CITIES 253 deavoring to promote the much-needed im- provements in every possible manner. The history of commercial organizations in this country shows struggle and achievement, a realization of the power of co-operative effort, and the applying of this power to things worth while. "We need more than anything else," it has been said, "something to create a sense of a city, a feeling of unity and dependence, of common obligation and purpose." The true function of the modern chamber of commerce has never been more aptly phrased. 4- APPENDIX APPENDIX "A" The following statistics have been compiled from the government publication^ Commercial and Agricultural Organisations in the United States.^ The first colmaan gives the approximate number of commercial bodies in each State. In the second column is shown by States the number of commercial bodies which include civic work among their activities. State Total Civic work Alabama 35 30 Arizona 11 10 Arkansas 44 39 California 160 125 Colorado 80 65 Connecticut 44 36 Delaware 2 1 District of Columbia 4 2 Florida 48 - 45 Georgia 43 34 Hawaii, Territory 2 1 Idaho 23 21 Illinois 171 134 Indiana 101 85 Iowa 122 111 Kansas 61 45 Kentucky , 48 42 Louisiana 35 25 Maine 42 40 Maryland 24 16 Massachusetts 93 72 1 Above, 47. 267 258 APPENDIX State Total Civic work Michigan 63 51 Minnesota HO 97 Mississippi 34 29 Missouri 132 84 Montana 14 12 Nebraska ...101 71 Nevada 3 3 New Hampshire 17 17 New Jersey 43 36 New Mexico 18 10 New York 165 115 North Carolina 54 ' 39 North Dakota 41 41 Ohio 114. 84 Oklahoma 83 62 Oregon 28 21 Pennsylvania 170 113 Philippines • 1 1 Porto Rico 1 Rhode Island 12 10 South Carolina 30 29 South Dakota 22 20 Tennessee 45 33 Texas 187 138 Utah 30 25 Vermont 17 14 Virginia 56 36 Washington 43 25 West Virginia 31 24 Wisconsin 58 42 Wyoming 14 13 Summary 2930 2274 APPENDIX 259 APPENDIX "B" On September 15, 1913, the New York Bureau of Municipal Research wrote ^ to the secretaries of the fol- lowing commercial organizations: Baltimore Merchants & Manufacturers Assn. Boston Chamber of Commerce BuiFalo Chamber of Commerce Chicago Association of Commerce Cincinnati Chamber of Commerce Cleveland Chamber of Commerce Denver Chamber of Commerce Detroit Board of Commerce Indianapolis Chamber of Commerce Jersey City Board of Trade Kansas City (Mo.) Commercial Club Los Angeles Chamber of Commerce Louisville Commercial Club Milwaukee Merchants & Manufacturers Assn. Minneapolis Civic & Commerce Association Newark Board of Trade New Orleans Association of Commerce New York Chamber of Commerce New York Merchants* Association Philadelphia Chamber of Commerce Pittsburgh Chamber of Commerce Portland (Ore.) Chamber of Commerce Providence Board of Trade Rochester Chamber of Commerce St. Louis Business Men's League St. Paul Association of Commerce San Francisco Chamber of Commerce 2 Above, 137. 260 APPENDIX Seattle Chamber of Cammerce Washington Chamber of Commerce and Chamber of Commerce of the U. S. A. The following is an excerpt from the letter: "From time to time our advice is asked with respect to organizing chambers of commerce, boards of trade, etc. Of course, our own special interest is in the ques- tion whether or not a chamber of commerce should con- cern itself with matters which fall under the head of municipal research, i.e., methods of municipal budget making, surveys of city departments, reports upon forms of organization, efficiency bureaus, cost accounting, etc. You will place us much in your debt if you will care to advise us . . . which five organizations mentioned in the accompanying list of thirty (enumerated above) you would rank first with respect to (a) the accomplishment of results for the community's general commercial and civic spirit and (b) success in influencing individual members to express public spirit and to interest them- selves in efficient citizenship. . . . We shall regard your communication as strictly confidential but would like the privilege of using the summary of the votes, whether in writing requests for information to individual bodies, in commenting upon it in addresses or papers, or possibly in use in one of our Efficient Citizenship bulletins deal- ing with this general subject." Twenty-seven replies to this letter were received, of which twenty-three submitted votes. The results are shown on the accompanying tables. APPENDIX 261 Standing with Respect to the Question (a) Votes Clieveland 19 Chicago 17 Boston 16 , Detroit 11 N. Y. Merchants' Assn... 8 Minneapolis 6 Kansas City 5 New Orleans 5 Los Angeles 3 Rochester 3 San Francisco 3 Seattle ^ Baltimore 1 Portland , I St. Louis 1 Washington 1 Total Number of Votes. Question (b) Votes Cleveland 19 Chicago 15 Boston 14 Detroit 6 Kansas City 6 Minneapolis 6 Rochester 6 Los Angeles 4 New Orleans 4 N. Y. Merchants' Assn.. 4 Buffalo 3 Cincinnati 3 Baltimore Denver Louisville Newark N. Y. Ch. of Com Philadelphia St. Louis San Francisco Seattle 262 APPENDIX « -IH.S^ « ^ o 5 •* CO CO (Ml S O eo O "ZiH ® ■^eCNNCJrHT-tr-l 5 |ll-3>;i|^|| eOCQOC)P)iHi-lrm-4l-l 13 eS -*a O S »-i " 5o ® a ^ o l J •- (» O O 3^^ .^ «2 III j §11^1 I'^.igJ OQ(OCOCQOCIiHT-liHi-4f-IHiH ra *-' © o »4 a o 5 as t> eO CO N N fH H iH tH >;.2 00 V fl »0' • Handbook of the Port of Boston, published by the Boston Chamber of Commerce. History of the Government of Denver, The, C h. King. Law of CbMMERCiAL Exchanges, The, C. A. Legg. ,_„.—-' Making of a Town, The, F. L. McVey. New City Government, The, H. Brubre. New England, edited by Geo. French, published by the Bos- ton Chamber of Commerce. Philadelphia in 1830, E. L. Carey and A. Hart. Picture of Philadelphia, The, /. Mease. Port and City of Philadelphla, The, F. H, Taylor and W, H. 8chof. pamphlets Abcerican Commercial Institutions, W. H. Schof. Chamber of Commerce of the State of New York, 1848, Charles King. 265 266 BIBLIOGRAPHY CiTT Planning and Allied Topics, Select List of Works Relating to. New York Public Library, 1913. Course in Citizenship, Syllabus of the, Cornell University, 1913. Dayton, Proposed Charter for the City of. Prepared and Proposed by the Charter Commission. Harvard University Graduate School of Business Admin- istration, Pamphlet and Schedule of Courses, 1913. Miscellaneous Series — No. 6b, Promotion of Commerce, Gov- ernment Printing Office, 1912. Miscellaneous Series — No. 8, Commercial and Agricultural Organizations of the U. S., Government Printing Office, 1913. Municipal and Civic Books, Selected List of, published by The American City. Olean, Proposed Charter for the City of. Proposed by the Citizens' Charter Committee. /~N» Reading, Pennsylvania. Report on a Survey of the Municipal Departments and the School District. Pre- pared for the Chamber of Commerce of Reading by the New York Bureau of Municipal Research, December 1913. Special Agents Series — No. 60. Commercial Organizations, by E. A. Brand. Government Printing Office, 1912. Special Agents Series — No. 78. German Commercial Or- ganizations. Government Printing Office, 1914. Special Agents Series — No. 79. Commercial Organizations in Southern and Western Cities. G. W. Doonan. Government Printing Office, 1914. ,^--% Sumter "City Manager" Plan of Municipal Government, The, published by the Chamber of Commerce of Sumter, S. C, 1913. Vocational Education, What Chambers of Commerce Can Do for, a. E. Dodd and C. A. Prosser. periodicals » American City, The. Annals of the American Academy, etc. ^^^ Atlanta Chamber of Commerce Progress. Bankers' Magazine. Brooklyn Daily Eagle. j^ Bulletin of the Pan American Union, BIBLIOGRAPHY 267 <^hamber of Commerce Journal (Boston). Chamber of Commerce News (Boston). Charities. Chautauquan. Chicago Commerce. Chicago Municipal Development Magazine. Current A fairs (Boston Chamber of Commerce). ' Daily Consular and Trade Reports. Detroiter, The, Greater Dayton. Greater New York (N. Y. Merchants' Association). Harper's Magazine, Harper's Weekly. Munsey's Magazine. National Municipal Review, Nation's Business, The. New York Chamber of Commerce Bulletin, New York Times. Outlook, The. .Providence Board of Trade Journal. Putnam's. Review of Reviews (U. S. edition). 8an Francisco Chamber of Cormnerce Journal. Scranton Board of Trade and Engineering Journal. Town Development. Worcester Magazine. World To-day, The. World's Work, The. ORGAinZATION REPORTS Boston Board of Trade, 1855, 1856, 1859. Boston Chamber of Commerce, 1911, 1912. Boston Chamber of Commerce Directors' Report, 1913. Central Association of Commercial Secretaries — Proceedings of Annual Meetings, 1912, 1913. Committee on Standardization of Commercial Organizations — First and Second Reports. Cleveland Chamber of Commerce, 1911, 1912, 1913, 1914. See Footnotes, Chapter VII, for special committee reports. Madison Board of Commerce — description of, undated. National Board of Trade, 1868, 1878, 1911. 268 BIBLIOGRAPHY National Council of Commerce — Proceedings of First Meet- ing, 1907, and of First Annual Meeting, 1908. National Municipal League reports on (1) City Government by Commission, National Municipal Review, Vol. I, page 40; (2) The Coming of the City-Manager Plan, National Municipal Review, Vol. Ill, page 44. New York Bureau of Municipal Research — Six Years of Muni- cipal Research for Greater New York — 1912. Also: Bureau's Training School for Public Service, 1912, 1913. Newark Board of Trade, 1903. Philadelphia Board of Trade, 1889. .Port of Boston, 1912 Report of the Directors of the. Rochester Chamber of Commerce, 1912, 1913. INDEX Accident prevention, 50. Advertising, civic, 232. Agriculture, 49. American Association of Commercial Executives, Committee on standardiza- tion, 83; consolidation, 131. American City, The, 82, 126, 128, 133, 194, 210, 218, 235, 236, 239. American Commercial Insti- tutions, 31, 41, 45, 75. Arbitration, 50. Arbitration committees, Bos- ton Board of Trade, 26; Phila. Chamber of Com- merce, 31. Arnold, Mayor of Denver, 199. Associated Chambers of Com- merce of N. Y. State, 46. Associations for the Non-Im- portation of English Goods, 14. Atlanta Chamber of Com- merce, 172. Bankers* Magazine, 15. Baltimore Merchants and Man- ufacturers Association, 259. Batterson, E. S., 210. Bennett, J. W., 176. Board of trade, city's garri- son, 231; civic field limited, 269 209; committees, 216; con- structive work, 216; defined, 7; distribution in U. S., 47; English, 7; existing as unit, 55; first, 6; history, 6; name in East, 47; number, 1858, 42. Board of Trade and the PrO' duce Exchange, The, 6. "Boards of Trade, etc.," 43. Boldt, Sec. Adolph, 211. Bond-issue, Oklahoma City, 226. Bonus-giving discountenanced, 240. Boston Associated Board of Trade, 30. Boston Board of Trade, com- mittee on shipwrecks, 27; membership, 28 ; organized 1854, 26; recommended U. S. Board of Trade, 56; re- ports, 26, 27, 29. Boston Chamber of Com- merce of 1836, dissolution proposed, 25; organized, 24. Boston Chamber of Conmierce of 1885, 30. Boston Chamber of Commerce of 1909, active in Interna- tional Congress, 247; build- ing, 30; by-laws, 127; city garbage, 203; city planning, 218; civic work, 198; com- 270 INDEX bines organizations, 30 ; commercial secretary, 127 ; committee on conventions, 238; consolidation, 30; co- operation in New England, 249; Directors' report, 239, 245 ; emphasizing relation of city to country, 250; European tour, 247; Hand- hook of the Port of Boston, 246; New England, 249; or- ganizing New England, 248; port development, 243; re- organization of National Board of Trade attempted, 62; reports, 239, 244, 247; seal, 30; South American Embassy, 248 ; waterfront Improvement, 243. Boston drydock, 245. Boston garbage contract, 203. Boston Importing Co., 23. Boston mercantile associa- tions, 22. Boston Movement, Port of, 242. "Boston Chamber of Com- merce and the Garbage Contract, The," 205. Boston Chamber of CoTnr merce Journal, 30. Boston Chamber of Commerce News, 129, 205. Boston Commercial Exchange, 30. Boston Industrial Develop- ment Co., 236. Boston mercantile associa- tions, 22. Boston Merchants' Associa- tion, 30. Boston Produce Exchange, 30. Brand, E. A., 76. Brown, Mayor, Kansas City, 199. Brufere, Henry, 123, 194, 195, 209, 221. Bryce, Hon. James, 188. Buffalo, Chamber of Com- merce, 259; growth of, 138. Buffalo Bayou, 222. Bureau of Foreign and Do- mestic Commerce, 45, 75. Bureau of Manufactures, 7G. Bureaus, industrial, 234. Burks, Dr. J. D., 172. California, Development Board, 46 ; Manufacturers' and Producers' Association, 46 ; Promotion Committee, 46; State Board of Trade, 46. Central Association of Com- mercial Secretaries, Pro- ceedings, 114, 120, 129, 130, 134; consolidation, 131. Chamber of commerce, com- posite of city's intelligence, 215; defined, 7; distribution in U. S., 47; European, 7; evolution, 43; existing as unit, 55; first, 5; first in U. S., 11; functions, 81; Ger- man, 5; history, 6; in poli- tical evolution, 173; name in East, 47; numbers in U. S., 41, 42. "Chamber of Commerce and the People, The," 239. Chamber of Commerce of the INDEX 271 State of New York, 1848, 13. Chamber of Commerce of the U. S. A., committees, 69; federal charter sought, 65, 66; functions, 67; National Board of Trade not con- nected with, 63; oflScial or- gan, 70; organized 1912, 62; purpose, 64; Wheeler, Ex- Pres., 43. Charities, 50. Charlestown Chamber of Com- merce, 41. Charter and By-laws with a History of the Chamber of Commerce of the State of New York, 12, 21. Cherington, P. T., 44, 120. Chicago Association of Com- merce, 125, 259. Chicago Bureau of Public Ef- ficiency, 133. Cincinnati, Hamilton aided by, 206 ; population compared, 138. Cincinnati Chamber of Com- merce, 239, 259. City Board of Advisers, Den- ver, constituted, 199; dis- continued, 199. City Building, 128, 129. City manager plan, Dayton, 185; Lockport, 178; Clean, 180; Sumter, 180. "City Manager Plan, The," 187. City planning, 217, 219. Civic, advertising, 232; bibli- ography, 221 ; Center, Cleve- land, 157; field limited, 209. Clapp, E. J., 245. Clay, S. H., 128, 129. Clendening, E. M., 202. Cleveland Board of Trade, committee, 141; now Cham- ber of Commerce, 139; ob- jects, 139. Cleveland Chamber of Com- merce, best civic organiza- tion, 137, 261 ; building dedi- cated 1899, 142; coal steal- ing report, 154; Havens, Sec, 83, 84, 123, 137, 147, 159, 162; model of efficiency, 139; plan of Investment Co., 165; represents busi- ness interests, 144; Ritchie, Sec, 138, 140, 141, 146; Scott, Sec, 147; structure, 145; study of new charter, 161; support of group plan, 157. "Cleveland Chamber of Com- merce, The," 144. Cleveland city charter, 161. Cleveland civic center, 157. Cleveland Electric League, 145. Cleveland Federation for Charity and Philanthropy, 147. Cleveland growth in popula- tion, 138. Cleveland industrial develop- ment, 164. Cleveland Real Estate Board, 145. Cleveland South End Board of Trade, 144. Cleveland West Side Cham- ber of Industry, 144. 272 INDEX "Cleveland's Education Thru Its Chamber of Commerce," 146. "Cleveland's Federated Giv- ers," 148. Colonial History of the New York Chamber of Com- merce, 13. Commerce not oflScially repre- sented, 55. Commercial and Agricultural Organizations in the U. 8., 78, 257. Commercial clubs, distribution in U. S., 47. Commercial Milwaukee, 234. Commercial organizations, by states, 257 ; characteristic names, 47; civic functions, 257; evolution, 43; federa- tion, 56; functions, 49; his- tory in 3 periods, 117; N. Y. Chamber oldest, 11; numbers of, 45, 46; pro- totypes, 3 ; publications, 129 ; represented officially, 197. Commercial, Organizations, 77, 232, 234. "Commercial Organizations in Social Welfare," 177. Commercial Organizations in Southern and Western Cities, 78, 173, 210, 232. Commercial Secretary, Har- vard courses, 119; profes- sion, 118; Taft, Pres. on, 118; training, 118; work, 127. Commission government, citi- zen participation, 194; Des Moines, 175; efficient from business standpoint, 193; Galveston, 175; Haverhill, 176; Oklahoma City, 225; participating plan, 196 ; popular rule provisions, 194 ; report, National Municipal League, 193; St. Paul, 175; sensitive to public will, 174; Topeka, 176; see also: City Manager Plan. Committees, arbitration, 26, 32; benevolent associations, 148; coal thefts, 154; con- ventions, 238; group plan, 157; housing, 142; indus- trial, 235; municipal art, 160; public affairs, 216; shipwreck, 27; standardiza- tion of commercial organi- zations, 83. Commonwealth Pier, 245. Consular reform, 141. Conventions, annual number, 238; committee on, 238; Ritchie on, 239. Co-operation, city with com- mercial bodies, 197; civic clubs with conunercial bodies, 209; invited by city officials, 197. "Co-operation of Commercial Organizations with the Press," 129. "Co-operation of Municipal Authorities with Commer- cial Organizations," 202. Cornell course in citizenship, 122. Cruger, John, 12, 13, 15. Current A fairs, 129. INDEX 273 Dayton, Proposed CharUr of the City of, 186. Dayton Bureau of Municipal Research, 185. Dayton Chamber of Com- merce, 185. **Dayton Charter, Defects in the," 186. Dayton Charter Commission, 185. Dayton City Manager, 186. Deland, Sec. Thorndike, 130. Denver, The History of the Oovemment of, 198. Denver Chamber of Com- merce, 199, 259. Denver City Board of Ad- visers, 199. Department of Commerce, 76. Department of Commerce and Labor, 45, 62. Des Moines commission gov- ernment, 175. Detroit, growth of, 138. Detroit Board of Commerce, secretary of, 259; transpor- tation school, 126. Directors of the Port of Bos- ton, 244. Doonan, G. W., 78. Douglas, W. H., 63. Drydock, Boston, 245. Duluth Commercial Club, 216. Earliest Arbitration Records of the N. Y. Chamber of Commerce, 15. "Efficiency Standards in Mu- nicipal Management," 172. English Board of Trade, 6, 56. Eva, H. v., 217. Fairs, 3. Federal Government, 55. Federation movement, 53. Fesler, Mayo, 210. Fire prevention, 50. Fitton, Pres., 206. Fitzgerald, Mayor, 247. Ford, G. B., 218. Foreign trade, 50. Fraley, Frederick, 31, 34, 35, 231. Functions of commercial bodies, 46, 49; also see: ad- vertising, civic; arbitration; board of trade; chamber of commerce; city planning; commercial organizations ; commercial secretary; com- mittees ; conventions ; co- operation; federation move- ment ; industrial bureaus, and development ; sanita- tion; standardized by-laws; structural principles ; and traffic bureaus. Galveston commission govern- ment, 175. Garbage contract, Boston, 203. Garfield, H. A., 141, 173. German municipal govern- ment, 177. Government of European Cities, The, 178. Greater Dayton Association, 185, 187. Greater Erie, 219. Greater New York, 113, 129, 235, 250. 274 INDEX Guild, J. M., 134. Guilds, 4. Guthrie, city of, 225. Industrial development, 51, 234. Industrial and Educational Exhibition, 349. Industries, 50. Initiative, see commission gov- ernment, popular rule pro- visions. ress of Chambers of Commerce, Boston Chamber active in, 247; functions, 71. Hamilton Chamber of Com- merce, 205. Harper's Weekly, 144. Harvard secretarial training, , . '.' , ^ ° International Cong 119. ^ Havens, Sec. Munson, 83, 84, 123, 137, 147, 159, 162. Haverhill Board of Trade, 176. Haverhill commission govern- Jersey City Board of Trade, ment, 176. 259. "History of the New York Johnson, Pres. Cleveland Chamber of Commerce," 22. Chamber of Commerce, 173. Home rule amendment, 185. Houston Chamber of Com- Kansas City Commercial Club, merce, 222. Houston Ship Channel, 221. "Houston Ship Channel in Epitome, The," 224. 201, 259. Kansas City Mayor's Cabinet, 199. Kellaway, H. J., 205. 'How Dayton's City Manager King, Charles, 12, 14, 16, 17, Plan Is Working," 187. 'How The Chamber of Com- 18, 21. King, Clyde L., 198. merce of Hamilton Met a Kittredge, C. M., 199. Great Emergency," 206. "Know Your Own City," 131. Howe, F. C, 146. Lockport Board of Trade, 178 "Ideal Relations Between the Chamber of Commerce and ^os Angeles Chamber of Com- merce, 259. the Municipal Government," 211. "Increasing the Effectiveness of Commercial Organiza- tions," 128. Indianapolis Chamber of Com- merce, 259. Industrial bureaus, 234. Louisville Commercial Club, 259. Low, Pres. Isaac, 13, 16, 17. Ludington, A. C, 252. McVey, F. L., 175, 177, 232. Magistrat, 177. INDEX 275 Making of a Town, The, 175, 177, 232. Manchester Ship Canal, 222. Mayor's Cabinet, 199. Mead, S. C, 81. Mease, Dr. James, 33. Members' Council, 113. Merchant guilds, 4. Milwaukee Merchants and Manufacturers Association, 233, 259. Minneapolis Civic and Com- merce Association, 259. "Modern Chamber of Com- merce, The," 137, 138, 215. Moore, W. B., 227. Municipal government, Ger- man, 177. Municipal reference bureaus and libraries, 132. Munro, W. B., 178. Murdoch, G. H., 194, 195, 196. Nagel, Sec, 62. National Association of Com- mercial Organization Secre- taries, 85, 132. National Board of Trade, 56. "National Board of Trade, The," 58. National Business League, 45. National Commercial Confer- ence, 62. National Council of Com- merce, 59. National Council of Conv- Tnerce, 60. National Municipal League, 193. National Municipal Review, 82, 138, 154, 172, 173, 174, 176, 186, 189, 193, 215, 221, 252. Nation's Business, The, 44, 64, 65, 66, 69, 70, 72, 73, 85, 120, 131, 133, 171, 172, 177, 189, 221, 227, 235, 244, 246. Newark Board of Trade, 240. New City Government, The, 123, 194, 195, 209, 221. New England, 37, 232, 249. New England Business Fed- eration, 45. New England Society for the Promotion of Manufactures and Mechanic Arts, 23. New Haven Chamber of Com- merce, 41. New Orleans Association of Commerce, 259. New York Bureau of Mu- nicipal Research, Atlanta survey, 172; history, 132; Reading survey, 173; Train- ing School, 123; votes for best organization, 259. New York Chamber of Com- merce, arbitration commit- tee, 15; charters, 15, 18; commercial education, 126; founding, 12 ; membership, 17, 18; oldest in U. S., 11; one of 4 in U. S., 1801, 41; periods in Colonial history, 15, 17, 19; policy conserva- tive, 19; port improvement, 251; present location, 20; removals, 13, 17, 19; seal, 20. New York Citizens' Union, 251. New York City, exports 1913, 276 INDEX ^50; freight terminals, 251; imports, 250. New York Merchants* Asso- ciation, favors terminal plans, 252; industrial com- mittee, 235; Passaic bridges, 240; port improvement, 251; structural form. 111. New York Municipal Refer- ence Library, 133. New York Public Library, 220. New York University, 126. "New York Water Terminals, The," 252. Ohio State Board of Trade, 141. Oklahoma City, bond issue, 226; capital of Oklahoma, 225; Chamber of Com- merce, 224; growth of, 224. "Oklahoma City Unique in Nation," 227. "Origin of Boards of Trade, The," 22. "Origin and History of Boards of Trade, Cham- bers of Commerce, etc., The," 31. Outlook, The, 20, 146. Pamphlet and Schedule of Courses, Harvard Graduate School of Business Admin- istration, 120. Pan-American States Asso- ciation, 45. "Participating Commission Plan of Government, A," 194. Passaic River bridges, 240. Philadelphia Board of Trade, Chamber of Commerce united with, 33; meetings, 35; organization, 34; pres- ent location, 35; speech be- fore, 31, 231. Philadelphia Bourse, 35. Philadelphia Chamber of Commerce — old. Board of Trade united with, 33; early functions, 32; efl&cient, 33; founded 1801, 31; member- ship restricted, 33; one of 4 in U. S., 1801, 41. Philadelphia Chamber of Com- merce — new, 36, 259. Philadelphia Commercial Ex- change, 37. Philadelphia Commercial Mu- seum, 74. Philadelphia Corn Exchange Association, 36. Philadelphia in 1830, 33. Picture of Philadelphia, The, 33. Pittsburgh Chamber of Com- merce, 42, 259. Pittsburgh's population com- pared, 138. Port and City of Philadelphia, The, 36. Port of Boston, Directors of the, 244. Port of Boston, Handbook of the, 246. Port of Boston Movement, The, 242. Port problems. New York's, 250. Portland Chamber of Com- merce, 2^59. INDEX 277 Produce exchanges, 37. "Profession of Power and Promise," 128. Promotion of Commerce, 76. Providence Board of Trade, 259. "Public Affairs Committee, The," 217. Public baths, 143. Reardon, E. I., 160. Recall — see commission gov- ernment, popular rule pro- visions. Redding, L. L., 206. Referendum — see commission government, popular rule provisions. ReUly, J. M., 242. "Relations of Civic and Com- mercial Organizations to Municipal Government, The," 210. Review of Reviews, The, 148. Ricketson, J. H., 43. Ritdiie, Ryerson, 30, 82, 140, 146. Robertson, W. F., 184. Rochester Chamber of Com- merce, 208, 259. Root, Sec. Elihu, 240. Sabine, Lorenzo, «, 22, 23, 24, 25, 34, 35, 42. St. Louis Business Men's League, 259. St. Paul Association of Com- merce, 175, 259. St. Paul's comptroller, 176. "St Paul's Comptroller: An Interesting •Experiment," 176. San Francisco Chamber of Commerce, 259. Sanitation, 50. SchofF, W. H., 36, 45. Scott, Sec, 147. Seattle Chamber of Commerce, 260. Secretary defined, 133. Secretaries, associations of, 131. Secretaries, training of, 118, 131. Senate, U. S., 45. South American Embassy, 248. Standardization committee personnel, 83, 84; reports, 83, 85. Standardized by-laws, 83, 88, Stevens, J. A., 13, 16, 17, 18. Structural principles, 86. Sturgis, W., 24. Sullivan, J. J., 144. Summary, 169. Sumter Chamber of Com- merce, 182. Sumter City Manager, 184. Sumter City Manager Plan of Municipal Government, 183. Syllabus of the Course in Cit- izenship, 122. Taft, Hon. W. H., 62, 241, 242. Topeka Commercial Club, 176. "Town Promotion and City Planning," 210. Traffic bureaus, 49. Training School for Public Service, 123. 278 INDEX U. S. Chamber of Commerce, see Chamber of Commerce of the U. S. A. U. S. Government Board of Trade proposed, 56. Upson, L. D., 186, 187. Upson, W. H., 179. Waite, H. M., 1S6. Washington Chamber of Com- merce, 260. Wheeler, Ex-Pres. U. S. Chamber of Commerce, 43. Williams, C. W., 152. Williams College, 173. Wilson, L. E., 128. Wilson, W. P., 74. Wisconsin, University of, 133. World's Work, The, 48, 75, 156, 187. Worthington, M. M., 183. Wreford, W. B., 129. 14 DAY USE RETURN TO DESK FROM WHICH BORROWED LOAN DEPT. This book is due on the last date stamped below, or " on the date to which renewed. Renewed books are subject to .mmediate recall. REC'D LD^ — ia iH yl\ 8 19718 — 7 2-^* ^ ^^*^^ LD 2lA-60m-4,'64 (E4555b10)476B General Library , University of California Berkeley I U ^D\ lU 298906 Hf 1 UNIVERSITY OF CAWFORNIA IvIBRARY