y 4^ /r-^- 7 Hsitt (fnllege of Agriculture At (S^atmll lnl»6rattH Strata, JJ. g. ICibrarg Cornell University Library HD9007.N7A5 1918 Report of the New York state Food commis 924 013 85? 664 Cornell University Library The original of tiiis book is in tine Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31924013852664 Legislative Document Xo. 36 STATE OF NEW YORK REPORT OF THB New York State Food Commission For Period October 18, 1917, to July 1, 1918 With supplementary report for four months ending November 1, 1918 ALBANY J. B. LYON COMPANT, PRINTEBS 191f NEW YORK STATE FOOD COMMISSION John Mrrcnixi, President, New York City Chaeles a. Wibtino, Cobleakill, New York Albebt K. Mann, Ithaca, New York Albany Office — 205 State street, Albany, N. Y. Secretary of Commission — Charles H. Betts Auditor and Accountant — Charles A. Scott Assistant to the Secretary — A. M. Loomis Bureau of Production Director — Calvin J. Huson Assistant Director — ^H. E. Cole New York City Office — 6 West S7tli street, New York City Assistant Secretary to Commission — Clarence Sohmelzel Secretary to the President — ^Her- schel E. Jones Bureau of Distribution and Trans- portation Director — Cyrus C. Miller Assistant Director in charge of Di- vision of Distribution — George L. Beimett Assistant Director in charge of Di- vision of Trade Organization — Floyd W. Fiske Assistant Director In charge of Di- vision off Complaints — ^Philip A. Johann Bureau of Conservation Deputy Director in charge of New York City district — ^Dr. Mary Schwartz Rose City Leader, Miss Day Monroe Publicity Bureau Director — ^Augustin McNally Counsel Deputy Attorney General — Charles P. Robinson Deputy Attorney General — Samuel A. Berger Food Council of Greater New York Executive Secretary — Isaac H. Klein Ithaca Office — State College of Agri- culture, Ithaca, N. Y. Bureau of Conservation Director — ^Howard E. Babcock Bufialo Offices Bu/reau of Distribution and Trans- portation Assistant Director in charge of Buffalo Office — John GrimmJ Jr. .' Bu/reau of Conservation Buffalo Thrift Kitchen Legislative Document K^o. 35 STATE OF NEW YORK REPORT OF THE New York State Food Commission For Period October 18, 1917, to Julv 1. 1918 ^ (khieh suSeeded the New York State Food Supply Coimnissioi.. J With supplementary report for four months ending November 1, 1918 ALBANY J. B. LYON COMPANY, PRINTERS 1919 /v. w- 7 <^iizi,4-_ TABLE OF CONTENTS FAOE THE CREATION OF THE STATE POOD COMMISSION AND FORMA- TION OF FEDERAL FOOD BOARD 5 PRODUCTION 9 Methods of Meeting the Farm Labor Situation 10 The New York State Boys' Working Reserve 11 Women Farm Labor Specialists 13 Organization of Emergency Farm Labor Committees 15 Farm Tractors 17 Privately owned Tractors Pledged for Continuous Operation 18 Tractor Schools 18 State Ditching Machines 20 Increasing Pork Production 21 Increasing Wheat Acreage 21 Improvement of the Seed Supply 22 War Gardens 23 Prevention of Insect Pests and Plant Diseases 24 The 1918 State Agricultural Census 25 What the 1918 Census Accomplished ' 26 DISTRIBUTION AND TRANSPORTATION 27 Publication of Fair Prices 28 Research Studies of Trade Conditions and Practices 29 Investigations to Determine Fair Margins of Profit 30 Regulations Requiring the Labeling of Staple Foods 31' Reformation of the Live Poultry Trade 33 Investigation of the Butter and Egg Market 35 Need for Improvement in the Facilities for Handling Fish 37 Investigation of the Varieties and Kinds of Fish Handled in the New York Market 38 Census of Food Commodities on Hand in New York City 39 Directing the Marketing of S'urplus Stipplies of Food Stuffs 40 Increase and Decrease in the Use of Various Cereals and Flours. ... 42 Sale of Food Stuffs in Bulk vs. Package 43 Operating Expenses of Feed Dealers 43 Regulations for Inforcement of Meatless Days 44 Milk Prices Fixed by Federal Milk Commission 44 Regulations of Ice Supply and Distribution 45 Work of the Traffic Division 46 Arbitration and Adjustment of Disputes Over Food Shipments 48 Trade Organization 49 Settlement of Labor Disputes in Food Industries 52 CONSERVATION • 54 Food Conservation Publicity 57 Wheat Saving 57 Milk and Dairy Products Campaign 59 Community Kitchens 60 The Victory Special 61 Conservation of Sugar 62 For the Meatless Day 62 New York City Problems 63 Summary 6S [3] 4 Table of Contents FAQIS ENFORCEMENT AND OONTROL f Exercise of State Regulatory Power '„^ The Investigation of Complaints '* PUBLICITY 78 ANIMAL FEED STtnPFS • ^^ FOOD COUNCIL OF GREATER NEW YOBIK 81 DESCRIPTIVE OUTLINE OF ORaANIZATION OF STATE POOD COMMISSION AND FEDERAL FOOD BOARD 84 APPROPRIATION AND EXPENDITURES 98 AGREEMENT FOR A FEDERAL FOOD BOARD FOR NEW YORK STATE OF NOVEMBER 27, 1917 ^^^ SUPPLEMENTAHY REPORT FOR (FOUR MONTHS ENDING NOVE.M- BER 1, 1918 103 Results of Efforts to Increase Production 103 Work of State Owned Tractors 104 Tractor Schools Continued 105 Public Competitive Demonstrations of Farm Tractors 105 State Ditchers 106 Commission Proposes to Sell Its Ditchers and Tractors to Farmers . . 107 Prevention of Insect Pests and Plant Diseases 108 Review of Sheep Raising ; 110 Farm Labor Provided Ill Emergency Farm Labor Committees 114 The New York State Boys' Working Reserve 116 Price Regulation 119 Regulation Requiring the Labeling of Meat 122 Special Investigation of Trade Practices and Condition 123 Profiteering in Lamb Checked 125 Study of Ship Chandling 125 Control of Sugar Distribution 126 Strikes in Food Industries Revealed 130 Community Canning in N. Y. City 132 Other Conservation Work Continued 136 Conservation Work in Up-State Cities 138 Enforcement 139 Standardization of Warehouse Charges 146 Feed Regulations 147 THE CREATION OF THE STATE FOOD COMMISSION AND FORMATION OF THE FEDERAL FOOD BOARD In response to the call of Governor Charles S. Whitman the Legislature of New York State met -in special session in the summer of 1917 for the purpose of establishing more adequate machinery for dealing with the increasingly serious food situa- tion. The problem was not distinctly a State problem. It was rather national and international. But New York State could not fail to be prepared not only to serve its own citizens in any food emergency that might arise, but to aid the Federal govern- ment in carrying out any program of food production, conserva- tion or control that might prove necessary to the feeding of the people of the countries associated with us and to the winning of the war. It was the intent of the Grovernor and the Legislature to mobilize the resources of the State for the maximum service to the nation in respect to food, by the creation of a small com- mission with full control over all State activities in this field, with adequate appropriation and with regulatory power co-ordinated with that of the United 'States Food Administration. The result of this special session of the Legislature was the passage on August 29, 191Y, of the act providing for a New York State Food Commission to succeed the former State Food Sup ply Comm ission and appropriating for the nse of the new conmiission $1^00RJ^OOO and the unexpended balance of the old commission's appropriation, amounting to about $300,000. The new commission, appointed by the Governor and approved by the Senate, consisted of three members: Mr. John Mitchell, presi- dent; Dr. Jacob Gould Schurman^ and Mr. Charles A. Wieting, each of whom serves without compensation. A secretary and " such inspectors, experts, assistants and employees as may be necessary for the exercise of the powers and performance of duties conferred or imposed upon the Commission " were pro- vided for, the compensation of such officers and employees to b6 1 Dr. Schurman resigned May 31, 1918, to go to France for the Y. M. O. A. and Dean Albert R. Mann of the State College of Agriculture, Cornell University, Ithaca, K. Y., was appointed to succeed him. [6] 6 ■ Eepobt of l^EW YoEK State Food Commissioh fixed by the Cominissioii within the appropriation made therefor, subject to the approval of the Governor. Mr. Charles H. Betts of Lyons, N. Y., was appointed secretary of the Commission. The new Commission held its first meeting on October 9, 1917, and formally took over the offices, employees and equipment of the old Food Supply Commission on October 18, 1917. At the outset the attention of the Commission was directed toward acquiring a clear understanding of its functions and its relation- ship to the food administrative work of the Federal government. The law creating the Commission, although containing provision for licensing of dealers in food commodities, and giving the Commission power to make rules governing them, states that this authority shall not be exercised in duplication of or in conflict with licenses or regulations issued by the Federal Food Administrator. Conferences with Mr. Hoover and other officials of the United States Food Administration resulted in assurance from them that the Commission would become the arm of the Federal Food Administration within the boundaries of New York State, and the Commission took up the task of organizing a department to do this work. In accord with the general plan followed through- out the country^ the United States Food Administration appointed a Federal Food Administrator for New York City, Mr. Arthur Williams, and a Federal Food Administrator for Up-State New York, Mr. Charles E. Treman of Ithaca. It soon became apparent both to the Commission and to the two Federal adminis- trators that a definite working agreement clarifying the relation- ship of the Federal and State food control agencies and co-ordi- nating their activities was essential. The inevitable confusion in the minds of the public and what appeared to be overlapping of functions continued for several weeks during the process of adjustment finally resulting in an agreement ^ uniting the State Food Commission and the two Federal Food Administrators into a Federal Food Board for New York State, composed of five mem- bers. The president of the Commission was made chairman of the new board. The problem of co-operation then became merely one of details. 2 This agreement is printed in full in Appendix I of this repoort. Report of New York iState Food Commission 7 The accumtdation of work and the pressure of demands for regu- lation to meet the increasingly serious food situation in New York City made necessary the building up of an organization in the quickest possible time. The American Society of Civil Engineers temporarily loaned its entire building on Fifty-seventh street in New York City to the United States Food Administration and the offices of the Federal Food Board and the State Food Commission were established together there.* The office in Albany is technically the main office of the Commission and the work of aiding and stimulating farm production is centralized there. An office was also established at Ithaca, N. Y., primarily as the headquarters for the Bureau of Conservation, which works through local representatives in various cities throughout the State. Before the formation of the Board, the State Food Commission had created three bureaus to carry on the three principal lines of work involved in food administration, that is, work having to do with production, with distribution and transportation, and with conservation. The Bureau of Production, which is concerned with aiding and stimulating farm production of foods in New York State, in order that the supply for shipment to Europe and for feeding our own people may be maintained, was placed under the direction of Mr. Calvin J. Huson, formerly Commissioner of Agriculture of New York State. The Bureau of Distribution and Transportation has supervision over all processes in the handling of foodstufFs, from the time they leave the hands of the producer until they reach the consumer. As director of this bureau the Commission appointed Mr. Cyrus C. Miller, former president of the borough of the Bronx, who as Chairman of Mayor Gaynor's Market Commission had made a thorough and exhaustive study of food market conditions in New York City. Professor Howard E. Babcock was selected as Director of the Bureau of Conservation and placed in charge of all activities 8 The New York City offices of the Federal Food Board and the State Food CommiBsion were moved on August 1, 1918, to 6 West 57th street where they occupy five floors of a new office building. 8 Kepobt of New Yoek State Food Commission having to do with education in the methods of preparing foods, using substitutes and saving those commodities of which there is a scarcity. For this work he is eminently qualified by virtue of his experience in the organization of educational work through- out the State, as director of farm bureaus for the State Agri-' cultural Collie. These three bureaus, in the initial stages of organization at the time the new Board was formed, were taken over by it. All duplication was avoided, all activities coordinated by making the State Food Commission and the Federal Food Board one organi- zation throughout, except in fiscal control and in certain lines of activity related wholly to the one or the other. In the handling of the food problems of this State, the resources of state and federal governments are completely pooled. As rapidly as possible the United States Food Administration took over the burden of expense of the activities distinctly federal and the greater freedom allowed in the expenditure of federal funds added much to the speed and fiexibility with which the new organization was developed. In addition to the various divisions coming under the three main bureaus above mentioned, other bureaus and administrative units proved necessary. Among these were a Bureau of Publicity, a Bureau of Licenses, a Counsel, and a Library and Statistical Division. The constantly changing food situation and consequent problems of regulation have required continual changes in organi- zation. The joint organization of the two departments, not including county administrators, grew from approximately 150 on January 1st, 1918, to 350 by June 30th.* A full descriptive outline of this joint organization is given at the end of this report.' * On September 1, 1918, the total number of employees of the Federal Food Board and the State Food Commission had increased to 501, of which 176 were new employees on the Federal payroll taken) on to assist in the handling of sugar distribution. 5 See page 84. PRODUCTION The problem of mcreasing production of foodstuffs within the State of JSTew York was recognized by the State Food Commis- sion at the outset as the most fundamental one with which it has to deal, although not the most immediately pressing at the time the Commission was organized. The function of the State Food Commission is distinct from that of the permanent State Depart- ment of Agriculture, and other state agencies concerned with helping the farmer to develop better methods of agriculture and protecting him from malpractices. Its task is to bring about greater production of those foodstuffs most vitally needed for the countries associated with us and for our own people during the period of the war. Progress had been made in this direction during the season of 1917. The response of the farmers to the appeal to grow more food was very generous and patriotic. Production was greatly increased but many farmers suffered financial loss because of weather conditions, lack of sufficient farm labor and increased cost of farm operations. It was even claimed that a consider- able amount of foodstuffs had actually been wasted because of lack of labor to harvest it, and the fear of farm labor shortage in' the minds of the farmers promised to be the greatest hindrance to the necessary increase of production in the 1918 season. The appointment of the President of the State Food Commis- sion as member at large of the Council of Farms and Markets, and his election as President of that body, made easy the coordi- nation of the production activities of the Food Commission with those of the former Department of Agriculture and the foimer Department of Foods and Markets, which were consolidated under the new Department of Farms and Markets. The new Farms and Markets Council, immediately after its organization, formally placed at the disposal of the State Food Commission, its entire department. The routine and regulatory functions of the divisions of the Farms and Markets Department had, of course, to be con- tinued, but all the information and resources of this Department were made available to the State Food Commission. [9] 10 Eepobt of New York State Food Commission Methods of Meeting the Farm Labor Situation The first step taken toward improving the farm labor problem was to bring the seriousness of the situation before the Secretary of War, with the suggestion that young men engaged in essential farm work be exempted from draft for military service until the next season's crops had been harvested. As a result of this, and similar appealls from other parts of the country, necessary farm laborers were given deferred classification in the draft examination. Conferences were then held between the Director of the Bureau of Production, the Director of the Bureau of Conservation, and the Director of the Bureau of Employment of the State Industrial Commission, for the purpose of developing a comprehensive plan for recruiting, selecting and distributing all the available farm labor during the next season. As a result of these conferences, action was taken by the Food Commission providing for the employment of 30 men farm labor specialists to work in con- junction with the State employment offices and the county farm bureaus in cities centrally located to agricultural districts. The United States Department of Agriculture also agreed to employ 30 additional men to work on farm labor placement in conjunction with the farm bureau managers, their actual expenses in con- nection with furnishing farm labor to be paid by the State Food Commission. This plan establishes a complete machinery for selecting and distributing persons who desire or can be persuaded to go on farms throughout the entire State. A local office for this purpose was opened in practically every county of agricultural importance, and the offices in large cities are particularly equipped to direct men, who have had farm experience, to agri- cultural employment. The entire system of farm labor distribution became a part of the Employment Bureau of the State Industrial Commission, which has already been working in this field for several years, and which has developed efficient methods of cen- tralized control, communication and reporting.^ Thus duplication of public effort, such as esxisted to some degree during the last season, is avoided. ^With the creation, of the new United States Employnient Service by aet of the President on August 1, 1918, the State Employmenit Service became a part of the national system. s a o O m § o H H M § ■a t4 Eepoet of New Yobk State Food Commission- 11 The New York State Boys' Working Reserve The recruiting of boys under draft age for special summer work on the farms has been given especial attention by the Com- mission. The experiment of sending boys from city high schools to farms in the summer of 1917 proved, on the whole, successful. As the United States Boys' Working Eeserve, under the United States Department of Labor, proposed to work this year through the New York State Food Commission, the Commission decided to create a Bureau of New York State Boys' Working Eeserve, to be affiliated with the federal organization. Commissioner Henry D. Sayer of the State Industrial Commission was appointed by !the_Sj;ate Food Commission as Director of the Bureau, to serve without compensation. The State Food Commission set aside $50,000 of its appropriation to 'meet expenses involved in the transportation of the boys to the farms where they would be emjdoyed, and other necessary expenses of the Bureau. Mr. Charles B. Barnes, Director of the Bureau of Employment of the State Industrial Commission, Dr. George W. Edwards, Zone Director of the United States Boys' Working Eeserve, and Frank A. Eexford, Director of Boys' Service for the New York City Department of Education, were appointed assistant directors of this Bureau.* The cooperation of various state and local agencies is making it possible to develop the use of boys on farms to a greater extent than ever before. The State Department of Education had the school principals enroU boys before the end of the school term and agreed to release both boys and girls from school attendance for work on farms, under supervision approved by its own district superintendent. The Board of Education of New York City appro- priated early in March $19,000 to provide assistance in replacing and supervising boys enlisted in the State Boys' Working Eeserve. The boards of education of Eochester, Buffalo, Syracuse, Albany, Utica and Binghamton provided men to organize boy labor in the schools of these cities. The farm bureaus are procuring applica- 2 For purposes of administration the state was later divided into five zones with headquarters respectively at Buffalo, Eochester, Syracuse, Albany and New York City. Supervisors were appointed to have charge of the work in each of these zones and Mr. Bexford was designated as Chief Zone Director and put in active charge of the work for the emtire State. His services are loaned by the New York City Board of Education. 12 Eepoet of New Yoek State Food Commission tions of farmers desiring boys, placing such applications in the hands of school principals in their counties and aiding the princi- pals to place boys on farms. The executive committee of the farm bureau association in each county was created by the Food Com- mission as a war production committee, and given responsibility for the supervision of the boys sent to its community for farm work. The State Bureau of Employment acts as a clearing point for the registration and placement of boys on farms, cooperating with the farm bureau agents and the school authori- ties. The State College of Agriculture and the secondary agri- cultural schools of the State give the boys preliminary training before they actually become employed on the farms. The Young Men's. Christian Associations throughout the State are aiding in the enlistment of boys. A circular of information describing the various organizations cooperating in the movement and the procedure of enrollment from the standpoint of the boy, the farmer, the school and the public authorities, has been extensively distributed among the schools, farm bureaus and libraries. At the solicitation of the Director of the Boys' Working Reserve, the Governor issued a proclamation on March 14, 1918, calling on all young men and boys of the State^ between the ages of sixteen and twenty-one, who were not otht-rwise engaged in productive labor, to enroll in the Eeserve. The week of April first was set aside as the official time for enrollment and a drive made to procure a large number of boys willing and able to perform farm work. The boys responded enthusiastically. Although the farmers were justly skeptical in some parts of the State and were slow to take advantage of the opportunities for securing boy labor, by the end of June, 6,896 placements were effected.^ These boys came from homes distributed in the fives zones as follows: Albany Zone 1,053 Buffalo Zone 835 'New York Zone 2,Y49 Rochester Zone 1,316 Syracuse Zone 943 Total 6,896 (as of June 30, 1918) *Oii September first, 13,500 boys had enrolled and 12,191 pla/cements had been made. Eepoet of New Yoek iState Food Commission 13 The number of cases of dissatisfaction on the part of boys or farmers is less than one per cent. A complete report on the Boys' Working Reserve cannot be made at the close of this fiscal year but it has already unquestionably demonstrated the value of boy labor to the farmer. Women Farm Labor Specialists The appointment of eight women farm labor specialists to recruit women for farm work was a new feature added this year by the State Food Commission to the machinery for meeting the farm labor shortage. The function of these women farm labor specialists is not only to secure women to go to farms, but to show the farmers how they can employ women and to see that the women are placed under proper conditions. It was recognized that the United States, like England, would be forced to call upon its women to help in food production. But it was also felt that if the women were drawn into this work, as they would be inevitably, their employment should be fully safe- guarded in respect to physical strain, hours of labor and living conditions. These eight women were assigned to carry on this work through the offices of the State Employment Bureau, of the State Indus- trial Commission in Buffalo, Rochester, Syracuse, Binghamton, Albany and E"ew York. As a result of an experiment conducted in 19 IT by the Com- mittee on Agriculture of the Mayor's Committee of Women on National Defense, of New York City, in cooperation with the State Employment Bureau, definite standards were decided upon ; namely that no girl under 18 years of age should be registered, that every woman must pass a physical examination, and that every place of employment must be inspected. An eight hour day was set as a standard, with a maximum of 54 hours weekly to allow for necessary over-time due to weather conditions. The success of the movement so far may be judged from the fact that by June 30th, 1918, calls had come from farmers for 4,288 women for farm work; 3,324 women had been regis- tered, and 984 were actually placed at work, while several large units were planned to begin work in the early part of July. About two thirds of the 984 women had been sent to work on general and 14 Eepoet of New Yoek State Food Commission truck farmB. It may be of interest that in New York City, by July 1st, 510 women had been placed in farm work, as compared with 603 men. A large proportion of the women registered were college girls, teachers, stenographers, clerical workers, saleswomen, and a few industrial workers. The aim in recruiting was to draw into this seasonal summer work all women otherwise unemployed at this period. They represented the best lypes, women who were able to take up this strenuous work in a fine spirit and to stick to it because they were needed. Practically all the women were sent out on the unit plan, each unit in charge of a responsible supervisor. A few women were sent out singly, such as women to work on dairy farms, women to drive tractors, to care for poultry, or to work as "general farm hands." The largest number, however, was sent out in groups. Accord- ing to the unit plan, a group of women live together in a centre, and work on one farm or on several. This plan relieves the far- mer of all responsibility for their food and social conditions. In the case of practically all the units organized by the women farm labor specialists, the expenses of providing proper housing and furnishings, as well as transportation, has been met by the farmers. The aim has been to make the units self-supporting. The farmers pay the workers directly, who share their living expenses on a cooperative basis. In addition each worker con- tributes 50 cents a week toward the wages of a cook and a super- visor. The girls assist with cleaning and dish washing. The weekly expenses including the 50 cents for the cook and the super- visor, vary in different units from $3.00 to $4.50, according to the locality. The supervisors are given assistance by the farm labor specialists in planning the housekeeping arrangements, buying of supplies, and in planning of meals, in order to keep the cost as low as possible. Women have been sent to work on truck farms, at planting, hoeing, weeding and gathering, on dairy farms at milking and caring for stock, at berry picking, cherry picking, and at general farm work. Farmers throughout the State, from Buffalo to Eepobt of Few Yobk .State Food Commissiobt 15 Long Island, have called upon the office to supply women. Two women were sent to a large dairy farm in Vermont; a unit of 60 women was organized by the New York office for a truck farm in New Jersey, said to be the largest in the world. An up-to-date general farm in New Jersey has a un.it of eight women. The Eoehester office organized a unit of 150 girls, for a large cherry orchard. The imit was made up chiefly of college girls, the housekeeping to be done by the domestic science department of Mechanics Institute, The offices have also placed several hundred women in units, especially on Long Island, organized under the auspices of the Women's Land Army of America. The wages vary according to locality and kind of work. In berry and fruit picking, the pay is by the quart or pound. In general farm work and on truck farms, the pay is by the hour or day, varying from $1.50 to $2.00 a day, and housing. In some parts of the State, the women are averaging $25.00 to $30.00 a month, after all expenses are paid. A brassard has been given each woman sent out, amiouncing that she is a member of the "New York State Women's Farm Labor Reserve." This has become a much prized souvenir of the summer work. Both employers and workers so far have been most enthusiastic about the experiment of the Commission. Employers skeptical at first, have become warm advocates when they have been induced to try this new kind of labor, and have found that what a woman may lack in strength is often made up in her interest and intel- ligence. The farm bureaus and granges as weU as the farm labor specialists, throughout the State, have given splendid support and have had a great share in making the experiment a success, and pointing the way toward an increased force to carry on the work another year, when it will no longer be an experiment but a recognized part of the food production machinery in every section of the State. Organization of Emergency Farm Labor Committees It was not expected, however, that those plans for recruiting farm labor through employment exchanges and farm bureaus, and 16 Kepoet of E"e-w Yoek .State Food 'Oommissiom" for using organized units of women and of boys, would solve the problem of meeting the emergency needs of the farmer during the harvesting season. To meet this emergency labor need, it was decided to undertake the organization of local patriotic emergency farm labor committees in the small towns and vil- lages throughout the State, to secure pledges from retired farmers, tradespeople, and others who have worked on farms, to work a certain number of days in the Spring and Fall, aiding the far- mers to put in and harvest the season's crops. In Canada and Maine last year it proved a success. Nine men of practical experience and exceptional knowledge of farm conditions through- out the State were appointed to aid in the organization and carry- ing on of this campaign for stimulating production.* Four women organizers and lecturers were also temporarily assigned to this emergency work. These organizers have gone to the villages and small towns in counties where emergency labor for harvesting was likely to be needed. Where local agencies for the purpose of enrolling volun- teer farm workers were already in existence, assistance and coop- eration has been offered to these, but in most localities new com- mittees have been formed and started in their work of enrollment. The organizers have also obtained the publicity necessary to acquaint the farmers with the fact that they have a source of labor at their command in time of need, and have arranged for the transportation of the workers. When this plan for securing emergency labor was determined upon in November, 1917, the Director of the Bureau of Produc- tion estimated that a total of 25,000 days of volunteer labor might be relied upon to answer the patriotic call. Although in many towns in the peach and apple sections of western New York they have only started canvassing for signers of the pledge cards at the close of this fiscal year, the reports indicate that this esti- mate may be more than doubled." *One man temporarily appointed as Farm Labor Specialist wag also assigned to this work. B See supplementary report for four months ending November 1, 1918, page 103. Repoet of New York .State Food Commission 17 Earm Tractors The experience of New York State during the season of 1917, as well as that of other states of this country, and of Canada and •England, indicated that farm tractors are an important factor in solving the problem of increasing production. One tractor can do the work of about three teams and three mem. It can be used in plowing and harrowing, in operating mowing machines, binders and corn harvesters, and to furnish belt power to run ensilage cutters, feed mills and threshing machines. The Food Commis- sion inherited from the former Food Supply Commission forty* of these tractors, and has since purchased thirty in addition, making a total of 70 tractors, which have been placed throughout the State at the disposal of small farmers. It is estimated that each tractor will plow about 200 acres in the season. The tractors and their equipment cost on an average of $1,400 each. For the use of the 42 tractors last season the State received between $4,000 and $5,000. Owing to the great difficulty experienced in securing adjustment and payment of rentals for the machines operated last year, a provision was inserted in this year's contract requiring the payment of rental to be made by May 1, 1918.'' Three plans have been formulated for placing these machines, with equipment, in communities where the shortage of labor is most acute, the plans to be used interchangeably according to local conditions: (1) The Commission to place a machine in the hands of an experienced operator who shall furnish a bond for the return of the outfit in as good condition as when delivered, ordinary wear excepted, at a rental varying from $50 to $100; the operator entering into an agreement with the State, as to the maximum rate to be charged for the various kinds of work, his compensation to depend upon the amount * In the contracts tuider -which tractors were let last year it was provided that the farmers should havo the right to purchase the machines at the end of the season at cost price. Under this clause two machines were claimed, leaving 40 out of the original 42 purchased by the State. Seven tractors and their equipment owned by the Long Island Food Reserve Battalion were purchased by the State Food Commissionj in April, 1918. ^By September 1, 1&18, practically all of the payments on the contracts of this year, for the use of tractors, sprayers, and ditching machines, will have been made. 18 Eepoet of New Yoek .State Food Commission of work he performs; the operator to bear the expense of operation and repair of the machine and to work for such employers as may employ him; or (2) The Commission to rent a machine on the same terms as above to a tractor committee, composed of a niunber of farmers, eight or ten, each having a limited amount of plowing to be done (40 acres) ; this committee to have general jurisdiction over the operation of the machine and to employ an experienced operator; or (3) The Commission to lease a machine to a responsible farmer who will agree to keep it in operation in his neighbor- hood, at cost, and to employ aa experienced operator; to limit plowing on his own farm to 60 acres and on other farms to 40 acres. In each case the organization or individual signing a contract with the Commission must comply with the following general requirements : Assume responsibility for the machine. Pay the State a fixed compensation and make all neces- sary repairs. Purchase all fuels and oils necessary for the operation of the machine. Guarantee to plow at least 200 acres during the season. Pay freight within the State to point of consignment. Deliver machine to nearest railroad station in the Fall, or house it during the winter under the direction of the Commission. Guarantee that the tractor will be used for plowing and fitting only, except upon special permission from the Commission. To safeguard properly the investment of the very considerable amount of money which the State has put into these tractors and their equipment, a number of tractor experts have been employed to inspect the machines at frequent and regular intervals, to supervise the operation of the machine and to make such adjust- ments and repairs as the operator himself is unable to make.' 8 The Commisaion is keeping a careful record of the fuel and oil consumed, the cost of repairs aiiid adjusfoients, and the amount of work performed by each machine owned by the State. This data will be valuable to the farmers of the State. Eepobt op New York State Food Commission 19 Privately Owned Tractors Fledged for Continuous Operation AJl farmers who own tractors have been urged to keep these machines in as nearly continuous operation as possible and to operate their tractors not only upon their own farms, but also upon those of their neighbors who are unable to purchase them. The response to this suggestion has been quite general and satisr factory so that a large number of privately owned tractors will render service in the communities where they are located. Tractor Schools Tweuty tractor schools, with approximately 1,000 students in attendance, were held in various sections of the State, commenc- ing January 14th and terminating March 25th,'' in co-operation with the Department of Rural Engineering of the State College of Agriculture and the farm bureaus of each county where they were held. The purpose of these schools is three-fold: to make owners of machines more efficient in their management so that more work will be accomplished ; to give contemplated purchasers some practical knowledge of the machine's construction and opera- tion; and to train operators in handling State-owned machines. The schools were of one week's duration. Approximately 1,000 students completed the course and were giveu certificates that they had shown proper knowledge and skill in operating the machines and iu making simple repairs. Given a good tractor, the success or failure of the machine, the amount of the work done, the amount of repairs and the life of the machine are proportional to the training of the operator and the care he gives it. Supplementing these tractor schools, the Commission is arrang- ing a series of tractor demonstrations in different parts of the State during the summer of 1918, to give the farmers who contem- plate purchasing tractors for themselves an opportunity to com- pare the relative merits of different makes. The Bureau of Production is continually receiving requests for advice as to which of the 100 or more different kinds of farm tractors on the market is the best. It cannot, of course, undertake to promote the sale of any tractor or tractors at the expense of others, but 8 Schools were held in the followimg counties: Oneida, Niagara, Orleans, Rensselaer, Yates, Wayne, Chautauqua, Onondaga, Alleghany, Washington, Erie, Hamilton, Madison, Suffolk, Orange, Chemung, Otsego and St. Lawrence. 20 Eepoet of New Yoek State Food Commission by means of these demonstrations, at which the various tractor manufacturers exhibit their own machines, the farmer is given a basis for making his own selection. State Ditching Machines Another means which the State Food Commission is taking to meet the farm labor problem and assist the farmers in increas- ing production is to provide a number of ditching machines, which will do the difficult and onerous work of draining farm lands which^ because of the growing scarcity and increased cost of labor for the last two or three years, have had to be neglected. The utility of the farm ditching machine has been demonstrated, but its cost is so great that the individual farmer cannot purchase it, and farmers' associations have not yet reached the point where they can or will undertake to maintain ditching machines for the use of their members. Three of these ditchers were inherited from the former Food Supply Commission, and in response to a very general demand the State Food Commission has purchased ten additional ditchers at a cost of approximately $4,000 each. These machines will be loaned only to a farm bureau association, the contract being signed by its officers. Practically the same form of contract as employed for the lease of the tractors will be used, except that the association will be held directly responsible to the Commission for the ditcher and for the fulfillment of all the requirements of the contract, besides the collection of all ditching charges. The Commission will furnish a drainage engineer to locate all ditches and mechanical experts to visit and assist the operators of the machine besides assuming the interest and commercial depreciation losses. The policy of the Commis- sion is to require a reasonable charge per rod of ditching to cover mechanical depreciation of the machine. Great interest has been taken by the farmers in securing these ditchers, and in many counties they have signed up for a large amount of drainage work. In every county in which, these ditchers were placed a sufficient number of rods of ditching was signed up for by the farmers, to keep the machines in continuous operation throughout the season. The farm bureau associations having charge of these machines pay to the State for the use of such machines ten cents per rod for each rod of ditch excavated. 10*lt» TONYPAfiffETT/^, 9r£AR3 OLD, OffOBT ffO/VTEN, N.Y. /l/iD /f/3 TMO PJ6J. iv. y /i/vo//£ffp/6P/ioj£cr. c/i/fLff/C6. /ffpmo/i, /y.y cofM/i^/^. y PCP/oypMJ^//D///jr/yop/(/j. Eepoet of New York .State Food Commission 21 Increasing Fork Production There is no quicker method of increasing the supply of meats and fats with a minimum of labor than by raising pigs. The Bureau of Production early in November, 1917, launched a cam- paign throughout the State for increased pork production and adopted the slogan, "A brood sow on every farm and a pig for every rural home." The officials of a thousand and more com- munities throughout the State wero communicated with, and inquiry made as to whether there were local ordinances prohibit- ing the keeping of pigs within their corporate limits, and such communities as had such ordinances were promptly asked to repeal or at least suspend their operation during the period of war. With the exception of less than a dozen, this action was promptly taken so that at the present time there is no legal obstacle to maintaining pigs in villages under proper sanitary regulations. With the co-operation of the Department of Education and the Junior Extension Department of the College of Agriculture, boys and girls' pig clubs are being organized and established at many points in the State. Farmers throughout the State very generally responded to the appeal for increased pork production, and the number of young pigs bom in the State in the spring of 1918 was very largely increased as a result of this campaign. The owners of these animals are now being urged to retain all of the desirable sow pigs for future breeders so that a still greater pork production may be assured for next year. Increasing the Wheat Acreage Unfavorable weather conditions during the winter of 1917- 1918 affected adversely the winter wheat sown in the fall of 1917 so that in many sections of the State a considerable acreage was winter-killed and rendered worthless, and a still larger acreage seriously injured. In the bean-growing sections of western New York, where winter wheat generally rotates with beans, the beans were so late in maturing last fall that wheat was sown in many ingt.ances much later than usual, and on a considerable acreage th€ beans were not removed in time to put the ground into wheat. Id view of this situation the Bureau of Production early in the Spring inaugurated a campaign for the growing of spring wheat 22 Eepoet of New Yoek State Food Commission in those sections of the State wherever it was deemed practicable. The farmers in those sections generally responded and the largest acreage of spring wheat grown in the State of New York in many years is now about to mature. Arrangements were made through the United States Grain Corporation by which 200,000 bushels of 'No. 1 Northern Manitoba spring wheat for seed were held in Buffalo warehouses, to be distributed to convenient points and sold to farmers at cost, either in small or large lots. The question of increased acreage of spring wheat was taken up with the subordinate granges and discussed at agricultural meetings. The Millers' Association of the State and the Department of Farms and Markets have also co-operated and assisted the Bureau of Production in this campaign. While the growing of spring wheat in favorable localities was urged, it was discouraged, except in an experimental way, where it had not been heretofore successfully grown. Twenty-five thousand copies of a small leaflet on this subject, distributed through grain corporations and millers' asso- ciations, and published without expense to the Commission, impressed upon farmers the importance of growing spring wheat, upon good soil thoroughly prepared and well fertilized, the sow- ing of seed of high quality and the desirability of early sowing. Weather conditions have been exceptionally good for the growing of this crop, so that ^t this writing the largest crop of spring wheat grown in the State of New York in many years is now about to be harvested. The yield per acre promises to be exceptionally good and fully justifies the wisdom of the action of the Commission in urging the more general growing of this crop. Improvement of the Seed Supply In addition to providing an abundant supply of spring wheat, the Bureau of Production has engaged actively, in connection with the New York Seed Stocks Committee,^" in supplying other seeds of various kinds to farmers. Through the co-operation of 10 This Committee consists of Oalvin J. Huson, Director of the Bureau of Production of the N. Y. State Food Commission, Prof. M. C. Burritt, Vice-Director of Extension of the State College of Agriculture at Ithaca; Frank G. Kelsey of Camden, N. Y., State representative of U. S. Bureau of Crop Estimate, and T. H. King of Trumansburg, N. Y., appointed by the State Director of Extension of U. S. Department of Agriculture. The coimty seed committees were appointed by this committee. Ebpobt of New York .State Food Commission- 23 the farm bureaus, local county « Better Seed Committees " have beeu organized in practically all the agricultural counties of the State to ascertain local seed requirements and the seed supply. Through the activities of the New York Seed Stocks Committee, the great shortage in high class seeds, particularly seed corn, has been met and farmers have been able, almost without excep- tion, to obtain the seed necessary for their use. Owing to the uncertainty of the germinating qualities of many kinds of seeds, farmers have been urged to test their seeds for germination. The farm bureaus and other agencies have made these tests to an extent not hitherto practiced. War Gardens The State wide program of aiding and stimulating food produc- tion in this State has included the promotion of war gardens in cities and towns." With the active co-operation of the Federal Food Administrator for up-State New York, the county food administrators, mayors of cities, village presidents, chambers of commerce, and employers of large industrial establishments, effective work has been done in organizing interest in this activity. Especial attention has been given to gardens known as " factory plots." A model plan developed at Watertovra has proved to be generally applicable in industrial centers. The manufacturers of the town organized a committee, which appoints a practical gardener and assistant to have general charge of the gardening operations. After the supervisor inventories all the vacant land available, the manufacturers unite in plowing it and in purchas- ing fertilizers and seeds. Plots are assigned to employees willing to undertake their cultivation, the supervisors giving all possible cooperation and advice. A list of over 600 large employers was 1^ In New York City so many agencies both public and private were already in the field of promoting -war gardens, that there was no occasion for the State Food Oonimission undertaking this work. In order that the public might be intelligently directed, however, as to where to secure information and assistance regarding city gardens, a survey of these agencies was made and a memorandum prepared), for ofSce use, which lists all the agencies which have come to the attention of the New York CSty office and describes their purposes and activities^ This office memorandum is placed in the hands of all persons resipomaible for giving out information to the public, with instructions that they refer general inquiries to the public agencies and give information regarding such private agencies as might be of assist- vaee to the individual inquirer. 24 Eepoet of New Yoek State Food Commissioit circularized with this plan, care being taken to omit the industrial concerns located in large cities and in agricultural districts as it was believed that in the large cities gardening on this plan would be impracticable and in the agricultural communities a large pro- portion of the employees were in all probability already engaged in cultivating as much land as could be worked. A prompt and cordial reception has been accorded this plan, and with the assist- ance of the chambers of commerce and the boards of trade throughout the State, united cooperative action is being secured. Circular letters were also sent to the mayors of the cities and presidents of large villages to urge them, in cooperation with the boards of education and school authorities, to organize war garden committees and to inform the bureau what cooperation and assist- ance is desired by the war garden committee in liieir community. Prevention of Insect Pests and Plant Diseases The work started in 1917 by the former State Food Supply Commission for the prevention of insect pests and plant diseases is being continued by the State Food Commission. The State Food Supply Commission purchased thirteen power spraying machines for the purpose of spraying potatoes to safe-guard against blight. Twelve of these were operated to some extent and one was never unpacked. Three were purchased by those who rented them last season under a clause in their contract permitting them to do so. The ten remaining machines are being rented by the State Food Commission in the 1918 season on the basis of $25.00 per year for each, the same basis as that on which they were rented in 1917. One of these machines can spray many acres of potatoes. The plan this year is to place them in communities where one man will operate the machine continuously, thus spray- ing the largest possible acreage. Under the direction of Professor W. H. Whetzel of Cornell University, three experts, employed for the summer of 1918 by the State Food Commission, are engaged in directing the farmers and fruit growers in Wayne, Orange, and Cortland counties in the prevention of insect pests and plant diseases. These men advise the farmers in regard to spraying, and conduct demonstrations. Report of New York State Food Commission 25 They have already thia season been the means of saving quantities of fruit that will be useful in the coming fall and winter. The 1918 State Agricultural Census The Agricultural Census conducted by the -State Food Supply Commission in April, 1917, proved so valuable that the State Food Commission decided early in December, 1917, to conduct a similar survey in February, 1918. Director H. E. Babcock of the Bureau of Conservation, who has charge of co-operative relations between the State Food Oommisaion and the county farm bureaus, was authorized to organize and direct the taking of the census. A sum of $25,000 was set aside to meet the expenses connected with it. With the assistance of Prof. G. F. Warren of the Department of Farm Management, New York State College of Agriculture, a census blank was prepared and proofs of it submitted to county agents who tried it out on actual farms, and reported their criticisms before the blanks were finally printed. Arrangements were made with the State Department of Education for the actual taking of the census by the rural schools. Quantities of census blanks, tabulation sheets, instruction folders, and other supplies were sent to the county farm agents and to special census directors who were appointed in counties where no county agent was located. These were distributed to the teachers who in turn dis- tributed them to the farmers. Each rural school prepared its own tabulation of the returns for its district. These local tabu- lations were then sent in each county to the county agent, or census director, by whom a tabulation for the county was made. The entire taking of the census and tabulation of the results was accomplished within one week. The State summary, together with a county summary, and a list of the livestock and seed for sale in the county as shown by the census, were published as a special Census Issue of the Farm Bureau News in each county and a copy sent to every farmer who filled out a census blank. The total cost of the 1918 census was $17,533.40. It covered 185,071 farms, the average cost per farm being, therefore, only 9.4 cents. 26 Ebpoet of New York State Food Commissioh" What the 1918 Census Accomplished " Briefly the census of 1918 accomplished the following: 1. It gave the Commission facts upon which to base its agricultural program. 2. It located and effected the exchange of local stocks of seed and live stock. 3. It furnished comprehensive and reliable data on the farm labor situation. 4. It warned the State of the coming decline of the dairy industry as a result of which the whole policy of the Food Administration was changed regarding the use of dairy products and active steps taken in this State to stimulate their consumption. 5. It gave farmers accurate information relative to con- templated crop planting in the Spring of 1918 and thereby tended to prevent the overraising of any particular crop. 12 A complete summary of the Agricultural census for the years 1917 and 1918 will be published by the State Food Commission. DISTRIBUTION AND TRANSPORTATION The most pressing demands upon the State Food Commission at the time it was organized were for regulation of the distribution and transportation of foods. Profiteering in food stuffs was increasing. The scarcity of staple foods resulting from the unprecedented demands for export was made the occasion for alarming increases in prices. The difficulties of transportation were bringing about a serious shortage of sugar and certain other commodities. The increase in the price of milk in New York City added much to the irritation and alarm of the public regarding its food supply. Although much had been done by the former Food Supply Commission to stimulate production of foods, practically nothing had been done to regulate distribution. There was little that the State Food Commission could do in this field, however, imtil its relation to the United States Food Administration, whose regulatory powers superseded those of the State, was definitely established. As soon as the Federal Food Board plan for combining state and federal forces was adopted, the Comjnission proceeded at once to establish the necessary machinery to do the specialized and technical work involved in the regulation of trade practices and the control of food distribution and prices.^ This machinery was organized as the Bureau of Distribution and Transportation with three divisions: the Division of Distri- bution, the Division of Trade Organization and the Division of Complaints. Some of the special activities of this Bureau are described in the pages following. Perhaps the two most valuable functions performed by this Bureau, however, are the advising of tradespeople regarding the application of the food administrative regulations to their business and the assisting of the TJnited States Food Administration in developing regulations that will bring effective control without injury to legitimate business. To do this requires intimate knowledge of the food trades and trade practices and the successful work of the Bureau has been based on such 1 See description of organization of Bureau of Transportation and Dis- tribution, page 90. L27J ' 28 Eepoet of New Yoek State Food Commission Publication of Fair Prices In response to the public demand for the publication of lists of fair prices for staple foods, the Bureau of Transportation and Distribution, through, its Division of Distribution undertook as soon as it could assemble a staff of competent trained men, to issue daily price lists for publication in the newspapers. Fair prices are arrived at by establishing first fair margins of profit, which are based in general on the average pre-war profits in the given commodity. With the wholesale price known the retail price can be determined by applying this fair margin or diflferential. The determination of fair prices is complicated by the "fact that the different staple foodstuffs are not sold at the same percentage of gross profit above cost, some being sold practically at cost and others at high profit. Consequently, to assure both the public and the retailer fair treatment, it has been necessary to determine the volume of trading in each one of these foodstuffs in the average store, and to determine the average cost of doing business. To determine some of these items of expense and volume of trading, and to array these facts statistically, it is necessary to use an accounting staff. Investigators are sent regularly to different representative sections of the city to ascertain the actual prices charged by retailers and the prices paid by them to the whole- salers. Approximately 4,000 differentials are secured from 200 stores each week by a! staff of seven market inspectors working under a supervising market inspector.^ Advisory committees of retailers and wholesalers were organized to assist the Division of Distribution in getting information on the basis of which fair prices could be determined. Daily lists of fair prices for groceries, meat and fish were issued in "New York City until the middle of March, 1918, when it was deemed advisable to change to semi-weekly issues. So little varia- tion was registered in the wholesale markets from day to day that there was no necessity for entering prices more than twice a week. In this, however, the Commission has been disappointed. So few of the papers now publish even the semi-weekly lists that the cooperation of the public in forcing dealers to observe these pricej * See more detailed description of investigations for determining fail margins of profit, page 30. Report op New York .State Food Oommissiow 29 is iueflfective. It has become apparent that different measures will have to be employed. The authority given the Oommisr sion by Act of the Legislature of 1918 to fix fair margins of profit, or differentials, on the retail an.d wholesale handling of a necessary food whenever there is profiteering in that commodity, has not been exercised because the deputy state attorney general assigned to the Commission advised that the instructions of the United States Food Administration for the establishment of fair prices by means of price interpreting committees, conflicted with and, therefore, superseded the State Law.' Pending the final completion of investigations of fair margins- of profit and of a plan for state-wide issuance of prices, the county food administrators in many upstate cities have issued local fair price lists prepared by local price committees. In Buffalo such price lists have been regularly issued by the Assistant Director of the Bureau of Distribution and Transportation in charge of the Buffalo office. Researcli Studies of Trade Conditions and Practices The lack of precedent in most 'aspects of govermnent control of the complex food distribution system of New York City, has made it absolutely necessary from the start to institute original inves- tigations of trade practices and trade conditions upon which con- structive executive action could be based. For these investiga- tions it has been necessary to have men trained in statistical and scientific research, and men with practical experience in and intimate knowledge of the various food trades. In addition to the extensive studies of costs of operation in the wholesale and retail handling of groceries, meat and fish, necessary to furnish a basis for determining fair prices, the Division of Distribution has made investigations of the methods of handling and slaughtering live poultry for the New York market, the methods of receiving, handling and distributing eggs, the cost of distributing potatoes, the facilities for the storage of fish, the necessary operating 3 See supplementary report for four months ending November 1, 1918, page 123, for discussion of plans completed subsequent to July 1st, for estab- lishing fair margins of profit by price interpretation committees of consumers, retailers and ■wholesalers, and for enforcement of such maximum margins. 30 Repoet of New Yobk iStatb Food Commission expenses of feed dealers seUing bran, the retail cost of handling loose milk, the quantities of condensed milk stored in New York City, the receiving and distribution of fruits and vegetables and other similar questions. Investigations to Determine Fair Mai^ns of Profit The investigations of the grocery, meat and fish trades for the purpose of determining fair margins of profit, mentioned above, represent the type of scientific research work that the Division of Distribution has been called upon to perform. In the study of costs of grocery distribution, for example, the first step was to obtain data from representative grocery stores of each type and class, relative to the total volume of business, the various commodities carried, and those staples which made up the bulk of the sales. It was found that 60.9 per cent of the business in grocery stores in New York City in 1917 was divided among the following principal commodities: Butter 13.8; eggs 12.2 ; milk 8.2 ; cheese 1.2 ; wheat flour 2.3 ; bread 9.5 ; com meal .1 ; potatoes 2.9 ; onions .9 ; beans .7 ; peas .8 ; raisins .3 ; sugar 7.9 ; and oat meal .1, making a total of 60.9. All the other com- modities were also surveyed but the above were chosen as being representative of the bulk of the sales of an average retail grocery store. In conjunction with this examination another one was made to determine the average costs of operating the average grocery store of Greater New York. Still another intensive investigation was made covering every commodily carried by grocery stores, which furnished the basis for thousands of figures on margins of profit made by the average retail grocer. Equally comprehensive and detailed investigations had to be made before it was possible to issue fair prices on the various cuts of meat. It was found necessary to make a complete study of the methods of meat cutting and retail practices in selling meat. Inspectors of this department visited one hundred representative butcher shops of Grreater New York and witnessed the cutting of the various cuts of meat in use, weighing each part and noting all waste trimming and shrinkage. With this data at hand it was possible to prepare concise figures showing Eepoet of New Yobk State Food Commission 31 what percentage the retail cuts were of the total carcass, that is, the percentage of a carcass that should be sirloin, ribs, etc. Having established a basis for determining the percentage of cost of the carcass to allot to different cuts, it was then necessary to make studies of the . costs of operation of butcher shops in Greater New York in order to arrive at what constituted margins of profits fair enough to cover all such expenses. Information as to the margins of profit that the average butcher receives for the various culs of meat was rsecured by personal inspectiom of hundreds of butcher shops. With this information compiled, a number of butchers' committees sirnilar to the grocery committees were called in to advise the Division of Distribution as to what in their opinion constituted fair prices on meat. Credence was given their objections to proposed prices only when they were able to submit proof that the data on which they were based was disputable. In connection with the issuance of fair meat prices one inspector visits the wholesale market daily and compiles all the wholesale prices while from time to time other inspectors check the observ- ance by the retail butchers throughout the city of the approved prices. In the preparation of fair price lists on fish and on dairy and vegetable products the same methods were followed as those used in determining meat prices, including investigations by the accountants and inspectors. Begpilations Requiring the Labeling of Staple Foods In connection with the issuance of fair price lists for staple foods, the need soon became apparent for some means by which the public might more easily recognize the various grades and kinds of a given colmmodity on which prices were quoted. The common practice among food retailers of selling commodities without reference to the standard grades by which they them- selves purchased them has been responsible for the housewife's paying frequently the price of a high grade foodstuff for some- thing of inferior quality. If the customer was not familiar with the different varieties of beans, for example, it was easy for the unscrupulous dealer to represent, because they happen to resemble 32 Kepoet of New Yoek State Food Oommissioit each other, cranberry beans, which are cheap, as kidney beans, a piore expensive variety of legume. Advantage would thus be takea of the approved price on kidney beans to sell another and cheaper kind at a higher price than it would ordinarily bring. In like mannetr, so-called Michigan potatoes and potatoes shipped in from other states other than New York, were frequently sold, as " Long Island " potatoes, thus bringing a higher price because of the traditional superiority of the lajtter. Gold storage eggs and cold storage butter were sold as fresh, with the same purpose. To remedy this, the Bureau of Distribution collected a mass of data and information on this subject and secured the coopera- tion of both the grocery and meat dealers in adopting standard grades which were given publicity in connection with the price lists. These standard grades apply to- beans, rice, raisins, butter, eggs, cheese, potatoes, onions and cabbage. Standard cuts were established for both Kosher and Gentile beef, veal, lamb, mutton, poidtry, and sundry smoked meats and for Gentile cuts of pork. To enable the housewife to distinguish one grade from another as a protection against imposition by the unscrupulous dealer who sells inferior goods, and to apply the schedule of fair prices in her daily marketing, the State Food Commission adopted formal regulations * having the effect of law, requiring fifteen staple food commodities ; bread, butter, American cheese, cabbage, corn- meal, dried beans, eggs, macaroni, milk, oatmeal, onions, prunes, potatoes, sugar and wheat flour to be labeled, wherever offered for sale in a retail store, with a sign, l^ible at a distance of tea feet, which states the kind, grade, and price of the commodity. The label regulations are in effect in 11 comities. ° They apply to retail dealers only. Compliance involves merely displaying the names of the kinds and grades of goods as designated by the wholesaler on his invoices or bills. Eepresentative groups of retail merchants approved the regulations before they were ■promulgated. Although at the outset there was some opposition, many of the dealers Tiave found the use of the signs to be an aid * Effective January 10, 1918. » Westchester, New York, Kings, Queens, Richmond, Bronx, Erie, Onondaga, Albany, Schcneotady, Dutchess, Fulton, Monroe, Oneida, Broome, Chemung, Rensselaer. Eepoet of New Yoek State Food Commission 33 4o their business. The chief objection to them has been that their .preparation would prove a hardship to many retailers. Experi- •ence has shown, how^ever, that through their use, the small amount -of extra time required for their preparation and placement has been offset through expediting the sale Commission tabulation. The commodities covered by this census were flonr, sugar, rolled oats, commeal, beans, bacon and lard. The ob-jeot • was to afford the United States Food Administration current ' information regarding the quantities of these commodities, on hand in ISTew York City and where they could be found in case aa emergency arose that would necessitate the commandeering of foods to relieve distress. It was not found necessary during the period in which this census was conducted to- make any direct use- - of the information secured, but, as an insurance against emer- gencies, it was of great value. ' - -* This weekly census was succeeded by another more compre- hensiv© census started Kay X, 1918 by the Division ©f'Distri-i bution of the State Food Conimission and continued for a period; of two weeks. It eovered approximately 29,000' grbeery aad butcher , shops, bakeries, delicatessen stores^ dairy, vegetable and . fruit stores, and restaurants.. Through the aid of the Police Dcpaitment of New York City blaulis for the census were distri- , buted to. all retail dealers, licensed or unlicensed. The census cards called for information regarding the quantities Siald dujringj the week; the stock on band at close of business, address where held and quantily contracted for future delivery before elds© of ' the week's business; the names and addresses of firms from whoiii ) the retailer usually buys his goods. The information thus secured not only located foodstuffs for emergency needs but provided the < State Food Commission and the Federal Food Board with a comr plete list of all the food retailers in New York City and. fumisted the basis for valuable statistical tabulations regarding, the amounits of vaafious foodstuffs sold and kept on hand in the differesnt types • of food stores. Directing the Marketing of Surplus Supplies of Foodstuffs Frojn time to time the inspectors of the Division of Distriba- tion. have reported surplus supplies • of foodstuff^ on the Newi York market and the Division has taken action to bring about ^ the distribution of such surpluis stocks to cbannels where they may be ooflnsumed! without any material waste. Am'ong the i various foodstuffs that have been distributed in this manner are potatoes, grain, vegetables, com meal, dried beansv dried peas, Eepoet of Wew York .State Fooi> Commission 41 small sized prunes, hay, straw, hogs, butter and cheese. In gen- eral, the method followed in such cases has been to put the owners of such surplus supplies in direct contact with those who can utilize them. In eefrtain cases, however, where the situation has made it necessary to bring about a greatly increased consumption in order to dispose of the surplus, the Division of Distribution has formulated and put into execution a comprehensive plan for con- trolling prices, facilitating distributioia and stimulating consumption. The best illustration of what the Division of Distribution has been able to accomplish in disposing of supplies of food is what was dome in regard to potatoes in the spring of 1918. The capipaign organized by the Conservation Bureau for stimulating the consumption of potatoes^ followed a carefully developed plan OB the part of the Division of Distribution to secure the prompt railroad transportation of large quantities of potatoes from the farmer to the l^evr York market, the prompt distribution of the potatoes to the retailers after they arrive at the terminal and to reduce the price to the consumer. Daily reports were secured as to the total car receipts and shipments per day and the prices the far- mers were receiving. Inspectors were stationed at every whole- sale market in Greater New York in order to ascertain the whole- sale prices, the farmers' prices and the car receipts. Inspectors were also sent into the retail districts throughout the city to obtain information on the retail prices. Conferences were held with the retailers at which th^ agreed to maintain a uniform price lower than what they had been charging. The Division of Distribution aided in the preparation of lantern- slides, posters-and other publicity features connected with the campaign. At one time, tbe supply of potatoes accumulated to such a degree in the yar^s of two of, the railroads with, terminals at, "New York City tha,t the companies laid an embargo against the commodity, pend- ing the disposal of the carloads already ia the city. The Division of Distribution expedited this disposal by urging each consignee to unload his car immediately, resulting in the lifting of the embargo within a week after it was made. Similar work was done by the Division of Distribution to 7 See pages 5S-59. 42 Eepoet op New Yoek State Food Commissioi^ dispose of the great accumulation of com meal in the New York City market in the spring of 1918. Such quantities of com meal, consigned to New York City, were held up in the congestion of transportation during the heavy snows, that when the trans- portation situation was relieved, there was soon a glut in the market for this commodity. Special appeals were made to the dealers to push the sales of corn meal. Posters featuring com meal and urging greater use of it were printed and distributed among the retail grocers of Gi;eater New York, to be displayed in their store windows. The prices charged for com meal were checked up carefully throughout the city and pressure brought to bear on all dealers to stimulate the consumption by selling com meal at a lower price. Through the Federal Food Board a ruling was made requiring bakeries to use corn meal as a substitute dur- ing this period of surplus supply. The result of these efforts was that forty million pounds of com meal was distributed in about a month through the trade into channels of consumption, a large part of which, without the intervention of the Ooimmission, would have spoiled and been lost as human food. Increase and Decrease in the Use of Various Cereals and Flours After the issuance of regulations by the United States Food Administration limiting the sale of flour and compelling the grocer to sell substitutes with each sale of flour, a study was made of the volume of trading in the various cereals and flour. The inspectors of the Division visited 230 stores in Greater New York to ascer- tain if the sale of flour had decreased, and if so, to what extent, and the extent to which the sale of cereals had increased, if any. The results of this investigation showed that the sales of wheat flour in the grocery stores of Greater New York had decreased in 1918, as compared with 1917, by 53 per cent, and that the sales of cereals, including com meal, oatmeal, rice, barley and pack- age cereals had increased 70 per cent, shovdng that the wheat conservation measures had materially decreased the consumption of wheat flour in Greater New York. The wheat flour thus saved was made available for the feeding of our soldiers and the people of the countries associated with us in the war. Eepoet of New Yoek State Food Commission . 43 Sale of Foodstuffs in Bulk vs. Package Througli years of persisfteat and costly advertising the public has been able to believe that there is some superior virtue in grain foods sold in packages under various standard brands, that the same foods in bulk do not possess. The consumer pur^ chasing foods in packages or cartons not only paid for the cereal but also for the package or carton, which was of no use to her as a foodstuff, for the advertising and a goodly margin of profit besides. In view of the shortage of labor and the high cost of material from which packages are made, the Food Commission has discouraged the sale of package goods of this kind. The first step was the quoting of grain foods in the price lists issued by this department on the bulk basis. Publicity was given to the fact that standard grades of cereals could be secured without buying packages, with a resulting increase in bulk sales as com- pared with package sales, and a proportionate saving to con- sumers. Operating Expenses of Feed Dealers Before the creation of a Bureau of Axiimal Feedstuffs, numer- ous complaints of overcharging and fraud in the sales of feeds were investigated by the Albany office of the Commission and by the New York City office. Whenever it was possible to bring action against a feed dealer for taking profits in excess of those allowed by the United States Food Administration, this was done. Out of the controversies as to increased costs involved in sale of feeds, however, arose the necessity for an investigation by the Division of Distribution to ascertain the costs and opera- ting expenses of concerns selling hay, grain and feed and especi- ally the expenses involved in the sale of bran. This investiga- tion covered the expenses of all such dealers doing business in Greater New York and showed that the average total expenses in selling bran amounted to about $4 per ton. The range, how- ever, varied from $2.50 to $8.50 per ton. To check up these figures secured by investigators, a questionnaire was formulated and sent to every dealer in hay, grain or feed doing business in Greater New York. On the basis of the answers on these ques- tionnaires the margins of profit for all concerns were ascertained. 44 Eefokt or Uew Toek State Foob Commissiok Nine concerns who were found to be profiteering' were rerferred to the Complaint Division for legal action. Regulations for Enforcement of Meatless Days Following the order of the' Xlnitedi States Food A'dministrar tion declaring certain daya of the week meatless days the Division of Distribution instituted a system, of reports from wholesales showing their meat sales -for eaeh day of the week. In this manaer a check was obtained upon the restaurants, and the reports were followed up to find out whether or not the restaurants were selling meat on mteatleiss days. Inspectors were assigned to visit the hotels, restaurants and public eating places in various sections of the city, which resulted in a more general adherence to the regulations of the Food Administration. The issuance of the^ meatless day r^ulations came with such short notice, however^ that it left the wholesale butchers of Greater ISTew York with approximately one-half million pounds of meat on hand which had been -ageing for some time and could not be preserved by refrigeratioai, although stiUt fit fair human consumption. Meats- used by restauraats are customarily aged from three to six weeks to make them tender. Any meat thor- ougtly aged or in the process of ageing cannot be placed in cold storage refrigeration. If this is done the meat when taken out is no longer compact. To save the threatened enormous waste of meat, conferences were held with the butchers and hotel and' reataurant men, which resulted in slight temporary modifications of the meatless regulations permitting the more frequent serving of this ineat in public plaaes. Milk Prices Fixed by Federal Milk Commission From the outset,^ the State Food Commission has had no jurisr diction over the determination of prices of milk in New York State,' this beingia matter fof whiGh. the United States Food Administration has assumed direct responsibility. In November 1917, a. Federal Milk Commission was appointed by Mr. Hooves by agreement with the organized milk producers and milk dis- tributors, to fix the prices of milk for the district supplying New York City. The power ocf this Commission consisted entirely Eepobt of New Yoek State Food Commission 45 in the pledge of the Dairymen's League representing the greater portion of the producers and the New York Milk Conference Board representing the most important of the distributors, to abide by the prices fixed by the Conamission. The members of the Commission serve without pay. Hearings and meetings were held in New York City during the month of December and at least once a month in the months following, up to the end of June, for the purpose of fixing prices to the producers and to consumers. In June the question of Avheth«r"or not the Milk Commission should continue in existence, was seriously considered on account of the withdrawal from the agreement of several of the important elements in the milk industry. Kegulationsi of Ice Supply and Distribution The prospect of a shortage of ammonia, which is essential to the manufacture of artificial ice and which is also used in the manufacture of munitions, caused considerable alarm in the winter of 1917—1918 over the possibility of an ice famine the following summer. At the first suggestion of such a possibility, the Bureau of Distribution and Transportation instituted an investigation of the entire situation and proceeded with plans to insure an adequate supply for New York City and other cities of the State. Data was collected r^arding the capacity for production and storage of natural ice along the Hudson river and other places. A" system of weekly reporting as to the amount of natural ice put up in each commestcial ice house in the State was established. Con- ferences were held with the leading ice dealers doing business in New York City resulting in an agreement by these dealers with the food administration to place contracts for large quantities of natural ice, thereby insuring the protection of the piiblic in spite of any possible ammonia shortage. Before the signing of these contracts had been completed, how- ever, the State Legislature passed a bill creating former Governor Benjamin B. Odell Ice Comptroller with complete jurisdiction over the distribution and manufacture of ice in New York City and the production of natural ice along the Hudson river up as far as Albany. An appropriation of $25,000 was made to Reim- burse natural ice produces for any excess supply which they 46 Eepoet of New Yobk State Food Commission might not be able to dispose of, in order to stimulate maximum harvesting of natural ice. Inasmuch as the State Food Commia- sion had no longer any' jurisdiction over ice distribution in New York City after the passage of this act, the agreement brought about by it was dissolved and all responsibility for the conditions turned over to the Ice Comptroller. The act of the Legislature made no provision, however, for regulation of ice distribution in up-State cities and in April, 1918, the State Food Commission created the position of Ice Comp- troller under the State Food Commission and appointed former Governor Odell to this position, thus giving him the same juris- diction up-State as in New York City. Ice was declared a " neces- sary " in the terms of the Food Commission Act and rules were adopted by the Commission requiring aU ice dealers in the State, outside New York City, to secure a license from the Commission. Where the conditions required, maximum prices were fixed for the retail sale of ice in up-State cities, it being the purpose always to keep down the price to the small household consumer and apply any necessary advances only to the commercial retail trade.' Work of the Traffic Division In response to the great demand made upon the State Food Commission to secure the release of food products from freight embargo, to assist in the location of lost freight cars and deal with other difficult traffic problems, a traffic division was estab- lished under the Bureau of Distribution and Transportation. An experienced traffic agent was secured by the Commission on part time, his services being donated by the Texasi Oil Company. This traffic agent, together with a volunteer worker assigned to assist him, has located a large number of lost freight cars contain- ing food, obtained release from embargo of necessary food ship- ments and shipments of materials essential to food industries. During the period at which congestion was greatest, as a result of snowstorms and bad weather conditions, as many as thirty or forty appeals came into the office of the Commission in a single day. By co-operation with the county food administrators and 8 By September 1, 1918, approximately 850 lieeas«s had been issued to dealers of ice outside New York City by the Conunission. Eepoet of New Yoek State Food Commission 47 other officials througliout tlie State, the traffic agent and his assist- ant have rendered invaluable service both to farmers and to shippers. In addition to tracing cars and getting them released from embargo, the Traffic Division has, with the assistance of the Bureau of Markets of the United States Department of Agricul- ture, aided shippers and consignees, by inspection and examina- tion of carloads of foodstuffs, to determine their grade and condition. Some idea of the volume and importance of the work done by this division may be formed from the fact that in the month of March, 1918, 365 cars were traced and four empty cars obtained for shipments of foodstuffs or containers. In April 1Y5 cars were traced and nine empty cars obtained for shipment of foodstuffs and containers. In May 199 carloads of goods, including 44 less than carloads, were traced, while 13 permits were obtained for the movement of certain foodstuffs against which an embargo existed. In March 20 carloads of goods were inspected with the aid of the Bureau of Markets to determine their grade. In April 14 carloads were inspected, and in May 34 different shipments inspected for the same purpose. In March alone action was taken by the Traffic Division to secure the prompt disposition of 269 consignments of foodstuffs being sold by various railroad companies at their lighterage stations. In April, cases involving over 250 cars of foodstuffs held at railroad lighterage stations were disposed of by this division. In May similar cases affecting 76 cars held at lighterage stations were acted upon. One of the constinictive accomplishments of the Bureau of Distribution and Transportation has been the drawing up of a standard form of contract for the sale of perishable foodstuffs. Its purpose is to have the buyer and seller agree to arrange for inspection under the direction of the Federal Food Board as soon as the cars are placed at a terminal railroad, the certificate of inspection being accepted as final. In the event of a. different variety or inferior grade than that called for by the agreement, the agreement provides that the Federal Food Board and the State Food Commission shall determine the market price for the buyer and seller. 48 Eepobt of New York State Food Commission Arbitration and Adjustment of Disputes Over Food SMpments Growing out of tte work of the traffic division, the arbitra- tion and adjustment of disputes over food shipments has grown to be one of the important ftmctions of the Food Commissito and the Federal Food Board. Controversies between shipper and consignee, 'arising over shipments of potatoes, cabbages,' turnips, lettuce, commeal or other perisable food products, ' are brought to the Commission for settlement and adjustment. Hearings, attended by representatives of both parties concerned, are held in all such cases, and in a great majority it is poisible to effect a prompt settlement and avoid resort to the courts and deteriora- tion of the food during long delays. An arbitration board, com- posed of the director and assistant director of the Bureau of Dis- tribution and Transportation and two volunteer assistants, was formed to sit on such cases. During the month of May alone 95 controversies were brought before this board, 51 hearings held and 45 decisions handed down. Much confusion has been caused by cars of foodstuffs refused by consignees who claim that the conai^ors shipped the goods on their own initiative and not on order. In these instances the carrier has been advised to sell for the account of " whom it may concern •" so that the food does not spoil while the question of ownership is being settled. Where the contents of a car are perishable, the consignee is instructed to unload and save whatever food is still in good con- dition. The contents of many cars are found to be for export, and their removal is naturally delayed, due to inadequate ship- ping facilities. In a great majority of. cases where the foodstuffs are for domestic consumption cars have been promptly unloaded. In many of the cases just awards have been difficult to make because the carrier, which is not under the control of the Food Administration, has been found to be at fault. A suggestion has been made to Washington that arrangements be made with the Railroad Administration so that when disputes of this sort are heard, the carrier can be made a party to the proceedings. This would mean prompt justice, and a speedy settlement of railroad claims, thereby releasing a large amount of capital now tied jip in such claims. Eepoet 01" New Yobk JState Food Commission 49 Trade Organization The necessity for establishing machinery through which the State Food Commission and the Federal Food Board might keep in continnoTis contact with the various food trades was apparent at the outset. A Division of Trade Organization was created for this purpose witix a man at its head who was thoroughly familiar with the food trade through former experience as educa- tional director of the E^ational Association of Wholesale Grocers. Its activities are based on the principles of close and friendly relations with all trade groups. Its function is to interpret the regulations of the United States Food Administration and the State Food Commission to the food trade and to aid the trade in volunteer compliance with them. The division serves as an ageaey throiigh which the department may familiarize itself with trade practices and avoid disturbing legitimate trade custom. The direct result of this division's efforts has been the bring- ing together of vari-ous common interests among food dealers, and the formation of trade committees representative of the various trade groups for the sperific purpose of co-operating with the food administration. The assistance of such committees is needed to make possible the adaptation of previous trade prac- tices to new rules and conditions, to preserve the proper relation of prices, and to establish on the soundest economic basis possible the relationship between the consumer and the trades and between the trades and the producers. For example, fifteen different organizations concerned with manufacturing or distributing bakery products, including the lai^e wholesalers, the medium sized wholesalers, the small wholesalers, the rye-bread bakers, etc., have been brought together under one committee, throng which the Commission is able to secure co-operation in the observance of the regulations relating io bakery products. A similar com- mittee has also been formed among the various groups of retail grocers, including five different retail grocers' organizations, seven different Hebrew retail grocers' o-rganizations, the chain stores which are unorganized, the large retail jobbing grocers and the delicatessen dealers. The wholesale grocery trade has also been brought together into a committee, including the large wholesale grocers, the small Hebrew wholesalers and the Italian jobbers. 50 Eepoet of New Yoek .State Food Oommissioit To aid tlie observance of the regulations relative to meat, com- mittees have been formed of kosher butchers, progressive Hebrew butchers and non-kosher butchers. The bakers, grocers and confectioners have been brought of necessity into conference more than any other groups, because of the fact that wheat and sugar were the two food staples most extensively and continuously affected by rulings of the Food Administration. These committees axe always ready and willing to attend meetings, act in an advisory capacity, and to assist in bringing fellow members of their trades into line with suggestions or rulings promulgated. It is interesting to note here that some of the trade groups had no organization through which they could be brought together for consideration of their common problems until they were stimulated to form such associations at the suggestion of the trade organization division. These trade groups thus brought together have been so pleased with the new relation and the benefits they have had from it that they will continue it indefinitely. The elimination of vicious practices and the establishment of good fellowship in the trades can easily be traced to the spirit of co-operation which has developed out of the contact which these trades have had with the State Food Commis- sion and the Federal Food Board. In the process of adjustment of trade practices to conform with the rulings of the Food Administration, trade difficulties and problems have arisen, particularly in the foreign element of the baking industry. In the attempt to modify their baking cus- toms in the use of wheat substitutes, many bakers were threatened with the loss of patrons and consequent financial ruin. By call- ing to their aid experts in the baking trade who could speak the same language and who had solved the problems involved and were ready to lend a helping hand to any baker brought to their attention by the Federal Food Board, it was possible to save them from disaster. The work with the various trade committees is supplemented by the distribution of educational literature interpreting and explaining the rules and regulations applying to the different trades. It has been the function of this division to assist the trade Eepokt of New Toek State Food Oommissioit 51 and the public by bringing about a more equal distribution of any surplus supplies of sugar and flour tbat may be available. This work has been the means of saving many stores and bakeshops from going out of business, because they could not secure their supplies through the regular channels/ Valuable aid has been given the bakers in permitting them to use the trade organization division as a clearing house for complaints against flour j'obbers,^" bakers' supply houses and wholesalers in the matter of unfairness in the sale of substitutes with wheat flour. The assistant director of the Bureau of Distribution and Trans- portation, who is in charge of this division, confers with the county food administrators in up-iState counties and keeps them informed as to the regulations issued by the United States Food Administration and the State Food Commission, and the method of enforcing these. Uniformity of policy and administration is thus secured through this advisory contact. In case the county food administrators are confronted with a serious shortage of sup- plies, he assists them in getting a relief supply. He makes visits to the principal cities up-State, and aids the county food admin- istrators in establishing local trade conmiittees and in securing the co-operation of the large food dealers. A large chain store operating bakeries up-State has, for example, voluntarily agreed, at the suggestion of the head of this division, to stop the baking of pastry during the war. At the close of this fiscal year arrangements are being made for complete control of the sugar and flour distribution in New York State through a system of certiflcates issued to all retailers permitting the purchase of these two commodities, on the basis of their consumption during the previous year. All manufac- *A special Oonmiittee on Excess Stocks of Cereal Products which was organized by this Division proved most helpful in the redistribution of flour and cereals. Bakers weekly reports from 3800 bakers doing business in Greater New York were received and examined by the baking section of the Trade Organi- zation Division. These reports showed how much wheat flour the bakers purchased, also the quantity of substitutes purchased, amounts on hand and amounts used each week. " Through the formation of a special committee of flour jobbers co-opera- tion has been developed in regulating the purchases of wheat flour and sub- stitutes by bakers in conformance with rules of the Baking Division. 62 Eepoet of JSTew York tStatit. Food OoMMissiow turers iisiiig sugar in !N"ew York Siaie were put on a certificate basis in May. This meant rationing approximately 9,000 m.anii- faeturers. The extensive organization required to administer this machinery for controlling sugar and flour distribution -will be furnished by the United States Food Adminigtrati&n, and placed under the direction of the Division of Trade Organization. Other activities engaged in by this division have been the carry- ing on of a campaign for the " cash and cairy " plan as a Tvar- time measure for all retail dealers in foodstuffs, a campaign for the early closing of retail food stores as a general conservation measure, and the enforcement of the fuel regulataons in effect in January, 1918, affecting food manufacturers. Settlement of Labor Bisputesi in Food Industries Because of its intimate contact with the food industries, the Bureau of Distribution and Transportation has frequently been called upon by both employees and employers to help bring about setlements of labor disputes. The constantly rising cost of lav- ing and the shortage of labor has made adjustment in wage scales and in working conditions necessary in many lines of food trade. Differences in opinion between employees and employers over the terms of these adjustments have in some cases threatened to result in strikes that would seriously affect the food supply of the city. Whenever possible, such cases have been referred to the Bureau of Mediation and Arbitration of the State Industrial Commission, but direct requests from both parties to arbitrate or aid in mediation have been accepted. And whenever food was in danger of being lost because of these disputes, prompt officiai action has been taken to save it. In endeavoring to settle labor difficulties among the handlers of foodstuffs, the immediate moving of food that might otherwise be wasted has always been insisted upon pending arbitratiDn of the deanands of the workers. In all such cases the workmen have agreed to move .and deliver the foodstuffs in question, and arbitration has brought about a mutual understanding and a better working plan for employees and employers. The strike which occurred amongst the handlers of dressed poultry was one of the most dangerous strikes from a food loss Ebpoet op New Yoek State Food Oommission 53 standpoint. As this strike occurred during tke hottest period of the year, the dressed poultry left upon the docks would have been utterly spoiled. The feeling between the employees and the dealers was greatly strained and the sentiment of both parties was to hold out indefinitely. A representative from this board was successful in changing the point of view oi both parties so that they agreed to arbitration, the employees, in the meantime, hav- ing agreed to move the poultry. Agreements were reached whereby both dealers and employees were perfectly satisfied. In another strike occurring among the truck drivers who deliver poultry from the freight terminals to the slaughter house, an appeal was made by the dealers to the bureau to mediate. The eraployees were antagonistic toward arbitration but finally agreed to submit their demands and rest their case with the director of the Bureau of Distribution and Transpoitation and to move the poultry pending his decision. Numerous small strikes among the egg candlers and handlers of fish have also been adjusted by this bureau. Largely by the efforts of the assistant director of this bureau, in charge of the Division of Trade Organization, a general strike was averted in the Hebrew baking industry that would have caused muck suffering among the poorer population of ISTew York aaad would have contributed to the waste of food products. After three weeks> of mediation by a special representative of the United States Department of Labor, a representative of the State Indus- trial Commission and a representative of the State Food Commis- sion, all attempts to arrive at a settlement were throvra aside by the industry. Only through the influence exercised independently fey the Bureau of Distribution and Transportation of the Comm^is- siDom was a compromise finally effected. Prior to this time the relations between the employer and the employee in the Hebrew baking industry were a constant source of contention and ill feel- ing. This settlement has been the means of bringing about a Better feeling which should assuTO future peace in the industry. CONSERVATION The term " conservation " has been used by the State Food Commission to denote the Food Administration's activities hav- ing to do primarily with promoting saving and substitution in the preparation and consumption of foods. Upon the Bureau of Conservation of the State Food Cominission has rested the responsibility for reaching the million and more of housewives of all nationalities within the boundaries of New York State,, with the message of individual voluntary food saving, upon the response to which Mr. Hoover and the nation have so largely depended. " We have founded the Food Administration on volunta/ry effort" Mx. Hoover has declared. " We have no desire to depart from this idea, hut if we are to accomplish this problem it must he accomplished hy the voluntary effort of the intelligent people, the influential people of the community. If this democ- racy has not reached such a stage of development that it has in its people the self-denial, voluntary self-denial, vnllingness to sacrifice, to protect its ovJ^ institutions and those of Europe from which our own were hred, then it deserves to go down." Through the Conservation Bureau the people of the State have been helped to put their voluntajy effort into intelligent practice in their use of foods. This Bureau has not had only the task of impressing the individual housewife with the importance of following food regu- lations but of showing her how to do it. It has shown how to use foods that are plentiful in place of foods that are needed for shipment abroad to keep our allies from suffering and starvation. The problem has not been one of saving as much as of substitu- tion. At no time so far has tiiere been danger of insufficient food in this country provided we adjusted our food habits to make full use of the good foods that were abundant. The accomplishment of the educational task of this Bureau is made many times more difficult by the polyglot character of the State's population. The enormous Jewish immigrant group has food habits of its own quite distinct from those of the native [54] One of the Thrift Kitchens. Summer Canning Demonstration Operated' by Conservation Bureau of New York State Food Commission at Public School 97, Brooklyn — Three Days' Output. How TO Save Wheat. Victory Bread Exhibit at New York State Grange, , Syracuse, N. Y., February 1917 Made by Conservation Bureau, New York State Food Commission. Eepokt op New Yoek .State Food Commission 55 American and which are involved with questions of religious doctrine. The Italian lives upon an almost entirely different diet. The Poles, the Bohemians, the Scandinavians, the Greeks, the Russians, the Spanish — all have to be approached in terms of their own experience when it is proposed that they eat more of one thing and less of another. In formulating a program of food conservation for New York State the Bureau has determined upon the following principal lines of activity : '■ 1. To cooperate with the United States Food Administration in aiding consumers to adapt themselves to the food situation and comply with the regulations. 2. To teach by demonstraUons the best practices of purchas- ing dmd preparing food stuffs, mth the idea of improving the nutrition of the people. 3. To correlate the worJc of food conservation with food pro- duction by encouraging the conswmer to utilize foods of which there are surplus supplies. 4. To tea• • b- P OJ ^ s t> ■ i>r ee^ lO ^ "V ce OS o> £ -13 CO N o ^ Eh O CO CO % 1 ?, "i ■* oW a ui OS ■* U3 N 00 M o ^ «" CO t^ CD M o a "* 03 OT z a OS ■ Os' 1 O M o S E-H .-7 TlT CO i-H 1 s t- N OS 'E^ 0) O OS P lO Xt CO CO a iC 15 z £ t* b- s o ■ o" I-H l> tH 00 m 00 1 H 00 rn CO U3 OS ■=■0 SB g W5 S s °^ 00 c9 Q> CO o ^1 ^ .-« U3 <» ^ t-„ ll CO CO a >o lo a> CO to s m' m" th umber of farmers . ^guestmg , S K g OS o co" CO Z = CO > . .11 w** • ."■rH . •"3 O . ca (D •3 ft S oi . ftt. . 01 o . h-a • S <3 . ^^ ■ 3 S : © 3 • +^ iSi a ^^■a 1 HEh u Eepobt of New York State Food Commission 113 In addition to those placed in farm labor by tlie farm labor specialists of the Commission, 5,861 men and 745 women were placed on farms in New York State by the 30 assistant county farm bureau managers supplied for this purpose by the United States Department of Agriculture. The actual expenses of these assistants in connection with furnishing farm labor were paid by the State Food Cbmmission. ^ The greatest number of place- ments were naturally in those months when the planting and harvesting of the crops was being carried on, but the high mark in placements of women was in July. During this month was harvested one of the most profitable cherry crops that the growers in this State have ever had. On account of the scarcity of labor with farm experience, and because the war industries were able to pay wages against which the farmer could not compete, it was impossible to supply all the labor needed. There were 834 requests to the farm bureaus for labor that could not be filled. This was largely for experienced farm hands as was shown by the number of applicants that asked for work. A total of 865 persons applied to the farm bureaus for work who could not be placed largely on account of their lack of farm experience. A total of $3,454.70 was expended by the farm bureau managers and their assistants in the placement of labor and in aid- ing the farm labor specialists in organizing local labor. In some counties, such as St. Lawrence, where local labor was practically the only source, this last item was the major expense. The average cost of placing labor was 52.3 cents per person, which is a very nominal cost when compared with the excellent work accomplished. Combining the results secured by the farm bureau managers and their assistants with those secured by the employees of the Food Commission gives a grand total of 17,192 adult men and women placed in farm work, including 13,032 men and 4,160 women. These figures do not include the boys sent out by the 'They were assigned to work with farm bureaus in the following counties; Albany, Allegany, Cattaraugus, Cayuga, Chautauqua, Chemung, Chenango, Columbia, Cortland, Delaware, Dutchess, Erie, Essex, Genesee, Greene, Herkimer, JeSerson, Livingston, Madison, Monroe, Montgomery, Nassau, Niagara, Oneida, Onondaga, Ontario, Orange, Orleans, Oswego, Otsego, Rensselaer, St. Lawrence, Saratoga, Schoharie, Seneca, Steuben, Suffolk, Sullivan, Tompkins, Ulster, Wayne, Wyoming. 114 Eepoet of New York State Food C'ommissiok State Boys Working Reserve, which would bring the total to 31,323 persons placed in farm labor. Emergency Farm Labor Committees The work of organizing local patriotic emergency farm labor committees in small towns and villages throughout the State to secure pledges from retired farmers, tradespeople and others who have worked on farms to help out in harvesting when needed, has met with marked success. 358 committees were organized in the villages and small tovms of 47 counties and pledges secured for T8,261 days' work. In more than one hundred villages where committees were organized, it was not thought necessary to make an enrollment of volunteer workers, owing either to the size of the village or to the character of the farming in the vicinity, but an lagreeiment.was entered into with the chairmen and secretaries of the committees to cafe for any calls from the farmers for assistance. Accurate reports for the actual number of days' work done are difficult to secure. Complete reports from only 29 committees show 12,781 days' work accomplished. The test of the effectiveness and worth of the emergency farm labor plan began in September and will continue until the har- vesting of the fall crops is over. To maintain local interest in the plan and to encourage and spur on the local committees, the organizers visited during August and September, those sections where the demands for labor were most pressing. An interesting illustration of what may be accomplished by cooperation between town and country, is afforded by the example of Albion, a village of 5,000 population in Orleans county. The business men agreed to close their stores on a given date, enabling the merchants and clerks to harvest the apple crop. A large num- ber of these had been helping the farmers every Sunday during several weeks. Prior to the influenza epidemic, 130 soldiers from Fort Niagara worked a total of 13 days or 1,690 man days of labor in this same locality at fruit gathering. Success of Womens' Farm Labor Eeserve The success of the efforts of the women farm labor specialists may be judged by the fact that calls came from 673 farmers for Kepoet op New York State Food C'ommission- 115 5,181 women and 3,122 of the 4,992 applicants who registered were placed. As an extremely large number of women registered who were totally unsuited and unfit for farm work, the difference between the number registering and the number placed is excessive. The few women sent out singly worked on dairy farms, drove tractors, cared for poultry, or worked as general farm hands. The largest number was sent out in groups. Ninety-one units were organized in various parts of New York, Connecticut and New Jersey.^ The size of the units varied from 4 to 173 women. The largest was sent to a large tobacco plantation near Hartford, Connecticut, the second largest (153) to a cherry orchard near Eochester. In the case of practically all of the units organized by the women farm labor specialists the expenses of providing proper housing and furnishings, as well as transportation, have been met by the farmers. This has been especially true of the large units. Two units sent out from Buffalo had their barracks furnished by a large canning company and the equipment by the Woman's Land Army. In all other instances the farmer supplied all neces- sary equipment. Units sent out from Rochester, Albany, New York City, Syracuse, Binghamton, Connecticut, New Jersey and Long Island had all their housing and equipment provided by the farmers, except in two instances. One of these was in Binghamton where the Y. W. C. A. furnished the housing and equipment and The distribution of the units was as follows: Connecticut 4 New York ( continued) New Jersey 3 ^ New York : Albany county 1 Broome county 1 Cattaraugus county 1 Cayuga county 1 Chemung county 1 Chatauqua county 6 Chenango county 1 Columbia county 2 Cortland county 1 Delaware county 2 Erie county S Fulton county 1 Madison county 1 Monroe county 2 Nassau county 2 Niagara county 2 Oneida coimty 1 Onondaga county 5 Ontario county 1 Oswego county 2 Otsego county 2 Eensselaer county 2 Schoharie county 2 Schuyler county 2 Cayuga county 1 Tompkins county 1 Ulster county 26 Washington county 1 Wayne county 7 Westchester county 1 116 Eepoet of ISTew Yoek State Food Commission the other in Syracuse where the Woman's Land Army and The Girl's Patriotic League contributed about $300 toward the equip- ment of the camps and part of the rent for the housing of one of the units. The aim was to make the units self-supporting. The farmers paid workers directly, who shared their living expenses on a co-operative basis. In addition each worker contributed fifty cents a week toward the wages of a cook and a supervisor. The weekly expenses per person including the fifty cents for the cook and the supervisor, varied in different units from $3 to $4.50 according to the locality. The supervisors were given assistance by the farm labor specialists in planning the housekeeping arrange- ments, buying supplies, and in planning meals that the cost might be kept as low as possible. The wages have varied according to the locality and kind of work. In berry and fruit picking the pay was by the quart or pound. In general farm work and on truck farms the pay was by the hour or day, varying from $1.50 to $2 a day and housing. In some parts of the state the women have averaged $2'5 to $30 per month after all expenses were paid. The Hew York State Boys' Working Reserve The 'New York 'State Boys' Working Reserve of the State Food Commission has proven a very successful means of relieving the farm labor shortage, by recruiting boys under draft age for special summer work on the farms. The enthusiastic response of the boys is shown by the fact that 14,206 boys enrolled and 14,131 placements were made. Under the supervision of the State Boys'Working Reserve 34 camps" were established, three of these being the training camps at the Morrisville and Delhi Agricultural Schools and at the farm of the Chief Zone Director at Earlville. The State Food Commission supplied the funds necessary for equipping the camps with cots and blankets. The camp at Earl- ville was financed privately. Six camps were located on Long Island, the equipment used being that purchased this spring by the Commission from the Long Island Food Reserve Battalion. For each of these camps, the Board of Education of New York City furnished a supervisor. The boys made from $6 to $9 a week Eepoet of New York State Food Oommission" 117 in these camps where a type of boy can be used under strict super- vision and semi-military discipline, who would not be so happy or efficient on an individual farm. Twenty-two camps were sent out from 'New York City to the fruit picking section in Ulster and Orange counties. The Food Commission paid the boys' transportation expenses, the farmers supplied the living quarters except in one instance at Kingston, where the Y. M. C. A. furnished the tents, and the Department of Education of New York City paid the supervisors except in the camp at Kingston, where they were paid by the Young Men's Christian Association. Albany sent out one camp to Sharon Springs, and Eochester one to pick peas and beans. By far the great majority of the boys, however, were placed with individual farmers. Here the boy had the advantage of close personal acquaintance with the farmer in working out the • problems of farm life as well as the advantage of a full set of equipment at his disposal at all times. So far as possible, the boy was placed where he was the only help the farmer had. The amount of work done by the boys is indicated by the fol- lowing figures : Summary of Farm Work Done by 11,152 Boys of New York State Boys' Working Reserve (including New York City Boys)* Number of acres plowed 76, 094 Number of acres harrowed 143, 620 Number of acres cultivated 67 , 519 Number of acres hoed 27 , 594 Number of Days Spent in Growing and Marketing Vegetables Days Planting vegetables 40, 106 Transplanting vegetables 15, 801 Cultivating vegetables 69, 884 Gathering vegetables 34, 419 Marketing vegetables 7, 833 Bushels Peas picked by boys 3, 903 Beans picked by boys 3, 377 Potatoes dug 130, 138 * All the farmers hiring bpys have not yet reported on the total amount of work done. 118 Eepoet of New Yoek State Food Commission Live stock poultry cared for Horses 20, 904 Hogs 20, 027 Cows, milked daily 33,731 Sheep 7,440 Crops harvested, by acres Winter vrheat Spring wheat . Oats Barley Buckwheat . . . Corn Hay Acres 10, 272 2,337 27, 241 5,023 6,573 19, 3C4 81, 025 Vegetable crops cared for Acres Lettuce .... Beets Radishes . . Cabbage . . . Cauliflower Tomatoes .. Celery . . . . 625 672 329 1,646 496 1,137 621 Fruits picked Small fruits, qts Peaches, bushels. Pears, bushels . . . Steers Calves Ducks Other poultry Rye Oats and Peas. Beans Cabbage Peas Potatoes Snap beans Peas Beans Cucumbers Carrots . . . Potatoes . . 2, 529, 800 Plums, pecks . . 23, 027 Apples, bushels 24, 608 160 68 8,604 375,348 Acres 5,711 1,512 11,384 1,933 1,698 1,320 Acres 241 1,461 6,900 1,184 1,049 20,349 56,898 59,997 In addition to the work listed above, the boys operated 66 farm tractors and 7Y milking machines. They cared for 1,500 swarms of bees and 36 acres of tobacco. The total food crops, exclusive of hay and fruit, raised by 10,295 boys, exclusive of fruit pickers, amounted to 131,078 acres, which represents a net earning to the farmer of $433,816.30. This valuable contribution to production was effected at a cost of $73,500, of which sum $32,890 was spent for transportation, $12,500 for equipment, $28,200' for salaries of zone directors, stenographers, and supervisors, $5'0i0 for printing and stationery, $250 for the State Fair Exhibit, and $100 for incidentals. Of the total cost of the Boys Working Reserve the State Food Commission provided $52,000, the 'New York City Department Repokt of New Yoek State Food Commission" 119 of Education $19,000, the Syracuse War Chest $1,500, the Rochester Board of Education $500 and the Buifalo Board of Education $500. Price Regulation In the four months ending November 1, 1918, the State Food Commission and the Federal Board working together have developed and put into practice a plan for exercising more definite control over retail food prices than has previously been possible. This plan, which conforms with general instructions sent out to all states by the United States Food Administration, includes four principal features : First, the determination by a general price committee com- posed of representative consumers and tradesmen, of fair maximum margins of profit by which fair retail prices are arrived at; Second, the publication of the fair margins and prices in bulletin or poster form for posting, and the distribution of these bulletins to all stores selling meats or groceries ; Third, the checking up and reporting by volunteer agents on the actual retail prices charged, and the investigating of violations by official inspectors ; Fourth, the instituting of legal proceedings against those charging more than the approved margins of profit. The fair margins are determined by the same procedure as were the differentials used in making up the fair price lists published during the past fiscal year. They are based on thorough accounting studies of the cost of doing business in retail and grocery meat stores, supplemented from time to time by special investigations of changing factors of cost. The margin is the difference between what the dealer pays for the commodity and what he sells it for. Out of this margin he must pay all his operating expenses — rent, light, transportation, labor, et cetera, what is left being his actual net profit. AH of these items of cost are accurately ascertained by the examination of the books of hundreds of stores, and a general average figure for total opera- 120 Kepoet of New Yokk State Food C'ommission tion cost established. The fair margin of gross profit on any given item is based approximately on the proportionate volume of business in that commodity in an average store, as compared with the total volume of business. That is, due consideration is given to the fact that certain staple articles, in which there is a large volume of business and a rapid turn-over have never brought the same percentage of profit as other less essential commodities. The wholesale prices are secured direct from the wholesale markets at least twice a week by inspectors of the Commission, and from these are made up the fair retail prices by adding to them the approved margins or differentials. It should be under- stood that the wholesale prices are also limited by maximum margins of gross profit which are fixed -by the United States. Food Administration. Advisory committees of retail grocers, wholesale grocers, retail and wholesale Gentile butchers, retail and wholesale Hebrew butchers, and fish dealers, have been formed to confer with the Division of Distribution regarding proposed schedules of prices. These committees are made up of representatives of the trade, and as it has been found possible to get them to agree on the margins of profit found to be fair by the Division of Distribution, a greater measure of cooperation among the dealers in the observ- ance of them has been secured. Before any new fair margins or prices are issued, however, they are submitted to a general .price committee composed of a majority of representative con- sumers, and a minority of representatives of the food trades selected from the advisory committees above mentioned. The facts upon which the margins of profits are based are reviewed by this general committee and formal action taken approving margins or differentials which can be applied in adjusting the actual prices from week to week. The fact that it is possible in a great many stores to get the commodities at lower prices than those issued, does not necessarily mean that the latter are inaccurate and excessive. In most cases it simply means that the dealer is using them as " leaders " to draw trade, and is making up the profit he would ordinarily make on them by charging more for some other articles. Eepoet of New York State Food Commission 121 The new price bulletins include no luxuries, only tliose meats, dairy products and groceries that are commonly used in the average household. The prices are maximum only and the sale of any food at less than the aproved prices is encouraged, providing it is not merely used as bait for exploitation. It is entirely pos- sible that a dealer may be selling below the minimum of the approved range of prices and still be guilty of profiteering, for the determining factor is his margin of gross profit over the price he paid. The bulletin form in which the prices are published contains in columns the list of staple commodities with grade and kind, the prices the dealer pays, the approved margins of profit, the maxi- mum price the customer should pay, and a blank column at the right in which the dealer is required to insert his prices. Each dealer must keep one of these bulletins posted conspicuously in his store. In New York City the bulletins are distributed each week to all food stores by the uniformed police. Whenever possible volunteer workers are used in checking up on the prices actually charged by stores. In New York City the Food Council has taken over responsibility for this and has designated volunteer women to check the prices in every portion of the city, and to report all cases of dealers charging more than the published prices, and all cases in which they have reason to believe the dealer is making a greater profit than is permitted. In order that these volunteers might be trained in recognizing the various grades and kinds of commodities listed on the price bulletins, a series of lectures was arranged for them by the Bureau of Distribution and Transportation, which will include detailed explanations of the distinguishing qualities of each. Apparent violations are then investigated by trained inspectors and the dealer subpoenaed. If he is. found guilty of minor profiteering and it is his first offense, he may be warned and further action suspended, pro- vided he signs a pledge to abide by the approved prices in the future. If, however, evidence is secured of deliberate intention to charge more than the allowed margins and the gain from such overcharging has been considerable, a formal hearing is held and appropriate legal action taken. 122 Eepoet OS- New Yoek State Food Commission Regulations Eequiring the Labeling of Meat The efforts of the Oommissioii to regulate the retail price of meat through the issuance of fair price lists brought out the need for rules applying to meat, similar to those put into effect by the Food Commisssion in January, 1918, applying to certain staple groceries.^ The extensive studies made of the methods of meat cutting, both Kosher and Gentile, and the scientific data developed for the determination of costs of various cuts of meat and fair retail prices for them, all furnished a basis for the preparation of special regulations requiring standard labeling of these cuts.* One of the worst frauds practiced on the M"ew York Oity public in connection with the sale of meat is the sale of ordinary trefa, or non-kosher meat, for kosher meat, which is supposed to have been prepared according to certain Jewish ritualistic rules, and therefore, sells for a higher price. The Jewish people in the poorer districts of the city are thus made to pay more for their meat than those in wealthier residential sections arid what they buy may even be inferior. With the hope that it might be possible to wipe out this fraud as well as give the general public a means of knowing more definitely what it is buying at the meat shop, the Bureau of Distribution and Transportation proceeded to draft two separate sets of rules, one dealing with kosher meat and the other with non-kosher. Immediately the question arose, however, as to what is " kosher." The help of the orthodox Jewish com- munity was enlisted to establish definite standards for kosher killing and retail marketing of meat and poultry. By Ifovember 1, 1918, it had not proven possible to accomplish the desired pro- tection of the Jewish public in this matter without becoming involved in questions of religious ritual and the plan of enacting separate regulations for labeling of kosher and non-kosher meat has temporarily been abandoned. Eules have been prepared by the Bureau of Distribution and Transportation covering both kosher and non-kosher meat and requiring all meat dealers to post signs on certain cuts of beef, lamb, mutton, pork, and certain by-products thereof, on live and " See page 32. ° See page 30. Report of New Yokk Statte Food Commission' 123 killed poultry, indicating tlie kind, grade and retail price per pound untrinmied, and also the retail price per pound trimmed.' Special Investigations of Trade Practices and Conditions In this four months' period a number of special investigations of trade practices and trade conditions, similar to those described in the report for the fiscal year, were conducted by the Division of Distribution of the Bureau of Distribution and Transportation. Among these were an investigation of the high prices of oranges in the New York market, an investigation of the costs of manu- facturing prepared meats for delicatessen trade, an investigation of profiteering in the sale of lamb, an investigation of the ship chandling trades, and a number of minor investigations. A great deal of time of the market inspectors and the accounting staff had to be devoted to collecting data upon which fair margins of profit could be determined. In each county throughout the State, special investigations were made continually during this period by the county food adminis- trators with the inspectors assisting them, wherever their assist- ance was found necessary. The county administrators through- out the State were, as far as possible, given the benefit of the ;research work done by the Bureau of Distribution and Trans- portation. 'No attempt is made here, however, to describe the investigational work in all the various countie's to which investi- gators of the 'State Food Commission were assigned. The extremely high price of oranges in the New York market was the occasion of a very thorough investigation of every phase of the marketing of this fruit in New York City. It was found that all concerns trading in oranges were taking in enormous profits, and as a result of the investigation, the prices of oranges took a decided drop. It is the practice in the New York market for commission houses to sell oranges consigned to them at public auction to the highest bidders. Direct sales are rarely made. Mal-practices which have a tendency to inflate prices are prevalent. It is often ' These rules were formally adopted by the Food Commission November 22, 1918, to take effect December 15, in the coimties of New York, Kings, Queens, Bronx, Richmond and Westchester. 124 Eeport op New Yoek State Food Oommissiobt the case that oranges offered at auction are withdrawn if the prices bid are not considered high enough. Furthermore, com- mission houses offer for auction as representative of the entire lot high grade samples which bring top prices, but are not at all representative of the quality of the goods being sold. It is the general practice in the trade in New York City to repack Porto Rico and Florida oranges after arrival, for the purpose of remov- ing deteriorated fruit. However, inspectors from this department found that in many instances crates of oranges were not repacked and were sold containing a great amount of poor fruit. In other cases it was found that in the repacking of such oranges quantities of inferior fruit had been placed in the same boxes with the better brands. Investigation of the books of a number of concerns revealed that excessive profits were made in sales made at auction, an.d it was brought out that oranges were being sold to the fruit auction con- cerns at an artificial market price. The investigations in the orange market opened up many prob- lems in connection with profiteering where food is sold at auction, which can be constructively dealt with only by months of persist- ent effort. It is recommended that the permanent city, state and federal departments having to do with the marketing of food develop a plan for concerted action, accompanied by such further legislation as may- be necessary for regulating the sale of foods'at public auction. At the request of the retail delicatessen dealers of New York, an investigation was made of the costs of manufacturing delicates- sen meats, including bolognas, frankfurters, corned beef, pastrama and salami, for the purpose of ascertaining whether or not undue profits were being made by the manufacturers. By inspection of plants and examination of accounts, information was secured as to the costs of meats and other ingredients used, the cost of the different processes involved in the preparation of the meats, the amount of labor required and all other elements of cost. A survey of all the refrigerating houses in the vicinity of New York City was made to determine the quantities' of meats stored for manufacturing purposes. A complete tabulation was made show- ing the original storers, the quantities, the state in which stored, Eepoet op New York State Food Oommissiow 125 from wkom purchased in original state, the prices paid and the length of time in storage. The operating costs of 1918 were compared in detail with those of .the previous year. It was found that most concerns had approximately the same shrinkage, the same labor expense, and used the same methods of preparing their meats. It was also found that even with the increased operating costs and other expenses, manufacturers were making a slightly higher margin of profit on all meats produced as compared with the margins of 191Y. It appeared that the manufacturers were offsetting their losses on certain items, such as pastrama, by demanding higher prices for the other meats manufactured. Profiteering in Lamb Checked Early in October there was a sharp decline in the wholesale prices of lamb. Investigators of the Bureau of Distribution and Transportation were sent immediately out into the market to find out whether the consuming public was being given any benefit of this decline. This investigation revealed that 234 butchers had not lowered their retail prices to their consumers. After preliminary hearings conducted by the Complaint Division, these butchers were all summoned before the Federal Food Board and the State Food Commission. They were all given the alternative of closing their shops for varying periods depending upon the seriousness of their offense or making contributions to the Red Cross and signing a pledge to abide by the prices of the Federal Food Board in the future. Out of the 234 cases, 199 decided to make contributions averaging about $100 each to the Red Cross, six cases are still pending and the balance have been dismissed. The immediate and continued effect of this prompt and sum- mary action was to keep the retail prices of meatstuffs at a lower level to the consumer and to bring about a general compliance among the butchers with the fair margins of profit issued by the Federal Food Board. Study of Ship Chandling As a result of many inquiries and complaints from the United States Emergency Ship Building Corporation which supervises the 126 Eepoet of New Yoek State Food Commission purchases of food supplies for ships loading in New York harbor, a study was made of the ship chandling trade. This brought out the fact that the dealers in this trade are of a type that could not be classified as either wholesale or retail. Ship chandlers purchase both from the wholesalers and retailers and their sales are fre- quently made in lots greater than retail amounts but not as large as wholesale amounts. Under the circumstances these concerns could not be governed either by the wholesale margins of profit or the retail margins of profit as fixed by the United States Food Administration and the New York Federal Food Board. After full information had been collected regarding the conditions of the trade it was decided to call a meeting, to which all ship chandlers in Greater New York should be invited, for discussion of the problems involved in removing the practices detrimental to the interests of the public. A committee of representative ship chandlers was appointed to assist in arranging for the meeting. The ship chandlers had no association at the time but at this meeting an organization was formed. This organization gave helpful consideration to a form of questionnaire for the pur- pose of ascertaining the operating expenses and overhead charges in the business. This questionnaire has been sent out and fol- lowing its return and the compilation of figures and facts con- tained therein, a set of' margins of profi.ts which will be fair to all concerned will be determined upon. Control of Sugar Distribution The control of the distribution of sugar in New York State became one of the largest tasks confronting the food administra- tive agencies in the State during the months of July, August, September and October. Beginning July first all users of sugar, other than householders, were placed on the certificate plan. The Sugar Division, organized early in May, 1918, subsequent to the ruling of the United States Food Administration effective May 15th requiring all manufacturers using sugar to be registered on a certificate basis, was enlarged by July 1st to a department of over 160 employees which was combined with the Trade Organi- zation Division of the State Food Cbmmission and the Federal Food Board. Repoet 03? New Tobk State Food C'ommission" 127 The distribution of sugar for the entire State of New York was .administered from the New York City office. The Sugar Division was divided into four subdivisions: the "A" and "B" departments which handled manufacturers ; the " O " department, public eat- ing places; the " D " department, bakeries; and the " E " depart- ment, retail and wholesale dealers. Statement blanks were given out or mailed to users of sugar coming under these classifications, and as rapidly as the statements were returned showing the amount of sugar on hand, in transit, and the amount used or sold during specific periods, the issuing of certificates followed. The functions of each subdivision included the interpretation of rules, the installation of filing systems, checking over statements of the holders of certificates, computation of allowances, and the issuing of certificates. In each of these subdivisions there were neces- sarily several sections. Different allotments, for example, were made for manufacturers of soft drinks from those made to manu- facturers of condensed milk. In public eating places, differences in type of service to the public called for different allotments, as, for instance, a lunch stand serving coffee only as compared with a canteen in which a variety of food is prepared and served. Bakeries making cakes, pies, and pastries, had to be handled separately from those making breads only. During July, August, September, October and November* approximately 70,000 statements were handled monthly. They were the basis on which sugar certificates were issued. This num- ber included approximately 9,000 statements for manufacturers; 17,000 for public eating places, including institutions ; 7,000 for bakers, and 37,000 for retail dealers. The Sugar Division was handicapped at the period of its preliminary organization by the removal of the offices of the Commission and the Food Board to their present location. Approximately a week's time was lost in the process of packing and unpacking and straightening out records. The consequent confusion delayed the issuing of certifi- cates and threw burdens on the Division which handicapped it for several weeks. ' Figures for November are included because the worlc of this Division is being discontinued December 1, 1918. 128 Repoet of New York State Food C'ommission Owing to the late receipt of the basis of the October allotment, the manufacturers' statements for that month were particularly complicated. Until the proper basis was decided upon, the October allotment was issued on the 50 per cent allowance of the previous year. The November basis was subsequently changed and practically all manufacturers' October allowances had to be adjusted in connection with the November allowance. The greatest obstacle to the adequate control of the distribu- tion and consumption of sugar was found to lie with the retail dealers. Approximately 8 pounds of sugar per capita for the New York State population were released to dealers in July and August on the basis of the dealers' statements covering actual sales in the preceding three-month period. The official ration, on the other hand, for households in this period was a total of 5 pounds per capita (3 in July, 2 in August). To make an allot- ment that corresponded more accurately with the official ration, the Sugar Division took as a basis for the monthly allowance one-third of the amount shown to have been sold during April, May, and June, deducting the stock on hand July 1st and then sent certificates for July for the remainder. Those dealers having a stock exceeding thirty days received no sugar in July. In August, 70 per cent of one-third of the April, May and June amount Isold, was allowed after deducting additional stock on hand over and above 30 days from July first. In order to check further the accuracy of these statements, the retailer was required to give the number of his customers and the amount of gross sales during a given period. It was realized that fixing an allotment on this basis would not meet the demand for extra sugar for canning and preserving. A plan was consequently adopted whereby the dealers filed with the county food administrators their home canning slips covering sugar sold in quantities not to exceed 25 pounds at a time. The amount of sugar covered by these home canning slips for each dealer was recorded. The county food administrators, after checking them, certified to the Sugar Division the amount of sugar legitimately sold and additional certificates on such certifi- cation were issued. A plan was perfected for filing all statements by counties and listing with the county food administr itor, the Kepoet of New Yoek State Food Commissiow 129 name, address, and sugar allotment of each company or individual receiving sugar certificates in his county. In this wa.j the merits of each case could be ascertained." In September it was necessary to reduce the sugar allowance to dealers to about half what they received for August in order to keep within the total allotment for New York State for the three-month period, July 18 to October 18. In July, August, September, October and November, the amount of sugar released on certificates was as follows : July 66,995,000 lbs. August Y2,5V9,000 lbs. September 60,633,000 lbs. October 63,569,000 lbs. November 48,915,000 lbs. In addition to these amounts, certificates to cover sales of sugar for canning were issued to the amount of 14,343,000 pounds. Interim certificates were issued to wholesalers in July to the amount of 18,932,000 pounds, but are not to be considered with the figures for July, August and September, as they do not repre- sent an additional amount of sugar released on certificates, but represent the amounts of sugar obtained by wholesalers from refiners until the former received certificates from retailers. The sugar thus obtained was accounted for by replacing all interim certificates with retailers' certificates as they were received. The Complaint Division co-operated with the Sugar Divisiori in the effort to maintain fair sugar allotments and to investigate cases where it appears false statements were being made. Sub division " 0," regulating sugar allotments to public eating places, has had the assistance of the State Committee of the Hotel and Restaurant Division of the United States Food Administration in checking up the observance of the limitations imposed on public eating places in the use of sugar. " A notice was sent out to the trade papers, grocers and householders, that after October 19 all sales of sugar for home canning would be discontinued. Upon the approval of the Bureau of Conservation, however, requests for •canning sugar from women's organizations making jams and jellies for hos- pitals caring for woimded soldiers, were granted. 6 130 Eepoet of Kew Yoek State Food Commission The Sugar Division published a digest of the sugar rationing rules affecting public eating places, bakeries and retailers, and prepared for the general public a resume of general information containing the sugar ration for consumerSj rules governing the sale of sugar to households, and suggestions for sugar saving. Many special problems necessarily arose in the attempt to fit a fixed set of rules to various kinds of business and people. Special arrangements had to be made for the disposal of sugar damaged in shipping' or in other ways, for redistribution of surplus sugar which manufacturers could not be allowed" to hold, and for the sale of sugar to war workers going abroad. The administration of this difiieult function of equalizing the distribution of sugar in this State has been accomplished with practically no cost to the State itself, except the salaries of the several persons of the Trade Organization Division of the Food Commission who were assigned to the Sugar Division. The other expenses of personal service, equipment, rent and supplies were all borne by the Sugar Equalization Board of the United States Food Administration. It would not have been possible to handle this task as effectively and as economically as it was handled if it had not been for the patriotic men, experienced in the" manage- ment of big undertakings, who volunteered their services and who worked night and day for weeks under great pressure, and with devotion and loyalty befitting a soldier in the first line treaches." Strikes in Food Industries Averted The Bureau of Distribution and Transportation of the State Food Cormnission and the Federal Food Board has been able to adjust amicably several important labor disputes in food indus- tries during the four months ending with October, thereby saving loss of food and hardship on the public. In each case intervention was only at the request of or with the approval of both parties to the controversy. In October various labor unions in the baking industry in New York City, including both Gentile and Jewish bakers, "Among those deserving especial commendation for the service they ran-- dered are Messrs. B. Hoffman, Charles J. Goldmark, Clarence Troup, George "Van Vlack, Edward Brandt, N. J. Alexander, John J. Fitzgerald, Victor Perley, Frank Lewishon, Edwim R. EUwood and Missee Lucy Kipper »nd Grace Turner. Rbpoet of New Yoek State Food Commission 131 demanded of the boss bakers certain cbanges in the wage scale and other conditions of employment which if not accepted by them would result in a walk-out. At the request of both sides an informal meeting was held at the Federal Food Board office on October 25th at which both the unions and the boss bakers were represented. Mr. Floyd Fiske, Assistant Director of the Bureau of Distribution and Transportation, presided and through his efforts the time set for the general walk-out was postponed for one week. At this meeting both sides urged the Assistant Director to act as mediator and as a result of this, two large mass meetings of bakers were held in Brooklyn where com- mittees were designated with power to act for the boss bakers. At his suggestion these committees met with the union men on October 29th, at which time a settlement of the difference was effected and the walkout avoided. Nine conferences and meet- ings with bakers were held in connection with obtaining a settle- ment of the threatened strike. Incidentally the accounting staff made a survey of baking operating expenses and profits with particular reference to the effect the increased wage scale would have on baking costs. A general strike affecting Gentile butchers in New York City was impending late in October because of a demand for an increase in wages and better hours for retail meat cutters. The strike was averted after a series of conferences were held in the interests of obtaining an agreement, at the request of Assistant Director Fiske who acted as an informal mediator. Through the efforts of a representative of the Bureau of Distribution and Transportation, foodstuffs which were in danger of spoiling because of a strike in progress among freight handlers on Pier 86, North Eiver, were kept moving toward their destina- tion and much loss thereby prevented. A threatened strike in a large meat concern was prevented by a representative of the Food Commission who attended a meet- ing of the union and persuaded those concerned not to call the strike. Other strikes affecting food industries regarding which the Food Commission was notified or requested to intervene were referred to the Bureau of Mediation of the State Industrial Com- mission for adjustment and in aU cases the Food Commission 132 Eepoet of New York State Food Commission co-operated fully with tliis Bureau of the State Industrial Com- mission in the settling of industrial disputes. Community Canning in New York City Community canning and preserving of perishable summer vegetables has proven a practical means of education in food thrift and food conservation. This was demonstrated in the forty canning centers organized and managed by the Bureau of Conservation this summer in ISTow York City. The undertaking would have been impossible without tho action of the Board of Education permitting the use of public schools as centers for cooking and canning for six weeks during the summer, and voting an appropriation of $3,000 for the salaries of teachers to be paid at the rate of $3.00 per canning session and $1,000 for supplies. The Bureau of Conservation of the State Food Commission and the Federal Food Board assumed entire responsibility for the administrative work, planning the canning program, selecting the canning centers, purchasing the jars and special canning equip- ment, furnishing literature, adjusting complaints, and managing the financial arrangements. Forty public school centers were established with a demonstrator from the Bureau responsible for the centers in each borough. '^^ In charge of each center was a domestic science teacher from the Department of Education. In the poorer districts, or in those where school kitchens were on the fifth floor of the building, it was deemed advisable to declare settlement houses annexes to the public school centers. In such cases the settlement was responsible for the registration of the women and for interesting its various settlement classes in the canning work. The centers were open from one to three days a week. Five weeks of actual canning was done as the first week was spent in registration, making inventories of equipment, giving demonstration lessons, and adjusting the registration to the capacity of the centers. The Food Council of (Greater New York assumed responsibility for securing volunteer aides and for the attendance, guaranteeing the registration of a sufficient " In addition to these centers the demonstrators held canning classes at the Yoting Women's Hebrew Association, Christodora House, The School Settle- ment in Brooklyn, and the D. Y. N. T.' Settlement House at 18 Leroy Street, Manhattan. Repokt of New York State Food Commission 133 number of women for eacli center to justify its being kept open. The volunteer aides relieved the teacher of the responsibilities of all financial arrangements. Registration blanks were posted so that advance registration could be made and orders put in for produce to be canned. The Department of Markets of ISTew York City undertook to supply the fruits and vegetables, as the matter of securing, fruit and vegetables in large quantities, at a reasonable price, was naturally an important feature in making the canning center n success. The Department selected near each center a retaii grocer, who agreed to sell supplies at the wholesale price, plus a 5 per cent, commission to cover hauling costs. Arrangements were made at the pier to supply several grocers from one jobber so that the grocer might have the advantage of a lower whole- sale price than usual. In order to check the honesty of the grocer, it was agreed that on delivery of goods, he should present his wholesale slip, showing what he had actually paid for the food. The plan of the Department of Markets for supplying vegetables and fruit did not work out as well as it should have in some dis- tricts. In many instances, the local dealers charged more for the material than other retailers about the center were charging, the wholesale slip was rarely presented, and in several cases, dealers selected by the Department were not popular with the women of the neighborhood. Furthermore, purchasing through the retail dealers did not secure as low prices as the women had expected. Many of the dealers, however, became quite interested, making especial efforts to assist in the selection of material and to deliver the goods at the appointed time. In spite of these various difficulties, one advantage of the scheme was the maintenance of the community idea, the local dealers becoming interested in the center and the women in the problems of the dealers. One of the most serious difficulties encountered was that of equipping the school kitchens for canning, as there was no equipment for this purpose in the public schools. To make it worth while for a woman to spend a day at the center, she should be able to can at least five or six quarts of fruit or' vegetables. With twenty women at a center, this meant an output of one hundred to one hundred and forty jars a day. The equipment required to secure 134 Eepoet of New Yoek State Food Oommission" this outpu-t must comprise 10 wash boilers with covers and racks. It was necessary for the State Food Commission to purchase many of these utensils. Some were loaned hy the women themselves, while others were donated after an appeal had been made in the newspapers. The jars were sold at the wholesale price and the rubbers furnished free of charge. As a rule the day's work included the canning of a fruit and a vegetable, and all work was done in community fashion. In the six weeks during which the canning centers were open, the tot^ attendance at the classes was 11,081 women, including those who came only to get instruction, and 31,149 quart jars of fruit and vegetables were preserved. The following summary gives an idea of the extent of the canning activities in the forty .centers of l^ew York City: Total Average Daily Output BoKOTJQH Attendance Attendance Quart Jara Richmond 734 44 2,202 Upper Manhattaa 1,654 164 5,245-3/8 Lower Manhattan 932 106 2,060'-y2 Bronx 2,398' 208 5,413-1/2 Brooklyn 3,195 286 9,Wd^% Queens 2,168 162 Y,0Y8 11,081 970 31,149 Peaches, plums, -carrots, beans, beets and pears have been canned, and sugarless carrot marmalade and sugar conserve of carrots and peaches have been made. The average cost per quart of canning and preserving was as follows : Average Cost Material Canned Per Quart Beans $0.09 Peaches .19 Beets .06 Plums ■ .14 Plum conserve .50 Peaches conserve .40 Carrots .10 Report op New York State Food Oommissiokt 135 Community canning proved to be of advantage to the house- wife financially. A small can of beans purchased at the grocers would ordinarily cost from 18c. to 2:5c. The average cost of the string beans canned at the centers was 9 c. a quart, and a quart can is twice as large as the average can bought at the store. .It is estimated that on the 5,000 quarts of beans put up at the centers, there was a saving alone of $1100 to $1700. The primary aim of these canning centers was educational, to train the city housewife to can, to educate her in habits of food thrift, right habits of living and food conservation. With so many centers and a limited, small number of women at a time, the educational aspect could be emphasized. Approximately 75 per cent of the women had never canned before. The use of the simplest possible equipment in all the centers made the training practical. There was utilization of food material to the utmost. The idea that such things as peach parings and tomato skins could be made into peach jelly, tomato soup or catsup was entirely new to many of the women. The importance of the wide use of vegetables and fruit was taught. In foreign districts where few vegetables have been used, lessons were given in vegetable cookery and new vegetables introduced. Simple table service was taught at some centers where foreign mothers stayed for lunch. Cleanli- ness and care in food preparation, wise choice of foods, and economy in buying, were other " side lessons." The message of the Food Administration was taught by the saving of perishables, the making of sugarless conserves, and use of sugar substitutes in canning, and by the distribution of conservation literature on the use of wheat substitutes, milk, green vegetables and the proper food for children. The social influence of the centers was an incidental advantage gained for the community. The centers were democratic; all women were equal; any one could register for work, and all worked together on an equal basis. Each woman broadened her outlook on life and relearned the lesson of the public schools, ability to work with people. An interesting development has come out of this canning center experiment. Many of the centers were located in the poorer dis- tricts. It was found that the women of these districts were more 136 Repoet of New Yobk State Food Oommissioiv interested in this cooperative type of work than in anything else the Bureau had yet done, because of the community and social life opened up to them. They liked doing things together, pre- fering to cook in groups rather than to cook at home alone, and have requested that arrangements be made for cooperative baking this winter. These women want to do some of the work them- selves' and have something to take home rather than just to watch the demonstrator work. The opportunities offered to the Bureau of Conservation in such cooperative cooking are great. It would be seen to that the women would prepare the right kind of food for their families, an advantage from the standpoint of propei nutrition. Then, too, after the practice of preparing different dishes, they would be more apt to cook them in their o'wn homes than if they had merely seen them dernonstrated. It will not be possible to keep these centers open daily as the Bureau's staff is limited, nor could the women spare the time to come every day in the week. The plan at present is to hold the cooperative cook- ing classes one day a week. It is also difficult to find centers with sufficient oven space to do cooperative baking on a large scale, but by combining baking and some other cooking a fairly large num- ber of women can be accommodated at a small center." Other Conservation Work Continued Food demostration work during this period has continued as usual with demonstrations at homes and at settlement houses; talks and demonstrations at public playgrounds during the hot sum- mer months; demonstrations and exhibits at pushcart and other markets, small grocery stores, department stores and before garden clubs in Queens and Long Island. The demonstrations at push- cart markets were projected for the purpose of reaching the foreign element in the extremely poor districts. Where last year the attitude of these neighborhoods was extremely antagonistic, iu fact a small riot greeted the Food Aid Committee's demonstration truck in r917, this year there seems to be a growing appreciation of the need for information and an understanding of the objects " At present, eooper?itive cooking is Being carried on at Henry Street Settle- ment, the Hudson Guild' and St. Bartholemew's. Plans are under way to begin at Greenwich Pouse, the Union Settlement, Warren Goddard, the Y. W. C. A., the Y. W. H. A., and Public School 59, Manhattan. The Potato Campaign. Dont eat that slice of Bread Have emother Potato instead TATOES POT/irOES MORNING NOON €r NIGHT WILL SAVE THE WHEAT FOR THOSE WHO FIGHT EAT POTATOES SAVE WHEAT EVEin^pua 15 A BULLET Poster Used in New York City Stores, Restaurants and Public Places to Increase Use of Potatoes. Report of New York State Food Commission 137 of the Food Administration. Ey arousing a friendly interest in the work of the Bureau, it is hoped that it may be possible to form a nucleus for demonstration classes in various sections of the city not yet reached. Demonstrations have been held also in Queens and Richmond in certain popular grocery stores which do a cash and carry business, and whose patrons might be expected to be interested in economy in the purchase and use of food. The attendance varied from 100 to 200 women every day. In the opinion of the Bureau, grocery stores offer the same advantages as markets for demonstration work. A woman coming to a grocery store or market is thinking of food and is willing to stop and get all the ideas possible on conservation and economy. Exhibits on food conservation have been continued at public schools, libraries, department and candy stores and settlement houses. The use of cooked foods in exhibits has been discontinued at the suggestion of the United States Food Administration except where such food products can be shown and utilized after- wards, such as sugarless conserve and other canned products. Recipes and food conservation suggestions in Italian, Yiddish and English have been formulated and distributed at demonstra- tions, canning centers, settlement houses, through the libraries and other agencies. Especial effort was made to help the house- keeper meet the sugar shortage during the summer and early fall and to understand the sugar rules. Last year demonstrations were given throughout the city weekly or semi-monthly for an indefinite length of time, with the result that the women were irregular in their attendance, believing that any meeting missed could be made up later. A more effective and constructive plan has been evolved for the demonstration work this winter. Demonstrations will be given in series, once a week, the number depending upon the attendance and the section of the city. Topics for each demonstration in the series have been announced through personal letters to the women of the neighbor- hood, through churches and schools. Where it seems advisable to give additional demonstrations in any given district, a second series will be planned. At present four demonstration centers in the poorer districts have been opened. 138 Kepoet OS- New Yoek State Food Oommissiow During the worst phase of the influenza epidemic, emergency calls were made upon every trained individual to help in relief work, not only among patients, but also among their families where young children were without food when both parents were ill. As need was especially urgent for experienced women to take charge of relief kitchens, demonstrators from the Bureau of Conservation were assigned to sjapervise, cook, and assist in the general operation of the kitchens financed by the Ked Cross and other organizations. These kitchens were distribution centers f oi soup, milk, jellies, custards. In some instances, where the kitchen was located in a settlement house, the children were given their luncheons and suppers. At the same time, the Bureau prepared and distributed 16,000 pamphlets on invalid cookery, approved by the Department of Health, besides giving short talks at demonstrations on the proper diet of patients. Conservation Work in Up-state Cities Although in the up-state cities, community canning has not been done as extensively as in the New York City districts, it has constituted one of the chief activities of the conservation work during the past three months. The community or thrift kitchen has generally served as the canning center in each city. In several places school kitchens have been used as in New York City. Much of the demonstration work also has consisted of canning lessons. Especial effort is being made to arouse the interest of the foreign bom population in food problems. In Buffalo, where there are large foreign settlements, a thrift kitchen has been opeiied in the Ita'lian section. Before anything tangible can be accomplished with these groups, a certain shyness or fear must be overcome. The conservation agent in charge of the kitchen managed this by holding her demonstrations outside the kitchen on the sidewalk until the interest of the women was sufficiently aroused to bring them in. In creating interest in the conservation literature, the cooperation of the superintendent of the Italian Hospital has been promised. The approach to the Poles has been made through a series of demonstrations over a period of ten days in a department store in the Polish district. It is hoped that through this initial eflfort, sufficient interest will be aroused to guarantee adequate Repokt op New York State Food Commissioit 139 attendaace at the thrift kitchen shortly to be opened there. Dun- kirk and Troy, also have had community kitchens established, bringing the total number of cities having kitchens up to nine. The Victory Special The Victory Special has done successful work during the four months, from June to November, carrying the message of food con- servation to the smaller communities. One hundred and twenty towns were visited by the train. The reception was enthusiastic. In Mt. Morris, for example, over 287 housekeepers attended the demonstrations, which included work on canning, drying, preserv- ing without sugar, and wheat and sugar saving dishes. Educa- tional compaigns and exhibits have beeji carried on as usual. In Albany a campaign has been carried on to arouse interest in improving the quality and increasing the use of cottage cheese. Exhibits of wheat substitutes and demonstrations of the fireless cooker have attracted large audiences every place. Aid in influenza epidemic The conservation agents up-state were also assigned to assist the Red Cross Relief Committees and the Local Boards of Health in meeting the emergency caused by the influenza epidemic, since quarantine regulations forbidding meetings interfered with their regular work. At the various thrift kitchens quantities of broths and light foods were prepared for distribution among patients. In Buffalo and Syracuse, the agents assisted in the emergency hospitals in the preparation of food for the sick, the doctors and the nurses. In Rochester, the city agent being a trained nurse, devoted her services to relief work among the foreigners. Enthusiastic local recognition has been accorded the conservation agents for their generous and able work. Enforcement There is little to be added by way of general description of procedure and methods in the investigation and correction of violations of the food regulations, to what has already been given in the report for the fiscal period ending July 1, 1918.^' " See page 67. 140 Eepoet of New Yoek State Food Commission The legal staff of the Federal Food Board and the Food Com- mission was enlarged during the four months beginning July 1, 1918, by the addition of two experienced attorneys who volunteered their services to the government. The most important type of violations on which formal legal action was taken during these four months were as follows : Hoard- ing of sugar, charging excessive rates for storage of food, making inaccurate accounting of sales, exceeding the allotment allowed in the use of flour, unfair trade practices in the ship chandlery business and violations of the regulations requiring the labeling of certain foods. Formal hearings before the Federal Food Board, involving extended investigation and analysis by the legal staff, have been held in 383 cases. These include 44 cases of violations in up-state cities, but do not include the hundreds of cases heard by county food administrators in up-state counties, which did not require the assistance of the legal staff of the New York City office. Enforcement cases handled directly by the Complaint Division are reported on below. Of the 383 formal cases, 127 concerned bakers. The disposition of these cases was as follows: Eevocation of license, 18 ; suspension of license, 62 ; Red Cross contributions permitted in lieu of other penalty, 103; warned, 29; money refunded to customers overcharged, 74 ; dismissals, 104 ; criminal fines, 4; still pending, 18. The Red Cross contributions col- lected in 103 cases amounted to $38,798.22. Among the important cases acted upon during this period were those of several of the largest restaurants and hotels, who were found to be guilty of having on hand stocks of sugar so large as to bring them under the definition of hoarders. In the cases of the McAlpin, Claridge, Savarin and Fifth Avenue restaurants, all of which are under the management of the Greeley Square Hotel Company, the amount of sugar on hand in each instance was a five months' supply. The case was vigor- ously contested and it was only after many hearings in New York City and in Washington that a decision was reached which pro- vided for the closing of the candy business of the hotels, the surrender of the surplus stock of sugar, and a contribution to the Eepoet op Wew York State Food C'ommissiow 141 Eed Cross of $10,000. In the case of the St. Regis Hotel, as the charge was an over supply of sugar, the penalty imposed was the revocation of its baking license for thirty days. The same charge in the case of the Hotel Imperial resulted in the closing of its restaurant from a Friday night to Monday morning. In making application for sugar certificates. Page and Shaw, large manufacturers and retailers of candy, filed statements show- ing that they had on hand a four months' supply of sugar in New York City. Their explanation of the situation, when summoned to appear before the Board, was unsatisfactory so their factory and five retail stores in New York were closed for a week, and a sign posted in a conspicuous place in each store, stating that they had violated the rules of the United States Food Administration and promised full obedience in the future. Jt was brought to the attention of the Federal Food Board by the Intelligence Division of the ISTavy Department, in April, that a large amount of sugar was stored in the warehouse of Mr. Rudolph OUsner, the principal officer in the Germania Catering Company, which controls the Cafe New York and the Stadt- Keller. Upon investigation it was found that sufficient sugar to last these restaurants between seven and twenty-seven months had been stored. The matter was referred as a test case under the criminal provisions of the Lever Act,, to the United States Dis- trict Attorney for the .Southern District of New York. An indictment was had, and when the case came up for trial, the Germania Catering Company pleaded guilty, and was fined $5,000. A full report of the conduct of this case was sent by the Enforce- ment Division of the United States Food Administration to every federal food administrator in the country. The investigation of one violation often leads to the discovery of others, implicating even the entire trade. Upon investigating the firm of Lass and Cohen, poultry commission merchants, who were reported by the Poultry Division of the United States Food Administration to be rendering false and fraudulent accounts of the sales to their shippers, the charges were found to be true. At the hearing on this case, general charges were made against the entire poultry trade that the accounts of sales of all poultry commission houses were similarly false and fraudulent. At the 142 Eepoet op New Yobk State Food Oommissioit request of the Federal Food Board, the Poultry Division of the United States Food Administration assigned an inspector to investigate the books of the 30' commission houses in 'New York City to ascertain if these charges were based on fact. Two other commission houses were found guilty of the same practice, the license of one of which, M. Durham and Sons, was suspended for one week, and of the other W. J. Hinrichs, for 20 days. Three new cases of violations- of the regulations of the State Food Commission requiring the labeling of certain staple food commodities wherever displayed for sale, have been brought before Judge Appleton of the City Magistrate's Court in New York City since July first. In April, when 12 such cases were heard by the same Judge, he suspended sentence but stated that in the future he would impose the full penalty prescribed in the statute. In one of the three cases since then he imposed a fine of $200,^ or five days' imprisonment, in the other two, a fine of $100', or one day in prison. The investigation and prosecution of the All Package Groceiy Stores case has added immensely to the prestige of the Federal Food Board and the Food Commission. During the winter con- stant complaints were received about these stores, which had been placed in the hands of receivers. Although the conditions com- plained of were taken up with one of the receivers, Herbert Emerson, no improvement was shown. Finally at a trial of seven store managers it was found that they not only ignored but were totally ignorant of all the food regulations. Affidavits were made by some of the employees that Mr. Emerson had instructed them to pay no attention to food regulations. Upon application by the legal division to the U. S. Court, which had appointed the receivers, for an order directing them to obey the food laws, a referee was immediately appointed to take testimony in reference to violations. These hearings brought out many important facts, resulting in the removal of 'Mr. Emerson by the court. Not only had Mr. Emerson ignored all food regulations but he had deliber- ately violated them. Furthermore, he had been guilty of dis- honest practices. As receiver he had bought some $217,000 worth of butter and eggs from one W. W. Johnstone, at prices so high as to look suspicious. Upon investigation of the Johnstone books Report of New York State Food Commission 143 it was found that throughout this period Mr. Johnstone had been paying Mr. Emerson $100 a week, and had also given him lump sums, aggregating more than $40,000. An adjustment is now being arrived at whereby Mr. Johnstone is to pay the creditors of the All-Package Stores approximately $15,000. Mr. Emerson is to be deprived of all his commissions which would have amounted to $5,000 or $10,000. The most important classes of violations that have come under the jurisdiction of the legal division upstate are : First, exceeding the margins of profit allowed to dealers in the sale of various food commodities; second, violations of all the flour rules, and third, unfair trade practices. Hearings have been held in Westchester, Erie, Albany, Montgomery, Nassau, Oneida, Orange and Onon- daga counties. In those cases where the margins of profit fixed by the Food Administration have been exceeded, the penalty imposed has been either a closing or an acceptance of a voluntary contri- bution to a war charity. The imfair practice eases were mostly those where consignees had rejected shipments. One case involving fraud was brought to the attention of counsel and the license of the guilty dealer revoked. He had sold cheap feed as flour and upon the consignee's refusal to accept the shipment, sold it, for a reduced consideration to another purchaser. He then sued the original consignee in a civil court of a western state, but in asking for damages did not credit the amount received from the sale to the other purchaser. The work of the Division of Complaints has been continued along the same lines as those described in the main report." It is by this division that the major portion of the enforcement work of the Federal Food Board and the State Food Commission has been done, although the most important cases requiring formal hearings are handled as indicated in the preceding section. The following summary indicates the number of complaints handled in New York City alone during the four months from July 1 to November 1, the subject matter involved and the dis- position in the various cases : ' See page 74. 144 Ebpoet 01" New Yobk State Food Commissiok Complaints received 6,797 By telephone 431 By mail 1,698 By personal call 837 Through, investigation 1,142 Through Food Council 1,018 Through Commissioner of Fublic Markets 9 Through United States Food Administration, Washington 63 Through County Food Administrators 84 Through interoffice reports 1,348 Through Board of Health 164 Through Police Department 2 6,797 Subject of complaints 5,628 General conditions 16 Wheatless days 2 Beefless days 128 Hoarding 349 Combination sales 32 Advertising 79 Bread made without substitutes 454 Bread underweight 18 Bread returns 11 Serving more than 2 ounces of bread 48 Operating without license 59 Flour sales without cereals 459 Bakers selling flour .• 14 Glass in food 31 Failure to label foods 1,089 Manufacturing water ices 209 Sugar certificates 89 Miscellaneous 1,001 Prices : General 166 Meat 769 Report op New York State Food Commission 145 Prices — Gontinwed Fish 43 Butter 68 Sugar 5Y Bread 30 Milk 173 Eggs 51 Flour 40 Potatoes 8 Ice 4 Fruit 94 Fowl 34 5,628 Subpoenas served 1,832 Persons interviewed and examined 5,040 Complaints assigned for Field Investigation 3,860 Field Investigation completed 3,625 Complaints handled by mail 2,962 Complaints closed or referred for hearing 5,240 Cautioned 2,001 Co-operation offered 21 Eefund 18 Practice discontinued 59 Place of business closed 40 Money contributed 232 License revoked 2 Miscellaneous 296 Unfounded 2,328 Eef erred to Health Department 38 Referred to Police Department 4 Referred to Bureau of Weights and Measures . . 10 Referred to other food administrators 152 Referred to Secret Service 36 Referred to Ice Comptroller 3 5,240 146 Report os- New Yoek State Eood Commission Standardization of Warehouse Charges In the early summer, members of the Produce Exchange com- plained that certain warehouses were exacting extortionate rates for storage. Complaints were particularly directed against the Moore Street Stores, the Coastwise Warehouses, the 52d Street Stores and the Exporters' Warehouses. It developed that these warehouses were making charges which amounted to 60 cents per barrel of flour per month, that is, a rate of 10 cents per cwt. for storage, 10 cents for labor, and 10 cents for cartage. Inasmuch as the flour merchants are allowed a 75-cent margin only, such warehouse charges as these make business impossible. Although hearings were held on these charges, the Federal Eood Board was not sufficiently well informed to decide whether or not there was any -possible justification for such apparently extor- tionate rates. After a conference with some twenty of the most prominent warehousemen in the city, a committee of eight was appointed, representing the warehousemen and also the Produce Exchange, to act as an advisory committee of the Federal Food Board. ^° A number of meetings were held and recommendations worked out which were presented to a national convention of the prominent warehousemen from all parts of the United States, who met in conference with representatives of the Food Admin- istration in Washington on October 15, 1918. With the unani- mous endorsement of this convention, the Federal Food Board announced a " standard basis for determining warehouse rates," which it declared to be its interpretation of the regulation of the United States Food Administration prohibiting any " unjust, exorbitant, unreasonable, discriminatory, or unfair warehouse charge."'" The maximum base rate for storage charges which will be deemed reasonable in New York and vicinity is Y.56 cents per square foot per month of floor space utilized in the warehouse. This rate of 7.56 cents is not a fixed rate or a rate which it is "Mr. Alan B. Fox, Director of the Bureau of Licenses of the Federal Food Board, acted as chairman of this committee and directed the investigations made by the Board with the committee's help. " Bule 1 of the regulations of the Food Administration governing the opera- tion of warehouses. A copy of the " Standard Basis for Determining Ware- house Kates " can be secured from the Federal Food Board, 6 West 57th Street, New York City. Eepokt op New Yoek State Food Commission- 147 expected that every warehouse will charge, but is merely the high- est base rate upon which a warehouse can fix its charges without incurring the risk of losing its license and its consequent right to do business. Feed Regulations The misrepresentation in the sale of mixed cattle feeds to the farmers of this State, which came to the attention of the Com- mission in the spring of 1918, as a result of a preliminary investi- gation made by the Albany office of the Commission, has been the subject of extensive investigation by the new Bureau of Animal Feedstuffs during the four months ending November 1, 1918. This Bureau has developed regulations that will compel the feed manufacturer to state plainly on the bag the exact amount of any one of a long list of materials of low feeding value contained in this mixture. Samples were collected of the various mixed feeds on the market in JSTew York State, and on examination many of these showed large proportions of such materials as oat hulls, mill sweepings, peanut shells, materials with comparatively little food value. From the names or the statements of chemical con- stituents of such feeds it was impossible for the farmer to tell what they really contained. The amount of carbohydrates and protein shown by chemical analysis of the feed furnished the farmer little basis for judging^ whether or not his cow could digest it. The Commission was at the outset impressed with the neces- sity of giving the farmer a chance to decide for himself the merits of any feed on the market on the basis of its known- constituents. Numerous hearings and conferences were held with the feed man- ufacturers from all over the country who appeared in opposition to any new regulations, but never once was any satisfactory rea- son advanced why the farmer should be kept from knowing what he is buying. The regulations recommended by the Bureau of Animal Feed- stuffs to afford the necessary protection to the farmer were tentatively adopted by the Commission in August, to take effect September 16. The feed manufacturers all over the coimtry who do business in New York State, raised a ciy of protest and claimed 148 Report op New York State Food Commissioit that it would be impossible for them to comply with the regula- tions by the date on which they were to take effect. In order to be perfectly fair, and in order to secure the co-operation of the manufacturers, if possible, the Commission held a public hearing in Syracuse for their benefit during the week of the State Fair. Their gen-eral attitude was that of opposition to any new regula- tions whatsoever. In sustaining this opposition as far as it applied to the proposed regulations, they argued that these regulations would be unenforceable because of the dif&culty of determining by chemical or microscopical analj'sis the amount of any one of the commodities listed as adulterants. They were supported in this argument by several of the foremost experts on feed analysis in the country. With the desire to perfect the regulations as far as possible, and because of the fact that .there was pending in Congress at that time, legislation practically identical with the proposed regulations of the Commission, which would supersede these regulations if enacted, the Commission decided to defer the date on which they would go into effect and to hold further hearings and conferences in regard to them. An advisory committee consisting of Dr. W. H. Jordan of the Geneva Experimental Station, Professor E. S. Savage of the State College of Agriculture, officials of the State Grange, the County Farm Bureau Associations, and the Dairy- men's League, was appointed by the Commission to confer with and advise the Director of the Bureau of Animal Feedstuffs regarding any necessary revision of the regulations. After sev- eral conferences had been held with this committee and with representatives of the feed manufacturers, the manufacturers were given another hearing before a joint session of the Council of Farms and Markets and the State Food Commission. At this hearing only feed men from New York State were prese&t, those from outside the State having telegraphed that they could not attend because the epidemic of influenza prevented their leaving their homes. In order that these manufacturers from outside the State might have full opportunity to present their objections to the regulations, the Coimcil of Farms and Markets and the Food Eepoet of New Yokk State Food Commission 149 Oommission agreed to hold another joint session in Syracuse on November 13.^' At this hearing the entire situation was reviewed, certain modi- fications of the regulations were discussed and representatives of the manufacturers and of farmers' and dairymen's organizations were asked to present their views. There apparently was at that time some dissension of opinion among the feed manufacturers. Some of the manufacturers located in ISTew York State seemed to have very little objection to the regulations while those from other parts of the country represented in the American Associa- tion of Feed Manufacturers, maintained their previous opposition to any new regulations. Final action was not taken on the regulations until November 25, at which time the Council of Farms and Markets and the State Food Commission met again in joint session. The State Attorney- General gave it as his opinion that the Food Commission had full power to enact such regulations. Facts were presented regarding the methods of enforcing similar laws in the states of Indiana, North Carolina, Texas, Pennsylvania, Wisconsin, Oregon and Washington. The Bureau of Chemistry of the United States Department of Agriculture assured the Commission of its hearty oo-operation in the enforcement of the regulations, and gave official opinion to the effect that the enforcement of regulations requiring a statement on the package of the amount of various commodities of low food value in a mixed feed was entirely possible. With the technical and legal objections largely removed, the Food Commis- sion and the Council of Farms and Markets felt that the regula- tions could be put into effect, and a revised draft of them was formally adopted by the Commission to take effect January 15, 1919. They do not prohibit the use of such materials as peanut shells or oat hulls in mixed feeds bnt they give the farmer a chance to know when he is buying peanut shells or oat hulls, and to decide for himself whether he wants to pay the price of a high grade "Although thia supplemenal report is supposed to cover only the four months ending November 1, 1918, aa -exception is made in this case in ordei that a full account may be given of the action of the Commission on these feed regulations. 150 Eepoet op New Yoek State Food Commissiow feed for a mixture containing any considerable percent of such material. They list the materials of low feeding value which have been used in the manufacture of concentrated commercial feeding stuffs, and require each package or container of feeding stuff, offered for sale in New York State, to have plainly printed on it or on a label or tag attached to it, the amount of such materials contained therein. Each package or container of a concentrated commercial feeding stuff offered for sale in the State, containing one or more of the materials listed, in which the maximum crude fiber content of such feeding stuff is 10 per cent or more, or the minimum crude protein content is 9 per cent, or less, shall have attached to it a yellow tag on which is printed in red ink the required statement as to the amount of such materials of lo'^v feeding value. Whenever a commercial feeding stuff is sold in bulk, or is mixed to order, the dealer or manufacturer is required to give to the purchaser a written statement of the content of ■ the listed materials. By-product feeds such as hominy feed, gluten feed, wheat bran, cotton seed meal and brewers' dried grains are specifically excepted from classification as adulterants or diluents, and exemption is made in case one of the listed materials is a natural constituent of . a pure meal used as a component part of the feed. It may be that some of these products whose feeding value is very little, can be used to advan- tage in small quantities in connection with other feedstuffs. In order to be certain about the value of any patent feed containing such products, the farmer should call upon the agricultural institu- tions of the State to furnish him scientific information. The effectiveness of the regulations depends very largely on the extent to which the farmers themselves throughout the State co-operate in their enforcement. If each farmer constitutes him- self an enforcing agent and refuses to buy any feed that does not comply with these provisions and does not state clearly the amount of each ingredient it contains of low feed value, more will be accomplished than by the use of an enormous staff of inspectors. In fact there is nothing to prevent the complete wiping out by the farmers themselves of the present condition of misrepresenta- tion, with the aid of these re£:ulations as enacted. On several Repokt of New Yokk State Food Oommissioit 151 occasions during the course of our hearing, men connected with the Commission or the Council of Farms and Markets have advised the manufacturers that the successful feed manufacturer of the future is going to be the one that tells plainly, on the bag of feed just what it contains and places his feed on the market on the merits of its known ingredients. If these regulations are to be of lasting benefit they should be made a part of the law of the State during the next session of the Legislature, or the permanent Department of Farms and Markets should be given power to enact them. Unless this is done the termination of the existence of the Food Commission, which is purely a war emergency department, after peace is legally established, will leave the farmers again without any protection from the misrepresentation in the sale of feedstuffs, from which he has suffered so much in the past. FINANCIAL STATEMENT NEW YORK STATE FOOD COMMISSION OCTOBER 31, 1918 Statement Showing Condition of Appropriation Balance of appropriation on liand July 1, 1918. . $951,797 08 Expenditures from July 1, 1918, to Ifovember 1, 1918 227,267 08 Balance on hand November 1, 1918 $724,530 00 Moneys Deposited for Use of Food Commission The following moneys were on deposit November 1, 1918, in the ISTational Commercial Bank of Albany, N. Y., subject to the check of the Presideaat of the New York State Food Commission : General account, November 1, 1918 $27,732 01 Farm labor (transportation) 5,692 31 Farm machinery and repairs 6,765 45 $34,189 77 Total Amount of Money Available to Food Commission Nov. 1, 1918 Balance of appropriation on hand November 1, 1918 $724,530 OO Balance in National Commercial Bank 34,189 77 Grand total $758,719 77 162 Financial Statement 153 Distribution of Expenditures from July 1, 1918 to Nov. 1, 1918 Albany office $18,347 63 New York office 67,438 18 New York Conservation 13,217 95 UpHState Conservation 15,394 84 Production ; 92,433 64 Food Council of Greater New York 2,333 84 Boys' Working Eeserve 13,773 48 Agricultural Census Bills 76 30 Farm Bureau expenses for placing farm labor. . . . 2,457 86 State Fair Exhibits 1,387 71 Old Food Supply Commission Bills 405 65 Total $227,267 08 r-J-m ■i ',