ALBERT R. MANN LIBRARY New York State Colleges OF Agriculture and Home Economics AT Cornell University HV 40.W92""'" ""'"'"""■"""■*' "eport of an investigation of the method 3 1924 013 792 217 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/cu31924013792217 Home Economics Library S?tatt CoIlcBc of agriculture lat Cornell tHm'bcrtfitp 3t|)aca, Jt. 1^. 1l PART I REPORT OF AN INVESTIGATION OF THE METHODS OF FISCAL CONTROL OF STATE INSTITUTIONS IN NEW YORK MADE FOR The State Charities Aid Association By HENRY C. WRIGHT Introduction by HOMER FOLKS NEW YORK CITY United Charities Building 105 E. 22nd Street Maicli. 1911 CONTENTS. PAOB INTRODUCTION, by Homer Folks 9 SUBJECT OF INQUIRY. 19 I. SYNOPSIS OF LAW GOVERNING THE FINAN- CES OF THE STATE INSTITUTIONS. 23 n. MECHANISM OF ADMINISTRATION 28 Prisons, Hospitals and Charitable Institutions have used similar forms of estimates 28 Lunacy Commission requires fuller explanation in estimates than Fiscal Supervisor 30 Lunacy Commission revises price but does not refer to the firm quoting. Fiscal Supervisor's depart- ment makes such reference 31 Annual Inventory in Charitable Department is use- less and a waste of time 32 Condemnation of articles by the managers is time not well spent 32 III. OPERATION OF THE SYSTEM A. ESTIMATE SYSTEM Advantages and disadvantages inherent in the system under the existing law. Advantages. Regulation of prices 34 Regulation of quality 34 Regulation of proportions of food 35 Satisfaction among the Superintendents 36 Detection of possible graft made easier 37 Reduction of possible extravagance on the part of Superintendents 37 Disadvantages. Restricts expression of individuality 38 Effect of the three forms of the estimate system. . 39 Contingent fund not used with the same freedom in the three departments 41 PAGE General items — Prisons use large numbers of estimates without details 44 Low local market can not be taken advantage of . . 46 Necessity of purchasing prison-made goods 47 Lunacy Commission not a single head 48 Amusement fund, not equally distributed among institutions 49 Advantages and disadvantages due to methods of administration. Prisons. Advantages. No complaint from revision of estimates 54 Wardens are allowed a good table 54 Disadvantages. Estimate system exists but is practically non- operative 55 Irregularity in buying 55 Purchasing before estimating 55 Lack of information in the estimates . , 55 Mistakes overlooked in the estimates 56 Special fare for condemned prisoners 56 Hospitals. Advantages. Quarterly estimates 56 Judicious handling of estimates 57 The circular letter — Authority to buy small articles previous to estimating 58 Better grade of articles permitted 59 Inspection by members of the Commission in person 60 Disadvantages. Few experts 61 Tendency of the Commission to enter into con- tracts 61 PAOB Charitable Institutions. Advantages. One man power — Centralization of responsibility. . 62 Disadvantages. Estimates passed on by subordinates 62 Cheapness the dominant policy of the Fiscal Super- visor's office 64 Too cheap material used 64 Petty annoyances — ^much correspondence about shoe laces, etc 69 Small view exercised by Fiscal Supervisors 72 Material for educational department denied 73 Household and general supplies reduced to a minimum. See also Appendix 74 Scrimping of inmates in some cases 77 Treatment of officers — permitted only the quality of dishes and table cutlery supplied to the inmates 81 Tardy action by the Fiscal Supervisors' Depart- ment 88 But little stock on hand at institutions gi Handling of estimates 91 The effect of supervision on coal consumption. . 94 B. JOINT CONTRACT SYSTEM. Advantages and disadvantages inherent in the system under the existing law. Advantages. Some goods can be purchased in large quantities presumably more cheaply than in small quan- tities 102 Supplies can be stemdarized 102 The system of joint contract offers an opportunity for making better contracts and better inspection of supplies received 103 Joint contract system is in a better position to enforce fulfillment of contracts 103 Disadvantages. The joint contract system results in the use of food supplies which have been held in cold storage. . 104 The methods of constituting the Purchasing Com- mittees do not produce the best results 104 Advantages and disadvantages due to methods of administration. Hospitals. Advantages. Small committee easily gotten together 106 Has ample clerical force 106 Same materials are tested 106 Disadvantages. Office located at Utica is inconvenient 106 Laxity in the examination and receipt of goods. ... 107 Character of the goods received as compared with the specifications under which they were con- tracted for 116 Quality of butter received by the institutions. ... 116 Quality of beef received by the institutions 135 Cereals and dried fruits 152 Analysis of general food stuffs and supplies — concentrated milk, molasses, paint, etc 156 Charitable Institutions. Advantages. Specifications slightly better than those of the Lu- nacy Commission 182 Disadvantages. Employs a small clerical force 182 Methods of receiving and distributing samples de- fective 184 Not sufficient consideration in making contracts. . . 184 Methods of receiving goods 185 Chemical analysis of articles of food and supplies used in the Charitable Institutions 187 ^ PAGft Means of Improving the Joint Contract System. Defective Specifications 190 Testing of goods on receipt at the Institutions. ... 196 How to determine what supplies should be pur- chased under Joint Contract 197 Comparison of Joint Contract with Market Prices. 198 IV. DOES THE ESTIMATE SYSTEM JUSTIFY ITSELF ? 20 1 V. SUMMARY OF FINDINGS. 222 APPENDIX. 228 INTRODUCTION. by HoMEK Folks, Secretary State Charities Aid Association. In the course of his message to the Legislature of 1909 Governor Hughes submitted the following recommendation : " Board of Fiscal Control — Salaries, Purchases. — It is not advisable that particular salaries of subordinate employes in state institutions should be fixed directly by the Legislature. These matters of detail, within the limits fixed by the legislative appropriations, should be dealt with through administrative agencies. But there should be uniformity with respect to positions of a similar sort, and one branch of the state service should not be found competing with another or suffering in comparison with another. There should be both flexibility and a, reasonable degree of harmony. This can be effected by establishing a board of control in which will be repre- sented the different classes of state institutions and their supervising authori- ties, through whose final action the salary classifications may from time to time be determined. The financial operations of the institutions should be harmonious wherever practicable, and the same board may be used to effect this purpose. Such a board might act with regard to purchase of supplies required in the various institutions in order to secure whatever advantages are possible from bringing these purchases under one system. The action of the board, both with regard to salaries and purchases, may be made subject to the approval of the Governor and the Controller." The Legislature of 1909, just before its adjournment, adopted preambles and resolutions, calling attention to the Governor's sug- gestion and to the number of different State boards, commissions and departments with which the State Institutions have to deal, and providing for the appointment of a joint committee of three Senators, to be appointed by the president of the Senate, and five Assemblymen, to be appointed by the speaker of the Assembly, to examine into the methods of financial administration and conduct of State Institutions, the functions of State departments concerned in the management or supervision of such Institutions, the methods of making purchases, filing salaries, awarding contracts and other kindred matters, for 10 the purpose of reporting to the Legislature of 1910 such bills as in the judgment of the committee should be enacted, together with the recommendations of the committee as to the propriety of securing a constitutional amendment, if that should be necessary for the unifi- cation of a system of financial and administrative control of all State Institutions.* It was felt by the State Charities Aid Association that it should be in a position to express opinions and submit suggestions to this joint committee as to desirable changes in the financial and adminis- trative control of State Institutions. It was also the opinion of the Association that, without possessing much more knowledge of the actual financial operations of these Institutions than could be gained from a cursory inspection, directed primarily toward the well-being of the inmates, it was not in a position to submit suggestions of value. It believed further that the time had come for a careful inquiry as to the actual results of various administrative changes introduced in the management of State Institutions during the last two decades in the direction of vesting financial control in central State depart- ments. The Association had not opposed the introduction of the Estimate system and the Joint Contract system in the State Hospitals for the Insane; nor the introduction of the Estimate system in con- nection with the State charitable Institutions as administered origin- ally by the Comptroller, nor as administered subsequently by the Fiscal Supervisor of State Charities. It had, however, consistently opposed the abolition of the voluntary Boards of Managers of the several Institutions, believing that some adjustment should ultimately be found which would preserve the benefits of a voluntary Board of Man- agers for each Institution and a central board or official, with large authority over financial affairs. Admittedly a complete adjustment has not been found. The State Charitable Institutions and to a less extent the State Hospitals for the Insane are in a condition of unstable equilibrium. The actual power of the central departments at present is greater than their apparent public responsibilities. The Association believed that before any further modifications of the existing methods of financial control were made, there should be a very impartial and thorough examination as to the actual operations of existing methods. This joint Committee reported in part on May 2, igio, and on May 9, 1910 a resolution was adopted by both branches of the Legislature continuing the Committee for another year and directing it to report on or before March 1st, 191 1. 11 Fortunately, the Russell Sage Foundation, believing that an efficient and economical administration of public Institutions is an important factor in social betterment, expressed a williagness to pro- vide the means for such an inquiry, to be made under the direction of the State Charities Aid Association. The Association was fortu- nate in securing the services of Mr. Henry C. Wright, formerly sec- retary of the City Club and director of its Transit Bureau. Mr. Wright had had extended experience in making investigations in vari- ous lines. He had been chiefly responsible for the investigation as to the effect of the building of the subway in the city of New York upon real estate values. The information thus collected led to the enact- ment of a law permitting the construction of subways, in whole or in part, by assessment on the property benefited. He directed a searching inquiry as to the methods of snow removal by the Department of Street Cleaning, which resulted in a radical change in the nature of the contract let therefor by the city of New York. Mr. Wright had had no special knowledge or experience in connection with the State Institutions, and therefore approached the subject wholly with- out any prepossessions in favor of any particular form of administra- tion. His instructions were to make a thoroughly impartial investi- gation, and to make it as complete as possible; to follow the facts wherever they might lead, and without taking into consideration iu the slightest degree any possible effect upon previous recommenda- tions made by the Association ; to study methods with a view to their improvement, rather than with a view to the promotion or dismissal of any individuals. The general scope of the proposed inquiry was laid before the Com- mission in Lunacy and the Fiscal Supervisor of State Charities, and the presidents of the boards of managers of various Institutions. These officials extended their most hearty co-operation, and gave Mr. Wright full access to their records, accounts, vouchers and other data he wished to examine. The Association desires to recognize in the fullest degree the cordiality of their assistance. Without this it would have been impossible to secure results of any considerable value. Even when it seemed that the inquiry might be about to bring to light facts which might be embarrassLug, these officials, without exception, have insisted that the completest investigation should be made, and all the facts brought to light. Mr. Wright's report is presented in full herewith. Certain por- 12 tions of it have been submitted, as soon as the facts were collected, to the departments primarily concerned. The facts elicited in regard to the butter contract were laid before the Commission in Lunacy and the Fiscal Supervisor of State Charities. The facts in regard to the deliveries of beef were laid before the Presidents of the Boards of Managers and Superintendents of the Institutions affected,^ and simultaneously before the State Commission in Lunacy and the Fiscal Supervisor of State Charities. While Mr. Wright was instructed to prepare a summary of his findings, he has not at this time formulated suggestions as to legisla- tive enactment. The Association desires to lay the facts as thus far elicited before aU those concerned, in order that reflection upon them may lead to such changes in administration and in legislation as may be generally agreed upon, in the light of the facts contained in Mr. Wright's report. It is hoped that further inquiries may be made, possibly in other States having different systems of financial control.* Probably no two persons will altogether agree in interpreting the facts submitted by Mr. Wright, and in formulating legislation based thereon. It will be disappointing to many that the results are so largely negative, in that they fail to more clearly justify or condemn various legislative enactments or administrative methods. Owing to the incompleteness of the data concerning the actual busi- ness affairs of the institutions prior to 1893, and even in some cases up to the present time, it will probably never be possible, as Mr. Wright points out, to state definitely and beyond possibility of ques- tion the actual results of the introduction of the Estimate and Joint Contract systems. The claim that they have secured large economies and prevented wastefulness cannot be sustained by positive evidence; neither can it be conclusively demonstrated that they have failed to produce results of substantial value. It is important to know, how- ever, the limitations of the results of any such inquiry. It was to be expected doubtless that such defects as might be discovered would be due more largely to methods of administration than to legislative requirements. If so, however, the implication is that remedies must be sought through changes in administrative methods, rather than through ♦Since this was written Mr. Wright has made a comparative study of the financial operation of the State Institutions of Indiana and Iowa, the results of which are published as Part II of this report. 13 further legislation. Better enforcement of existing responsibility, rather than shifting of responsibility, is very strongly suggested by every page of Mr. Wright's report. It is perfectly clear that the expectations of the proponents of the centralizing legislation have not been wholly realized. Some benefits have doubtless been secured, but it is painfully evident that we are very far from having established an effective and economical adminis- tration of the business affairs of our State Institutions. Cheapness has been secured, but not economy. To sum up, it seems clear that centralization as such is not neces- sarily economical ; that such opportunities for economy as are afforded by centralization have thus far been but very incompletely realized; that in a number of its most important contracts the State has shown bad judgment in its specifications and a woeful laxness in supervising deliveries under the contracts. It is hoped that the report will be read throughout by all those connected with the management of State Institutions, as managers, officials, or members of supervisory bodies, in the belief that reflection upon the facts herewith presented will result in such administrative and legislative changes as vidll greatly increase the efficiency of the State Institutions, and thus contribute to the well-being of the wards of the State, and indirectly to the improvement of living conditions. New York, September, 1910. 15 New Yoek, August 1, 1910 Hon. Homer Folks, Secretary, State Charities Aid Association, 105 East 22nd Street, New York City. Dear Sir. — Under your authorization and instruction, I began on August 23, 1909, an investigation into the operation of the methods of fiscal control exercised by the State over its Prisons, Hospitals and Charitable Institutions. My findings are set forth in the accompanying report. Respectfully submitted, HEI^EY C. WEIGHT. 17 FOREWORD The investigation, of which the following is a report, was in progress from August, 1909, to July, 1910. On completion of each topic a report of the findings was written. That portion describing the method of administering the Fiscal Supervisor's office was com- pleted before the appointment of the present Fiscal Supervisor. Since the completion of the report on butter the contract for the Hospitals has expired and has not been renewed. The contract for outside paint was changed from mixed paint to white lead. The policy of retaining fines collected by the Purchasing Committee of the Lunacy Commission has been modified so that each Hospital is now credited with the fines collected in connection with supplies received by such Hospital. Although these and other changes have been made in methods of administration since portions of the report were written, nevertheless it has seemed best to allow the report to remain as written, as a description of conditions existing at the time. H. C. W. 19 SUBJECT OF INQUIRY The following report sets forth the results of an examination of the operation of the fiscal control exercised by the State over the Institutions under its care. The method of gathering the facts was to visit a number of the Institutions in each department. At these Institutions the records in the form of the estimates and correspondence were examined; the superintendents, stewards and those in charge of different divisions were interviewed. Further records were obtained at the Comptroller's office in Albany, and also at the offices of the departments supervising the Institutions. Information as to food specifications was obtained from leading experts in New York City, Washington, and State Agricultural institutions. To give a better basis for an interpretation of , the findings of the report, a brief description will be given of the character of the State Institutions, and the form of financial control exercised over them by the State. The State cares for the insane, feeble-minded, the epileptic, and certain classes of dependents and delinquents. The institutions in which these various classes are cared for, for the purposes of administrative control, are divided into three departments. With minor exceptions persons who have committed two or more felonies, and the insane criminals, are cared for in institutions supervised by the Superintendent of Prisons. These institutions are as follows: FoH THE Sane Criminal. Abbreviated name Institution. Location. used in report. Sing Sing State Prison Ossining Sing Sing. Auburn State Prison Auburn Aubum. Clinton State Prison Clinton Clinton. Fob the Insane Criminal. Matteawan State Hospital , Matteawan Matteawan. Dannemora State Hospital Dannemora Dannemora. 20 The insane who have committed no crimes are cared for in State Hospitals. These institutions are supervised by the State Commis- sion in Lunacy. They are as follows: Abbreviated name Institution. Location. used in report. Utica State Hospital Utica Utica. Willard State Hospital Willard Willard. Hudson River State Hospital Poughkeepsie . . . .Poughkeepsie. Middletown State Homeopathic Hospital. . .Middletown Middletown. Buffalo State Hospital Buffalo Buffalo. Binghamton State Hospital Binghamton Binghamton. St. Lawrence State Hospital Ogdensburg St. Lawrence. Rochester State Hospital Rochester Rochester. Manhattan State Hospital Ward's Island. . . .Manhattan. Kings Park State Hospital Kings Park Kings Park. Long Island State Hospital Brooklyn Long Island. Central Islip State Hospital Central Islip Central Islip. Gowanda State Homeopathic Hospital Gowanda Gowanda. The other classes mentioned above cared for by the State are in institutions supervised, as to their finances, by the Fiscal Supervisor and are generally called State Charitable Institutions. They are as follows : Delinquents. Abbreviated name Institution. Location. used in report. New York State Reformatory Elmira Ehnira. Eastern New York Reformatory Napanoch Napanoch. New York State Training School for Girls. .Hudson Hudson. State Agricultural and Industrial School. . .Industry Industry. New York House of Refuge Randall's Island. . Randall's Island. New York State Reformatory for Women . . Bedford Bedford. Western House of Refuge for Women Albion Albion. Feeble-Minded. Syracuse State Institution for Feeble-Minded Children Syracuse Syracuse. Rome State Custodial Asylum Rome Rome. State Custodial Asylum for Feeble-Minded Women Newark Newark. Epileptics. Craig Colony for Epileptics Sonyea Craig. 21 Dependent Vbtekans. New York State Soldiers and Sailors' Home. Bath Bath. New York State Woman's Relief Corps Home Oxford Oxford. The Blind. New York State School for the Blind Batavia Batavia. Indians. The Thomas Indian School Iroquois Iroquois. Crippled Children. New York State Hospital for the Care of Crippled and Deformed Children West Haverstraw.West Haverstraw, Consumptives. New York State Hospital for the Treatment of Incipient Pulmonary Tuberculosis. . . Raybrook Raybrook. The State Constitution provides for a Superintendent of Prisons who shall have the superintendence and control of the State Prisons with power to appoint the wardens, physicians and chaplains. It also provides for a State Board of Charities, a State Commission in Lunacy and a State Commission of Prisons, which shall have the function of visiting and inspecting respectively State Charitable In- stitutions, State Hospitals and Prisons. By statute the Superin- tendent of Prisons and the State Commission in Lunacy are given additional powers of fiscal control over the institutions, and an officer called the Fiscal Supervisor, is provided to look after like fimc- tions in connection with the Charitable Institutions. The chief method by which these officers exercise their financial control over the various institutions under their supervision, is called the Esti- mate System. The law provides, as applied to all the tastitutions in these separate departments, that the superintendents or wardens shall periodically report to the Supervising Department at Albany, in a form called an Estimate, the supplies needed for the succeeding period. These periods are of one month for the Prisons and for the Charitable Institutions, and of three months for the Hospitals. These estimates submitted to the supervising departments indicate the supplies needed, the amoimt and the estimated price. The supervising officers have the power to grant or to refuse any of these 22 supplies asked for, or to decrease or increase tlie amoimt or the price. Nothing can be purchased by the institutions except through an estimate approved by the department supervisiag it. In addition to this Estimate System the law provides, as applied to Hospitals and Charitable Institutions, that supplies may be con- tracted for jointly by the various iasitutions ia each of these depart- ments. This form of purchasing is called the Joint Contract System. The Estimate System has certain theoretical advantages and was designed to accomplish certain purposes. The object has been in this investigation to ascertain whether these theoretical advantages have been realized in practice, and whether the purposes aimed at have been attained. Those who conceived and placed in statute form the Estimate System, assumed that its operation would equalize the quality and price of food supplied to the various institutions; that it would insure to the inmates food in proper proportions; that it would tend to produce a greater satisfaction among the superin- tendents by assuring that all were treated equally; that through it the larger needs and economies of the institutions might be more advantageously administered; that it would tend to eliminate pos- sible graft on the part of supervising officers; that it would reduce possible extravagance. The system as practically operated has secured some, but not all of these assumed advantages. 23 I. SYNOPSIS OF LAW GOVERNING THE FINANCES OF THE STATE INSTITUTIONS. The law governing the State Institutions has .been amended at various times; the chief amendment, dealing with the finances, took effect in the Hospitals in 1893, and in the Charitable Institutions in 1894. The amendment at that time introduced, provided for the estimate system. This estimate system on its first introduction in connection with the Charitable Institutions, was to be operated from the Comptroller's office. In 1902 the oflSce of Fiscal Supervisor was created, and the estimate system, as applied to the Charities Depart- ment, was transferred to his jurisdiction. Previous to the introduc- tion of the estimate system, each institution was buying its own supplies. The so-called Joint Contract system, which is an optional power of purchasing supplies jointly on the part of the institutions, was introduced in the Hospital department in 1895, and in the Charitable department in 1903. A very brief synopsis of the law setting forth certain important functions of the three departments. Prisons, Hospitals and Charitable Institutions, is set forth in parallel columns on the following pages. This presentation contains only a certain number of the more impor- tant functions which, as far as possible, are set opposite one another in their respective columns. PRESENTATION OF CERTAIN PROVISIONS OF THE STATE LAW With Regard to the Finances or CHARITABLE INSTITUTIONS, HOSPITALS AND PRISONS. State Charities Law. Insanity Law. Prison Law. I. State Board of Chari- I. State Commission in I. State Commission of ties may Lunacy may Prisons may a. Investigate manage- a. Same as Charitable in- a. Same as Charitable in- ment of institutions and stitutions. stitutions. collect statistics. b. Present estimates in b.Same as Charitable in- b.[Same as Charitable in- annual reports for stitutions. stitutions. maintenance, and build- ings and improvements. . Further powers merated below. 34 Insanity Law. Prison Law. II. State Commission in II. Superintendent of Lunacy may Prisons may a. Same as Charitable in- a. Same as Charitable in- stitutions, stitutions. State Charities Law. II. Fiscal Supervisor may a. Examine into all mat- ters relating to financial management, and re- port annually. b. Examine monthly esti- mates and revise or certify. c. Approve or disapprove vouchers of local treas- urers. d.Call meeting of Super- d. Appoint Committee of d. No provision for joint intendents to decide as Stewards to enter into contract, to what supplies may joint purchasing con- be purchased jointly. tracts. b. Examine quarterly es- timates and revise or certify. c. Direct approval by Comptroller. b. Same as Charitable in- stitutions. c. Same as Charitable in- stitutions. III. Each treasurer shall III. Treasurer III. Treasurer shall a. May be and is a central a Treasurer appointed by the Commission. b. Pay only accounts con- b tained in quarterly es- timates as sworn to by the Superintendent as having been received. c. Present monthly sworn c. statements to Comp- ' troUer and to Com- a. Be a member of the Board of Managers, or the Superintendent. b. Pay only accounts con- tained in monthly esti- mates. 0. Present monthly re- ports of receipts and expenditures, under oath, to Fiscal Super- mission, visor. d. Receive money from d. Same as treasurer in d. Same as Charitable in- ComptroUer to pay Charitable institutions. stitutions. monthly bills enumer- Except bills are paid ated on statement when presented, sworn to as having been received. e. Render quarterly spe- cial reports to Auditing Committee of Managers. Be a Warden of prisons or Superintendent of Asylums. Comptroller" may have representa- tives at prisons to cer- tify as to expenditures- . Same as Charitable in. stitutions. Present monthly sworn statements to Comp- troller. 25 State Charities Law. Insanity Law. Prison Law. f. Deposit receipts from manufacturing depart- ment in a local bank, approved by the Supt. of Prisons, and may draw upon such funds on approval of Comp- troller after certifica- tion of Supt. of Prisons. IV. Superintendents shall IV. Superintendent shall IV. Wardens shall a. Be appointed by the a. Be appointed by the a. Be appointed by the Board of Managers. b. Appoint stewards. Purchases: Commission in Lunacy, Supt. of Prisons, subject to the approval of the Board of Mana- gers. b. Appoint steward with b. Appoint storekeeper. the approval of the Commission in Lunacy. Purchases : Purchases : c. Present to the Fiscal c. Present to the Lunacy c. Present monthly esti- Supervisor a monthly estimate in detail of needed food, clothing, supplies, etc. Commission a quarterly estimate in detail of all food, clothing, supplies, etc., needed for the suc- ceeding quarter. mate of food, clothing, supplies, etc., needed for succeeding month. d. Receive food from the d. Same as Charitable in- regular supplies fur- stitutions. nished the institutions. d. Same as Charitable in- stitutions. In re Contingent Fund- Contingent Fund: Contingent Fund: e. Have a monthly con- e. Have a quarterly con- e. None provided for. tingent fund of $250 tingent fund of $1,000. per month. V. Stewards shall V. Steward shall V. Stewards a. Be appointed by the a. Be appointed by the a. Function exercised by Superintendents and Superintendents with the storekeeper ap- the concurrence of the Lunacy Commission, and to be removed only by a like concurrence. subject to removal^by them. pointed and removable by warden or superin- tendent. State Charities Law. Insanity Law. Prison Law. VI. Joint contracts may VI. Joint contracts may VI. Joint contracts. a. Be made by a Commit- a. Be made by a Com- a. None provided for. tee of Superintendents mittee of Stewards to appointed by the Fiscal be appointed by the Supervisor, such con- Lunacy Commission, tracts to be approved such contracts to be by the Fiscal Super- approved by the Lu- visor. nacy Commission. b. Be let to the lowest b. Same as Charitable in- b. Contracts to be award- responsible bidder. stitutions. ed to bidder whose terms are most advan- tageous. VII. Buildings and Re- VII. Buildings and Re- VII. Buildings and Re- pairs pairs pairs a. Buildings to be recom- a. Buildings to be recom- a. Buildings to be recom- mended by State Board mended by Lunacy mended by State Com- of Charities. Commission. mission of Prisons. b. Plans for buildings to b. Plans for buildings to b. Plants to be approved be approved by the be approved by the by the State Commis- Governor, President of Governor and Lunacy sion of Prisons. State Board of Chari- Commission, ties and Fiscal Super- vigor. c. Contracts to be ap- c. Contracts to be ap- c. Contracts to be ap- proved by the Gov- proved by the Lunacy proved by Supt. of ernor, the President of Commission. Prisons. the State Board of Charities and the Fiscal Supervisor or a majority of them and let by the Board of Managers. d. Buildings to be built d. Same as Charitable in- d. Same as Charitable in- by State Architect. stitutions. stitutions. The above outline among other things, sets forth the following facts : The State Board of Charities, the State Commission in Limacy and the State Commission of Prisons perform the same functions with relation to the collection of statistics and the giving of advice in regard to the management of institutions and to needed buildings. The management of the finances of the institutions, through the means of the estimate system, is controlled in the Charitable department, by the Fiscal Supervisor ; in the Hospitals, by the Lunacy Commission, and in the prisons by the Superintendent of Prisons. The Charitable Institutions and Prisons have local treasurers, the Hospitals have one 27 central treasurer at Albany. The superintendents of the Charitable Institutions are appointed by the Boards of Managers, those of the Hospitals, by the Lunacy Commission, the wardens of State Prisons and superintendents of Hospitals under his supervision, by the Superintendent of Prisons. The stewards in the Char- itable department, are appointed by the superintendents; in the Hospitals they are appointed by the superintendents only on approval of the Lunacy Commission; in the Prisons there are no stewards, but the function is performed jointly by the warden and the store-keeper. Purchases are made in the three departments only on estimates approved by the supervising department of each system. The Charitable Institutions and the Hospitals have contingent funds ; the Prisons do not. Joint contracts in the Charitable department may be made by a committee of superintendents appointed by an aimual meeting of superintendents. The same contracts in the Hospital de- partment are made by a committee of stewards appointed by the Lunacy Commission. There are no joint contracts in the Prison department. Food is provided for the superintendents from the regu- lar supplies. This provision exists in the law governing the Prisons, yet the wardens are allowed a certain amount monthly for household expenses. The buildings and repairs in all three departments must be under the supervision of the State Architect. 28 II. MECHAinSM OF ADMINISTRATION. The chief administrative forms dealt with in this report are those used in comiection with the estimate system. The law does not specify in any detail what these forms should be. It simply states, as it applies to the Charitable Institutions and Hospitals, that the estimates shall be made in minute detail. The task of giving form to the estimate blanks is left to the respective admnistrative departments : A brief description of these estimate forms is somewhat as follows : Prisons. — The Prison Department divides its estimates into ten general headings, and then adds one heading which it does not num- ber, called ordinary repairs. ! These divisions are as follows: 1, Salaries. 2, Eations. 3, Printing and Stationery. 4, Transporta- i tion of Prisoners. 5, Furniture. 6, Drugs and Medicines. 7, Cloth- jing. 8, Fuel and Lights. 9, Miscellaneous. 10, Emergency Fund. The only information required in these forms for the purpose of entering items, is the quantity desired, the name of the supply, and the total amount to be paid, — as for instance, — "Ten gallons alcohol, $29.50." In some cases the price per unit of measure is given, as so much a pound, quart, dozen, etc. The estimates usually bear no information to the Superintendent of Prisons except that certain articles are desired, costing so much. In contrast to this simple form are the estimates of the Hospitals and Charitable Institutions. Charitable Institutions. — The estimates of the Charitable Institu- tions contain twelve sub-divisions,- — -1 and 2, Officers and Employees. 3, Expenses of Managers, Trustees and Officers. 4, Provisions. 5, Household Stores. 6, Clothing. 7, Fuel and Lights. 8, Hospital and Medical. 9, Shop, Farm and Garden. 10, Ordinary Eepairs. 11, Transportation of Inmates. 12, Miscellaneous. Information required to be filled in includes the articles, brand, quality or kind, unit of measure, amount on hand the first of the preceding month, amount required, unit price, total cost. It will be noted that not only must the article be described according to trade name or catalogue number, but also the amount on hand must be indicated so that the amount 29 stated can be used as a basis of judgment on the part of the Fiscal Supervisor as to whether the amounts asked for are needed. The full information furnished in these estimates is in strong contrast with those used by the Prison Department. Those of the Hospitals served as a model for the estimates of the Charities Department so are practically in the same form. Each department must provide for one or more additional esti- mates subsequent to the original estimate during the period which it is supposed to cover. Such additional estimates in the Prison Department are called Extra Estimates. Those in the Hospitals and Charitable Departments are called Ee-estimates and Supplemental estimates. The Ee-estimate is supposed to contain the same material dealt with in the original estimate, a decision as to which has not been made final. Such decision may have been withheld because of some mistake in entering the original item or because of a lack of clearness in the statement. The Ee-estimate also contains any cor- rections as to quantity or price, or in the case of the Hospitals, it may contain an item which has been disallowed. It can handle no. new item, but only those wTiich were contained in the original estimate. A Supplemental estimate is supposed to contain a request for new material needed during the period. In the Prisons the Extra esti- mate serves the same purpose as the Supplemental serves ia the Hospitals. In the Hospitals, when an item is disallowed, it is not subject to discussion as connected with the original estimate. That is, a Hos- pital would not remonstrate by letter with the hope of reversing the opinion of the Commission. The record as made in the revision of the estimate as returned to the Hospital stands as final. Should the Hospital feel that it should not have a specific article disallowed by the Commission, its only recourse would be to include the item in a Ee-estimate and accompany it with its arguments and pleadings. In the Charities Department, when an item is disallowed, it is by no means final, and such a decision may be, and often is, reversed as applicable to the original estimate. Not infrequently a number of letters will be exchanged between a Superintendent and the Fiscal Supervisor, with the result that a disallowance is subsequently allowed. The record of such subsequent allowance is contained merely in a letter, so the complete record of the item as estimated for and as finally granted is filed in the form of the original estimate supple- 30 mented by letters. This somewhat awkward and confusing form of keeping the record is obviated in the Lunacy Commission by the requirement that any item disallowed must be re-submitted in a subsequent estimate should the Hospital desire to press a claim for it. In returning an estimate, both the Lunacy Commission and the Fiscal Supervisor accompany it with a revision letter which sets forth their action upon the estimate. As far as I have been able to ascertain, there are no corrections made in the estimates of the Prisons and, consequently, no revision letter accompanies them. The explanations ia the estimates of the Hospitals are somewhat fuller than in those of the Charitable Institutions. This is due to the fact that the Fiscal Supervisor has apparently discouraged a full, detailed statement of the reasons for the need for a specific article. In case he is in doubt as to whether or not an article is needed he depends upon subsequent correspondence with the Institution to clear up the matter. On the other hand, the Lunacy Commission desires a full explanation to be incorporated in the estimate and their judg- ment is based in large part upon this explanation. The result of these two different policies is that the estimates of the Hospitals are followed by little or no correspondence. Those of the Charitable Institutions are almost invariably followed by a number of explana- tory letters. The process of making out an estimate at the Institutions is to require each oflBcer in charge of a building or a division to report his needs covering the succeeding period. He must also give an inventory of the supplies on hand. This report is reviewed by the Steward and the Superintendent and decision is made as to the full amount of supplies needed by the Institution considering the amount on hand and the amount needed for the succeeding period. The needs then are set forth in the estimate. One of the difficulties that arises in connection with the estimates of the Charitable Institutions is that between the time the subordinate officer makes a report to the steward or superintendent as to the needs of his department, and the time of the granting of such articles in the estimate by the Fiscal Supervisor, and the return of this estimate to the Institution, there has elapsed seldom less than three weeks, and by the time such supplies can be purchased and delivered, not infrequently fully five weeks. As a result, much judgment must 31 be exercised ia determining the life of certain articles in use and supplies on hand iu order to anticipate the requirements of this period. This would not be a serious difficulty were the Institution allowed to purchase an excess quantity, to meet emergencies, but generally speaking, with the Charitable Institutions, scarcely any articles for household use are kept iu the store-room. They are distributed as soon as purchased; consequently, all the supplies the Institution possesses are iu use. It thus becomes very necessary for an officer to estimate closely the life of articles and utensils ia use. The prices of articles inserted in the estimate by the steward are obtained by sending out blanks to different firms and securing their bids upon specific articles. The lowest bid is the price placed iu the estimate. Generally speaking, this is done. Some stewards, how- ever, have come to feel that prices are inevitably cut by the Fiscal Supervisor, so that it is useless to attempt to secure local bids. The claim is not infrequently made that this fact becomes known to local dealers and as a result they cannot be induced to bid. Both the Lunacy Commission and the Fiscal Supervisor are supposed to secure prices from firms. These prices give a basis for the figures to be allowed in the estimates. These bids, in the Fiscal Supervisor's office, ordinarily are secured on regular blanks sent out by him. Whether or not they are always thus received, I am unable to say. This fact is certaia, however, — ^that not infrequently the bids, received by the Fiscal Supervisor and subsequently incorporated in his revision of an estimate, are not on the identical articles estimated for, but are on another size or quality. The action taken on estimates is to allow as estimated, or to reduce the price or the amount or both, to suspend or to disallow. When an article of supplies is reduced in amount, it is usually done because the institution is asking for an amount larger than its per capita allowance according to an approved ration. If it be reduced in price, the Fiscal Supervisor usually makes reference in his revision letter to the firm that will furnish it at a cheaper price. The Lunacy Com- mission may reduce the price without remark, but generally suggests corresponding with some Hospital which has secured a lower price. When the article is suspended, it is done for the purpose of awaiting further information, or because of the absence of no immediate necessity. This information may be secured by correspondence, or by a visit of the Fiscal Supervisor, or the Lunacy Commissioners, 32 or their inspectors, to the institution. Ordinarily after such visits the suspensions are removed and definite decision made as to the items. The nature of such inspection will be treated later in the report. In addition to the Maintenance Fund estimates described above, there are Special Fund estimates which iaclude all items for buildings or extraordinary repairs, or furnishing, or for such other material as is to be paid for from special fimds appropriated by the Legisla- ture. These are handled in the same way as the other estimates except that the State Architect must pass upon all of such articles and, in fact, he must pass upon articles in the maintenance fund which have to do with the furnishings or repairs of buildings, or expenditures for equipment out of balances from appropriations for new buildings. The Hospitals and Charitable Institutions must submit yearly to their Supervising Departments an Annual Inventory. This is not required in the Prison Department. This Inventory differs materially between the Hospitals and the Charities Department. In the Hospitals it is merely a " thing " inventory listing the various articles possessed by the Institution. Such an inventory is not a matter of great labor. With the Charitable Institutions, however, such inven- tory must contain, not only the thing, but the price paid for it. This becomes a matter requiring much time and effort, since the price of all articles found in use or in the store-room must be looked up and entered after the article. This inventory requires, in some instances, the employment of additional help and in others all the time of the clerical force during the latter part of the year, resulting in a serious drain upon the Institutions. There is a question whether this inventory is of any special value after it has been compiled. The original cost price is but little criterion of its actual worth or use value. This Annual Inventory, as now managed in the Charities Department, appears to be a severe and needless drain upon the energies of the heads of these Institutions. Another requirement of the law which makes a heavy draft upon the Managers of the Charitable Institutions, is the provision that the Man- agers shall condemn aU articles that are to be discarded. During the month, the heads of the various cottages or sub-divisions, bring to the steward certain articles of supplies that they think should be cast aside. If the steward concurs in this opinion, the articles are listed for an 33 examination by the Board of Managers. On the day of their meet- ing, besides their other duties, they are to go the rounds of the various buildings and pass upon the articles that it is proposed shall be dis- carded. When such a collection consists of himdreds of towels, wash- cloths, stockings, under garments, etc., it becomes an exceedingly burdensome, and a very unpleasant task for the Managers, whose time is worth more to the State in consideriag larger matters. 34 III. OPERATION OF THE SYSTEM. A. THE ESTIMATE SYSTEM. Advantages and disadvantages inherent in the systems under the existing law. Advantages Regulation of prices. — One of the chief advantages of the estimate system is that it can regulate the price to be paid for supplies by the different institutions, either by a suggestion as to where articles can be purchased at a designated price, or by indicating the price above which the article can not be secured, and leav- ing it to the institution to find a firm that will furnish the article at the price named. The Superintendent of Prisons seldom alters the price put in the estimate for institutions under his super- vision, but trusts them to buy below that price if they be able. The Lunacy Commission cuts the price of the estimate in a large number of cases, and seldom refers the institution to a firm that will furnish the article at the cut price. On the other hand, the Fiscal Supervisor reduces the prices in the estimate on a large proportion of the sup- plies asked for, and, in most eases, refers the institutions to firms that will furnish the articles at the price named by him. This power on the part of the supervising departments undoubtedly tends to cause the institutions to buy their supplies at the lowest prac- ticable price. Regulation of quality. — Not only the price but the quality as well, can be regulated by the supervising departments. This super- vision may operate both to lessen the tendency to buy supplies of higher quality than needful, and also to raise the quality where the institution is found to be purchasing an uneconomical grade. By being in touch with all the institutions the departments in Albany can, if watchful, readily determine the grade of supplies most advis- able to buy. Were the institutions buying for themselves without supervision there would be more or less diversity in the grade of supplies used. This is evidenced by prices paid for articles by the institutions previous to the adoption of the estimate system, in 1893. These prices will be referred to later in the report. 35 Regulation of proportions of foods. — Where institutions are operating without any central supervision, their dietaries vary in a greater or less degree according to the Judgment of the various superintendents. These varying judgments might be of value in a new work where experiments were necessary to determine the most advisable foods for different classes of inmates. The State institu- tions, however, have passed this experimental stage as far as quality of foods is concerned, and it has been determined with a considerable degree of accuracy as to the most healthful, and at the same time economical, class of foods needed by the inmates of the various tjrpes of the institutions. This knowledge having been determined by past experience and experimentation, can now be best applied by some central, unifying department, which will indicate to each institution the kinds and proportions of food best adapted to their class of inmates. The estimate system is in a position to closely control this regu- lation of quantity and quality of food supplied to each institution, and in this regard it is distinctly advantageous. The variation in food supplies which now exists between the Hos- pitals under the Lunacy Commission, and those under the supervision of the Superintendent of Prisons, may be taken to illustrate a dif- ference that might exist in the same department were there no central supervision. For instance, by comparing the foods used in the Eochester State Hospital with those used at Matteawan, it is noted that Eochester uses the following list of articles not used by Matteawan. List of Food Articles Purchased by Rochester, But Not by Matteawan. Amount used during year 1908-09. Barley 1600 lbs. Farina 20 bbls. Crackers 12940 lbs. Fowl, extra diet 968 " Dried beef 600 " Oysters, (March and April, Matteawan) 310 gals. Peas, canned 144 doz. Tomatoes, canned 36 Com, canned 72 " Succotash 72 String beans, canned 36 36 Amount used during year I 1908-09 Gelatine 40 lbs. Shredded cocoanut 80 " Citron, (November, Matteawan) 40 " Peaches, evaporated 1600 " Apricots, evaporated 700 " Dates 100 " Apple butter 360 " Oranges, special diet, (4 months, Matteawan) 40 boxes Bananas, special diet 40 bunches Pickles 20 bbls. Chocolate 84 lbs. Cocoa 80 " Peanuts 600 " Halibut, smoked 480 " Olive oil 4 gals. Apples 45 doz. The only food article purchased by Matteawan, not used by Rochester, is cran- berries. Satisfaction among the superintendents. — The estimate system by presumably dealing uniformly with all institutions imder the supervision of the Albany departments, tends to produce a feeling among the superintendents that each is being treated as well as the others. When the institutions were buying their supplies separ- ately, each tried to get as large a blanket appropriation from the Legislature as possible and thereafter to buy such articles of diet and other supplies as seemed wise, or as suited its fancy. The chief struggle came in securing the lump appropriation. Now that the estimate system is in operation, and the amount and quality of supplies are being established, the amount used by each institu- tion is governed almost solely by the number of inmates in its charge. In other words, among the elements that cause the per capita factor to vary in the different institutions, is not the personal equation of the superintendent, but only such things as the relative number of inmates, the character of the inmates, the size of the farm, freight rates, etc. These in a certain sense may be considered fixed charges, which must be borne by the institutions regardless of their operating expenses. This one variant, the purchasing of current supplies, regu- lated by the estimate system, tends to prevent any suspicion on the [part of a superintendent that he is not getting as much as super- intendents of other institutions 37 Detection of possible " graft " made easier. — The estimate system makes the detection of possible " graft " easier than it would be were the institutions purchasing their supplies separately. The estimate system by regulating both the quantity of supplies which the insti- tution can purchase, and also the quality of these supplies, makes it very difficult for any steward, were he so inclined, to arrange with a local firm, either for short weights or for a poorer quality than contracted for. Within a very small range of possible deception the stewards are obliged to purchase as directed by the Albany authorities. The estimate system, however, does not obviate the possible connivance of the Purchasing Committee with the contract- ing firms; but it does restrict such possible connivance to this one source, so that if it exist it may be easily discovered. Reduction of possible extravagance on the part of superin- tendents. — The estimate system is designed not only to give what is necessary both for the inmates and the officers, but also to deny the things not needful. When institutions were left to themselves, as they were before 1893 and 1894, there was undoubtedly a tendency on the part of some, at least, of the superintendents to buy articles that should not have been purchased with the State's money, and also to buy articles of better quality than the State should purchase. For instance, according to the vouchers of the institutions for the winter months of 1893 as now on record in the Comptroller's office, the superintendents of institutions given below, purchased the articles indicated : Utica, Sept. 17, 1891, one dozen hose, $4.50. " " " two vests and two pants, $32.00. " " " two dozen cashmere bouquet, $5.00. " " " various small quantities peanuts, figs, English walnuts, cocoanuts, honey, etc., were purchased. " Oct. 1, " one half dozen fine shirts, $12.00. " " one half dozen cuffs, $2.25. Newark, Dec. 23, 1891, two pounds bonbons, @ 65 cents, $1.30. At various times such articles as the following were purchased: Five lbs. almonds. Two lbs. pecans. Two lbs. Brazil nuts. Five lbs. English walnuts, etc. 38 Binghamton, Dec. 30, 1891, one hundred cigars, $7.50. 1892, one Onshak rug, S85.00. " " " one dozen napkins, 87.00. " " " one linen spread, $6.50. " " " one cover, $8.00. " " " various small quantities of trout, Malaga grapes, mushrooms, cranberries, etc. It was the custom of the superintendent to buy a higher grade of coffee, butter, and some other articles for himseK than for the inmates. Hudson, Dec. 10, 1891, one box cigars, $7.00. " " " one set rubber trimmed harness. $115.00. The various bills for table supplies which, judging by the price paid, were of a grade to be used upon the oflBcers, tables, were found as follows: Sirloin steak, 20c. per lb. Porterhouse steak, 22c. per lb. Leg of mutton, 18c. per lb. Turkey, 18c. per lb., etc. The superintendent evidently purchased a better grade of meat for his own table, buying as follows: Lamb, 18c. per lb. Sliced ham, 18c. per lb. Chicken, 18c. per lb. Lamb chops, 18c. per lb. Fish, 12ic. per lb. The above citations are sufficient to indicate that some superin- tendents, at least, were prone to buy things that to-day are not deemed necessary for the use of either the inmates or the ofBeers. The estimate system as operated to-day, permits the use of* low grade tobacco for inmates, but does not permit any of the officers to purchase this supply for their own use. It does not permit the purchase of any table delicacies not used by the inmates. But many of the Hospitals do secure some of these through the estimate, and in the Prison department the superintendents are allowed a specified sum for their table, so that they can buy what they choose with the amount given. How the estimate system, as affecting the officers when applied too vigorously, may also work harm will be shown later in the report. Disadvantages. Restricts expression of individuality. — The tendency of the esti- mate system when applied with too great a vigor, is to make the superintending officer merely an administrative agent of the central department. The kind and quality of the supplies he uses 39 are established at Albany. He is told how and when and where he may purchase them. He may be told, and in some cases is, espe- cially in the Fiscal Supervisor's department, just how he shall dress the inmates. He is told how many teachers he may have in his school, which regulates to a degree, the amount of instruction he may give. Financial control vested in the Fiscal Supervisor, enables him to dictate practically every feature of the management of the institutions. Even the Medical department, that is supposed to fall more distinctly under the supervision and suggestions of the State Board of Charities, is virtually controlled by the Fiscal Supervisor, since he can dictate the number of medical officers which the institu- tion may have; he may also control the number of attendants in the Hospital wards; and he can also control the medical and surgical supplies. Thus by exercising financial control, the Fiscal Supervisor virtually is the sole arbiter of the management of the institutions in almost every particular. This dictation from Albany of minute details tends to destroy initiative on the part of the superintendents, and to make them indifferent as to the results that they may attain even in lines where the estimate system is not supposed to materially affect them. In the various institutions visited an atmosphere of discouragement, and a tendency to throw the responsibility of every- thing upon Albany, were very apparent. In such a frame of mind, the superintendents certainly could not do the best for their inmates. Effect of the three forms of the estimate system. — The laws providing for periodic estimates in the three departments, i. e., the Prison, Lunacy and Charitable departments vary slightly in detail. The Prison law provides that : " The agent and warden of each of said prisons shall, on the first day of each month, make an estimate, in minute detail, of the necessary expenses for the support and maintenance of the prison under his charge during such month, and shall submit such estimate to the superintendent of state prisons. The superintendent may revise the said estimate by reducing the amount thereof, and shall certify that he has carefully examined the same and that the articles contained in said estimate, or in said estimate as so revised by him, as the case may be, are actually required for the use of the prison. * * * ."—Consolidated Laws 1909, Chap. 47, Art. 6. The Lunacy law provides that: " The superintendent of each of the state hospitals shall once in each three months as the commission may determine, cause to be prepared tripli- cate estimates in minute detail, of the expenses required for the hospital of which he is the superintendent, for the ensuing three months. He shall 40 submit two of such triplicates to the commission and file the third copy in the oifice of the superintendent. The commission may revise estimates for supplies or other expenditures either as to quantity, quality, or the estimated cost thereof, and shall certify that it has carefully examined the same and that the articles contained in such estimates, as approved or revised by it, are actually required for the use of the hospital, and shall thereupon present such estimate and certificate to the Comptroller. ♦ * ♦ ."—Consolidated Laws 1909, Chap. 32, Art. 3. The law governing the Charitable institutions provides that : " The superintendent or other managing ofiicer of each of the State insti- tutions reporting to the Fiscal Supervisor shall, on or before the fifteenth day of each month, cause to be prepared triplicate estimates, in minute detail of the expense required for the institution of which he has the super- vision, for the ensuing month. He shall countersign and submit two of such triplicates to the Fiscal Supervisor, and retain the other to be placed on file in the oflice of the institution. The Fiscal Supervisor may cause such estimates to be revised either as to quantity or quality of supplies and the estimated cost thereof, and shall certify that he has carefuly examined the same and that the articles contained in such estimate, as approved or revised by him, are actually required for the use of the institution, and shall thereupon present such estimate and certificate to the Comptroller. * ♦ ♦ ."—Consolidated Laws 1909, Chap. 57, Art. 4. It will be noted that a monthly estimate is provided for the Prisons and for the Charitable Institutions and an estimate for a three months' period for the Hospitals. The prison law gives the Super- intendent of Prisons power in revising to reduce the amount, by which is probably meant the price in the estimate but it makes no provision for a reduction in quantity or quality. The law gov- erning both the Hospitals and the Charitable Institutions provides that in the revision of estimates, not only the price but also the quantity and quality may be revised. All three laws in describing how the estimate shall be made out include the words "in minute detail." All three of the laws also provide that the officers charged with revising these estimates shall certify to the comptroller that the estimates have been carefully examined, and that the articles contained in such estimates, as approved or revised, are actually required for the use of the Hospital (Prison or Institution). Whether or not the Superintendent of Prisons interprets the law governing his depart- ment to mean that he can revise the estimates only as to price, I am unable to say, since he seems to do no revising, so the difference in the treatment of the estimates in the three departments probably arises 41 not so much because of a slight difference in the law, as because of the methods of administration adopted by each of the departments. The contingent fund not used with the same freedom in the three departments. — The law governing the Charitable Insti- tutions and Hospitals provides that the periodic estimates may con- tain an item called in the Charities law " contingent fund " and in the Insanity law " an emergency fund." The Prison law provides for no such contingent fund nor for any leeway in estimating, al- though the estimates for Sing Sing in October 1908, contained an item of $500 as an emergency fund. This, however, is overcome on the part' of the officers of the prisons by inserting an item of "mis- cellaneous expense," a description of which will be treated in detail below. The law governing this contingent fund in the Charitable Depart- ment reads as follows : " In every such estimate, there shall be a sum named, not to exceed two hundred and fifty dollars, as a contingent fund, for which no minute detailed statement need be made. No expenditures shall be made from such contingent fund, except in case of actual emergency, requiring immediate action, and which cannot be deferred without loss or danger to the institution, or the inmates thereof. • * » " Consolidated Laws, 1909, Chap. 57, Art. 3. That governing the Hospitals reads as follows : " In every such estimate, there shall be a sum named, not to exceed one thousand dollars, as an emergency fund for which no minute detailed state- ment need be made. No money shall be expended for the use of any of the State Hospitals except as provided in this section. » » * " Consolidated Laws, 1909, Chap. 32, Art. 3. It will be noted by comparing these two provisions that the maxi- mum contingent fund which can be used by any Charitable Institu- tion during one month is $250, and the corresponding sum for the Hospitals during a period of three months must not exceed $1,000. The difference in amount is not great, but the provision for the use of this fund is considerably more stringent in the Charities law than in that governing the Hospitals. The Charities law provides that such fund may be used only " In case of actual emergency requiring immediate action which cannot be deferred without loss or danger to the institution or inmates thereof." The language of the law governing the Hospitals simply states that there shall be such a sum with no limitations as to how it shall be used. As a result of this difference in the laws, and also a difference 42 of administrative policy between the two departments, it is exceedingly difficult for the Charitable Institutions to purchase anything which has not been estimated for. Whereas, on the other hand, the Hospitals are allowed to purchase many things in the way of small repairs and supplies for immediate use which, if the securing of them were postponed awaiting an estimate, might greatly hamper their work. Example of the very strict interpretation of the law govern- ing the contingent fund as interpreted by the Fiscal Supervisor may be cited as follows: It was found necessary by the Superintendent of Craig Colony to write to the Fiscal Supervisor to ask for the privilege of purchasing, in advance of estimating therefor, three lengths of stove pipe for the replacing of rusted-out pipe in the greenhouse which was endangering the house. The Fiscal Supervisor gave him permission to include this in a supplemental estimate but cautioned him against such oversight in the future! The treasurer of Craig Colony included in his December '08 report the following items: Repairs, razors $1 40 2 lb. brass rule 1 92 54 gal. gasoline 7 56 60 brass bolts 4 80 2 valve rubbers 1 20 50 lbs. paper 3 00 The Fiscal Supervisor on receipt of the treasurer's statement wrote to him under date of February 13, '09, as follows: " The above are not allowed as contingent items, as the facts stated do not show that the approval of the department could not have been obtained in advance." In reply to this letter the acting superintendent under date of February 20th wrote the Fiscal Supervisor that "At the time the expenditures were made we were of the opinion that they were all contingent expenses from our construction of the law governing the payment of contingent items • * *. We could, if you so desired, point out a large number of contingent expenses that are almost identical with these in question, that they have been allowed by the Fiscal Supervisor in the past so that there was ample precedent for our making the ex- penditure * * *. Will the department kindly advise us what course to pursue in order to settle this matter ? " 43 In reply to this letter the Deputy Fiscal Supervisor wrote as follows : " There are but two ways in which an expenditure may be lawfully audited, aa a, proper charge against the contingent fund, or as against an approved estimate. It has already been ruled that the items are not proper con- tingents. They cannot be checked against approved estimates, as none hava even been submitted * * ». This is not a situation which appears to call for advice and the department does not feel free to tender it." In the treasurer's statement of Industry for March, 1909, were con- tained two items as follows : " Grate section, $1.25 ; rings and cover, $2.00." In reply to this the Fiscal Supervisor wrote the treasurer under date of May 1st, as follows: " The necessity for the purchase of these items without previous approval does not appear from the notation attached." The superintendent in reply to this wrote in part, under date of May 4th, as follows: " I beg to state that these parts of ranges gave out unexpectedly and had to be replaced for immediate use." To this letter the Fiscal Supervisor replied, under date of May 11th, that " The disallowance of these items as a contingent expenditure was con- tinued." In reply to this letter the superintendent wrote the Fiscal Super- visor, under date of June 9th, as follows: "Answering for the treasurer the department's letters of May 11th and June 7th, by HW, I simply desire to state that I regard the department's ruling in the matter of the use of the contingent fund as unjust and un- warranted by law and were the amount involved sufficient to warrant the expense of mandamus proceedings, I should certainly bring such proceedings, but as the amount involved is insignificant I have sent my check to the treasurer to cover it. Under this ruling of the department no expenditure from the contingent fund would be legal." The statement of the treasurer of Syracuse for November '08 con- tained the following items in the contingent fund : " Repairs to stove pipe, $5.20. Sharpening and setting saws, $5.25. Repairs to shower, $3.75. Repairs to indirect stacks, $10.59." 44 The Fiscal Supervisor, imder date of January 22, '09, made inquiry why these were placed in the contingent fund. Again on January 30th, the Fiscal Supervisor wrote to the superintendent as follows: " The above are not allowed as contingent items, as the facts stated do not show that the approval of the department could not have been obtained in advance." Again on February 8th, the Fiscal Supervisor wrote to the super- intendent calling his attention to the fact that he had paid $3.70 for pipe which should have cost but $2.80; $1.20 for elbows which might have been purchased for 90 cents. The superintendent wrote the Fiscal Supervisor under date of February 10th that the pipe had been needed for the protection of the greenhouse and that they had paid for it 5 cents per joint less than had been allowed by the Fiscal Supervisor, under date of October 1st, '07. During this period also the question arose as to the right to include certaia range repairs in the contingent fund. This correspondence involved ten letters and covered the period from February 19th to March 3rd. In this correspondence, under date of February 27th the Fiscal Supervisor sets forth somewhat more clearly his iuterpre- tation of the law governing the contingent fund in the following words : "An expenditure cannot be regarded as a proper charge against the con- tingent fund unless it is evident on its face or from the accompanying explanation that loss or damage would have resulted had it been submitted for approval. Such as do not meet this requirement should not be incurred without previous approval." In examining the records of the various Hospitals visited, in no case was correspondence found between the institution and the Lunacy Commission which involved a question as to whether items were prop- erly included under the contingent fund. There seems to have been sufficient latitude given on the part of the Commission to meet the situation. General items — Prisons use a large number of estimates with- out details. — In the estimates of each of the three classes of in- stitutions are included a list of general items in which a blanket 45 amount is asked for to cover certain classes of expenditures for the ensuing period. The range of these items is somewhat as follows : Rome, Industry, Hudson, Nov., '09. Nov., '09. Nov., '09. Cases and cartage $10 .00 Express 40.00 S12.00 $8.00 Freight 60.00 35.00 13.00 Religious services 30 . 00 45 .00 Funeral expenses 25.00 Reward for escapes 50. 00 Telephone charges 10.00 15.00 10.00 Telegraph charges 10.00 10.00 8 00 Contingent 250.00 250.00 250.00 As compared with the above, the following items were included in the estimates of the indicated Hospitals : Middletown, Central Islip, Willard, July- July- April- Sept., '09. Sept., '09. June, '09. Travelling expenses for olEeers $100 . 00 $63 . 60 Books 20 .00 Entertainments 654.00 Freight 30.00 Cartage Packages Express 150 .00 Telephone charges 10 .00 Telegraph charges 40 .00 Burials 75.00 Emergency Fund 500 .00 300 .00 150 .00 It will be noted by a comparison of the above lists that the range of items is about the same in the Hospitals as ia the Charitable Insti- tutions except that the amounts are much larger, which is due, in a measure at least, to the larger size of the iastitutions and the longer period over which they are to extend. That Charitable Institutions did not include among their items "entertainment," is due to the fact that it is iacluded under a sep- arate heading. The above are the only blanket items included in the estimates of these two classes of institutions. In comparison with these items the estimates of the Prisons permit a much larger range, covering in blanket form the expenditures for all sorts of repairs and even 825.00 $845.00 1,100.00 275.00 5.00 20.00 25.00 570.00 100.00 165.00 45.00 40.00 45.00 46 new work. The following items were included in the estimate of Sing Sing for the month of October, 1908 : Engines and boilers $50.00 Steam fitting 40.00 Plumbing 60.00 Roofing and lumber 175.00 Paints, oils and glass 100.00 Tinsmith 30.00 Mason work 15.00 Blacksmith 16.00 Hardware 50.00 Tools 10.00 Carts, wagons and hardware 20.00 Machinists and carpenters 10.00 Miscellaneous 50.00 Electrical supply 75.00 Total 8700.00 It will be noted by reviewing the above list that practically all of the items covered in this blanket form must be estimated for by the Hospitals and Charitable Institutions in detail, item by item. In addition to this list of blanket items which the Prisons include in their estimates, is also a blanket amount as a contingent fund, as for instance, Sing Sing had as a contingent fund for October '08 $500 in addition to the $700 composed of the items above. This system of operating on the part of Prisons enables them always to purchase the needful thing and to do repairing which has been unforeseen at the time of the estimate. On the other hand it opens the way to unwise purchases of all sorts of material and tools. Low local market can not be taken advantage of. — The estimate system makes it almost impossible to take advantage of a low local market. Nearly all of the superintendents have called attention to this fact. The illustrations cited by them were somewhat as follows: Not infrequently there will be for sale by some local farmer, produce such as potatoes, cabbage, fruits, considerably below the market price at which such produce could be purchased from whole- sale market men. But it is impossible for the institution to purchase from the farmer because it is necessary to estimate first. Concrete illustration of this situation may be cited: Newark desired to pur- chase a stack of hay from a neighboring farmer. They asked per- mission, by letter, from Albany, but did not get a reply before it 47 was necessary to take action. They accordingly purchased the hay, trusting that approval could be secured for their action. But, as a result, they were severely criticised, and it was only after much correspondence that they succeeded in getting the Albany department to permit them to pay for the stack purchased. Again, an institution is not permitted to take advantage of a low general market. Where the joint contracting is done by a committee of superintendents, as in the Fiscal Supervisor's department, the committee, being large is difficult to get together. As a result, their joint contracts are confined to two or three periods in the year taking place mainly the first of October and the first of April. Butter is contracted for in the early summer. Where contracts are made at stated periods like this, it is improbable that they would always be based on the lowest market. As a result of the difficulty of a large committee, acting quickly and opportunely, many contracts are made at prices higher than could be secured by some of the institutions. Necessity of purchasing prison-made goods. — The law provides that all State Institutions shall use goods made in the State Prisons, when the Prisons can furnish the needed articles. This is in many regards disadvantageous. In the first place, the prices charged for prison goods are as high as, and in some cases higher than, goods of a like quality or material to be purchased in the open market. The workmanship of the articles made in the Prisons is very inferior. As a result, the institutions purchasing them pay a considerably higher rate, considering the material and workmanship, than the market price of such articles. Not infrequently, also, on small orders such as the institutions are many times obliged to place, the freight costs as much or more than the articles themselves ; whereas the same articles could have been purchased of a local merchant as cheaply as at the Prisons. Albion in Oct. '09 bought one-half dozen galvanized pails of the Prison department at a cost of $1.92, the express charge on these was $1.15. Serious objection has been found to prison-made goods, not only because of the poor workmanship, but also because of the quality of the material used. I secured strands of wire from a wire mattress at Craig made by the Prisons, and submitted it for inspection to a wire, spring manufacturer in New York City. After examining the wire it was the opinion of the head of the firm that it was a soft iron wire very similar to that used for winding brooms, and 48 quite unfit for use in spriags, siuce it could be easily stretched, and was not resilient. In contrast, he showed me the wire used by their firm. A casual comparison would easily convince one that this was very much superior in its spring quality. At Industry was exhibited a stiffening made of paper taken out of a pair of prison-made shoes. A number of pairs of shoes had been received in a similar condition, and an emphatic remonstrance to the prison authorities was made. Major Hobbs, of the Fiscal Supervisor's department, also confirmed the fact that some of the institutions had received from the prisons shoes with paper stiffening as described above. There is a general complaint among the institutions that the tin ware received from the Prisons is very frequently put together in a careless manner, so that it leaks. As a result, where institutions have mechanics who can perform the service, all such tin ware is gone over and soldered where necessary, before being put into use. In July 1908 Albion purchased prison made paint brushes that could not be used. These were a four inch flat brush, for which the rate of $16.25 per dozen was paid. Four at one time were purchased, and attempt to use one was made, but the bristles came out so pro- fusely that it proved worse than useless. The remaining brushes were thoroughly soaked in water with the hope that the process might obviate the loosening of the bristles; this, however, was in- effectual. As a result, the three remaining brushes were a loss. I was informed by the carpenter, that formerly he had been permitted to buy brushes in the open market, and had purchased from a local dealer a brush called the " Clinton," which was about the same size as that purchased from the Prisons, but cost $1.25 apiece, or $15.00 a dozen. This make of brush he found perfectly satisfactory, and they would last under continued use from two to four weeks. Judging by the amount of furniture that was put into the hands of the carpenter for repair at the institutions, the material used is many times of a brittle, brashy nature, which accounts for a large amount of breakage. This inference was confirmed by the carpenters at Craig, at Albion and at Industry. The Lunacy Commission not a single head. — In contrast with the Prison and Charities departments both of which have single heads, the Hospitals are governed by a Commission composed of three Commissioners, Theoretically this gives an opportunity to place in 49 control of the Hospitals three men experienced in different fields, — one should be a business man, capable of passing upon the business functions of the Hospitals; another must be a lawyer who can express judgment as to any legal complications arising in connection with their management ; the third a physician qualified to advise in regard to their medical work. Although theoretically this is good, practically the passing upon estimates is largely in the hands of three employees of the Commission, namely, the auditor, the secretary and the esti- mate clerk. The estimates are approved by the Commission after they have been revised by this clerical force. When anything goes wrong, the responsibility is divided between these subordinates and the Commission. When an individual member of the Commission visits the institutions, not infrequently he is asked to consent to the pur- chase of certain articles or supplies, although he may, perchance, be the physician of the Commission who might not be in a position to pass upon many of the details of institution and farm management. Although the Commission form of administration may bring greater knowledge to bear upon the management of the institutions, yet it is defective from an administrative standpoint in that the responsibility is divided. Amusement fund, not equally distributed among institutions. The law makes no special provision for a fund to be used for the purpose of securing amusements for the inmates of the various institutions. Such a fund, however, is set aside both by the Lunacy Commission and the Fiscal Supervisor. The appropriation for this purpose granted by the Lunacy Commission, is much larger per capita than that granted by the Fiscal Supervisor. The basis on which this fund is distributed in the two departments, is indi- cated below: Hospitals: With a population of under 1500 receive $50 . 00 per week. 1500 to 1800 " 55.00 " 1800 to 2100 " 60,00 " 2100 to 3500 " 65.00 " 3500 to 4000 " 76.00 " over 4000 " 88.00 " 50 Charitable Institutions: Albion No stated amount. Batavia $150.00 per year. Bath No stated amount. Bedford " Hudson " Industry $.06 monthly per capita. Iroquois $10.00 monthly, $30.00 for December. Newark " Oxford No stated amount. Randall's Island $.06 monthly per capita. Ray Brook 15 Rome 15.00 monthly. Sonyea 06 monthly per capita. Syracuse " " " " West Haverstraw $15.00 at Christmas. The per capita distribution of the total amount appropriated on the basis indicated above, was as follows in 1909 : Institution. Binghamton Buffalo Central Islip Gowanda Hudson River Kings Park Long Island Manhattan Middletown Rochester St. Lawrence Utica Willard Yearly Total Average per capita yearly attendance. appropriation. appropriation 1948 $1.60 $3,120.00 1859 1.67 3,120.00 3822 1.03 3,952.00 991 2.71 2,600.00 2420 1.39 3,380.00 3146 1.074 3,380.00 724 3.59 2,600.00 4466 1.024 4,576.00 1535 1.86 2,860.00 1348 1.92 2,600.00 1829 1.70 3,120.00 1255 2.079 2,600.00 2308 1.464 3,380.00 27651 51 Charitable Institutions. Institution. Albion Batavia Bath Bedford Hudson Industry Iroquois Newark Randall's Island. Raybrook Rome Sonyea Syracuse Oxford Haverstraw Yearly Total Average per capita yearly attendance. appropriation. appropriation, 232 98 $1.53 $150.00 1871 286 305 528 .72 380.1ft 133 1.05 140.00 681 .205 140.00 653 .72 470.16 158 1.80 284.00 981 .184 180.00 1160 .72 835.00 519 .72 373.68 169 47 $15.00 for Xmas. 7821 It wiU be noted by the above tables that the anmsement fund is distributed to the Hospitals upon a weekly basis, according to the daily average attendance, and that in the Charitable Institutions the distribution is upon no uniform basis. In the Hospitals this distribution is well worked out in that it gives the smaller insti- tutions a larger per capita allowance than the larger ones. This is a very equitable distribution, since amusements for a small number cost, upon per capita basis, very much more than for a large number. The distribution of the amusement fund to the Charitable Insti- tutions is no doubt governed by the character of the inmates. Certain classes will be benefited much more by amusement than others, and the proportion that any one institution should receive, should be gov- erned by such considerations. It is not easy to understand, however, why such institutions as Albion, Bedford and Hudson, that have a vigorous and more or less intelligent class of inmates, should not be assigned some definite amount for amusement. And Bath, that takes a high grade of inmates, in fact a higher grade than in any of the Insane Hospitals, receives no stated amount. Batavia, for instance, receives $150.00 per year, while Industry, Randalls' Island, Sonyea and Syracuse are put upon a per capita basis of .06 per month. On the other hand, Rome receives a flat rate of $15.00 per 52 month. Eaybrook is somewhat better treated and receives .15 per capita per month. A comparison of the amoimts distributed to the Hospitals with those distributed to the Charitable Institutions is of interest. For instance, Gowanda, with an average attendance of 991, received $3.71 per capita per year, whereas Rome, with practically the same attend- ance, 981, received but .184 per capita per year. Long Island, with 724, received $3.59 per capita per year, whereas N'ewark, with 681, received but .205. Utica with 1,255 in attendance, received $2,079 per capita per year, as against Craig with 1,150, but .75. Buffalo with 1,859 in attendance, received $1.67 per capita, whereas Bath with 1,871, received nothing, except possibly a small amount at Christ- mas time. It is not fair to make such a comparison purely upon the basis of the number of inmates. The insane at Growanda, part of whom are curable, can not readily be compared with the feeble minded at Eome, the greater part of whom will be a charge upon the State dttring their whole life. Nor is it entirely fair to compare the insane in Long Island Hospital with the custodial inmates at Newark. The com- parison, however, between Utica and Craig is fair, siace quite a large percentage of the inmates at Craig are supposed to be curable. Although such comparisons are difficult to make, yet the disparity between the amount used for amusement in the Hospitals and in the Charitable Institutions is so great that it warrants attention on the part of the supervising authorities. The Charitable Institutions are not given as much discretion in the use of this fund as is permitted the Hospitals. For instance, in October, 1907, Eochester bought a piano for $300.00, and paid on this $153.00 from the unclaimed money of patients. The rest of the purchase price was paid in instalments by inserting an item of $50.00 in the succeeding estimates until the whole amount was paid. In contrast to this, Craig desired to buy a pianola, and on date of June 14, 1909, the superintendent wrote to the Fiscal Super- visor asking if they could buy this instrument on the instalment plan, and pay for it from the amusement fund. On July 15, the Fiscal Supervisor replied as follows: " In reply would say that the law will not authorize such a purchase. Please refer to Section 48 of the Charities Law, by which you will find that purchases must be paid for within thirty days." 53 The portion of Section 48 referred to above, reads as follows : "All purchasea for the use of the said institutions reported to the Fiscal Supervisor, shall be made for cash, or on credit, or time not exceeding thirty days. * ♦ * " If this law were strictly adhered to by the Fiscal Supervisor seri- ous difficulty would arise since at the present time, the current bills of the Charitable Institutions are not usually paid within six weeks after the bills are issued; consequently the law is violated. The broader privileges accorded the Hospitals enable them to buy all the pianos and other musical instruments needed, also to main- tain bands, orchestras, baseball clubs and rather extensive musical organizations. The facilities for entertainment in the Charitable Institutions, in comparison, are exceedingly meager. 54 Advantages and disadvantages due to methods of administration. Prisons. Advantages. No complaint from revision of estimates. — There is no complaint among the prisons of a too close revision of the estimates, as is the case in the other departments. This situation arises from the fact that the Superintendent of Prisons apparently does not revise esti- mates. At the Comptroller's office I examined a complete year of estimates of Sing Sing, Dannemora and Matteawan, and did not find any indication of a revision. Such handling results in a smooth running system, but a smoothness that is secured contrary to the intent of the estimate law. The result of this failure to revise the estimates is that it gives the superintendents the liberty of purchasing in the open market, which many times is an advantage. For instance, Sing Sing esti- mated for broken rice at .03 per lb., which was allowed, ia January 1909. It paid .0386. Eome, at the same time, paid for broken rice .0287, and Eochester paid .0394. Sing Sing estimated for fresh fish at .05; bought at .03. Eome bought at .0409, and Eochester at .0435. Sing Sing estimated for barley at .03; bought at .0339, while Eochester paid .0374. In this department it was noted, by comparing estimates and vouchers, that between fifty and seventy- five per cent of the articles were purchased below the estimate price. This buying below the estimate is no doubt partly due to the fact that the estimates were high, and the prices are not revised by the Superintendent of Prisons. Wardens are allowed a good table. — Although the law does not seem to provide for a blanket appropriation monthly for the warden's table, nevertheeless each month a certain amount is set aside for this purpose. At Sing Sing the warden is permitted to use $150.00 per month; at Dannemora, $100.00; at Matteawan, $75.00. This gives him an amount sufficient to buy the best kind of food in abundance. Since he is permitted to use prisoners for service in the house, this 55 amount can all be expended for food. The full amount permitted is not always used. This was especially noticeable at Matteawan. The result of such an arrangement is that the wardens have no grounds of complaint because of the food furnished, a situation which does not exist in the other two departments. Such blanket appropriation is by no means the best method of providing for the chief officers' table, yet it does secure a certain result that is desirable. Disadvantages. Estimate system exists but is practically non-operative. — As stated above, the estimates are not revised by the Superintendent of Prisons similar to the revisions by the Lunacy Commission and the Fiscal Supervisor. It is stated by the Superintendent of Prisons that he calls his wardens together in a monthly conference, at which time estimates are submitted for a preliminary inspection. If changes are made as to any items, the wardens are asked to rewrite the estimate, so as to present to the Controller an unamended form. The system of the Superintendent is unfortunate in that it leaves no record by which his influence over prices may be judged. Irregularity in buying. — It was noted in looking over the vouchers for Sing Sing for November, 1908, that many drugs were bought which were not specified in the estimate, but were purchased under an item called " additional supplies ;" and apparently under this heading it is possible for a Prison to purchase almost anything that it desires. In the vouchers of January, 1909, it was noted that 1,627 pounds of corned beef was purchased, which was not on the estimate. It was possibly checked against an item of beef plates; but whether this was done or not could not be ascertained. Division 9 of the estimates is entitled "Miscellaneous," and under this division is a sub-division also called "Miscellaneous," and under this heading were bought in December, 1908, various things, such as Jupiter pencil sharpener for $6.38, a case of toilet paper for $11.50, one set of rubber tires for $30.00. The range of articles that may be purchased under this heading seems wide. Purchasing before estimating. — In looking over the estimates it was discovered that in many cases supplies were purchased before estimating for them. This was especially noticed in the case of Sing Sing, where fresh meat was bought in December and consumed before it was estimated for in January. Lack of information in the estimates. — The estimates of the 56 Hospitals and Charitable Institutions are required to state the amoimt on hand of any supplies that they desire to purchase, a description of such supplies, the price at which they desire to purchase, and the firm quoting the price. On the other hand, in the State Prisons the estimate contains but a small portion of this information. For instance, the October, 1908, estimate for Sing Sing contained these items in the form indicated without details : Furniture $25 .00 Two dozen cleavers, @ $3.50 7.00 Two gross cups, @ $9.00 18.00 Two gross plates, @ $9.00 18.00 Mistakes overlooked in the estimates. — The December "extra estimate" of Matteawan included the following items: Sash lifts, 48 pairs $48.00 Sash lifts (estimated), 48 pairs 12 .00 And the July estimate the following: Tire bolts, 400 $ .81 Tire bolts (estimated), 200 2.50 It will be noted that in both these cases a mistake was made in the original estimate, which readily would have been noticed by a careful revising superintendent. For instance, he would have at once seen that 200 tire bolts should not have cost $3.50. In fact, subsequently 400 were bought for .81; yet the mistake ia the esti- mate was not corrected. This item was also included: Two yards hydroclor acid, .50. The yard is a unit of measure little used by chemists for measuring liquids. The mistake, however, was not noted by the Superintendent of Prisons. Special fare for condemned prisoners. — Each month there is con- tained in the estimate of the prisons such as Sing Sing, an item of $50.00 for food for condemned prisoners. This estimate is in blanket form, and does not specify what is to be bought. Hospitals. Advanlages. Quarterly estimates. — The quarterly estimate system in the Hos- pitals has some distinct advantages as compared with the monthly system used in the Prisons and Charitable Institutions. By an experi- ence of some years the superintendents of the Hospitals have found 57 that it is not difficult to substantially anticipate their wants for three months and that it is but little more trouble and work to make up an estimate for a three months' period than for one month; although there are some more items in the estimate covering the longer period, yet the extra work is chiefly clerical since the same headings are used as in a monthly estimate. Each institution is privileged to make out a supplemental estimate at any time, so if need arises for material that has not been provided for in the original estimate, it is easy to secure it. In general, however, there seem to be but few more supplemental estimates made out by the Hospitals during their three months' period than by the Charitable Institutions in their short period of thirty days. The saving is not only in making the estimate itself, but also in making an inventory of the supplies on hand. At the end of each period such an inven- tory is required to be made and sent in tabulated form to Albany. Where the estimate is upon the basis of three months this inventory is made out but four times a year. The longer period likewise saves a large amount of labor in getting bids from various firms on the supplies needed. Not only is the quarterly estimate a saving to the institutions, but it is also a saving to the Commission in Albany since it requires them to review but four estimates per year from each institution in- stead of twelve as is done by the Fiscal Supervisor. On making inquiry from nearly all of the superintendents of the Hospitals which I visited, I found no disposition on their part to return to a monthly basis for estimating. Should occasion arise, for any change in the law they would prefer to extend the period beyond three months, rather than shorten it. Judicious handling of estimates. — Through the period of about sixteen years in which the estimate system has been in operation in Hospitals, the Lunacy Commission has gained an experience in handling the estimates that reduces friction to a minimum. During the first few years of the estimate system following 1893 the insti- tutions were much annoyed by having their estimates cut down to the lowest possible point and many things disallowed. As the system has been more and more tried out, however, the Commission has found that it is perfectly safe to allow a fair price for supplies in the estimate, with the confidence that superintendents will secure bids and buy under this price if possible. That this confidence is 58 well placed is evidenced toy quite a large proportion of the snppliea being purchased helow the price allowed by the Commission. During the January-March period, 1909, Kings Park purchased 87 articles below prices named in its estimate. These it will be understood are outside of the chief articles of diet which are purchased by joint contract. During the same period Eochester purchased 49 articles below its estimate, and during a like period Central Islip purchased 613 articles at a price cheaper than that allowed by the Commission. The large difference in the number of these articles thus purchased by the three institutions does not necessarily indicate that Central Islip is more careful in its purchase than the other institutions. It was a mere coincidence that in that period the engineering depart- ment estimated for a large number of small supplies, such as unions, bushings, plugs, elbows, packing, bolts, tees, etc., etc., and each size was entered as a separate item. This showing is certainly encouraging to those who hold that the institutions should be given a greater liberty of purchase. Undoubtedly there are times in which an institution purchases articles locally at a price slightly in advance of that which they might secure from some larger dealer in a distant city. On the other hand such a slight saving is many times overbalanced by the express or freight charges and more especially by the inconvenience due to a long delay in securing the article or in being unable to see it before purchase or delivery. The circular letter — ^Authority to buy small articles previous to estimating. — The Lunacy Commission in 1904 issued what is commonly known among the Hospitals as the " Circular Letter," a copy of which is as follows : Albany, Octoher, 1904. To the State Hospitals: I am directed by the State Commission in Lunacy to inform you that beginning with December-January, the items specified in the accompanying list will be omitted from the regular estimate, and the hospital is authorized to purchase as the necessity arises only such quantities as will meet imme- diate requirements, and submit at the end of each month a supplemental estimate, or estimates, covering the same. This course will obviate the necessity of estimating for anticipated needs. Superintendents are respectfully requested to notify stewards that inas- much as this method is intended to facilitate the operations of the hospital, 59 particularly in the line of ordinary repairs, heads of departments will be held strictly responsible for all such purchases, and will be expected to fully justify their action and point out the necessity for such purchases when called for. Very truly yours, (Signed) Geo. D. Sanfobd, Auditor. Approved: (Signed) T. E. McGaer, Secretary. This letter was accompanied by a list of 127 articles all of which are of small cost and of almost daily need. In the laundry depart- ment such things as needles, clothes pins, etc.; in the household supplies, carpet tacks, shipping tags, nails, etc.; in the engineering department, bushings, unions, elbows, tees, nuts, bolts, etc.; in the electrical department, screws, nipples, plugs, washers, etc:; for the farm, bolts, rivets, nails, etc.; for clothing, buttons, hooks and eyes, buckles, shoe laces, pins, hairpins, etc.; for furniture, tacks, screws, picture hooks, picture wire, shade poles, etc. By reading the above letter, it will be noted that such quantities as may be needed of the articles specified in the circular may be purchased as required and listed at the end of each month in a supplemental estimate. This circular letter allows purchasing pre- vious to estimating and under a strict interpretation of the law such purchases are apparently not permissible, yet as an administra- tive expediency it would seem that the Commission was justified in issuing such a permit and experience has proven that it has done more to obviate friction and to produce a smooth operation of the system than any other one factor in the whole management of the estimates. The main sources of annoyance and friction between the institutions and the Albany supervising departments arise over small articles. This friction is abundantly evident in the Charities Depart- ment. If the constant annoyances arising in the Charities De- partment be analyzed, it would be readily discovered that the great bulk of them are over small articles that are included in the circular letter of the Lunacy Commission, and were such privileges accorded by the Fiscal Supervisor, it would obviate to a large degree the fric- tion between himself and the institutions which he supervises. Better grade of articles permitted. — The quality of articles of food in the Hospitals is about the same as in the Charitable Insti- tutions ; both departments in general secure a very fair grade of food 60 supplies. In their articles of household supplies there appears to be a tendency in the Lunacy Commission to grant a better grade of material than is permitted by the Fiscal Supervisor's office. A com- plete assurance of this fact, however, could not be established without a careful examination, side by side, of a large number of similar articles. This tendency, however, may be illustrated by the follow- ing examples: In October-December 1908, Eochester estimated for 260 yards of Brussels carpet at .585 per yard. After a visit to the institution on the part of the Commission, the price was raised to $1.35, and they were instructed to get body Brussels carpet because more durable and more economical. I am told by the president of the Commission that they now buy nothing less durable than Wilton carpet believing this to be most economical. I have discovered no instance in the Charities Department where prices have been raised in order to secure a better grade of article than was estimated for by the institutions. There is no one small article that has given more annoyance in the Charitable Institutions than shoe strings. They have been cut down and down until the institutions are forced to buy 4-4 strings for .388 per gross. In March, 1909, Eome pur- chased four gross at this price. Eochester purchased strings, in the same period, at .40 a gross, and Central Islip in April-June period, at .35 a gross. This is not a material increase, but just sufficient to secure a considerably better and more serviceable string. Inspection by members of the Commission in person. — There is a slight advantage on the part of the Lunacy Coromission in its method of inspection, over the Charities Department. Its three Commissioners can go individually to different institutions and thereby make more frequent visits than is possible for the one Fiscal Super- visor to make. As a result, these visits to the Hospitals are made by members of the Commission, while inspection in the Fiscal Super- visor's office must be done largely by subordinates. This advantage is somewhat offset by the fact that the medical member of the Commission may find it necessary to pass upon questions that do not relate to his specialty and on which his judgment is not sup- posed to be expert; generally speaking, however, it produces a better satisfaction among the institutions to be able to lay their requests and problems directly before members of the Commission than before some subordinate, — as is generally necessary in the Fiscal Super- visor's department. 61 Disadvantages. Few experts. — One noticeable defect in the methods of administra- tion of the Lunacy Commission, is that they depend upon their own judgments in deciding many matters that should be decided by experts only. They employ a medical inspector, but this is their only expert. They formerly- employed a supervising engineer; they now pay for the advice of a consulting engineer when in their judgment the occasion warrants. In lieu of an expert dietitian, or expert farmer, they must express their own judgment in reference to such matters. Tendency of the Commission itself to enter into contracts. — Although most of the joint contracting is done either through a joint contract committee, or through individuals authorized by it to make contracts; yet, in one or two cases it appears that the Com- mission has made arrangements with firms which virtually resulted in a contract. The auditor notified the different institutions that the Commission had secured a quotation on absorbent cotton. There was no indication in his communication that this quotation was made by the Purchasing Committeee, nor does the Committee understand that it was supposed to have been made by themselves. The following is a copy of a communication to the Hospitals under date of May 8, 1909 : In re absorhent cotton To the State Hospitals : An arrangement for the purchase of absorbent cotton at .14 per pound net f. o. b. New York, Hudson Brand, has been made with Seabury & John- son, 59 Maiden Lane, New York. Estimate for six months supply may be made in the July-September estimate. Very respectfully yours, (Signed) Geo. D. Sanford, Auditor. Approved : (Signed) T. E. McGabb, Secretary. This is not in the form of a contract, and yet the hospitals under- stand that they are expected to buy their cotton of the firm indicated when such arrangements have been made. It virtually results in a contract. The Commission is not authorized by law to enter into contracts. 62 Charitable Institutions. Advantages. One man power — ^^Centralization of responsibility. — In con- trast with the Lunacy Commission, composed of three members, the Charities Department is in charge of one man, the Fiscal Super- visor. There are certain advantages in a one man power; he feels the responsibility, and is likely to attempt to measure up to it. If there be any complaint as to the administration of any details in the Charities Department, there is but one place to lay that complaint, and that is upon the shoulders of the Fiscal Supervisor. The prime essential in this form of administration, is that the one man should have his policy of administration very clearly out- lined and should employ men of sufficient ability to carry it out, and should be constantly alert to see that they perform the tasks assigned. The Fiscal Supervisor's Department can claim the advantage of the one man power, but it can not show very clearly that it has adopted a well-defined policy, nor that the subordinates understand clearly how to carry out a policy, nor that their work has been sufficiently scrutinized to make it certain that they have conformed to what- ever policy there may have been. Disadvanlages. Estimates passed on by subordinates. — The estimates in the Fis- cal Supervisor's office are largely handled by subordinates. A fair illustration of the power of such subordinates is found in the records of Bedford. In October, 1908, Bedford put in an estimate for 300 lbs. of coffee, expecting in each alternate month to ask for 200 lbs., making an average of 350 lbs. per month. In the revision of the Fiscal Supervisor this was reduced to 235 lbs. Inasmuch as additional coffee was urgently needed because of increased numbers in the insti- NoTE. — In the following pages in many places dates will seem to be re- versed. For instance, it may be said that a letter dated in September was written in connection with an October estimate. This apparent reversing of the order of dates is due to the fact that the estimate for any given month is made in the month preceding, and correspondence in connection therewith, may take place in that preceding month. 63 tution, the superintendent wrote to the Fiscal Supervisor, under date of Sept. 28, as follows: " I can not accept without further protest the department's reduction on our allowance for coffee (item 15-1). Our allowance for coffee last year was 225 lbs. per month, or an average of a trifle less than 52 lbs. per week. Our item for coffee up to a year or two ago, was covered by the depart- ment's allowance of 5 lbs. per week to each cottage with 28 inmates, 5 lbs. per week to the Administration Building with 14 officers and 4 workers, 1 lb. to the Hospital, and 2 lbs. to the Annex, or Men's Boarding House. The allowance also permitted an issue in almost the same proportion to the Eeception House, but in the last few months the Reception House popula- tion has been increased largely. If the same issue continues to be made to the cottages, it leaves only an average of 16% lbs. per week to the Reception House, which at present has a population of 140 girls and 14 officers. I can not see how this house can have anything like coffee to drink on the small allowance of 25 lbs. per week. If it received coffee in the same proportion for the cottages, it would have 27V3 lbs. per week. We have a balance to begin the month with, of 10 lbs. There are five regular issuing days in the month, which would call for 250 lbs. on the basis of the allow- ance of a year ago. Another consideration is that the dealers make ship- ments in 100 lb. bags." The above letter did not secure a reversal of the previous revision of the estimate, and accordingly on Oct. 7, another letter was ad- dressed to the Supervisor as follows: "The department's letter of Oct. 6, relative to coffee (item 15-1) in received. As already explained to the department, the supply of coffee now given us is not proportional to the increase in our population. This month has five issuing days for coffee, and we shall have none whatever to give out on the fifth issuing day of the month, and only a partial supply for the fourth. The supplies allowed would only admit of our giving the girls a breakfast made up of bread, coffee and cereal, and with the coffee subtracted this leaves an inadequate meal. Dissatisfaction culminating in disturbances is sure to follow. I am insistent in laying the matter before the department, in spite of the refusal to increase the quantity, in order that the responsibility for resulting conditions may be definitely placed with the department." This left the institution with 45 lbs. a month shortage. Two letters of refusal to allow the estimate were received from the Department. Finally, the President of the Board of Managers, Mr. James Wood, wrote a personal letter to the Fiscal Supervisor, Mr. Bissell, calling his attention to the matter, and suggested that matters of such im- portance should come before his personal attention, and not be allowed to be decided by a subordinate. Thereupon the coffee was allowed as estimated. 64 Cheapness the dominant policy of the Fiscal Supervisor's office. — After talking with many superintendents, and after reading many hundreds of their letters, I am of the opinion that the dominant policy of the Fiscal Supervisor's office is, first, to save money, and second, to care for the welfare of the inmates. This must not be interpreted to mean that the inmates in most regards are not rea- sonably well housed, or fed, or comfortably clothed. These easily recognized and primary essentials are fairly satisfactorily cared for. If all institutions were merely custodial, my criticism would have little weight. Since, however, many of these institutions are remedial, requiring medical and educational work, the efficiency of the Fiscal Supervisor's office must be measured by the latter demands rather than the former. That financial economy is the dominant note of the Department may be illustrated by the disallowance, or the reduction in price of the various articles needed by the inmates and the officers. For instance, at Hudson, the girls were denied sufficient material to properly carry on cooking classes, proper material for the sewing classes, sufficient dental work to protect the teeth of these growing girls. The officers were denied suitable table linen and table ware. At Bedford, the women were denied a globe for the school room, and flannel for the sewing class, kettles for the cooking class, rulers for the manual training class, and a go-cart for the outing of babies. A mass of such incidents will be presented later in the report which will give the impression that the attention of the central authority at Albany is fixed more upon the saving of pennies than upon the satisfaction and contentment of the officers, and the education and correction of the inmates. Too cheap material used. — There is much complaint among the Charitable Institutions that they are receiving an uneconomic quality of articles. They feel that in a great many instances the Fiscal Supervisor's department cuts the price down to a point at which a satisfactory and serviceable article cannot be secured. Instances of reduction are as follows: In February, 1909, Eome estimated for 8' 3"xl0' 6", 10-wire tap- estry rug at $14.50. On revision it was reduced to a 9-wire rug at $9.90. In June, 1909, Eome estimated for one 9x13 10-wire rug at $18.00. On revision this was reduced to $13.00 for a metropolitan rug. Both 65 of these above revisions were referred to H. B. Claflin Co., New York City. In October, 1909, Syracuse estimated for 50 yards of tapestry Brussels carpet at 85c a yard. On revision this was reduced to 69c per yard. In contrast to the above reduction to cheaper grades, the tendency on the part of the Lunacy Commission to buy a better grade may be cited. In October-December, 1908, Eochester estimated for 360 yards of ingrain carpet at .585 per yard. The item was suspended until the commission could visit the institution, and after such visit the price was raised to $1.25 per yard, with the advice to buy body Brussels carpet. In January-March, 1909, Central Islip estimated for 66 yards of Wilton carpet at $1.25 per yard, which was allowed. In September, 1909, Syracuse estimated for 1,000 brass clamps at .035 each. These were for the purpose of clamping insulation on steam pipes in conduits. The engineer had informed the superin- tendent that the conduits were so damp that an iron band would soon rust out, therefore a band composed of a non-oxidizing material was needed. On revision the price of the bands was cut down to $6.00 for the lot, and reference made to the Fairbanks Company of Albany. The superintendent secured from the Fairbanks Company a sample of the bands they bid on and found them to be of thin, lacquered iron; so, under date of October 19th, he wrote the Fiscal Supervisor in part, as follows : " We propose using these bands in various tunnels where there is con- siderable moisture which would quiclcly corrode the tin bands thereby releas- ing the asbestos covering on the steam pipes. The bands we wish to purchase are of solid brass and will last indefinitely." Under date of October 29th, the Acting Supervisor wrote the superintendent confirming his former quotation of $6.00 for the lot. Under date of October 30th, the superintendent replied to the Acting Supervisor in part as follows: " In reply will say we did not question your quotation from Fairbanks Company, Albany, in fact we verified it, and asked for sample of the band. • * ♦ jf these bands are placed upon our pipes, they will simply rust, and go to pieces in a few years, and we will have the same work to do over. // our pipe covering had been put on with genuine brass bands in the first place, we would not be called upon to be at this expense now." (Italics not in original.) 66 Under date of November 4th, the Acting Supervisor wrote the superintendent to also get a sample of the band bid on by Charles Millar & Son Company at $6.50 for the lot. Under date of November 8th, the superintendent sent to the Acting Fiscal Supervisor a sample obtained from Millar & Son Com- pany, saying: " We believe that bands like the sample would not long survive in our tunnels." Under date of November 10th, the Fiscal Supervisor wrote the superintendent in part, the following: " In the opinion of the department's Inspector of Buildings, Heating and Lighting, either the bands offered by Fairbanks Co., Albany at $6.00 for the one M. or Millar at $6.50 for the one M. will last indefinitely in your tunnels and therefore the original reduction to Fairbanks Co.'s quotation is un- changed. " If the institution desires pure brass, the department would consider an estimate for 10 lbs. of 28 gauge, 12 inch or 14 inch, sheet brass at 32c lb. or less, $3.20, in lieu of one M. bands for $6.00. From the 10 lbs. of brass about 6 feet to the lb. the one M. bands could be cut." Recently, while constructing a building, the engineer of Craig Colony asked for a steel, instead of a cloth tape, because of ita greater accuracy. He was denied this, however, and allowed an ordinary cloth tape. He used this in laying out the foundations of the building, and when the carpenter came to put the frame work upon it, it was found to be from one to three inches larger than the specified measurement. This was due to the inaccuracy of the tape, as was proven by subsequent measurement. As compared with this, in October-December, 1908, Central Islip was permitted to buy a 100-foot steel tape at a cost of $8.96. Craig Colony estimated for 8-0 paint brushes at $10.50 a dozen. The chief painter stated that this was the best that the Fiscal Super- visor would allow. Formerly he had been permitted to buy a better grade of brush, made of Eussian bristles. For these brushes he paid $16.00 a dozen. His statement was that the Eussian bristle brushes would last fully three or four weeks with continuous use, for outside work, and that after that usage they could be brought into the shop and used as stub brushes for painting bedsteads and other small articles. Whereas, the cheaper brushes now allowed by the Fiscal Supervisor's office would last but three or four days and would not be satisfactory in the meantime. 67 In contrast with the above in October-December, 1908, Central Islip purchased % dozen 8-0 brushes at $15.36 a dozen. In October, 1908, Syracuse estimated for 100 feet of 14" belt lacing, "Anhydrous," at 83c. On revision it was reduced to 70c. It (not Anhydrous) was purchased at this price and used, and was found of short life and unsatisfactory. In December, 1908, they estimated for 50 feet I/2" "Anhydrous" lacing at 88c and 50 feet of %" at $1.13. The former was reduced to 44c and the latter to 57c. The superintendent wrote to the Fiscal Supervisor remonstrating, and the Supervisor replied, stating that " Raw hide is the kind ordinarily used." In January, 1909, Newark estimated for 100 pounds of putty, good grade, at 4c, with an explanation as follows : " Carpenter and engineer complain that cheap putty is not worth using. Cannot work it up so as to make it pliable." On revision price was reduced to .035. I have heard much complaint on the part of the institutions about the quality of rubber sheeting furnished. Formerly they were per- mitted to buy a poncho blanket for the beds costing $1.10. These blankets were double coated, hemmed and finished on the edges, with grommets inserted. Recently they have not been permitted to buy these blankets, but instead are required to buy rubber sheeting by the yard, coated on one side. As an instance of this, in March, 1909, Rome estimated for 175 yards of rubber sheeting at 76c a yard. On revision this was reduced to 43c a yard. It takes two yards to a bed, which at 43c a yard, would be 86c. It must be hemmed and grommets inserted, all of which requires considerable labor. This sheeting is coated but on one side and the superintendents claim that it is much inferior to the double coated Poncho blankets, and that it costs nearly as much in cash and quite as much with the labor added. In contrast with this policy Central Islip in January-March, 1904, bought rubber blankets, extra quality, at $1.60. And in April-June, '07, rubber sheeting at 72c a yard. The purchasing committee of the hospitals has now reduced the price to 54c per yard for single coated sheeting. The poorer quality of rubber blankets is a very uneconomic article since its sole object is to protect the mattress and wire springs. If it becomes defective it will not accomplish this object, and the result of the destruction is much more than the cost of the blanket. 68 In March, 1909, Bedford estimated for one pound of pins at 50c a pound. On revision they were reduced to 36c. The superiatendent has complained to the Fiscal Supervisor's office several times about the poor quality of pins. Her claim is that the poor quality pins are so soft that their points quickly bend and they are useless there- after. They are a dearer pin to buy than those that cost more. This same complaint I have heard at several Charitable Institutions. In March, 1909, Bedford estimated for two egg beaters at 10c each. On revision the price was reduced to 8c and reference made to Waterman Hardware Co., Albany. The beaters when purchased and put in use were of such poor quality that they could not be used, and consequently, were thrown away. There has been a general complaint by the superintendents that the revision prices, quoted by the Fiscal Supervisor, have in many cases been upon an article lower in quality than that estimated upon. This always, in their opinion, puts the last bidder at an advantage over the bidder on a higher grade article. This feeling has been voiced by Dr. Charles Bernstein, Superintendent of Eome, in a letter to the Fiscal Supervisor under date of October 9, 1908, which reads as follows: "Again this morning the matter of prices quoted the department from certain firms in Alhany and the prices quoted the institutions, has come up in this office. We have a letter from the Waterman Hardware Co., this morning in which they state that business relations between the institution and themselves are unsatisfactory for the reason that they are not allowed to substitute other articles than the articles which were specified, especially when the prices concerned are apparently cut rate prices. "Again in connection with the Albany News Co. Their prices are greatly at variance with the prices quoted us by the department. Thus, they ask for Shannon Files, $7.50 per dozen whereas, the department's price was $6.25 per dozen and the price we ask to be allowed for these files in the estimate is $6.50 per doz. And in this connection, I have this morning stated to the Waterman Hardware Co., that we must invariably insist on having what we specify and not something in substitution and we do not propose to lend ourselves to any apparent scheme which has the appearance on its surface of being an arrangement whereby cut price articles shall be used in substitution, oftentimes using something else in place of the article specified, the article furnished being at cut price. Further, that responsible bidders are refusing to quote us prices any longer, they feeling that when they are dealing with the State of New York they ought not to be asked to compete with any cut price business, and the only way that we can do a straightforward business and get a fair competition in the matter of price! 69 is to insist on having the article specified and not a substitution, for where prices are quoted the department, very frequently the prices quoted are on a substitution article and thus the prices given are not a, fair competition with the prices secured by this institution on definitely specified articles, and it is for this latter reason that we rather insist on having quotations direct from the dealer to this institution in order that we may know definitely that the prices quoted are on some definitely specified articles, a» the letters sent out from this office are duplicates of one another, and then there can be no question regarding the same article being definitely specified in the same way in each letter." The reply of the Fiscal Supervisor is as follows : "Your letter of October 9th received. " Will say the same has been placed in our files." Petty annoyances. — One of the chief short-comings of the Fiscal Supervisor's department is a strong tendency to center attention upon little details of the institution rather than upon the larger needs. The Superintendents find it necessary to carry on almost a continuous correspondence in order to secure a sufficient amount and suitable quality of the small articles for daily needs. This correspondence not only demands a great amount of time on the part of the Super- intendents but what is more serious it puts them in a temper of mind that makes it difficult for them to center their attention upon the larger needs of the inmates under their care. This latter func- tion is generally supposed to be the prime function of the superin- tendents, and no doubt this is the view adopted by the State authori- ties in providing that in most cases these superintendents shall be trained physicians, and if not physicians they should be at least specialists in the handling of the type of inmates under their charge. If the supervising department at Albany be so conducted as to largely suppress the exercise of the very qualities for which a superintendent has been selected, that supervising department has been either wrongly organized by statute or else is wrongly administered under that statute. The annoyances referred to may be illustrated by the following incidents. Many more incidents tending to show the petty policy of the Fiscal Supervisor's department are given in the appendix. Exhibit A, 70 Shoe laces. — Under date of October 27, 1908, Franklin H. Briggs, Superintendent of Industry, -WTote the Fiscal Supervisor the following letter: " I am sending you herewith samples of three shoe laces. In October we asked for the No. 1 Cord 4-4 shoe lace at 38c per gross. The department reduced the price to 31%c as for Metropolitan No. 2, and referred us to H. B. Claflin & Co. The steward sent an order to H. B. Claflin So Co. without ascertaining what the same goods could be bought for in Rochester and he finds that a Rochester firm would have supplied them at 30c. " The fixing of a price for an entirely different article by the department prevents any sort of competition on the part of dealers. We asked for bids on No. 1 Cord 4-4, we were directed to buy Metropolitan No. 2 upon which nobody had bidden. I respectfully submit that No. 1 cord at 38c per gross is a much more economical shoe string to buy than Metropolitan No. 2 at 30c, and I believe that No. 1 Cord, extra heavy, sample of which is forwarded, at 54c would result in a, large saving in the cost of shoe strings if we were allowed to purchase it. This matter was taken up with the department at length some time ago and we were allowed for several months to purchase the No. 1 Cord 4-4 shoe lace." Under date of April 6, 1909, William T. Shanahan, Superintendent of Craig Colony, wrote the Fiscal Supervisor a letter of three pages on shoe strings. He complains that the price has been reduced to a limit that will not secure strings of any value, and that, moreover, strings that the institution formerly purchased at ^Oc, on account of the increase in material, would now cost 90c, and yet they are required to buy strings costing 54c or less per gross. It seems that on April 3rd the department had written to him asking his authority for buying a different length shoe string than was estimated for. In reply to this Dr. Shanahan wrote: " We did not suppose that it was necessary to get authority from the department to change a part of the order from one size shoe strings to another size as the price paid for the 4-4 shoe strings was for a better grade than was paid for the 5-4 shoe strings. However, in the future when we desire to change the length of shoe strings that we purchase we will endeavor to take it up with the department and procure your authority for this change in length." Again in May the Superintendent estimated for nine gross of shoe strings at 65c per gross. This was again reduced by the Fiscal Supervisor to 54c per gross with the following note : " The department has matched the laces the institution formerly pur- chased and finds H, B. Claflin Co.'s No. 420 equal, if not better." n Craig Colony had used this make of shoe strings under the previous estimate and had found them of very poor quality. Bedford, in October, 1908 estimated for four gross of shoe laces at 42c a gross. The amount was allowed, but the price was cut to 39c. Subsequently this price was twice cut. After another reduction in price of these laces, in the estimate for March, under date of February 24, the superintendent wrote to the Fiscal Supervisor as follows : "The quality of shoe laces bought at 35c per gross is so poor that if the quality is still further reduced we must put in an estimate for six gross per month. I inclose sample of the shoe laces we are now getting. If some employee of the department will use it in his own shoes for a week, he will be in a position to pass an opinion on the economy of buying at this price." Ceutch tips. — In February, Syracuse estimated for two dozen solid crutch tips at 75c per dozen. This was reduced by the Fiscal Supervisor to 40c per dozen. The superintendent replied under date of February 25th "that they (the crutches) need a ISTo. 2 solid," with the inference that these would cost more than the amount allowed in the estimate. Under date of March 1st, the Fiscal Supervisor wrote continuing the reduction, stating, "you no doubt will find the price allowed sufScient to buy a suitable kind." On March 11 the Superintendent stated that he was unable to find any tips at 40c that would fit the crutches. Again on March 37th, the superin- tendent wrote that he had received no reply to his letter of March 11 and repeated the substance of that letter. On March 39th the Fiscal Supervisor allowed the tips at 43c a dozen with the remark, " The price is on Whitmore Patent solid No. 1 sometimes called a socket tip. M. G. Stoneman & Son, for firm that will sell hollow tips No. 18 and 19 for 40c per dozen, see revision letter of February 20 for March, page 5." On April 1st, the superintendent wrote to the Fiscal Supervisor enclosing a letter from M. G. Stoneman & Son stating that the tips on which he bid 43c per dozen were 'No. 1 and that No. 3 would cost 73c per dozen. The Fiscal Supervisor allowed them at this price — a saving of 3c per dozen, over the original estimate. The total saving was 6c on the two dozen. This required a writing of ten letters, using 20c in stamps, besides the cost of stationery, the time of the superintendent, the clerical force and the stenographers at Albany. 72 Household supplies. — In October, 1907, Hudson estimated for a screw driver at 35c, with the explanation that " It is for a special purpose and should be a good quality." The Fiscal Supervisor reduced the price to 8c with reference to the Waterman Hardware Company in Albany. This screw driver was subsequently purchased from the company indicated, but it re- quired a special trip on the part of a member of the medical staff of the institution from the central part of Albany to the Waterman store, using lOe carfare and one-half hour's time. The screw driver proved to be of such a poor quality that it was necessary to discard it. In October, 1909, Syracuse placed in its Special Fund Estimate, two items as follows: Curtains (madras trimmed with picot edge) 4 pairs at $6.25 each. . . . $25.00 Curtains (repp, four yard length) 4 pair at $9.25 each 37.00 Under date of October 20th, the Fiscal Supervisor revised this estimate as follows: 11— Reduced to $5.50— Curtains $3.00 (Quotation on 3^ yds. x 50 ins.) 12— Reduced to $4.00— Curtains 21 .00 ("Quotation on" solid color, Fig. repp with tapestry border 2 yds. X 30 ins. long.) I personally measured the windows for which these curtains were estimated and found them to be 13 feet, 3 inches in length which makes it very evident that the curtains allowed by the Supervisor, namely, one pair 3 yards and 18 inches and the other 3 yards and 30 inches in length could not be used for these windows nor could they be used on any two adjoining windows. Small view exercised by the Fiscal Supervisor. — It seems diffi- cult for the Fiscal Supervisor to bear in mind that the primary function of the institutions under his charge, is, where possible, to heal and reform. There is a mass of evidence which will make it appear that his first concern is for small economies rather than for efficiency in operation. This criticism does not apply to an individual but to the Fiscal Supervisor's office as it has been administered during the past two years. The records for these two years only have been examined. This criticism may be substantiated by the following incidents taken from the records of the institutions. 73 Material toe the Educational Departments reduced to a minimumj — The following illustrations are taken from the records of Hudson: pocket knives. — The institution had estimated for a pencil sharp- ener for one of the teachers, which had been disallowed. Subse- quently, in January '09, two pocket knives were estimated for with a statement that they were to be used by the teachers in the primary department for sharpening lead pencils in place of the disallowed pencil sharpener. The item was disallowed without comment on the part of the Fiscal Supervisor. PASTE. — In the December, '08, estimate was an item of twenty-four tubes of paste, with a statement that it was to be used in seven school rooms. It was disallowed without explanation. The institution desired this paste in tube form so that it could be easily distributed to and handled by the different teachers. In 1905 four dozen tubes of paste were ordered and it lasted until December, 1908, or over three years. The Fiscal Supervisor, however, insisted, that for eeonomy^s sake, they should buy a pint pot of paste and should, in some way, divide this portion up among the several teach- ers, although it was not at all clear in what sort of a convenient container the paste might be distributed and used. mucilage. — In October, '08, three dozen small bottles of mucilage were estimated for to be used in the school rooms. This item was disallowed and in its place it was suggested that they buy one large bottle of mucilage, — ^which comes cheaper by quantity. But inas- much as the institution had no brushes or small bottles in which to sub-divide it, this suggestion of the Fiscal Supervisor was found impossible to carry out. Although it has been estimated for several times the mucilage has not yet been secured in this more convenient form. The followiQg illustrations are taken from the records of Bedford : SCHOOL room globe. — A school room globe was estimated for in June, 1903, and was disallowed without comment. It was again estimated for in December, 1903. This time it was disallowed with the advice that maps be bought instead. It was again estimated for in June, 1904, with the following explanation on the part of the superintendent : 74 " In my opinion, a map cannot be substituted for a, globe with pupils such as ours, where the main object in view is not so much to store the memory as to rouse the intelligence. Latitude and longitude, the succession of seasons, the day and night, the ebb and flow of tides, and the relation of other bodies to the earth cannot be adequately taught without the aid of a globe. Our girls belong to the class whose imagination is so undeveloped as to be impossible for them to form an idea of matters like these without a concrete illustration. I consider on logical grounds that the purchase of a globe seems expedient because it can be easily moved from room to room." It was disallowed at this time without comment. It was again estimated for in November, 1905, and disallowed without comment. In October, 1908, it was asked for accompanied by the following ex- planation by the superintendent: " New item, — ^needed for teaching geography. No fairly well equipped school attempts to get along without a globe. It is impossible to teach the main facts of geography without them. This need has repeatedly been presented, but I hope my arguments will at last prevail." The globe was disallowed without comment. The institution now intends to buy the globe out of an appropriation that has been made for the general equipment of its new school building. Household and General Supplies. — -The following illustrations are from the records of Hudson: TELEPHONE.^ — In September, '08, Hudson estimated for an item of sixty-one cents for telephone rental. It was disallowed with the following remark by the Fiscal Supervisor: " If arrangement has been made for additional telephone service it should be explained." This disallowance and explanation was unlocked for, inasmuch as the Fiscal Supervisor had allowed the expense for the installation of this 'phone in July preceding, but had now seen fit to cut ofE the rental so that it could not be used. CLIPS. — One dozen heavy clips were asked for in February, with this explanation: " For heavier packages than Niagara clips will hold." They were disallowed with this remark on the part of the Fiscal Supervisor : " Why there is a necessity for these now and not formerly should be stated." ♦ ♦ « " These are not allowed for the reason that the depart- ment does not understand the need of them. They are not used in this office." 76 BLACKBEEEY PLANTS. — In the Maxch, '09, estimate an item of five hundred blackberry plants was included. The item was suspended with this remark: " There should be an explanation why all these are desired at this season." This inquiry was somewhat surprising, inasmuch as this was the only season in which they could be planted if they were to be planted at all during the year, and the attention of the inspector had been called to the productiveness of the plants already in bearing and it seemed reasonable that the institution would gain by having a larger number planted. After a lengthy letter on the part of the superintendent the plants were allowed on March 15. SIDE HILL PLOvr. — ^In March, '09, a side hill plow was asked for, with the following explanation: " We wish to break up ground on side hills which has never been under cultivation. This cannot be done without a side hill plow, and the insti- tution has none." The item was suspended with the following remark on the part of the Fiscal Supervisor: "The need of this should be fully explained. It could hardly be needed in any case until the last of April." It was felt at the institution that such a suspension, so late in the season, was unjustified, inasmuch as it should have been clear to the Fiscal Supervisor that this would greatly add to the pro- ductiveness of the farm. It was to be used, as was known to the inspector, on the side of a hill where the brush and trees had been cleared o£E by the girls. (I especially observed this hillside last summer. It was covered with an excellent crop of corn, which certainly paid largely for the labor put into the preparation of the soil.) TABLE CLOTH. — In February, '09, ten yards of linen were asked for to make two table cloths, with the statement that they were to be used in the sewing school to instruct the girls how to work such material and were subsequently to be used for exhibition and after that to ibe used on the officers' tables. The item was disallowed; again asked for in May and disallowed; likewise asked for and dis- allowed in October and November. 76 The following illustrations are taken from the records of Bedford: GAEBAGB CANS. — The November, '08, estimate contained an item for three garbage cans, with the following explanation: " Every one of tlie three cans in question leaks to an extent that does not admit of repair. The cans are kept in the cellar, and the leakage is both oflFensive and unsanitary. The cans will continue to do service for receiving ashes, but are entirely unfit for garbage." They were disallowed, without remark on the part of the Fiscal Supervisor. The garbage cans are purchased from the State Prison, and are of a very poor quality and last but a short while. As a result, they must be frequently renewed. Two of the cans asked for were to replace two used at the Administration Building, purchased Novem- ber, 1907. The third one was to be used at the Lowell Cottage to replace one purchased in June, 1907. Subsequently one garbage can was allowed by the Fiscal Super- visor, which replaced the one needed at Lowell Cottage. The two for the Administration Building, however, were not allowed, and the need was met by taking a can from another house and in some way patching up one of the cans in use. The steward stated that these cans, after they get in a leaky con- dition, are a great annoyance because of the fluid that runs out of them on the ground or floor wherever the cans happen to be placed. PITCHERS. — One dozen agate pitchers were asked for in May, '09, with the following explanation: " Needed in Eeception House to replace worn out ones.'' They were suspended with this remark on the part of the Fiscal Supervisor : " It seems extraordinary that a dozen should be needed at one time.'' This prompted the following letter, under date of April 27, from the Superintendent: "A large number of these pitchers were bought eight years ago in original equipment. They have all received about the same amount of use, and it is by no means extraordinary that a large number of them should give out at the same time." WINDOW GLASS. — The November, '08, estimate contained an item of window glass of the following sizes: 13| X 33J, 60 panes $2 40 16i X 27i, 52 panes 2 61 25| X 29f , 12 panes 4 44 7| X XSi, 200 panes 49 77 This item was allowed but reference was made to M. G. Stoneman & Company of Albany. The order was placed with this firm and on receipt of the order it was found that none of the glass was of the size specified, but the next larger size containing an even number of iaches. As a result all of the glass had to be recut. The total cost of the glass from the local dealer at Bedford, cut in the proper sizes, was estimated at $38.64. The cost of the glass from Stoneman was $31.96 f. o. b. Albany. The institution was unable to estimate the approximate cost of cutting this glass but the annoyance which resulted from the interruption of the carpenter's time and the inconvenience caused by not finding the glass ready for use when needed was great. In September, 1909, Syracuse estimated for a galvanized pan to be placed under its engine. The cost of the pan was to be $8.00 and the installation $10.00. In his revision letter of September 39, the Fiscal Supervisor in commenting upon the item wrote as follows : " The pan estimated for at $8.00 can be made at the institution from one sheet No. 18 — 36 in. by 96 in. galvanized sheet iron, weighing about 43 pounds at 3^20., at the cost of $1.51 plus cost of 28 rivets, perhaps 5c." Under date of September 30, the superintendent replied to the Fiscal Supervisor that they had no machinery for making such a pan, and that he considered both the price of the pan and the esti- mated price for installing it as reasonable. The estimate was finally granted and I was at the institution one of the days on which this pan was being installed. When I saw that the installation required the removal of the fly wheels of the engine and the disconnection of all pipes leading from the engine and much preparation in jacking the engine up to insert the pan beneath, I was very much surprised that the labor could be performed at the price estimated, or that the pan could be constructed at the price for which the contractor agreed to do it. Other illustrations bearing upon this topic will be found under several different headings. See also Appendix. Scrimping of inmates. — As far as I have been able to observe the inmates have not an insufficient or unsatisfactory variety of food. In most cases also, they have a sufficient amount of clothing, although the quality is not such as might be desired. This is due more largely, however, to the use of prison goods which are inferior. There are exceptions to this general statement, however, worthy of notice. 78 Bedford in January, 1909, estimated for a go-cart with the follow- ing explanation: " Needed at the hospital in caring for sick babies." It was disallowed, and again estimated for in February, with the following explanation: " These children cannot be left out alone in a basket. If an attendant is with them she must be able to move about. The go-cart asked for is to replace one given us, which is now worn out." The go-cart was re-estimated for in March and in May with the same explanation, but was disallowed each time. In November, 1909, Eome estimated for 35 lbs. of baking powder with the following explanation : "Averaged last year 30 lbs., averaged this year 30 lbs.; the additional 5 lbs. is required for use in making corn bread for inmates and employees." Under date of October 33rd, the Fiscal Supervisor reduced this to 30 lbs. In response to the Fiscal Supervisor's letter of revision, the super- intendent wrote under date of October 28th as follows : " The additional 5 lbs. of baking powder asked for is required in order to make a change in our dietary, giving the inmates and employees more corn bread, warm biscuits, etc. I am very sure that if the members of the department had to eat the same dietary year in and year out without little variations in allowances from time to time, such as can be provided for in one instance with this additional 5 lbs. of baking powder, they would appreciate why little changes of this kind are asked for from time to time." In the same estimate Eome asked for 300 dozen eggs with the fol- lowing explanation: " The additional allowance of eggs asked for is required for the use of cases of tuberculosis and cases of sickness, the number of cases of tuber- culosis and the number of cases of sickness varying from day to day. At the present time we have five cases of typhoid fever in addition to about the usual number of cases of tuberculosis and we require the additional eggs asked for, for them for the month of November and for the month of October as per previous letter written the department. At the present writing we are purchasing eggs contingent for cases of sickness until such time as the department can allow additional eggs, we being entirely out of eggs for the purpose at present, except those purchased contingent." These were subsequently allowed. In May, 1909, Bedford asked for two dozen dinner plates with the statement that they were needed to replace breakage. 79 They were disallowed with the following remark from the Fiscal Supervisor : "One dozen allowed in April." This prompted the following letter from the superintendent: "An allowance of two dozen plates for one month's breakage (population 350) does not seem to me excessive. As china is from twenty to thirty days in transit, and as each house has barely enough plates for daily use, it seems to me we should have suificient stock on hand to replace breakage as it occurs, and not keep a house short on dinner plates for a month or six weeks." In February, 1909, Bedford estimated for four pairs of shoes, with the following explanation: "Needed for two children over two years old, who are boarded out." In reducing this to two pairs of shoes the Fiscal Supervisor wrote : " This item says for two children. If there is a reason for furnishing four pairs for two children, it should be stated." As a further explanation the superintendent under date of January 32, wrote as follows to the Fiscal Supervisor: " The shoes are for children boarded out. When a child needs a pair of shoes, the woman having charge of it notifies us to that effect, and we should be able to supply her at once. It is not to be expected that such people adapt themselves to the State estimate system and notify us six weeks ahead of the time when shoes are likely to be needed. A healthy child two and a half years old will go through a pair of shoes in one month." The additional shoes were not subsequently allowed. Craig Colony in its July estimate asked for 1,100 yards of cloth sheeting which was reduced to 600 yards. Under date of June 35th, the superintendent wrote to the Fiscal Supervisor that they required an additional amount of sheets because of the large number of patients in the infirmary who " During a considerable part of the day must either lie on wet sheets or be without any sheets." After some correspondence the requisite amount of sheeting was secured. The superintendent also reported that he had had diflSculty in securing enough clothing for his patients, and in a letter to me of October 13, 1909, he states: " We average about twenty patients a day in bed, who are kept there owing to the fact that we have no clothing for them." 80 In October, 1909, Eome estimated for 1,000 suits of gray prison cloth at $3.00 per suit with the following explanation: " These gray suits are required to replace worn out suits worn by the inmates. The full amount is required in order to give us three suits for each inmate." Under date of September 27th, the Fiscal Supervisor replied as follows : " Reduced to 500 suits for $1,500. It is not understood by the department that there are to be furnished three suits of this kind for each inmate." Under date of October 28th, the superintendent wrote to the Fiscal Supervisor as follows: "As a result of the holding up of the allowance of suits of clothes suit- able for inmates for this season of the year, both in October and November, inmates have had to either stay in the house or be sent out of doors with only white duck suits on their backs, thus exposing them, and the neigh- boring public is not slow to recognize such inhumane treatment of inmates as sending them out of doors improperly clad, and in justice to ourselves we can but make the public familiar with why such conditions exist." Hudson in October, 1908 estimated for 240 yards of cloth to make thirty dresses for outgoing girls. This was cut down by the Fiscal Supervisor to 200 yards. In reply to the revision letter the superin- tendent wrote the Fiscal Supervisor as follows : " We ask for 240 yards to make 30 dresses requiring 8 yards each, the smallest possible amount for this number. If the amount is reduced to 200 yards, five girls will be obliged to go out with only one work dress. We ask that this amount be increased to 240 yards." One hundred yards of flannel was estimated for in October, '08, by Bedford and the item was suspended with the following remark from the Fiscal Supervisor: " It should be stated why double the usual quantity is needed now." The superintendent thereupon wrote the Fiscal Supervisor as follows : " The flannel asked for is for our babies, — fourteen now, with the proba- bility of several additions to the number during the winter." A further verbal explanation was made to the inspector, that at no time had there been a stated or regular amount of flannel esti- mated for. It always depended upon the number of babies in the institution, and for that reason there was no basis for the remark of the Fiscal Supervisor that the amount asked for was double the usual quantity. 81 Hudson placed in its estimate for many months during the past year an item for four visits per month of a dentist. This has been invariably cut down to two visits. Such persistent reduction in the estimate for this much needed work for the girls prompted the super- intendent to address a letter to the Fiscal Supervisor under date of October 5th, 1908, which read as follows: " We wish to urge upon the attention of the department the necessity of more dental work. While a reduction seems necessary during the latter part of the year, so that we might be able to keep within the appropriation, we now feel that this work should have full attention. There are one hundred and fifteen girls in the institution who have had no dental work done. The dentist can only attend to an average of eight at each visit, showing the number of visits necessary to complete the work for those already in the institution. When this work is delayed it takes longer time and more material and increases the expenses. " In the interests of economy it would seem better to hasten the work as much as possible. "There are new girls that are continually coming it at this period, mo3fc of whom have never had any dental work, and the sooner that is performed the more economically it can be done. We ask that the department allow four visits for this month, and for the following months, so that this work may be completed as soon as possible, and after it has once been gone over, so much will not be needed." Treatment of officers. — It might be assumed that the officers in our different classes of State Institutions were about on the same level, as far as the importance and dignity of their position is con- cerned. In each department there are institutions of less importance than others, and the salaries of superintendents are graded according to the responsibility of their ofSce. Generally speaking, however, the officers at the head of all State Institutions are of a high grade professional class, and should be treated with consideration. That there is a diilerence between the treatment of officers in the Charitable Institutions, Hospitals and Prisons is evident. As previously stated, the wardens of the Prisons and the superintendents of the Hospitals for the Criminal Insane are allowed a flat amount each month for household expenses. This may be a wise method of providing for such expenses, but it is not permitted by express provision of law. Linen and Table puknishings. — One of the chief grounds of complaint of the officers of the Charitable Institutions, is the quality of table linen and dishes granted them for their use. 83 In February, 1909, Bedford's estimate contained an item of two dozen towels, with the following explanation: " Needed to replace worn out ones ; one dozen needed in E. H. for the uae of officers' rooms." These were disallowed without remark on the part of the Fiscal Supervisor. As a result the superintendent wrote the Fiscal Super- visor as follows : " I must protest most earnestly against any change which makes it diffi- cult to distinguish at a glance between a towel used by officers and those bought for the use of inmates. It may be a matter of sentiment, but it is very certain that women of any refinement would feel strongly against having their towels mingled in the wash with those used by girls like our inmates, many of whom are unclean in their personal habits, and in a diseased physical condition." Subsequently these towels were allowed. In May, 1909, Hudson estimated for 60 yards of table cloth at .75 per yard, to be used on officers' table. The Fiscal Supervisor reduced this in amount to 25 yards, and in price to .445. Industry, having learned the price allowed by the Fiscal Supervisor, in June, 1909, estimated for 30 yards of table cloth for use of officers, at .445 a yard, and napkins at $1.75 per dozen. In contrast to this, in April-June, 1909, Eochester State Hospital estimated for 50 yards of table linen at .85 a yard, which was granted. Central Islip in the June- September period, 1909, estimated for 76 yards of damask linen at .80 a yard, and six dozen napkins at $3.40 a dozen; bath towels, three dozen at $6.00 per dozen, and hand towels at $6.00 per dozen. In October, 1908, Hudson estimated for dishes for officers' use slightly better than those used by the inmates. The item was sus- pended. In reply to the Fiscal Supervisor's letter suspending this item, under date of October 5, the superintendent wrote him in part as follows : " We are obliged to purchase these dishes and have ordered them because we are in such great need of dishes as only a small quantity has been pur- chased in a long time, but we wish to go on record as purchasing these dishes under protest, as the quality is so coarse, and the grade of goods 80 inferior, we do not feel justified in equipping this institution with them." 83 The Bedford estimate for November, 1908, contained an item of two dozen plates for the officers' table. The estimate contained this explanation: " The decoration to consist of two hair lines of green. I am strenuous in desiring a kind of china for the oiBcers' use that is easily distinguished from the inmates'. That dishes should be used promiscuously by officers and inmates seems to me to offend the natural fitness of things. All the dishes have to be washed in the same kitchen, and they can only be kept separate by some distinguishing mark." The item was disallowed by the Fiscal Supervisor, accompanied by the following remark: "The distinguishing mark between the inmates' and officers' dishes is that the former are double thick, while the latter are half thick. This mark is readily discernible at a distance." As a protest the superintendent wrote under date of October 24, to the Fiscal Supervisor, as follows: " I wish once more to register my sense of the gross impropriety of requiring the officers of an institution to eat off china that can not be distinguished from that used by the girls. The department's action in this matter may result in a considerable saving, because officers will feel driven to use their own china." All Charitable Institutions are required to purchase table ware made of Mexican Silver, a composition white metal, for the use of officers as well as inmates; and there is nothing to distinguish that used by the officers from that used by the inmates. In contrast to the treatment of officers on the part of the Fiscal Supervisor, the following items may be noted from the Hospitals and Prisons. Central Islip's January-March, 1909, estimate contained an item of one dinner set, to be selected, $33.00. In the October-December estimate, 1908, were dessert forks, triple plated, one dozen, $5.40; in the April-June estimate, 1909, were these items: Soup plates, 9 inches, 1 dozen $1 . 75 Tea plates, 1 dozen 1-25 Coffee cups, 1 dozen 116 Tea spoons, triple plated, 3 dozen, $2.50 7 . 50 Dessert spoons, triple plated, 3 dozen, $3.82 11.46 In the October-December, 1908, estimate were the following: Salad forks, triple plated, 1 dozen $4 . 50 Meat forks, triple plated, 1 dozen 6 . 30 Meat knives, triple plated, 1 dozen 8 . 80 Dessert knives, triple plated, 1 dozen 7 . 66 Fruit knives, triple plated, 1 dozen 6.30 84 The August, 1909, estimate for Dannemora contained the fol- lowing items: One dozen silver plated forks S4 .00 One dozen silver plated dessert spoons 5.00 One dozen spoons 4 .00 Table spoons 5.00 NaU clippers, one pair 1 . 50 Food foe officers. — The officers' table in the Charitable Insti- tutions must be supplied from the food regularly furnished the inmates. To be sure, they no doubt manage to secure an extra allotment of cream, sugar, butter and the choicer cuts of meat, but no so-called delicacies of any nature, are permitted. Should the officers desire olive oil, olives, pickles, condiments or vegetables other than the regular bill of fare, they must purchase them themselves. And it is the practice in some institutions for the officers to club together and to contribute a certain amount weekly for the purchase of such articles of diet. In contrast to this method of supplying the table of the officers of the Charitable Institutions, may be noted the foUowiug. Among the Dannemora supplies for November, 1908, were these items: 5 ducks $5,50 2 ducks 1 .50 8 geese 12.00 4 geese 5 . 00 1 barrel sherry wine, 53 gals 42.40 It will be borne in mind that the Superintendent of Dannemora is given $100.00 monthly with which to purchase supplies for his family table. The Hospitals being supplied with a larger variety of food than are the Charitable Institutions, enables the officers of the Hospitals to secure a very fair table. The following may illus- trate the character of food from which they may choose. Some of the items purchased by Hudson Eiver during 1909 were as follows: January — 367 lbs. chicken. April — 263 lbs. chicken. 3 gals, olive oil. May — 288 lbs. chicken. 2 boxes lemons. 25 bunches bananas. 20 bunches bananas. June — 297 lbs. chicken. 2 barrels cranberries. 12 boxes lemons. February — 267 lbs. chicken. 3 boxes oranges. March — 5 boxes lemons July — 5 gala, olive oiL 30 bunches bananas. 85 In March, under the head of medical supplies, estimate 10, sub- division miscellaneous, is included three boxes lemons. Central Islip under dates indicated, estimated for the following items: October-December, 1908: 2 cases clam juice. 79,500 oysters. 130 bunches bananas. 100 boxes oranges. 25 cases pineapples. 14 bbls. cranberries. 2,000 qts. berries. 52,000 clams, opened. 100 qts. red raspberries. 70 bunches bananas. 2,000 qts. strawberries. 3.440 quarts berries. 3,440 qts. canned berries. July-September, 1909: 48 bu. peaches. 400 lbs. dressed chicken. 26 cases pineapples. 250 lbs. dressed duck. 150 lbs. guinea fowl. April- June, 1909: 21,000 clams. 400 lbs. dressed chicken. 5 gale, pure Lucca oil. 250 lbs. dressed duck. 130 bunches bananas. 150 guinea fowl. 3,500 qts. berries in season. 26,760 oysters. 100 baskets peaches. 53,500 clams. 50 cases pineapples. 5 gals, pure Lucca oil. That the purchasing steward for the Hospitals about New York, F. A. "Wheeler, is solicitous that the tables be well supplied, is evi- denced by the following letter written by him to the superintendents : September 10, 1908. To the Superintendents: The market is in such a condition that you can if you wish, use sweet potatoes at $2.00 a barrel, or better, watermelons at .27 each, peaches at $1.75 a bushel, bartlett pears, $2.50 and $2.00 a crate, muskmelons about .05 each by the crate, wine grapes, baskets at about .O4V2 to .05 a pound, in crates at .03% to .04 a pound. Should you desire any of these fruits, kindly forward requisition as soon as possible. Oranges are very high, costing for the 216 size, $4.50. Yours very truly, (Signed) F. A. Wheelbb, Purchasing Steward. Binghamton, among other things, ordered duriag January-March, 1909, 14 boxes oranges, 9 boxes lemons, 497 bunches of bananas. Rochester duriag January-March period, 1909, bought monthly, 75 lbs. poultry, 2 boxes oranges, 3 bunches bananas, 1 gal. olive oil, and weekly, 10 gals, oysters. Some of the above supplies no doubt were purchased for sick patients. 86 On seeing few of these things in the estimates of Charitable Institutions, I found, on asking the superintendent the reason there- for, that they had learned by experience that such things would not be granted, consequently they had ceased to ask for them. Either the superintendents of the Hospitals and Prisons are getting too much, or those of the Charitable Institutions too little. At any rate, they are not being treated equally. Traveling expenses oe ofeicees. — ^Another way in which the small view taken in the Fiscal Supervisor's office is manifested, ia in the small amount allowed the officers of the institutions for travel- ing expenses. An instance of rather inconsiderate treatment of officers may be taken from the records of Eome. The treasurer's statement from Eome for January, 1909, contained an item for $16.50 for carriage hire, which had been expended by the managers. Under date of February 15, the Fiscal Supervisor wrote to the treasurer as follows: " Under estimate 3, it is noted that there was expended for carriage hire, to convey managers to and from the station, $16.50. In view of the facilities possessed by the institution for performing this service, the necessity for this expenditure is not clearly understood." Under date of February 17, the treasurer wrote to the Fiscal Super- visor, in part, as follows : " Regarding carriage hire for conveying managers, would say if the de- partment will take the trouble to analyze these expenditures they will see, in the first place, that some of this carriage hire was for the previous month, bills not having been rendered, and some of the expenditure is for carriage hire at the other end of the route, from the managers' home to the station. Frequently some of our country managers arrange to drive to the institution rather than to take trolleys or local trains. " Our records show that there was even more than $16.50 paid for car- riage hire during the month of December. This was because of the fact that the managers had two or three conferences at the institution during this month other than the regular meeting day. " You can readily see that when the managers arrive in Rome on trains arriving at different times, they do not care to wait around Rome until our teams can go back and forth to carry them. Therefore, they arrange to get a carriage at once and come on to the institution in order to spend as much time as possible at the institution during the day, rather than hang around Rome waiting for a carriage from the institution to come to meet them. Our team always makes one trip in the afternoon of the managers' day, accommodating whatever managers they can on these trips. " The department will recall that we have nine managers coming from diflferent sections of the State, and, naturally, they arrive in Rome at different 87 hours, and I am sure the managers use ordinarily good judgment in trying to get together as much as possible and come to the institution with as few teams as possible. However, I am sure that the managers feel that the extra time they can give to the institution, if they come to the institution at once as soon as they arrive in Rome, is worth more to the institution than the $1.00 to $3.00 which it costs them with a team to malce the trip, and they surely have the right to assume this so long as the State looks to them to come to the institution and spend their time here without pay for their services, and especially as the State to-day demands such unreason- able things of the managers as to loolc over an assortment of old articles and condemn them, this in itself taking a considerable portion of the day for at least some of the managers." Under date of March 4, the Fiscal Supervisor wrote in reply to the treasurer as follows: " Supplemental estimates having been approved covering discrepancies in your December accounting, the same now conforms to the corresponding estimate. " Regarding carriage hire you say, — " Some of this carriage hire was for the preceding month, bills not having been rendered. " Three dollars of it was for November. The bills that were rendered in November were for a much larger amount than those in December, but the department raised no question, as that was the fire month. "And some of the expenditure is for carriage hire at the other end of the route, from the manager's home to the station. " The amount referred to in the department's letter of February 15, was made up entirely of items for conveying managers to and from the institution. " The explanation in regard to these items is duly noted." The amount was allowed on the above date. In contrast with this policy manifested toward the officers of the institutions on the part of the Fiscal Supervisor may be compared the custom of the Lunacy Commission in permitting the officers annually to attend the American Medico-Psychological Association. A copy of the instructions sent out by the Commission dealing with this matter is as follows : April 25, 1910. To State Hospital Superintendents: The Commission approves of the absence of State Hospital Superintendents from their respective hospitals during their attendance upon the meeting of the American Medico-Psychological Association at Washington from May 3 to May 6, 1910, and requests them to present estimates covering the expenses they incur in traveling to and from Washington and also their hotel expenses during the four days mentioned. 88 Permission is also given to assistants upon the various staffs to be absent for the same purpose during the same time in the cases of assistant physicians who read papers at the meeting, and it is requested that the Superintendents estimate for the expenses incurred by such assistant physicians covering railway and hotel disbursements similar to those made by the Superintendent. This action of the Commission is taken with a view to detailing officers for certain duty, namely, to promote the welfare and advance the aims of our department in every way possible during the meeting of the Association; and to this end it is expected that each one of our officers who is present at the meeting will be in attendance during part of every session of this meeting of the Association. Very respectfully yours, (Signed) Albert Wabben Feeeis. Tardy action by the Fiscal Supervisor's department. — Some complaints have been made by superintendents that not only are they delayed by having a decision made as to the purchase of articles until an inspector can visit the institution, but that the office at Albany is also responsible for delays which are easily avoidable. Illustrations of this complaint are as follows : In October, 1908, Eome estimated for some letter -files. The price was reduced and reference made to the Albany News Company. On ordering them the institution found that the kind bid on by the Albany News Company was not the kind estimated for, and conse- quently they were not uniform with the kind they had in use. Under date of January 5th, the superintendent wrote the Fiscal Supervisor stating this fact and also stating that these files when sent contained no metal arches. He also stated that he had twice subse- quently written the Albany News Company setting forth this fact and had received no reply. The Fiscal Supervisor wrote the superintendent on January 8th, saying that he had been informed that the Albany News Company forwarded the arches on January 5th. Under date of January 9th, the superintendent wrote the Fiscal Supervisor that the arches received did not fit the files previously sent by the Albany News Co., consequently they could not be used and he asked again that they be permitted to buy these files from a local dealer at the price estimated, and stated as his reason: " We have invoices piling up continuously since last Mav. which have not been filed, waiting for files • • • _» 89 On January 14th the Fiscal Supervisor wrote the superintendent that proper arches had been forwarded by the Albany News Company. On January 31st the superintendent wrote the Fiscal Supervisor that the arches referred to by him in his letter of January 14th had not been received. Under date of January 27, the Fiscal Supervisor wrote the super- intendent that the Albany News Company stated they have had trouble in getting the arches, and would now immediately ship the proper size. Under date of February 5, the superintendent wrote the Fiscal Supervisor in part, as follows: " We have not heard from these files, or received them as yet. In the meantime our correspondence, invoices, etc., continue to pile up loosely about the office vrith no place for filing them. " This condition has existed now for the past three or four months. We have been over two months trying to get proper files from the Albany News Company." This matter was not adjusted and satisfactory files received until December 3, 1909, — over a year after they were first ordered. In August, 1908, the Board of Managers of Hudson considered the question of the need of another parole agent for the institution. After going over the matter carefully and in considerable detaU, they decided that such an officer was needed, and concluded to ask the permission of the Fiscal Supervisor for her employment. In Sep- tember the superintendent visited the Fiscal Supervisor's oflBce and informed him of the action of the managers. The Supervisor stated that before he could take action he would have to know the action of the Salary Classification Commission to ascertain to what extent the salaries of the institution had been increased. On Octo- ber 20, the superintendent wrote the Fiscal Supervisor advising him of the action of the Board of Managers, and asking for his consent for the employment of such agent. Under date of October 22, the Fiscal Supervisor replied to this letter stating that he desired to look more fully into the matter. Nothing appears to have been done by the department between this time and February, when again the superintendent wrote a lengthy letter of five type-written pages, to the Fiscal Supervisor setting forth in detail the work of the present parole agent and marshal, and indicating the work that was left undone because of their lack of time. To this letter the Fiscal 90 Supervisor replied, under date of February 26, stating that it had been the plan of the department to have its accountant visit the iastitution, and that for various reasons he had been delayed. Soon after this the agent visited the institution, and on date of March 5, the Fiscal Supervisor wrote to the superintendent that the parole agent would he allowed by the department. To this letter the superintendent replied that such agent could not be employed immediately inasmuch as she would have to be taken from the Civil Service list, and the Civil Service Department had not on its rolls persons suitable for such office, so a delay would be inevitable. It will thus be seen that a need of the institution which was determined by its Board of Managers in August, did not receive attention on the part of the Fiscal Supervisor untU the first of March. In February, 1909, the Board of Managers of Hudson decided that an additional stenographer was needed in the administrative office to care for the new inventory system and various other matters that were delayed. In accordance with their action, the superintendent on February 15, wrote to the Fiscal Supervisor iuforming hinn of the action of the Board of Managers, and asking that such stenog- rapher be permitted. Soon after this an agent of the department came to the institution to look into the necessity for such additional help, and on March 5 the Fiscal Supervisor wrote the superintendent to the effect that he believed the institution now had as great a proportion of administrative officers as any of the other institutions under his charge, stating also, that the institution had two unfilled positions. The superintendent replied to the Fiscal Supervisor, under date of March 6, advising him that he was in error in reference to the two unfilled positions, and informing him somewhat more in detail, as to the necessity of this additional stenographer. On date of March 12, the Fiscal Supervisor informed the superintendent by letter, that the department had concluded to allow the institution an additional stenographer, for temporary work, until June first. Thereupon such stenographer was employed. On May 29 the super- intendent again requested of the Fiscal Supervisor that such tempo- rary position be made permanent. In a letter dated June 1, the Fiscal Supervisor informed the superintendent that the department would consent to such permanent employment. This matter hung in abey- ance from February 15 to June 1. 91 Stock on hand at Institutions. — The combined result of esti- mating monthly, and the policy adopted by the Fiscal Supervisor's office, has practically abolished the store for household articles at the institutions. An amount of food sufficient to last one month is purchased at one time and distributed by the store-keeper as needed. Household supplies, however, can be purchased only as needed, with the result that as soon as the month's supply reaches the institution it is immediately distributed to the various depart- ments, or cottages and put into use. Consequently there is no excess supply to draw upon in case of emergency. The necessity for estimating for supplies fully three weeks before they are to be purchased aggravates the situation, since it is quite impossible at times to anticipate the breaking or wearing out of utensils that is liable to occur before the condemned articles can be replaced. Handling of the estimates. — Earlier in the report, attention was called to the fact that the estimate system ran with considerably less friction in the Hospitals than in the Charitable Institutions. One reason for this smoother operation in the Hospitals is undoubtedly due to the fact that the estimates are not cut down to the lowest point, but some leeway is given for the exercise of personal judgment on the part of the superintendents, and also for the purchase of supplies in their local markets. Siace there is more friction in the Fiscal Supervisor's Department, it is well to examine and compare the handling of the estimates of the two departments to ascertain the relative number of suspensions, disallowances, reductions in prices, and reductions in amount. The word " suspension " is used in the Fiscal Supervisor's Depart- ment to indicate that judgment has been deferred for some reason; either awaiting further information by correspondence with the superintendent, or a visit to the institution of an inspector, or of the Fiscal Supervisor. In the Lunacy Commission the word " deferred " is used, meaning the same thing. The meaning of the word " disallowed " is clear without explanation, as also the term " reduced in price." " Eeduced in amount " usually indicates that in the judgment of the Albany authorities, the institution should not at the time of the estimate under consideration, purchase the amount of the specific supplies asked for. In tabular form below is given the number of disallowances, sus- pensions, reductions in prices, and reductions in amounts in the 92 institutions indicated, covering a period from January to March, 1909. Action on the estimates by the Albany Supervising Departments for the months of January, February and March, 1909: Bisal- Sus- Reduced Reduced Hospitals lowed pended Price Amount Central Islip 3 .. 49 140 Hudson River 5 3 92 137 Middletown 9 .. 86 106 Rochester 2 3 69 48 Utica 2 1 40 71 Charitable Institutions Albion 4 4 73 16 Bedford •. 16 10 74 14 Hudson 24 40 48 15 Industry 10 8 63 4 Newark 8 24 180 23 Rome 18 52 132 52 Syracuse 20 22 183 6 This table indicates that the number of disallowances in the Hospitals was not more than one-quarter as many as in the Charitable Institutions, and the suspensions on the average, probably not more than one-tenth as many in Hospitals as in the other department. It will be noted also, that the reductions in price were materially less, but the reductions in amount were larger in the Hospitals than in the Charitable Institutions. The significance of these figures is really greater than a casual review of them would indicate. The superintendents of the Charitable Institutions have become so accustomed to being denied things that they are very careful what they put into their estimates, feeling very sure that if they over-step, in the least, their actual present needs, according to the judgment of the Fiscal Supervisor, their requests will be denied; on the other hand, the superintendents of the Hospitals have not had reason to become so minutely particular, and there is con- sequently much more opportunity to scale down their estimates than those of the superintendents of the Charitable Institutions, 93 Below is given a detailed analysis of the action on the estimates of Bedford and Hudson for the fiscal year 1908-1909: Total Month. Items. October, 1908 187 November 208 December 202 January, 1909 .... 180 February 216 March 203 April 207 May 214 June 178 July 209 August 131 2135 Bedford Dis- Re- Sub- Eb- Reduced Re- Reduced Re- allowFd. leased, pended. leased. Price, leased. Amount, leased. 2 11 1 3 5 4 5 9 Total percentages. 48 .022 53 16 19 10 36 23 37 27 30 9 13 39 .27 .018 24 .615 260 .12 3 19 1 3 4 7 5 3 9 5 15 59 .06 .028 8 .14 Hudson Total Dia- Re- Siis- Re- Reduced Re- Reduced Re- Month. Items. allowed, leased, pended. leased. Price, leased. Amount, leased. October, 1908 215 5 2 6 6 84 4 11 5 November 231 8 . . 1 . . 5 . . 7 December 213 2 1 7 5 9 1 2 1 January, 1909 205 2 . . 8 3 9 . . 2 February 199 9 1 9 3 10 . . 4 March 243 8 4 12 11 28 . . 5 4 April 186 5 .. 14 12 24 .. 2 2 May 191 14 6 3 3 27 1 11 3 June 190 1 1 2 1 3 July 336 1 1 5 2 12 . . 4 August 155 2 2 5 3 5 . . 4 Total percentages. 2364 57 18 72 47 216 6 52 15 .024 .316 .034 .653 .09 .03 .022 .29 A comparison of these two tables will show that the percentage of disallowances in the two institutions was about the same, namely, 2 per cent in each case; but the number of suspensions in Hudson was nearly double that of Bedford owing to the fact, quite possibly, that Hudson is much nearer to Albany, and it is convenient for an inspector to run down to the institution to pass Judgment upon any small articles which they may wish to discard. One of the 94 interesting features of these tables is the percentage of releases. In Hudson 31 per cent of the disallowances were subsequently granted, and in Bedford 37 per cent. In Hudson 65 per cent of the suspensions were subsequently removed, and' in Bedford 61 per cent. In Hudson 3 per cent of reductions in price were subse- quently restored, and in Bedford 6 per cent, while in reductions in amount at Hudson 29 per cent were restored, and at Bedford 14 per cent. These percentages clearly show that there must have been a large amount of correspondence between the institutions and the Fiscal Supervisor before reversal of judgment was rendered. As a matter of fact, the letters vnritten by Hudson and the department during this year directly connected with the estimates were 374, or an average of nearly one letter for every working day. As previously stated, ia the Hospitals practically no correspond- ence takes place in connection with estimates. When an item is disallowed it remains disallowed, and there is no occasion for the superintendent to make remonstrances with Albany. If he still desires the article that has been disallowed, his recourse is to put it in a re-estimate, which is occasionally done; but the Lunacy Com- mission always acts upon the present existent estimate and does not hold open any item in a previous estimate which has been passed upon. This not only tends to greatly reduce the amount of corre- spondence that might take place over an estimate, but it also serves to produce a much better record of the action of the Commission. In the Charities Department in order to ascertain whether the Fiscal Supervisor has rescinded or reversed any former action, possibly a disallowance or suspension, it is necessary to go through the cor- respondence of the month, since the record is kept only in this letter form. The effect of supervision on coal consumption. — The question arises as to the extent the Fiscal Supervisor's office has been able to affect the coal expense of the institutions. The department claimed in the annual reports of 1905 and 1906, that a large saving had been made, and instanced a number of the institutions where the gross number of tons had been cut down, and the net cost low- ered, due to changes made by the department. The Fiscal Supervisor stated in his annual report for 1905, that owing to the very severe winter, the institutions probably would have consumed 25 per cent more coal than during the previous 95 eeason had not repairs been made to their heating plants. They actually used 48,523 tons. He assumed that they might have been expected to have used about 10,000 additional, or 59,335 tons. His explanation of this assumed decrease was as follows: " This reduced consumption of coal resulted from a stoppage of waste and heat and power through leaky valves and unprotected steam mains, and through the adoption of scientific methods of firing. As stated in my report of a year ago, a special effort was made to put the heating plants in a condition to guarantee the highest possible efficiency. The saving in expenditure for fuel and lights is evidence that the work done on these plants was highly beneficial." (Page 36.) It is somewhat questionable whether the Fiscal Supervisor was justified in assuming that the institutions should have been expected to have used in the winter of 1903-1904, 35 per cent more coal than they used in the winter of 1903-1903. The consumption of coal during the two years in question, by the Hospitals should be some criterion as to the relative expenditure that might have been expected on the part of the Charitable Institutions. In the winter of 1903-1903 the Hospitals paid for fuel and light, $561,454, and in the winter of 1903-1904 they paid $481,784. This shows a decrease in the fuel and light cost of $79,670, or 14 per cent. This large decrease was due to the fact that the coal strike in 1903 made the price of coal abnormally high that year. The Fiscal Supervisor states that the Charitable Institutions expended for fuel and light in 1903-1903, $193,379, and in 1903-1904, $187,372; which is a decrease of $4,907, or but 2.5 per cent, as compared with a reduction of 14 per cent by the Hospitals. Conditions remaining the same, the cost of fuel and light for the Charitable Institutions should have shown about the same percent- age of decrease for 1903-1904 as compared with 1902-1903, as it did in the Hospitals. Since the decrease was but 2.5 per cent, it hardly furnishes much ground for the assumption on the part of the Fiscal Supervisor that his repairs and alterations had resulted in marked saving. The buildings in the different institutions are so differently located as to exposure and distances one from another; the type of plants are so varied, as above noted; the size of rooms, and the ceilings so vary, that it is of little value to compare the heating demands of two classes of institutions or even to compare one insti- tution vnth another. The only fair comparison is to note the coal . '- 96 consumption in tlie institutions that have made small changes in building capacity within the last two to four years, and to ascertain whether changes have been made in the quality of coal used, or in the heating plants within that period. The most noteworthy effort of the Fiscal Supervisor to reduce the expense of heating is the change of the grade of coal from a coarser to a finer grade, and usually also a change at the same time to the blower system to enable them to use such finer grade. Four places may be noted at which the Fiscal Supervisor claimed a saving to have been made due to such changes, — ^Bath installed a blower system in 1906-1906, and changed from pea to buckwheat No. 3; Eandall's Island made the same change in 1907-1908; Syracuse changed from grate coal to pea coal in JSTovember, 1906, but the blower system was not installed; Bedford changed from bituminous to buckwheat coal in August, 1908, at the same time installing a blower system. The results at these four institutions, as nearly as can be ascertained, are as follows: The fuel and light bill at Bath for the years 1902-1905, was $109,- 536, and for the years 1906-1909, was $85,463, which represents a saving of about $24,000 or an average of $6,000 per year. No additional buildings were erected during these years. The cost of coal under the blower system has steadily increased from $17,946 in 1906, its first year of operation, to $26,147 for the year just past. The price per ton has remained the same during these years. Considering the additional maintenance cost for grate bars, flues, and removal of ashes, this last year probably cost more than either of the years 1902 or 1903 before the blower system was installed. The average cost per year of fuel at Eandall's Island for two years previous to the introduction of the blower system, was $13,693. During the last two years the average cost has been $9,930. This represents a saving of about 27 per cent per year as compared with the former consumption. In considering these reductions secured by the use of low grade fuel, it must be noted that Bath is near the hard coal mines, and the coal is delivered into her bunkers at about $2.10 per ton. Eandall's Island is at the tide water where coal can be placed in her bunkers at a cost of $1.75 per ton. In contrast with these two institutions so located as to secure low freight and no 97 cartage, are Syracuse and Bedford, located respectively one and two miles from the railroad. Under date of March 20, 1909, the Superintendent of Syracuse wrote the Fiscal Supervisor as follows: " I write the following to show your department that before next year's contract is made for furnishing coal to this institution the matter of the use of grate coal in preference to pea coal should be given serious considera- tion. In 1904 we purchased 1,750 gross tons grate coal; in 1905, 1,706 tons — average 1,723 tons. In 1907 we purchased 2,250 gross tons pea coal; in 1908, 2,280 — average 2,265. We are paying at the present time $4.93 per gross ton for pea coal; 2,265 tons at that rate will cost $11,168.46. The present quotation on grate coal per gross ton, delivered at this insti- tution, is $5.95 and 1,723 tons at that price would cost $10,251.85, a difference of $915.00 in favor of the use of grate coal, besides much less work for firemen, and the saving of our roadway — the ha\iling of 250 loads over it in the course of a year. Grate coal is not so hard on grate bars, etc. The years mentioned in our calculations here are calendar years." It will be noted that the superintendent holds that if he was allowed to use grate coal instead of pea that he would save on the purchase price fully $915, and in addition he would save the wear on the roadway caused by the hauling of the extra tonnage of pea coal. In analyzing the Syracuse situation somewhat in detail we find that the only change in building capacity within the last four years has been the addition of two small rooms, the aggregate cubic capacity of which is 7,300 feet. The total cubic foot capacity of the institu- tion before and after this change was as follows : Hospital 178,730 Laundry 107,480 Barn 13,800 Superintendent's residence 37, 100 Girls' building 279 ,870 Main building 664,000 Music Hall building 181,060 South wing 175,240 Gymnasium 102 , 280 North wing 80,115 Boys' building 362,000 Before change in grade of coal 2,181, 675 cubic feet Added — meat house and tool shop 7 , 300 After change in grade of coal 2, 188,975 cubic feet 98 The amount added was .00335 per cent of the original capacity. The average consumption per year of grate coal for the years 1304 and 1905 was 1,723 tons. Had the same quality been continued for the next two years, an additional amount equal to .00335 per cent for the heating of the added rooms would have been used, making a probable total aggregate of 1,729 tons. In the meantime, however, under the advice of the Fiscal Supervisor, they changed to the use of pea coal and used during the years 1907 and 1908 an average of 3,265 tons. This amount is larger by .00335 per cent than it would have been had not the additional rooms been added, so in making comparison the average amount used in 1907 and 1908 should be compared with the amount used in 1904 and 1905, increased by the percentage indicated. Had the institution contracted for coal last spring for the present year, it could have secured grate coal delivered at the institution at $5.95 per ton and pea coal for $4.93. It may be assumed that they would have required 1,729 tons of grate coal, costing about $10,287.55, but under the advice of the Fiscal Supervisor they contracted for pea coal, which resulted in using 2,265 tons at a gross cost of $11,166.45. It would appear, therefore, without taking weather conditions into consideration, that the institution probably would have saved at the current prices of both pea and grate coal, $878.90 on their contract for coal this present year had they purchased grate instead of pea coal. In August, 1908, Bedford installed the blower system and began the use of buckwheat No. 3 mixed with a small percentage of slack. Previous to this time it had used bituminous coal, " run of the mine." This change was made, according to the superintendent, at the " insistence of the Fiscal Supervisor's Department that great economy would be eflfected by the installation of the blower system, and the use of buck- wheat and slack in place of bituminous previously used." During the two years from August 1, 1906, to August 30, 1908, twenty-five months, bituminous coal was used by the institution, costing $13,334.47. During 1907 there was in process of erection a school building which required heating during part of the win- ter. A large amount of heat was wasted, and a rebate of $750 was made by the contractor, for the heat used and so wasted. The total cost of consumption for ordinary purposes, therefore, for the two years, was $12,584.47, or an average per month for t'syenty-five months, of $503.38. From September 1, 1908, to October 1, 1909, 99 thirteen months, there was consumed $7,196.44 worth of buckwheat No. 3 and slack coal under the hlower system. During this year, however, the new building was in use and heated, and added to the previous existing buUdiag capacity of the institution 14 per cent. We may roughly assume, therefore, that the cost for 1908-09 was 14 per cent higher than it would have been had not the new building been heated. In other words, had the blower system been installed and operated with the same building capacity as existed the two previous years, it probably would have cost to operate during the year 1908-09, about $6,313.00, or an average for the thirteen months, of $485.00 per month. This would be a reduction of $18.00 per month over the average cost of the preceding two years. There were used, however, of the buckwheat-slack coal, 608 tons more than were used yearly of bituminous coal. As a result, an additional fire- man was required to handle it, costing $52.00 per month. This must be considered in connection with the cost of the blower system, so when this additional charge is added, it makes the cost under the blower system $34.00 per month more than the cost of bituminous coal, or a yearly cost of $408.00. The above figures, in tabulated form, are as follows: Cost of bituminous coal: August 1, 1906, to August 30, 1908 (cost of cartage included). . $13,334.47 Deduct (repaid by contractor for heat wasted in connection with new building, 1907) 750.00 $12,584.47 Average monthly cost for twenty-five months 503 . 38 Cost of slack and No 3 buckwheat: September 1, 1908, to September 30, 1909 (cost of cartage included) 7,196.44 Deduct (additional cost of heating new building on basis of 14 per cent, added capacity) 883 . 00 $6,313.44 Average monthly cost for thirteen months of buckwheat coal. . 485.00 Add (wages of additional fireman) 52 . 00 $537.00 Subtract (monthly cost of bituminous coal) 503 . 38 Additional monthly cost of blower system and buckwheat coal $33.62 100 This difEerence is not large and might be easily accounted for by a difference in temperature. But there must be taken into consid- eration the fact that the heating under the blower system was not nearly so satisfactory as in previous years. The buildings were much colder. It cannot be claimed that these figures are sufficiently accurate to prove that buckwheat coal in connection with the blower system costs more than bituminous coal, inasmuch as there are too many variables that enter which cannot be taken into account, such as the weather, the length of the new conduits, the relation of the exposure of the new buildings to the old, etc. The figures, however, tend to show that the new system not only has not been a saving, but in all probability has been a loss to the institution. In general, engineers are agreed that a low grade of coal used with the blower system, is the most economical form of hard coal for plants so located as to get their coal with small freight and cart- age charges. It costs as much per ton to cart a low as a high grade coal. Bedford apparently lost $408.00 per year by the change in the grade of fuel, while Randall's Island saved. The difEerence is probably due largely to location. Although the Fiscal Supervisor apparently secured some saving at a few institutions by a change in the grade of fuel and the intro- duction of the blower system, yet he did not succeed in reducing the fuel cost in as marked a degree as did the Hospitals. The cost of fuel and light in the two classes of institutions, based on the rated capacity of the institutions, was as follows : Cost per Unit of Capaoitt Year Charitable Hospitals Institutions 1902-1903 $25.95 $21.63 1903-1904 22.18 20.68 1904-1905 19.19 20.78 1905-1906 19.48 18.40 Percentage of reduction between 1902-1903 and 1905-1906 21. 17.4 Although some attempts have been made by the Fiscal Super- visor's Department to reduce the cost of heating by using a cheaper grade of coal with the blower system, these attempts have been made in but few institutions, and some of the largest possible econo- 101 mies such as verifying weights and testing qualities, have been overlooked. I wrote to thirteen Charitable Institutions asking certain questions with relation to their coal consumption, and received reply from eleven. Of these eleven, nine reported they did not weigh their coal, but took the weight on the bills of lading; one reported that it weighed a portion, — another all of its coal. It has been repeatedly found by manufacturers, and by careful institutions, that it was not safe to trust to car weights in the purchase of coal, and it seems rather surprising that nearly all of our Charitable Institutions accept their coal upon this basis. Again, I asked the institutions whether to their knowledge there had been any analysis of the quality of the coal received. All reported that none had been made by the Fiscal Supervisor's office as far as they knew. One reported that it had had some analyses made. Inasmuch as the quality of the coal varies greatly, according to the mines from which it is taken, and to the amount of slate and other debris mixed with it, it becomes highly important that an analysis be made of coal if the purchaser is desirous of ascertaining whether he is getting what he has bargained for. Many large manufacturers have adopted the plan of buying their coal according to heat units rather than by the ton. A ton of a given kind of coal has about a certain number of heat units. The manufacturer, in placing his contract, specifies that a certain number of heat units shall be deliv- ered. If the coal subsequently delivered be of the highest grade, the number of tons required wUl be less than though the grade were lower. This method of contracting insures the manufacturer that he will secure what he has paid for, and is a method that should receive careful consideration by the Supervising Departments of our State Institutions. 102 B. JOINT CONTRACT SYSTEM. Advantages and disadvantages inherent in the system under the existing law. Advantages. Some goods can be purchased in large quantities presumably more cheaply than in small quantities. — It is generally assumed that the larger the quantity of goods purchased under one contract, the cheaper the price. This is the basis on which merchants operate, and which induces them to enlarge their business by the establishment of branches, on the supposition that a large business can be run proportionately cheaper than a small one. A large part of such reduction in cost, of course, is the increase of business without a corresponding increase of the over- head charges. A part also is attributed to more economical buying in large quantities. Generally speaking, such a method is advan- tageous. It will be noted that large firms and corporations buying in quantity, receive their goods at some central depot, or depots, where there is provision for very thorough inspection. Where such provision for receipt and inspection cannot be made, the advantages of buying in large quantities are greatly reduced. The joint contract system as operated in the State Institutions, must not be assumed to be advantageous because in the commercial world the system proves successful. There must be taken into consideration the fact that these institutions are situated in all parts of the State, and that the goods supplied under any contract are shipped directly to the institutions and can not be inspected by some one expert, to see if they meet the specifications of the contract. Supplies can be standardized. — One advantage of the Joint con- tract system of considerable importance is the opportunity it offers for standardizing supplies. The experience of years in the institu- tions readily determines what is the best quality of supplies for spe- cific purposes. This experience is available not only from the various institutions of this State, but also from other States, and some central departments, like those at Albany, are best in a position to draw con- 103 elusions from it. They should be able to readily determiae the kind of diet best adapted to different classes of inmates, also the kinds of fabric most economical to buy for the various purposes for which it is used. They are in a better position to determine what kind of engineering supplies have proven most eflBcient and economical. In short, they are ia a position to gather information from a wide field, and to distribute this to the institutions. The system of joint contracts offers an opportunity for making better contracts and better inspection of supplies received. — The ]oint contract system under which large quantities of goods are pur- chased, should enable those operating it, to determine the best form of specifications for supplies, the best method of making contracts, the best season of the year for entering iato such contracts, and the best method of testing the supplies received. All of these things could be done more readily through the joint contract system than by the institutions buying separately. The testing of supplies received when left to the individual institution is unavoidably left to the judgment of the steward or store-keeper, who are expert judges of but few things. They would not be able to determine when the contracts they had made were properly filled. The joint contract system, on the other hand, lends itself to the possibility of establish- ing a much more efficient method of inspection. Under it, the judg- ment of the stewards or the store-keepers at the different institutions need not be depended upon, but samples of all goods received could be examined by certain chosen experts. Whether the system is now so administered as to place in the hands of experts the passing upon supplies, will be treated subsequently in the report. Joint contract system is in a better position to enforce fulfill- ment of contracts. — If a contractor fail to live up to his contract, it would be more difficult for the institutions to attempt to enforce such contract by a process of law, than for the authorities adminis- tering the joint contract system. In the first place, the contract of one institution would not be large, and would not warrant a large expenditure in litigation; whereas, a joint contract including several institutions, would be large enough to warrant a considerable ex- penditure, if such were found necessary. The above outlined advantages are theoretical, all based on the assumption that the joint contract system were operated in a certain 104 manner. Whether these theoretical advantages have been secured in actual operation, will be examined later in the report. Disadvantages. The joint contract system results in the use of food supplies which have been held in cold storage. — Where a contract is made covering a period of six months or longer, for such articles as eggs, butter, etc., the contractor in order to protect himself, purchases the full quantity of goods specified in his contract, at the time of making the contract, and then places these in cold storage. In this way he i? enabled to determine very closely what his profits will be without being subject to the uncertainties of a fluctuating market. This necessitates the use, on the part of the institutions, of cold storage material during a large part of the year. Such an objection is not serious, since generally speaking, such supplies as butter and eggs do not greatly deteriorate when kept in an efficient cold storage plant. They are not, however, as good as fresh products, and the institutions are practically confined to their use. This could be obviated to a certain extent, of course, by the contract system providing that their contracts cover only certain portions of the year, — for instance, from September first to May first, and thus allow the institutions to pur- chase fresh products the remaining months. Such provision, how- ever, is not made. The methods of constitutitig the purchasing committees do not produce the best results. — The Purchasing Committee in the Lunacy Commission being composed of stewards, is supposed to have in its membership those best competent to pass upon the quality of goods needed by the institutions. To a certain extent this is true; the stewards are possibly more competent to judge the quality of certain classes of supplies, such as food stuffs, than are the super- intendents. When it comes to clothing, or the determination of the variety of foods to be used, the judgment of the superintendent is probably better than that of the steward. There is no reason, of course, under the present system, why the stewards of the Purchasing Committee should not consult the superintendents and purchase according to the consensus of their opinions, just as the superintend- ents constituting the Purchasing Committee of the Charitable Insti- tutions consult their stewards. The superintendents of the Hospitals are not however consulted as often as might seem desirable. 105 Under the Fiscal Supervisor's Department the Purchasing Com- mittee composed of superintendents, purchases with a better discre- tion than the committee composed of stewards under the Lunacy Commission. They are also less likely to have an improper interest in any contract, and are most likely to look solely to the welfare of the institutions. The committee, however, being composed of superintend- ents holds but few meetings during the year. As a result, contracts are made beginning mainly, at October 1, May 1, and July 1, regardless of market prices of products. If such a committee could meet easily and frequently, undoubtedly they would find it an advantage to make contracts at various times according to the conditions of the market, and probably for a shorter period. A committee thus composed of superintendents, is also too busy to personally attend to the making out of contracts and the determination of specifications, to the securing of samples at the time of bids and to the distribution of these samples. Such things are left most largely to their clerical help, which consists of one woman stenographer,' — a force entirely in- adequate to perform the important functions of drawing up contracts ; securing the bids; passing upon qualities of supplies; seeing that contracts are properly filled, etc. If a committee of superintendents is to depend upon a clerical force to perform these important func- tions, which apparently it must do, such clerical force should be larger and more experienced. 106 Advantages and disadvantages due to methods of ad- ministration. Hospitals. Advantages. Small committee easily gotten together. — The smallness of the Purchasing Committee for the Hospitals, numbering four, enables it to meet frequently, and on short notice. As a result, it can place contracts at any time which may be advantageous, and can adjust matters that a larger committee would find difficult to handle. At least partly as a result of its size, it does let contracts more frequently than the Purchasing Committee of the Charitable Institutions, and performs its duties in a more businesslike way. Ample clerical force. — The office of the Purchasing Committee is at Utica, where the secretary, Mr. C. A. Mosher, has a clerical force of ample size to take care of the work of the committee and also a special room for samples. As a result of this better administrative force, greater attention and care is given to the receipt and preserva- tion of samples; the awards of contracts are published in pamphlet form and distributed to the bidders ; and the records of the Committee are placed in a more legible and convenient form than similar records of the Purchasing Committee of the Charitable Institutions. Some materials are tested. — The Purchasing Committee of the Hospitals does some testing of materials. On receipt of the shipmentB of flour, every Hospital is supposed to send to Mr. Mosher a sample of such flour, and he is supposed to send it to the Columbus Labora- tory at Chicago, for analysis. Some material also is sent to the chemist at Binghamton State Hospital for analysis. Flour, however, is the only supply that is systematically analyzed. Disadvantages. Office located at Utica is inconvenient. — Under the present arrangement it seems quite necessary for the office of the Purchasing Committee to be located at the residence of the steward acting as secretary, since he has other duties to perform in connection with the hospital, yet it makes it difficult of access, and as a result, the Commission does not come in contact with the office and its operation nearly as frequently as seems advisable. This would be 107 largely obviated if the oflBce were at Albany. The CommisBion is directly responsible for the work of the Purchasing Committee, and should be in a position to give its work constant supervision. Laxity in the excunination and receipt of goods. — The one article most closely examined by the Purchasing Committee is flour. Flour is contracted for under a closely detailed specification. The specifications used before and after May 15th, 1909, are given below : SpECIFICATIONa From April 1 to May 15, 1909— Flour For the period to July 1, 1909, Standard Standard First Patent, 196 lbs net. Straight Flour from hard wheat of 196 lbs. net — grades, quantities and deUveries to be in accordance with the following: Analysis of Standard First Patent Analysis of Standard Straight Flour Flour: from hard wheat: Gluten, per cent 10 . 5 Gluten, per cent 11 . Ash .46 Ash, per cent .52 Absorption 62 Absorption 62 Color 100 Color 97 Loaves per bbl 100 Loaves per bbl 100 Size of loaf 100 Size of loaf 100 Quality of loaf 100 Quality of loaf 99 Average value 100 Average value 99 Fermenting period 100 Fermenting period 102.2 Quality of gluten 100 Quality of gluten 97.8 It wUl be noted that the first specification quoted called for " Pirst Patent Flour," the second one for " Standard Straight." In gen- eral appearance the difference between these flours is that the " Stand- ard Straight" is darker colored and produces a dark, rather heavy, spongy loaf. The chemical difference is that the patent flour has more starch, less gluten and less ash than the " Standard Straight." As far as food properties are concerned, it is quite probable that the Standard Straight flour is equal to that of the First Patent. It does not, however, produce as palatable nor as digestible bread, and for that reason bread made from it usually is considered not as wholesome as from First Patent flour. The change from the lighter to the darker flour has produced some dissatisfaction on the part of the Hospitals and the Charitable Institutions. The change in the grade was probably due to the abnormal rise ia the price of wheat which occurred in the spring of 1909. Each Hospital is supposed to take samples from a certain proper- 108 tion of the barrels received on each shipment, and to send such sam- ples to Mr. Mosher, secretary of the Purchasing Committee. He is supposed to send them to the Columbus Laboratory, Chicago, for analysis, the analysis to be in accordance with the points set forth in the specifications. As far as I have been able to discover, the Hos- pitals have been regular and punctual in taking and sending these samples. Between October 37, 1908, and October 7, 1909, the secre- tary had 140 samples examined, numbered serially from 358 to 498. The analyses, however, were sent to the Hospital furnishing the samples, only in a limited degree. Froni October, 1908, to the first of May, 1909, although 90 samples were examined but four analyses were sent to the Hospitals, these four being sent to Binghamton. Subsequent to May 4, 50 more samples were examiued, and of this number, 19 were sent to the Hospitals that furnished the samples. Duriag the early part of the year, previous to April 1, it was the custom of the laboratory in making analyses, to append at the foot of such analyses, remarks as to the value of the flour analyzed as compared with the specifications of the committee. Some of these statements indicated that the flour was good and some bad. For instance, the analysis dated November 4, 1908, was on six samples. At the bottom of this analysis was appended the following remarks: " 370 and 371 are not equal to your standard. 385 is not equal to your standard in quality. 386 is an excellent flour. 372 though somewhat dark in color, would be a good flour for your use. 384 is an excellent flour." No Hospital received notification of the result of these analyses, except, perhaps, Manhattan or Utica, and from these Hospitals I have received no word. It wUl be noted that the chemist stated that numbers 370, 371 and 385 were not equal to the standard. This flour was received and paid for at contract price. On the same date, five more samples were analyzed, and at the bottom of the analysis was the following note : " 387, 388, 393 and 397 are all inferior to 340 in color, per cent of gluten and in their quality in general, being decided longer patents from a wheat containing less gluten. 387 — Hudson River. 388 — Binghamton. 393 — St. Lawrence. 397— Rochester. 340 — Crookston Milling Co." 109 It will be noted that the chemist states that none of the samples of his analysis were up to the standard of the sample furnished by the Crookston Milling Co.,— that is, 340. Numbers 387, 388, 393 were received respectively from Hudson Eiver, Binghamton and St. Lawrence. These institutions were not notified as to the result of this analysis though a claim has been made against the contractor by the Purchasing Committee of 25 cents per barrel for defective delivery. Again, on November 4, three more samples were analyzed, and the following remarks were made by the chemist : " 394 is fair, but dark in flour and bread. 401 and 402 do not meet the requirements of your standard in quality." It will be noted here that the chemist states that 401 and 402 were not up to the standard. These flours were accepted as fulfilling the contract specifications. Similar statements as to the deficient quality of flour were made on another analysis of November 4, applying to samples; one on November 14, one on November 18, one on November 23j one on December 1, one on December 4 and one on December 9. The one on December 9, reads as follows : "Number 409 is decidedly darker in color, in flour and bread. It also has a higher ash, indicating it to be a longer patent. " 386— MaCauley-Fien. "409 — ^MaCauley-Fien. Delivery to Utica." Here it will be noted that Utica received an inferior flour. An analysis on December 21, contained the following note: "Number 411 has a long patent, high in ash and dark in color in flour and bread." This sample was sent from Binghamton. A claim was made against the contractor on these two deliveries of 40 cents per barrel by the Committee. Although the Hospitals were not notified that considerable of this flour was not up to standard, yet it seems that the Purchasing Com- mittee claimed a rebate from the contracting firms on some of the flour, on the ground that the deliveries were not according to speci- fications. Under date of December 22, I addressed to Mr. Mosher, secretary of the Purchasing Committee, the following letter: "Did you have any difficulty with flour delivery during the year October, 1908-1909? If 80, what rejections were made and what claims, if any, were made against the contracting companies?" 110 Under date of December 27, I received the following reply: " Replying to your letter under date of December 22 in re flour deliveries for the period 1908-1909, I beg to advise that a car load shipped to Bingham- ton was rejected and replaced by the contractor. Rebates were received on 487 barrels shipped to Manhattan; 205 barrels Central Islip; 850 barrels Hudson Eiver; 575 Kings Park; 450 Binghamton; 210 Utica; 200 Middle- town, and 570 St. Lawrence, amounting to .05 per barrel. On Rochester 200 barrels at .10 a barrel. An adjustment was also made on two car loads, one shipped to Utica and one to Binghamton of .40 per barrel. We have pending an adjustment for delivery to all institutions on some 9,000 barrels of a total shipment of which there are about 4,000 that were not up to specifications, and we have put in a claim for .25 per barrel." It will be noted by the above letters that I asked whether any flour had been rejected or claims made, and the answer to this inquiry was that rebates had been received on shipments to the various Hospitals named. Eebates were received of 5c each on 3,547 bar- rels, on 200 barrels at 10c per barrel, and on two car loads at 40c per barrel. Supposing that the Hospital had received this rebate, either in the form of additional flour, or in a reduction on the amount of their bill, I addressed the Hospitals inquiring when they received these rebates. In reply to my inquiry the Superintendent of Middletown, under date of December 30, 1909, replied as follows: " In reply to your letter of December 29, we would say that the informa- tion it contains is new to us. We did not receive such a notification as you mention in regard to quality of flour, neither did we receive any rebate. Perhaps this special shipment mentioned was to some other Hospital." The Superintendent of Central Islip replied, under date of January 3, as follows: " Your letter of December 29, 1909, is received. In reply would say that it is true that we received shipment of 205 barrels of flour below contract specifications, sample of which was forwarded to our Purchasing Committee, Mr. C. A. Mosher, Secretary, Utica, N. Y. The entire matter was then left in the hands of the Purchasing Committee, who eventually received the rebates and forwarded the same direct to the State Hospital Treasurer. They will undoubtedly give you the necessary information which you desire." Under date of January 4, the Superintendent of Hudson Eiver replied, enclosing a copy of a letter he had received from Mr. Mosher, Secretary of the Purchasing Committee, in reply to an inquiry he Ill had evidently made of the secretary. This letter, dated January 3, 1909, reads as follows: " I am in receipt of your letter under date of December 3 1 , enclosing copy of correspondence which has passed between you and Mr. Wright in the matter of flour, and note contents. With reference to the same I beg to state that on flour delivered to the State Hospitals by Stock, our Com- mittee claimed a rebate of .05 per barrel on 4,457 barrels; .10 on 200 barrels; and .025 on 485 barrels. The claim was based on the fact that the flour they had delivered was technically lower in grade, as it had a higher per- centage of ash than the analysis of their original standard. After a long correspondence and threatening suit, the firm finally made settlement and, by direction of the Lunacy Commission, this sum was used by our Committee in paying general expenses in carrying on the work, particularly analyses of flours." It will be noted that the Superintendent of Middletown did not know that rebates had been claimed and received; that the Super- intendent of Central Islip reported that such had been received and turned in to the State Treasurer ; but the Secretary of the Purchasing Committee reported that such rebates had been retained by his committee and used in paying general expenses. The State law touching upon moneys received by officers or depart- ments provides as follows : Section 37. Payments to state treasurer. — ^Every state officer, employee, board, department or commission receiving money for or on behalf of th« •tate from fees, penalties, costs, fines, sales of property or otherwise, except the health officer of the port of New York, shall on the fifth day of each month pay to the state treasurer all such money received during the preceding month and on the same day file a detailed, verified statement of such receipts with the comptroller, who shall keep an account thereof in his office. This section shall not apply to the manufacturing fund of the state prisons known as the capital fund nor to the convict deposit and miscellaneous earning fund of the state prisons. This section shall be deemed to supersede any other provision of this chapter or of any other general or special law inconsistent therewith. (Chapter 58 of the Consolidated Laws, 1909.) In view of the above provision of law requiring that all moneys received from penalties or fines shall be turned into the State Treas- urer, I applied to the Lunacy Commission for a copy of such resolu- tion or other form of authorization passed by it empowering the 113 Purchasing Committee to retain these rebates. I was informed by the Secretary of the Commission that the only authorization, if this be interpreted as such, was in the form of a letter addressed to the Secretary of the Purchasing Committee, a copy of which is as follows : Albany, N. Y., May 21, 1909. Mb. C. a. Mosher, Member Committee. Dear Sir. — Dr. Ferris approved the Committee bill last evening and the Hospitals will be informed of their pro rata amounts. Dr. Ferris agreed with me in talking over the refund, stating that in his judgment it was a proper arrangement, that it belonged to the Hospitals, thereby approving of our course. I received from Mr. Wheeler a copy of a letter to you in the matter of curled hair. I will not be able to go on to Buffalo. There will be a majority there to consider the matter on its merits. Very truly yours, (Signed) Geo. D. Sanfobd, Member of Committee. It will be noted that this letter written by the Auditor of the Com- mission, and a member of the Purchasing Committee, states that Dr. Perris, Chairman of the Commission, had expressed it as his opinion that the refunds or rebates belonged to the Hospitals. The natural interpretation of this letter is that Dr. Ferris considered that any rebates received should be credited to the Hospitals whose supplies had been found deficient, and on which rebates had been received. Such interpretation, however, seems not to have been placed upon it by the Purchasing Committee, since, as stated in the secre- tary's letter to Dr. Pilgrim, the rebates are retained by the commit- tee and used in paying general expenses. To ascertain the nature of the accounting rendered by the Pur- chasing Committee to the Commission I asked the Commission for a statement of rebates reported by the Purchasing Committee during the last four years. In reply to this request I received from the Commission the following statement setting forth the account of 113 rebates received by the Purchasing Committee as reported to the Commission : Genehal Account of Committee on Pdhchase op Supplies. 1905. Dr. Cr. Oct. 12 To refund from Washburn-Crosby Co., on 2,532 bbls. flour at 10c per bbl. — Inferior to standard $253 .20 18 To refund from Thornton & Chester Milling Co. on 1,921 bbls. flour at 10c per bbl. — Inferior to standard 192 . 10 Dec. 31 By remittance to State Treasurer $445.30 1907. April 12 To refimd from Washburn-Crosby Co. on 3,714 bbls. flour at 5c per bbl. — Inferior to standard 185 . 70 Oct. 14 To refund from Washburn-Crosby Co. on 300 bbls. flour at 20o per bbl $60.00 200 bbls. flour at 10c. per bbl 20.00 300 bbls. flour at 15c per bbl 45.00 Inferior to standard. 125 . 00 Nov. 6 To refund from Henry & Missert on 300 bbls. flour at 18c per bbl. — Inferior to standard. . . 54.00 1908. Oct. 29 To refund from F. W. Stock & Sons, on 4,457 bbls. flour at 5c per bbl. $222,85 200 bbls. flour at 10c per bbl 20.00 485 bbls. flour at .025c per bbl . . . 12 , 12 Inferior to standard. 254.97 To refund from Scott Paper Co. on 300 cases of toilet paper at 25c. — Inferior to standard .... 75 . 00 To refund from C. F. Mattlage & Sons, on 1,265 bu. beans at 25c. — Inferior to standard 316.25 By applying part of refunds to pay general expenses of the committee 619 . 67 To refund from H. C. Collier & Sons, on 11,501 lbs. caustic potash at .005523c. — Inferior to Standard 63.52 To refund from Lawlor & Cavanaugh, on butter contract. — Inferior to standard 100 . 00 By applying part of refund to pay general expenses of committee 391 . 25 By balance of refunds on hand 163 . 52 1909. Feb. 16 April 3 May 1 May 6 Nov. 26 Nov. 1 Nov. 1 $1,619.74 81,619 74 114 It will ,be noted by reviewing the above statement that during the period from October 13, 1905, to November 26, 1909, the Pur- chasing Committee had received in the form of rebates $1,619.74; that on December 31, 1905, it had turned in to the State Treasurer, $445.30, and that between that date and May 1, 1909, it had rendered no account of rebates received, but in its report of May 1, 1909, it had applied $619.67 of its receipts towards paying general expenses. The report of May 1, 1909, contains all the items from April 13, 1907. Although it had not reported these rebates for a period of over two years, and had applied previous to May 1, 1909, $619.67 towards paying general expenses, there seems to be in the oflSce of the Com- mission no authorization for retaining such rebates except the let- ter quoted on a previous page, and dated May 21, 1909. After the receipt of this letter referred to, which seems to authorize the receipt of rebates, provided they be credited to the Hospitals, on November 1, 1909, the committee again applied $391.35 towards paying general expenses. The facts with relation to the testing of flour set forth on the pre- ceding pages may be summarized somewhat as follows: The com- mittee does have flour tested, but the standard by which it is tested is in Chicago, and not at the office of the Purchasing Committee. Again, the Hospitals submitting samples are seldom notified of the result of the analyses of their samples. "When flour is found deficient it is not rejected, but a fine is imposed upon the contractor; these fines vary from 2i^c to 40c per barrel. Such fines are collected by the Purchasing Committee and used to pay general expenses, and the Hospitals that have received the flour on which rebates have been made, are seldom notifled that claims have been made or rebates received. According to the report of the Purchasing Committee to the Commission, no rebates were received in cash during the year 1908. These facts need some further interpretation. By referring to page 107 it will be noted that the specifications for flour provide, among other things, that the color, the number of loaves per barrel, the size of the loaf, the quality of the loaf, average value of the loaf, etc., shall be 100 per cent. This means that these various items are compared with standards in the Laboratory at Chicago, and the Purchasing Committee does not know what the standard of color is, nor the niunber of loaves per barrel, nor what the size, quality. 115 and the average value of the loaf; they must depend entirely upon the comparison of the laboratory with standards kept in. Chicago. It is unfortunate that the committee deems it necessary to have the analyses made at a place so far distant as Chicago, inasmuch as it is very important that such tests be made within the briefest time possible after the receipt of goods. There are at least seven laboratories in this State including Cornell University, that are prepared to make practical flour tests. Again, it is highly de- sirable that the specifications for flour be so drawn that any labora- tory could make the test. The specifications now used by the Pur- chasing Committee are drawn up by the Columbus Laboratory of Chicago, and a test according to these standards can only be made by that laboratory. If these specifications required that a certain weight of flour when mixed with a certain amount of water and yeast, and raised and baked in specified temperatures, would pro- duce a certain volume of bread, then a test could be made in any laboratory squipped with an oven. It is important that some such change in the specifications be made. The system of collecting a fine from the contractor for a delivery of deficient flour is not only unsatisfactory but is not provided for in the contract. The fines thus far collected by the Purchasing Committee, as previously noted, range from .02% to .40 per barrel. The judgment of the committee as to the extent to which a flour may be deficient is based mainly on three varying factors in the analysis, — ^namely, the amount of gluten, ash, and the color. Varia- tion in any one of these factors is not directly dependent upon the variation in the other two. For instance, a flour high in ash is likely to be low in color and high in gluten, but this is not always the case. If the ash is produced by an excess amount of bran, the color may be low without materially increasing the proportion of gluten. On the other hand, the gluten may be deficient, and yet the color be up to standard. If it be specified that the flour shall contain not more than .46 per cent of ash, there is no way of determining the value of flour that might contain .48 per cent or .50 per cent of ash. So any attempt to compensate for delivery of flour that may be deficient in any one or all of these three factors by a process of fines is purely an arbitrary judgment without any recognized authority either among flour experts or dealers. 116 Character of the goods received as compared with the specifi- cations under which they were contracted for. — Some inquiry has been made as to the quality of supplies being received. Samples of such supplies have been analyzed and compared with the specifications under -which they were purchased. The results of this inquiry are described in the following pages. Quality of butteh received by the Institutions. — Butter is contracted for by the Purchasing Committees of both the Lunacy Commission and the Fiscal Supervisor's department. The con- tracts now (December, 1909,) in operation were made for the Hos- pitals for a period of seven months, beginning August 1, 1909, and ending March 1, 1910. This was the first contract entered into by the Commission for butter. The Charitable Institutions contracted for a period of twelve months, beginning July 1, 1909, ending June 30, 1910. The Purchasing Committee of the Lunacy Commission entered into contract with two firms. The up- State Hospitals are served by the Lawlor and Cavanaugh Co. of Troy, N. Y., as follows: Price per lb. Utica State Hospital $0 .279 Hudson River State Hospital .279 Gowanda State Hospital .28 Buffalo State Hospital 279 Rochester State Hospital .279 Binghamton State Hospital 279 The following Hospitals are served by Droste and Snyder of New York City: Price per lb. Willard $0.2737 Middletown 2785 Kings Park 277 Long Island 277 Manhattan 277 Central Islip 277 The Purchasing Committee of the Fiscal Supervisor's department entered into a contract with the Lawlor and Cavanaugh Co. for all the institutions under its supervision, except Iroquois and Napanoch. The contract for these institutions was awarded to Armour and Co. 117 The firms have contracted to furnish butter to these institutions at the prices indicated below: Price per lb Albion $0.2810 Batavia 2810 Bath 2810 Bedford 2810 Elmira 2810 Hudson 28 Industry 2810 Iroquois 284 Napanoch 284 Newark 2810 Oxford 2810 Randall's Island 2810 Ray Brook 2825 Rome 2810 Sonyea 2810 Syracuse 2810 It is believed by some, with a reasonably good foundation for such belief, that Droste and Snyder of New York City, is financially interested in the firm of Lawlor and Cavanaugh Co. of Troy. So, that although two firms apparently are furnishing butter to the State Hospitals, yet there may have been more than merely an under- standing between them when the bids were made. Conditions in the contracts. — The contract made by the Pur- chasing Committee of the Lunacy Commission incorporates the fol- lowing specifications : " Butter — ^Whole milk, creamery extras, scoring equal to, or better than 93 points Chicago, 93 points New York. Official inspection certificate to b« furnished if required and butter to be guaranteed equal to above specifica- tions out of storage. "(Commercial extras will not be accepted.)" This provides whole milk creamery butter, which means that the butter must be made from cream extracted at the creameries. This term, "whole milk," is used to distinguish this class of butter from that known as centralized butter, which is made partly or wholly, from cream which has been extracted from the milk by the farmers and delivered in the form of cream to the creameries, and from this the butter is made. Of whole milk creamery butter there is a very small amount on the market. Again, the specifications provide that the butter shall score "equal to, or better than 93 points Chicago, 118 93 points New York." In the first place, the New York market no longer uses scoring points, but simply uses grades. It is generally un- derstood, however, in the New York Mercantile Exchange and among butter men, that what is termed an " extra," equals the score of 90 to 93, and that the score of " 93 " or above, is what is termed a " special." " Special " butter is of a fancy stock, the highest grade made, and, though quoted, it has no fixed price in the open markets. As a fancy butter, it sells for any price which can be secured. It would be practically impossible for any butter contractor to furnish enough to supply all of the State Institutions with whole creamery butter grading 93 points. The grade specified in the contract is used only by the highest class hotels and well-to-do private families. Again, the specifications provide that this grading shall apply, not as the butter goes into storage, but as it comes out. The sentence " Commercial extras will not be accepted " means nothing, since the term " commer- cial extras" is not in existence in the butter trade. The word " extras " when used always stands by itself, and means a recognized grade of butter. The general contract provides further, that "All bids must be for goods that will agree with the specifications fur- nished by the committee." It further provides that " The contractor will also be liable for expense incurred in examination of goods, which in the judgment of the inspector designated by the hospital, are not up to the specifications, providing it be found and certified to by a reputable examiner, or examiners, that such goods are inferior." It will be noted that the above extracts from the contracts provide that the bidder must agree to furnish butter according to the speci- fications ; that a decision as to whether the butter delivered fulfills the specification rests with the Hospital receiving the butter. Such Hos- pital may select a "reputable examiner," and his findings shall be a sufiBcient basis for acceptance or rejection of the goods. The deliveries of the butter are to be made weekly to all Hospitals except Middletown and Rochester, which are monthly, and Willard, which is quarterly. The contract of the Purchasing Committee of the Fiscal Super- visor's department provides that the butter shall be " Strictly extra creamery. Not butter known as ' firsts,' or * commercial extras.' " 119 The word " strictly " used in conjunction with " extra," has no commercial significance. It is a term not used in the butter trade, and as used in these specifications can mean nothing more than that the' committee was very emphatic that it desired "extra" butter, and nothing short of that. It further emphasizes this intent by stating its desires in the negative form, — "not butter known as ' firsts,' or ' commercial extra.' " The general specifications under which the bids were submitted, also contained this paragraph: "Any article that may, in any respect, fail to conform to the specifications upon which the award was made, will be rejected by the superintendent or steward, and the institutions shall have the right to purchase, at the expense of the contractor in the open market, a sufficient quantity of the goods rejected to meet their requirements for the time being, or until the matter of quality can be satisfactorily adjusted between the institution and the contractor. The contractor will also be liable for expenses incurred in examination of goods, which in the judgment of the inspector designated by the institutions, are not up to the specifications, providing it be found and certified to by a reputable examiner, or examiners, that such goods are inferior." Here it will be noted that the superintendent or steward, or an inspector chosen by them, are the sole judges as to whether the article delivered meets the specifications. The goods were to be delivered as ordered by the institutions, and any failure to deliver within three days of the receipt of the order, gave warrant for the institution to purchase butter to meet its needs in open market. Grades of buttek. — The grades of butter according to the rules of the New York Mercantile Exchange as adopted March 4, 1908, are defined as follows: (Pages five and six of the Butter Eules of the New York Mer- cantile Exchange.) " SPBCIAIiS." Shall comprise the highest grade of butter obtainable in the season when offered, under the various classifications. Ninety per cent shall conform to the following standard, the balance shall not grade below extras. Flavor. Must be fine, sweet, clean and fresh, if of current make, and fine, sweet and clean if held. Body. Must be firm and uniform. Color. A light straw shade, even and uniform. Salt. Medium salted. Package. Sound, good, uniform and clean. 120 " EXTRAS." Shall be a grade just below Specials, and must be fine butter for the season when made and offered, under the various classifications. Ninety per cent shall conform to the following standard; the balance shall not grade below Firsts. Flavor. Must be sweet, clean and fresh if of current make, and sweet and clean if held. Body. Must be uniform and good. Color. A light straw shade, even and uniform. Salt. Medium salted. Package. Sound, good, uniform and clean. " FIRSTS." Shall be a grade just below Extras and must be good butter for the season when made and offered, under the various classifications. Ninety per cent shall conform to the following standard; the balance shall not grade below Seconds. Flavor. Must be good, sweet and fresh if of current make, and good and sweet if held. Body. Must be firm and fairly uniform. Color. Reasonably uniform, neither very high nor very light. Salt. May be reasonably high, light or medium. Package. Sound, good, uniform and clean. "SECONDS." Shall be a grade just below Firsts. Flavor. Must be reasonably good. Body. If Creamery, must be solid boring. If Factory or Process, must be ninety per cent solid boring. Color. Fairly uniform, but may be mottled. Salt. May be high, medium or light. Package. Good and uniform. " THIRDS." Shall be a grade below Seconds and may consist of pro- miscuous lots. Flavor. May be off-flavored and strong on tops and sides. Body. Not required to draw a full trier. Color. May be irregular or mottled. Salt. High, light or irregular. Package. Any kind of package mentioned at the time of sale. It will be noted by the above definitions of grades that no scoring marks are referred to. It is generally understood, however, in the butter trade, that a score of 93 or above is a "special," 90 to 92 is an "extra," 87 to 89 is a "first," 82 to 86 "seconds." Below 82 ranging downward, are "thirds." Methods of inspection. — An authoritative determination of the grade of butter can be made only by an expert. In Chicago the experts in grading assign a certain number of points for different qualities of the butter. For instance, so much for color, so much for flavor, so much for body, so much for salt, etc. In New York City, the official butter inspector of the Mercantile Exchange in giving 121 a certificate, simply declares the butter to be of a certain grade without giving scoring as to points, or explanation as to what qualities or lack of qualities in the butter caused it to fall in the designated grade. The butter inspector of the United States Department of Agriculture, Dairy Division, located in New York City, in inspecting butter not only gives the grade, but the score, and indicates the char- acter of the butter as to sweetness, flavor, body, etc. And, if it is requested, will also tell how the butter was made, whether from whole milk, or centralized, or gathered from country producers and subsequently worked over. It is practically impossible for an ordinary consumer of butter, or even an experienced steward, to tell positively, in what grade a given sample of butter falls, although he may be able to detect easily the difference between the high grade and the low grade butters, or the difference between " extras " and " seconds." Examination op buttee from State Institutions. — For the pur- pose of ascertaining how far the butter delivered ordinarily met these specifications, I selected at random six Hospitals and six Charitable Institutions, and requested from each that they send by express to New York City three tubs of butter. All complied with this request with the exception of Albion, which desired to wait for the consent of its Board of Managers, and Bedford, which had not a suflBcient stock on hand to enable it to send three tubs. To each of these institutions were sent shipping tags, each inscribed with an index number and the address of a prominent butter broker, New York City, who had agreed to receive the butter. They were requested to remove all marks from the tubs which would indicate where the butter came from, or who the contractor was that furnished it. Accordingly when the butter reached New York City the only identifying marks on the tubs were the index numbers furnished by myself, the key of which was kept at this ofiice. The first twelve tubs to arrive were transferred from the l)roker's cooling rooms to the Harrison Street Cold Storage Co.'s warehouse. This firm, being a member of the Mercantile Exchange, could have the butter examined by the Exchange's official butter inspector, and could, accord- ingly, give an official certificate of inspection. Here the butter was placed in cooling rooms, and was inspected by J. H. Barrett, inspector of the New York Mercantile Exchange, who gave a certificate for each of the twelve tubs examined. Immediately following his exam- ination, the butter was again examined, at the same place, by Mr. 123 C. W. Pryhofer, the butter inspector of the United States Depart- ment of Agriculture, Bureau of Animal Industry, Dairy Division, and located at 202 Franklin street. New York City. He also gave a certificate for each tub examined. Inasmuch as Mr. Barrett, of the Mercantile Exchange, gave no details in his certificates as to the character of the butter and its composition, it seemed best to rely thereafter upon Mr. Fryhofer's certification. Accordiugly, the subsequent eighteen tubs were in- spected by him alone. Mr. Fryhofer is a man of broad experience in the making and the testing of butter. Not only has he been a butter producer, but he has passed through the Kansas Agricultural College, Dairy De- partment, and has subsequently qualified as United States Inspector. He is now stationed at New York City, where he inspects for the United States Navy, and also reports to the producers of butter the conditions in which the butter arrives in this market. His superiors in "Washington report that he is a very competent judge. Eesults of the tests. — The inspectors reported as follows: United States Department of Agriculture Bureau of Animal Industry Dairy Division 202 Franklin Street, New York November 2, 1909 I have examined at the Harrison Cold Storage, twelve tubs of butter as follows, 110. Very unclean, stale cream flavor, also fishy flavor. Score 84. Grade,: "Seconds." 111. Well made, but old and somewhat unclean in flavor. Score, 89. Grade, "Firsts." 112. Unclean and old flavor. Score, 88. Grade, "Firsts." 10. Little old in flavor, but clean flavor. Score, 91. Grade, "Extras." 11. Fairly clean in flavor; well made. Score, 91. Grade, "Extras." 12. Unclean and stale cream flavors. Score, 87. Grade, "Firsts." 20. Very unclean, stale cream and fish flavors. Score, 84. Grade, "Seconds." 21. Unclean, old cream flavor. Getting rancid. Score, 86. Grade, "Seconds." 22. Unclean, old cream flavor. Somewhat rancid. Score, 85. Grade, "Seconds." 100. Very unclean and old cream flavor. Score, 87. Grade, "Seconds." 101. Unclean and old cream flavor. Score, 87. Grade, "Firsts." 102. Rank, fishy, rancid flavor. Score, 82. Grade, "Seconds." 123 November 4, 1909— 120. Very pronounced old cream and cheesy flavor. Very weak body. Score» 82. Grade, "Seconds." 121. Unclean, old stale cream flavor. Score, 86. Grade, "Seconds." 122. Pronounced unclean and old cream flavor. Score, 86. Grade, "Sec- onds." 60. Unclean in flavor. Score, 89. Grade, "Firsts." 51. Unclean and old flavor. Score, 88. Grade, "Firsts." 62. Unclean and old cream flavor. Score, 87. Grade, "Firsts." November 12, 1909— 30. Poor body; mealy, brittle texture. Score, 87. Grade, "Firsts." 31. Somewhat fishy in flavor. Score, 87. Grade, "Firsts." 32. Sour in flavor; badly mottled in color. Score, 85. Grade, "Seconds." 40. Unclean and tallowy in flavor. Score, 87. Grade, "Firsts." 41. Unclean in flavor. Score, 89. Grade, "Firsts." 42. Unclean and cheesy in flavor. Score, 87. Grade, "Firsts." 80. Very fishy and unclean flavor. Score, 83. Grade, "Seconds." 81. Fishy and unclean flavor. Score, 84. Grade, "Seconds." 82. Unclean and woody flavor. Score, 87. Grade, "Firsts." 60. Very fishy in flavor. Score, 83.' Grade, "Seconds." 61. Very fishy in flavor. Score, 83. Grade, "Seconds." 62. Unclean in flavor. Score, 88. Grade, "Firsts." {Signed) C. W. Fryhofbe, Butter Inspector. New York Mercantile Exchange Butter Inspection Certificate November 1, 1909.. Package inspected No. 10 — Grade, Held Creamery Extras. 11 — Grade, Held Creamery Extras. 12 — Grade, Held Creamery Extras. 20 — Grade, Held Creamery Extras. 21 — Grade, Held Creamery Extras. 22 — Grade, Held Creamery Extras. 100 — Grade, Held Creamery Firsts. 101 — Grade, Held Creamery Extras. 102 — Grade, Held Creamery Firsts. 110 — Grade, Held Creamery Seconds. Ill — Grade, Held Creamery Firsts. 112 — Grade, Held Creamery Firsts. {Signed) J. H. Barrett, Inspector. 124 The reports with the key numbers assigned to their respective institutions are as follows: Hospitals. Certificate by CBRTincATE by C. W. Fryhofer. J. H. Barrett. Middletown 10 Little old in flavor, but clean Grade, Held Creamery Extras, flavor. Score, 91. Grade, "Extras." 11 Fairly clean in flavor, well Grade, Held Creamery Extras. made. Score, 91. Grade, "Extras." 12 Unclean and stale cream Grade, Held Creamery Extras. flavors. Score, 87. Grade, "Firsts." Rochester 20 Very unclean, stale cream Grade, Held Creamery Extras, and fish flavors. Score, 84. Grade, "Seconds." 21 Unclean, old cream flavor. Grade, Held Creamery Extras. Getting rancid. Score, 86. Grade, "Seconds." 22 Unclean, old cream flavor. Grade, Held Creamery Extras. Somewhat rancid. Score, 85. Grade, "Seconds." Central Islip 30 Poor body; mealy, brittle texture. Score, 87. Grade, "Firsts." 31 Somewhat fishy in flavor. Score, 87. Grade, "Firsts." 32 Sour in flavor ; badly mottled in color. Score, 85. Grade, "Seconds." Willard 40 Unclean and tallowy in flavor. Score, 87. Grade, "Firsts." 41 Unclean in flavor. Score, 89. Grade, "Firsts." 42 Unclean and cheesy in flavor. Score, 87. Grade, "Firsts." Binghamton 50 Unclean in flavor. Score, 89. Grade, "Firsts." 51 Unclean and old flavor. Score, 88. Grade, "Firsts." 62 Unclean and old cream flavor. Score, 87. Grade, "Firsts," 135 Kings Park 60 61 62 Certificate by C. W. Fryhoper, Very fishy in flavor. Score, 83. Grade, "Seconds." Very fishy in flavor. Score, 83. Grade, "Seconds." Unclean in flavor. Score, 88. Grade, "Firsts." Certificate by J. H. Barrett. Charitable Institutions. Hudson 80 Very fishy and unclean flavor. Score, 83. Grade, "Seconds." 81 Fishy and unclean flavor. Score, 84. Grade, "Sec- onds." 82 Unclean and woody flavor. Score, 87. Grade, "Firsts." Sonyea 100 Very unclean, stale and old cream flavors. Weak body. Score, 83. Grade, "Sec- onds." 101 Unclean and old cream Grade, flavor. Score, 87. Grade, "Firsts." 102 Rank fishy and rancid flavor. Grade, Score, 82. Grade, "Sec- onds." Syracuse 110 Very unclean, stale cream flavor, also fishy flavor. Grade, Score, 84. Grade, Sec- onds." 111 Well made, but old and some- Grade, what unclean in flavor. Score, 89. Grade, "Firsts." 112 Unclean and old flavor. Grade, Score, 88. Grade, "Firsts." Newark 120 Very pronounced old cream and cheesy flavor. Very weak body. Score, 82. Grade, "Seconds." 121 Unclean, old stale cream flavor. Score, 86. Grade, "Seconds." 122 Pronounced unclean and old cream flavor. Score, 86. Grade, "Seconds," Grade, Held Creamery Firsts. Held Creamery Extras. Held Creamery Firsts. Held Creamery Seconds. Held Creamery Firsts. Held Creamery Firsts. 126 It will be noted by an examination of the above analyses of Mr. Fryhofer, that nearly all of it is in his judgment below the contract specification. Of the twelve tubs sent by the four Charitable Insti- tutions, four were "firsts," and eight "seconds." Of the eighteen tubs sent by the Hospitals, two were " extras," ten " firsts," and six "seconds." It will be noted, moreover, that out of the thirty tubs, but two measured up to the specifications, namely, were "extras." Fourteen of them were " firsts," and fourteen " seconds." By read- ing in detail the description given by Mr. Fryhofer of each tub, it will be noted that none of those graded " firsts " are acceptable butter. All of those graded " seconds " are rancid, or stale, or fishy, and scarcely fit for table use. Possible deteeioeation of buttee aftee delivery by contkac- TOE AND befoee TESTING. — Before making the butter tests, I secured the opinion of Mr. Fryhofer as to the possible deterioration of butter in being shipped from up-State to New York City. He stated that it was his belief that butter could be brought to New York City for examination and not undergo any material lowering in grade. To confirm this verbal opinion, I addressed to him a letter setting forth in substance my earlier inquiry. My letter and his reply are as follows: December 10, 1909. Mb. C. W. Fbthofee, Butter Inspector, U. S. Department of Agriculture, Dairy Division, 202 Franklin Street, New York City. Dear Sir. — You examined for us, in the fore part of November, about thirty tubs of butter, a large portion of which you found as grading " Firsts " and " Seconds." I should like to get your opinion as to the possible deterioration of butter in transit. Suppose butter were shipped during October from a warehouse in New York City or Buffalo, to the central part of New York State, and that such shipment should occupy possibly two days; on the arrival of this butter, suppose it were placed in cooling rooms having a temperature of 40 degrees or under, and that this butter subsequently were shipped to New York by express, occupying one day in transit, and immediately upon arrival placed in a cooling room, and a test made of such butter soon after its arrival ; had such butter been " Extras " when shipped from the original storage warehouse by the contractor, would it have been possible for it to have deteriorated during the transit described above, so as to grade "Seconds," or even "Firsts?" The following is a copy of the specifications and a portion of the con- tract made by certain parties with other parties. In your opinion, is it intended by this contract that this butter should grade " Extras " at the point of delivery? 127 " Butter — Whole milk, creamery extras, ^coring equal to or better than 93 points Chicago, 93 points New York. Official inspection certificate to be furnished if required and butter to be guaranteed equal to above speci- fications out of storage. "(Commercial extras will not be accepted.) "Any article that may, in any respect, fail to conform to the specifica- tions upon which the award was made, shall be rejected, and the hospitals shall have the right to purchase at the expense of contractor, in the open market, a sufficient quantity of the goods rejected to meet their requirements for the time being, or until the matter can be satisfactorily adjusted between the hospital and contractor. " The contractor will also be liable for expense incurred in examination of goods, which in the judgment of the inspector designated by the hospital, are not up to the specifications, providing it be found and certified to by a reputable examiner, or examiners, that such goods are inferior." I shall appreciate it highly if you will express your opinion on the points above indicated. Very truly yours, (Signed) Henet C. Weight. 202 Franklin Street, New Yoek, N. Y., December 10, 1909. Mb. Henet C. Weight, State Charities Aid Association, 105 East 22nd Street, City. Dear Sir. — ^Yours of present date requesting my opinion as to the deteriora- tion of butter during the time of transit and also as to the meaning of extract you have quoted from some contract for butter, is received. I have read very carefully the conditions of your supposed shipment from the warehouse in New York City or Buffalo, from the time of shipment to arrival at central point in New York State, and its reshipment to New York City by express, — in all occupying three to five days and a possible storage of from one to two weeks between shipments at temperature of 40 degrees or under. You ask me if in my opinion the butter under such conditions might deteriorate from grade of " Extras " to " Seconds," or even " Firsts." My opinion is that if the butter graded " Extras " when it left the ware- house at either New York or Buffalo, as in the supposed case, it would be very unlikely that it would deteriorate to a grade of " Seconds." It might, however, deteriorate to the extent of two and at the extreme, three points, which would make it grade a fairly good " First." Butter shipped at the time at which you state this supposed shipment to have been made, namely October, would deteriorate less than during the season of higher temperatures, and, in my opinion, it is very probable that the actual deteriora- tion of butter in the above supposed case would be not to exceed one to two points. If the butter was made entirely of whole milk, there would be but slight, if any, deterioration at all. If a deterioration were to take place in the shipment of butter such as to cause it to grade " Seconds " under the conditions as you stated them in the supposed case, the commission merchant would not be able to contract 128 butter with any assurance that he would receive the butter in such condi- tion that it would be possible for him to make deliveries under his contract. The greater portion of butter received on the New York market is from four to six days in transit, and is not delivered to the consumer within two or three weeks, and in many cases four weeks, after the butter is shipped from the factory. In regard to the specifications of a certain contract which you have quoted, it is my opinion that the intent of the specifications of that contract is that the butter must grade " Extras " when received at the point of delivery. Butter contracts, as I have observed, which are given by com- mission merchants to secure butter for their trade from the creamery are always based upon the requirement that the butter shall comply with the grade called for in the specifications of such contract when inspected at the point of arrival, namely, the place of business of the commission mer- chant who receives the butter. The requirement made by commission men in their contracts that the butter must be of a. certain grade on delivery, it seems to me, is the intent of the contract which you have quoted, and, if my interpretation is correct, any deterioration during transit is not to be taken into consideration by the one who receives the butter under the contract quoted. Trusting this answers your question, I am Respectfully yours, (Signed) C. W. Fbthofeb, Scientifio Assistant in Dairying. Value of butter delivered. — The inquiry naturally arises what would he the value of the butter delivered under the contract with the State Institutions, assuming that the average quality for the whole contract delivered and yet to be delivered, be of the same grade as that tested from the ten institutions. Probably a fair way to ascertain this difference in value is to take the wholesale rate of butter in New York City for eight months, beginning July 1, and ending March 1, and to ascertain the difference ia price between the three grades of butter, — " extras," " firsts," and " seconds." In lieu of the three months of the contract yet running, three months of last winter may be substituted. Taking the eight months of 1909, January to March, and July to December, the average wholesale price of butter for these eight months was, " extras," .29268; " firsts," .27976; " seconds," .265. These are the prices for fresh butter from July 1, to November 8, and for held butter from that date until March 1. The difference in price between the " firsts " and " extras " was .01292 ; the difference between " seconds " and " extras," was .02768. Of the total number of tubs examiaed, .066 per cent were "extras," .466 per cent were " firsts," and .466 per cent were " seconds." If 189 these same ratios were to maintain in all the butter delivered, or to be delivered, 13,200 tubs, the value of the butter so delivered, accord- ing to the prevailing market rates indicated above, would be $15,517 less than the value of the butter called for in the contract. Kelation of the peice bid by the contractoe to the market PEiCE OP buttee. — On the day the bids were opened, July 21, by the Purchasing Committee of the Lunacy Commission, the New York market quotation for " extras " as given by the " Producers' Price- Current," and also by the New York Commercial, was .265. The bid of the successful contractor was .279, being a margin over the market price of .014. On the day, June 10, that the bids were opened by the Purchasing Committee of the Fiscal Supervisor's department, the New York quotation for " extras " was .265, and the bid of the successful con- tractor was .2816, or a margin of but .0166. It may be assumed that the contractor in order to protect himself, purchased butter at the time of making the contract and placed it in cold storage. This is the custom of responsible butter dealers when making a term contract. The carrying charges including storage, interest on his money, and delivery, would cost not less than .015 a pound, and is usually figured by commission men at about .02. It is difficult to see how he could have paid for butter, viz., .265, held it in cold storage for several months, and then have delivered it to the institution at an advance of but .014 per pound. Weight op buttee as billed and as eeceived. — In addition to the contractor delivering butter lower in quality than called for by his contract, there is ground for believing that the weights as actually received by the institutions were not equal to the amount indicated on the bill. To fijid out how butter was billed to the institutions, I wrote to a number of the Hospitals and Charitable Institutions to ascertain whether they weighed the tubs, and whether the butter was billed to them in the gross, including the weight of the tubs with the tare deducted, or as a net weight of butter. Some of the institutions replied that they only weighed the butter in gross including tubs; others that they emptied the butter fron^ a certain portion of the tubs and weighed the empty tubs to ascertain the net weight of butter. To some of these institutions the butter is billed in the gross weight, and a certain amount deducted for tubs; 130 to others it is billed as a net weight of butter. But one institution reported weighing all the tubs. There seems to be no clear idea on the part of the institutions whether they are receiving the amount of butter billed to them. One institutions reports : " We usually find that the gross weight as indicated by the mark on the side of the tub to be correct, but we have on several occasions, found that the empty tub weighed more than the deduction made on the invoice for tare." Another institution wrote after having weighed all the tubs of the shipment, that the weight " Was a total of 310% pounds. The shipment was billed for 316 pounds, making a shortage of 5 1-5 pounds." This shortage was on five tubs, so that the average was somewhat over a pound per tub. Kings Park weighed a shipment of 39 tubs received in December, and the average weight of these tubs was 10.9 pounds, aggregating 424 pounds. The weight of the tubs as hilled was 10.3 pounds. It will be noted that the contractor billed the tubs as weighing 7-10 of a pound lighter than the test weight made by the Hospital. If the gross weight of the 39 tubs was correct, there would then be a shortage on the shipment of 27 pounds of butter. I weighed a portion of the tubs sent here for inspection, and found that the gross weight marked on the side of the twelve tubs aggre- gated 866 pounds, but the actual weight of these tubs, according to my weighing, was 858 pounds, a shortage of two-thirds of a pound per tub. The contractor, Lawlor and Cavanaugh Co., does not bill uniformly to different institutions. For instance, under date of October 30, 1909, butter was billed to Craig Colony as follows: 40 tubs butter 2,854 lbs. 8/70, 16/71, 11/72, 4/73, 1/74 400 2,454 lbs. at .281, $689.57 It will be noted that a tare of ten pounds per tub was taken, aggre- gating for the forty tubs, 400 pounds. The same contractor under date of November 13, 1909, billed butter to Syracuse as follows: 4 tubs butter— 3/72, 1/71—247, 278 $69 .41 Here it will be noted that the butter was billed in gross and a tare of ten pounds per tub deducted, although the weight of the tubs 131 was not entered on the bill. To Binghamton, the contractor billed as follows: 29 tubs, 1,871, .279 $522.01 Under date of October 29, 1909, the same contractor billed to Newark as follows: 10 tubs butter, 616, at .281 $173.10 4/61, 6/62 Here it will be noted that the butter was billed as a net weight, the gross weight not having been entered in the bill. To "Willard State Hospital the contractor, Droste and Snyder, under date of November 8, 1909, billed butter as follows : 10 tubs butter— 718, 103, 615 at .2737 $168.33 2,71. 8, 72. Mkd. 6,161. Test, 3/10. 10 tubs butter— 726, 102, 624 at .2737 170.79 4, 72. 6, 73. Mkd. 6,520. Test, 2/10. 10 tubs butter— 731, 102, 629 at .2737 172.16 1, 71. 6,73. Mkd. 5,292. $511.28 3, 74. Test, 2/10. ' In this billing to Willard, it will be noted that the tare deducted for ten tubs was at the rate of 10.3 pounds per tub, for the other tubs, 10.2. A comparison of the above bills will at once reveal the fact that there is not a uniform method of billing butter. Some is billed in gross with a deduction of certain tare for the tubs ; others is billed as a net weight of butter. In some cases a flat rate of ten pounds tare is taken off, which probably is an arbitrary amount deducted without weighing the tubs. In other cases, the tare amounts on each tub to ten pounds and a small fraction, which would indicate a weighing of a certain portion of the tubs. I have no clear evidence that there is a marked shortage on the weight of butter as delivered. But inasmuch as the contractor seldom bills the tubs at more than IQi^ pounds each, and usually bills them somewhat less than this, the average not exceeding probably 10% pounds, it is highly probable that the tare is too small con- sidering the average weight of tubs as reported by responsible butter dealers. To further corroborate the evidence heretofore presented, and to 132 illustrate the difficulty of enforcing contracts for butter, I will relate in outline a recent experience had by the Purchasing Committee of the Hospitals with relation to the butter contracts. About the middle of August the chairman of the Purchasing Com- mittee, Mr. W. S. Eemington, steward of Eochester, became con- vinced that the butter delivered to his institution was not up to speci- fications. As chairman of the committee, he asked several Hospitals to ship a number of tubs of butter to Eochester, and then asked members of his committee to meet at Eochester to examine the butter. After some of this butter had been shipped, the investigation was called ofE by a telegram from the Lunacy Commission, addressed to the chairman. Accordingly he notified the other institutions not to send butter, and the committee did not meet. Some of this butter delivered to Eochester, was sent to New York City for examination, and the remainder was examined at Eochester by the United States Butter Inspector located in New York City. According to the inspec- tion made, nearly all of the butter was found to be below the speci- fications. More than ever convinced by these findings, the chairman asked one of the Lunacy Commissioners for the privilege of again calling a meeting of his committee to take up the matter. This request was consented to, and arrangements were made for a meeting in New York City. Additional butter from different Hospitals was sent to Manhattan Hospital and by directions of the committee was examined by the butter inspector of the Mercantile Exchange, and also by the United States butter inspector. These two inspectors disagreed as to their findings; the United States butter inspector finding nearly all the butter below specifications, and the other one finding a fair portion of it according to the contract. This disagree- ment prompted the Committee to ask the Mercantile Exchange to send a number of butter merchants, members of the Exchange, to inspect the butter. This was done, and the members agreed with the findings of their own butter inspector. After these inspections the Committee had a conference with the butter contractors, and fol- lowing this meeting, the communication given below was sent to the Hospitals : November 4, 1909. In re butter on contract. To the State Hospitals : At a meeting of the Committee on Supplies held at this hospital recently, at which time representatives of the firm of Droste and Snyder and the 133 Lawlor Cavanaugh Co. were present, the matter of certificates accompanying butter shipments was taken up and agreed to as follows: That, either certificate from the Mercantile Exchange of New York City, or the Butter and Egg Board of Chicago, showing the goods to be shipped were extras, will be acceptable. But, that if amongst a shipment of butter, even if it carries a certificate from either of the above points, a few tubs are found that are not right, the contractor is to be immediately notified that the goods are being returned and same will be replaced with the proper grade. Attention is also called to the conditions laid down by the Committee at the time of the Stewards' Conference at Rochester in regard to the acceptance or rejection of supplies. (Signed) C. A. Mosheb, Secretary Committee. The contractors acknowledged a small claim against themselves, and took back the butter shipped to Eochester State Hospital and also agreed to pay $100 to defray the expenses of the committee in connection with the inspections. I do not understand, however, that any penalty was exacted for the failure to deliver the proper grade of butter to other institutions than Eochester. I do not know the findings of the butter inspector of the Mer- cantile Exchange made for the committee. His findings for me showed that five tubs out of twelve were below the contract specifi- cations. These twelve tubs were received from four different institu- tions. His report showed clearly that the contract was being broken. One would naturally have expected that the Purchasing Committee would have carried its investigation further in view of the fact that the United States butter inspector had declared that nearly all of the butter delivered was below the specifications of the contract. How can the present situation be corrected, and a similar situa- tion be avoided in the future? Obviously, the first thing to do is to make the present contractors live up to their contracts, or else cancel them. If they be cancelled, then some other means of securing the butter must be adopted. The easiest method would be to reduce the specifications for butter so as to induce a number of reputable firms to bid for the contract. If the institutions are satisfied with butter graded as "firsts," which is a good butter, let that be the specification of the contract. If the requirements of the contract be reduced, there would be less likelihood of difficulty, and yet, it would 134 not obviate entirely just such a condition as has arisen this year. If it seems not wise to have each institution purchase its own supply, one of two or three methods could be adopted which would prob- ably be more satisfactory than the present ]oint contract method. The United States Favy contracts with certain creameries for their total output during certain months in the year, usually. May and June. And, during the process of making this butter, an inspector from the Navy is stationed at each creamery. This is too expensive a process for the State of New York. It could, however, contract with certain creameries for their total output for certain months of the year, without an inspector at the plant. This would probably secure a good grade of butter at a reasonable price. The objection might be raised that the State must accept the lowest bidder. This is true, but the specifications for butter could be so drawn that they would require that the butter furnished be made in creameries under certain conditions. This would restrict the bidding to cream- eries that could fulfill these conditions. In other words, creameries making centralized or processed butter could not compete. In order to procure an expert opinion as to the best methods which the State might adopt to secure a good quality of butter at an econom- ical price, I asked Mr. C. W. Pryhofer, butter inspector, if he would obtain the opinion of Mr. B. D. White, of Washington, in charge of the Bureau of Dairy Manufacture and Investigation in the Depart- ment of Agriculture. The letter received from Mr. White, addressed to Mr. Pryhofer, is as follows: " Your favor of Nov. 13th is received and contents carefully noted. In reply we wish to further comment on the advisability of getting butter direct from the creameries. " The hospital service may iind it to their advantage to only buy butter during the summer months and buy a sufficient quantity to last them for the whole year. Or, in other words, buy butter direct from the creameriei and put it in storage. It seems to me that they could save several thousand dollars a, year and get first class butter. It also seems to us that a. State requiring so much butter for their public institutions should have u, man to look after this and not have much else to attend to. This same man could visit the institutions, see how the butter is being stored by the individual hospitals, and how it is served. This same man could look after milk, cream and cheese and possibly other food products. I do not believe that any institution can make a contract at the present time for so large 135 an amount of butter and get good quality, or, in other words, get valua received. " The concerns who are capable of filling such large contracts are going to try to work off an inferior grade if possible, while, on the other hand, if a man is qualified to go on the market or to the creamery and buy the quality that is suitable, he no doubt could do much better. "Yours respectfully, (Signed) B. D. White, In charge of Dairy Manufacturing Investigations. It will be noted that Mr. White is of the opinion that it is unwise for the State to contract for its butter on term contracts, as it is almost certain to be imposed upon by unscrupulous dealers. The suggestion is that the State either purchase butter through the summer months and store it, itself, or else have an expert buyer pur- chase it in the open market as needed. The opinion of Mr. White is of value, since he is one of the most broadly experienced butter men in the United States. Though some method could be adopted to safeguard the delivery of butter bought under joint contract, yet there still remains to be considered whether it be not advisable to permit each institution to purchase its own supply. That they can probably secure it at a better price than can the Purchasing Committee will be shown later in the report. Quality op Beef Received by the Institutions. — Beef is pur- chased under joint contract by the Purchasing Committees of both the Lunacy Commission and the Fiscal Supervisor's Department. The contracts now in operation began April 1, 1910; that for the Hospitals expires on June 30th; for the Charitable Institutions September 30, 1910. The specifications under which the beef is contracted for are as follows: For the Hospitals. " Beef, full carcass, to be of good quality of steer beef, well fatted and well meated, weighing not less than 500 lbs. or more than 750 lbs. per carcass, with a general average of not less than 600 lbs. per carcass on total delivery on contract. All beef to be free from bruises, and with each carcass one Uver to be furnished without cost. Beef, forequarters, to be of the same quality as specified for full carcass, fore- quarters to weigh not less than 150 lbs. each." For the Charitable Institutions. " Beef, full carcass. All beef to be of good, merchantable quality, of well fatted, native steer beef, weighing not less than six hundred (600) pounds to the carcass, and to be free from bruises. No bulls, stags, cows or oxen accepted. With each carcass there shall be furnished, with- out cost, one liver. 136 Beef, forequarters. All beef to be of good merchantable quality, of well fatted, native steer beef, weighing not less than one hundred and sixty-five (166) pounds; to be free from bruises, and to contain twelve (12) ribs. No bulls, cows or oxen accepted." The contracts were awarded by the Purchasing Committees to the firms indicated below and at the prices noted. For the Hospitals. Utica J. Dold Packing Co $.0992 Willard Swift & Co 095 Hudson River Morris & Co .1039 Middletown Swift & Co 0975 Buffalo J. Dold Packing Co 0952 Binghamton " " .0992 St. Lawrence Armour & Co . 1046 Rochester Swift & Co 0997 Kings Park " " 0992 Long Island " " .0992 Manhattan " " .0992 Central Islip " " 0992 (Prices given are for full carcasses.) For the Charitable Institutions. Albion Swift & Co $.0895 Batavia J. Dold Packing Co .0977 Bath " " 0977 Bedford Armour & Co 0911 Elmira Swift & Co 0846 Hudson r. ..J. Dold Packing Co 1027 Industry Swift & Co 09 Iroquois " " . 095 Newark " " 084 Randall's Armour & Co 0911 Ray Brook " " 0911 Rome G. H. Hammond .099 Sonyea Swift & Co 0795 Syracuse " " 0895 (Prices given are for full carcasses.) The meat is received by all of the Institutions by the quarter and in quantity according to the size of their storage capacity. Some of the Institutions receive it bi-weekly, some weekly, and others tri- weekly. All of the Charitable Institutions secure their meat under the joint-contract; two of the State Hospitals, Utica and Gowanda, buy most of their beef on the hoof. 137 A judgment as to the quality of the meat delivered could not be passed by the ordinary layman, so in order to secure the best opinion possible application was made to the United States Department of Agriculture for the assignment of an inspector, to visit the Insti- tutions and inspect the meat. In response to this request, Mr. Henry Wilkens, Foreman Inspector in the Bureau of Animal In- dustry of the U. S. Department of Agriculture in Kew York City, was given the assignment. Mr. Wilkens is a man of extensive experience in dealing with beef. He was in the meat business a number of years and then entered the U. S. Service as an Inspector, and because of demonstrated efficiency, was promoted to foreman in New York City. I accompanied Mr. Wilkens on his trip of inspection, starting at Kings Park May 16th and making the round of the State during the following week, visiting such institutions as could be reached readily in that period. Later June 3rd we visited the Eastern Re- formatory at Napanoch, N. Y. The report of Mr. Wilkens' findings is as follows: UNITED STATES DEPARTMENT OF AGRICULTURE Bureau op Animal Industry Local Office 104 W. 42nd St., New York N. Y., June 2, 1910. Dr. U. G. Houck, Inspector in Charge. New York, N. Y. Sir:— In compliance with your recent instructions I accompanied Mr. Henry C. Wright, representative of the State Charities Aid Association, to various points in New York state for the purpose of inspecting meat delivered on contract to certain New York state institutions and the sanitary conditions under which the meat is handled. All of the fresh meat in stock and a part of the cured meats on hand at the time of my visit were inspected. The following is a report of my findings: May 16, 1910: Kings Park State Hospital, Kings Park, L. I. Inspected: Thirty-eight fore quarters and 5 hind quarters of beef from *Est. 3-F. 10 smoked hams. Specifications call for: Full carcasses, good quality of steer beef, well fatted and well meated, to weigh not less than 500 lbs. nor more than 750 lbs. per carcass, with a general average of not less than 600 lbs. on total delivery of contract. All beef to be free from bruises. Fore quarters same quality as specified for full carcasses. Fore quarters to weigh not less than 150 lbs. each. * Est. 3-F., etc., is a U. S. Government abbreviation used to indicate the slaughter house at which the beef was butchered. 138 Findings: Beef of fair quality, but not well fatted. Two of the hams examined were found sour. The hams were hanging in the cooler near the ice bunkers, which, no doubt, accounts for the moldy condition. The steward was advised by me that smoked meats should be hung in a dry room to prevent the formation of mold. Sanitation: The hooks in the ice box were found in need of scraping and cleaning. The back wall of the ice-box was of rough brick. It was suggested by me that the wall should be covered with a coating of cement or some other material to prevent the loose mortar from falling on the meats that were laid on racks near the wall. May 16, 1910: Central Islip State Hospital, Central Islip, L. I. Inspected: Thirty hind quarters and 53 fore quarters of beef, all from Est. 3-F. also 6 carcasses of mutton from Est. 3-F. Specifications: Same as for Kings Park. Findings: Beef not well fatted. Sanitation: Benches and blocks had not been thoroughly cleaned after the operations of the day had been completed. May 17, 1910: Long Island State Hospital, Brooklyn, N. Y. Inspected: Quantity of beef cut up; 5 carcasses of mutton; 2 hind quarters of mutton; 10 hams; all were from Est. 3-F. Specifications: Same as for Kings Park. Findings: From the cuts of beef, it would seem that the meat had not come from carcasses that met the specifications in regard to weight. The five mutton carcasses were according to specifications, but the two hind quarters of mutton were sour and unfit for food. I asked the assistant butcher what disposition would be made of the sour mutton, and he said it would be used for stewing purposes, but the steward, who was present, contradicted him, and asked him why he had the mutton in the cooler. The 10 hams were hanging over the brine barrels in a damp cooler and were found in a moldy condition. I advised that a dry room should be provided for hanging smoked meats and explained the reason why. It was learned that supplies of hams were ordered every three months. In this connection it was brought out that as the institution was near the New York market it would be unnecessary to order such a large supply at once and run the risk of loss from deterioration. Sanitation: Brine barrels were found in a dirty condition from long use without cleaning. The dirty condition of the walls, ceiling and floor showed that the coolers had not been recently cleaned. 139 May 17, 1910: Inspected: Specifications : Findings: Manhattan State Hospital, Ward's Island, New York City. Twenty-nine hind and 75 fore quarters of beef, 18 carcasses of veal, 3 carcasses of hogs, 9 carcasses of mutton, 71 smoked hams, 36 pieces of bacon, and 14 beef tongues, all from Est. 3-F. Same as for Kings Park. Beef not well fatted. Two hind quarters and one fore quarter showed bruises. One fore quarter not well meated or fatted. These conditions were called to the attention of the steward, who agreed that the meat should not have been accepted. One quarter (hind) of beef was found sour, a condition different from that of meat which is " aged." The steward's explanation for the presence of this beef in the cooler, was that it was kept for the use of one of the hospital physicians, who ordered it in that condition for his own use. Seven carcasses of veal were found underweight and two over- weight. Two carcasses of hogs were overweight, 169 and 170 lbs., respectively. The smoked hams were found hang- ing over the pickling barrels. The steward, in this instance as in others, was advised that the meats should be hung in a dry room. Sanitation: The cutting bench was in a dirty and unsanitary condition. The cutting blocks were dirty. The pickling barrels were in a dirty condition. House of Refuge, Randall's Island, N. Y. Two small ribs of beef and 2 carcasses of sheep, all of the meat supply found on hand at this institution. Call for beef of good merchantable quality, and of well-fatted native steers. Weight not less than 600 lbs. to the carcass, to be free from bruises. No bulls, stags, cows or oxen to be accepted. Mutton to be of good merchantable quality, well- fatted, to weigh from 45 to 80 lbs. Judging from the small cuts the beef was from carcasses of cows. The steward's record showed that the carcasses were underweight. The beef was of poor quality, not well meated nor fatted. Sanitation: The floors of the cutting room and ice box in need of repair. The general appearance of the cutting room and ice box was dirty and dilapitated. Binghamton State Hospital, Binghamton, N. Y. Seventeen hind quarters and 36 fore quarters of beef from Est. 42. Specifications: Same as for Kings Park. May 17, 1910: Inspected: Specifications: Findings: May 18, 1910: Inspected: 140 Findings: May 18, 1910: Inspected: Specifications : Findings: May 18, 1910: Inspected: Specifications: Findings: May 19, 1910: Inspected: Specifications: Findings: May 19, 1910: Inspected: Specifications: Findings: May 19, 1910: Inspected: Specifications: Beef according to specifications. Average weight, 612 lbs. Sanitation: Condition good. N. Y. State Reformatory, Elmira, N. Y. About 200 lbs. of small cuts of beef, 2 carcasses of mutton, 5 hind quarters of mutton, all from Est. 3-0. Same as for the House of Refuge. Judging from the small cuts, the beef did not meet the speci- fications in quality or weight. The storekeeper stated that carcasses of beef when received were not weighed separately. The mutton was not of good merchantable quality as it was not well fatted. The condition of the mutton indicated that it had been kept in storage for a long time before it was delivered to the institution. Two carcasses of the mutton were found sour and unfit for use. Sanitation: Conditions fair. N. Y. State Soldiers and Sailors Home, Bath, N. Y. Nineteen fore quarters and 19 hind quarters of beef, 14 car- casses of mutton from Est. 42. Same as for the House of Refuge. All of the meat was found to meet the requirements of the specifications. Sanitation: Conditions satisfactory. Craig Colony for Epileptics, Sonyea, N. Y. Nine fore quarters and 7 hind quarters of beef from Est. 3-F. Same as for the House of Refuge. Two fore quarters of beef were from cows, one fore quarter was from a bull, and two hind quarters from cows. The butcher acknowledged that he had been receiving cow beef. Sanitation: Floors, walla and ceiling of the ice-box in need of scrubbing. The cutting bench and the walls and floors of the cutting room not clean. State Agricultural and Industrial School, Industry, N. Y. Five fore quarters and 3 hind quarters of beef from Est. 3-B. 2 fore quarters from Est. 3-F. Same as for the House of Refuge. The meat was found to meet the specifications. Sanitation: With the exception of leaky ice box, the place was found in satisfactory condition. Rochester State Hospital, Rochester, N. Y. Four hind quarters of beef from Est. 3-F., 17 fore quarters of beef from Est. 3-F., 6 carcasses of sheep from Eat. 2-A. Same as for Kings Park. 141 Findings: May 20, 1910: Inspected: Specifications: Findings: May 20, 1910: Inspected: Specifications: Findings: May 21, 1910: Inspected: Specifications: Findings: May 21, 1910: Inspected: Specifications: All of the meat was found to meet the specifications. Sanitation: With the exception of cracks in the meat cutting bench, the conditions were satisfactory. State Custodial Asyliun for Feeble Minded Women, Newark, N. Y. One hip and 1 piece of loin of beef from Est. 3-C. Same as for the House of Refuge. Judging from the small cuts offered for inspection, the beef was from underweight carcasses. When this was called to the attention of the steward, he stated that on account of small cooler room he had been accepting carcasses of beef that weighed less than called for by the specifications. In other respects the beef met the specifications. Sanitation: The bench on which the meats are cut is worn out and should be replaced by a new bench. With this exception, conditions were satisfactory. State School for Feeble Minded Children, Syracuse, N. Y. Three hind quarters and 4 fore quarters of beef from Est. 3-F. Same as for the House of Refuge. None of the beef inspected came up to the specifications in weight. The steward admits that cow beef is received pro- vided that the carcasses are well meated and well fatted. Sanitation: The coolers in which the meats are kept are dirty both outside and in. They are old. At the time the inspec- tion was being made, employees of the institution were white washing the outside of the ice box. Rome State Custodial Asylum, Rome, N. Y. Six hind quarters and 8 fore quarters of beef from Est. 6-A. 2 fore and 2 hind quarters, unmarked. Same as for the House of Refuge. Two fore quarters and 2 hind quarters of cow beef were said to be home raised and home dressed. Sanitation: With the exception of old clothing hanging in the meat coolers, the sanitary conditions were satisfactory. Utica State Hospital, Utica, N. Y. Three fore quarters of steer beef from Est. 42, 17 hind quarters of cow beef (unmarked) and 11 fore quarters of cow beef (unmarked). Same as for Kings Park. ' ' 143 Findings: The steer beef from Est. 42 did not meet the specifications in that it was not well fatted. The cow beef was poor in quality and was said to be from animals slaughtered on the premises. Sanitation: The condition of the ice box was found unsatis- factory because of dirty meat hooks, dirty sawdust on the floor, the presence of old cobwebs, and the leaky condition of the box itself. The walls and ceilings of this box were much in need of scrubbing. The cutting bench and blocks were in a dirty condition. The floor of the killing beds is of stone with wide cracks between. These cracks were filled with decaying blood, grease and dirt. All of the water and refuse must be swept from the floor to the cesspool, no drains or sewers. The general condition cannot be con- sidered sanitary, and there is no inspection of the meat slaughtered at this establishment. June 3, 1910: Eastern New York Reformatory at Napanoch, N. Y. Specifications: Same as for the House of Refuge, providing for native steer beef and excluding cow carcasses. Findings: No fresh meat was on hand at the institution. I examined two pieces of pickled brisket, and judging from the small cuts, it was from cow carcasses. We were then informed that a shipment of meat was at the station ready for delivery. When the meat arrived at the institution we found it to con- sist- of two fore quarters of beef and two carcasses of sheep. The beef was from cows. The sheep carcasses met the speci- fications, except that they could not be considered of good merchantable quality for the purpose intended. Their appearance and condition indicated that they had been hang- ing for a long time. Sanitation: The meat cutting room was found to be in an un- satisfactory condition due to the broken plaster, exposed lath, and dirty meat-cutting bench. The cooler walls, ceiling and floor were in a dirty condition. The condition of both the cutting room and the cooler indicated the need of remodeling. Very respectfully, (Signed) Henry Wilkens, Meat Inspector. Not being able to secure the services of the United States Inspec- tor, I visited the St. Lawrence State Hospital and the Willard State Hospital, without a beef inspector, so had not the advantage of an expert opinion. I had, however, while accompanying Mr. Wilkens, gained a fairly good idea of the points passed upon in his inspec- tion. The specifications for beef for these hospitals is the same as 143 for Kings Park and the beef at both places was about the same grade as found at Kings Park, Central Islip and Manhattan State Hospital; that is, it was well meated but not well fatted. The cooling rooms at St. Lawrence needed overhauling. They were, how- ever, kept in good condition and the cutting room was especially clean and sanitary. The cooling rooms at Willard were better con- structed than at any of the Institutions visited. They are also kept in a clean, sanitary condition. Both of these institutions formerly purchased beef on the hoof and did their own butchering. For the past year however they have been purchasing their beef under the joint contract. In commenting on the above report, the Hospitals and Charitable Institutions will be dealt with separately. Fhesh Meat in Hospitals. — It will be noted by reviewing the findings of Mr. Wilkens that the beef in the Hospitals met the speci- fications at only two Institutions, viz, Bingham ton and Eochester. At both these Institutions the beef was not only well meated but well fatted and none of the carcasses weighed less than 500 lbs. The beef at all the other Hospitals fell short of the specifications in some regards. At Kings Park, Central Islip and Manhattan the carcasses were well meated and, in the main, in good condition but none were well fatted according to the requirements of the specifications. The weights were according to the requirements at Kings Park and Central Islip. At Manhattan seven of the veal carcasses were either under or over weight, and two of the hog car- casses were over weight; two hindquarters and one forequarter of beef should not have been accepted because of bruises. At Long Island State Hospital no uncut carcasses of beef were found but two of the carcasses of mutton had become so sour that they were unfit for food. Mr. Wilkens, in passing judgment that the meat of these four Institutions was not well fatted, does not interpret the specifications as calling for corn-fed cattle but he interprets the specifications as requiring more fat on the carcasses than was found. In his judg- ment these cattle were Western range cattle that were probably taken directly from the range without subsequently being fatted before being killed. At Utica he found three forequarters of steer beef of about the same quality as that found at the above mentioned four hospitals; 144 that is, it was not well fatted. The remainder of the beef consisting of 17 hind and 11 foreqnai-ters, was from cows, and in his judgment not from young cows, and it was a quality of cow beef graded in the market as "poor." It has been the custom of Utiea for a number of years to purchase beef on the hoof. The question as to the economy of purchasing this quality of meat will be considered on a subsequent page. The sanitary conditions at Utica, as was noted, were espe- cially bad. Though the beef found at Kings Park, Central Islip, Long Island and Manhattan Hospitals was acceptable and possibly as good a grade as need be used at the Hospitals, yet it did not fulfill the specifications in that it was not well fatted. That well fatted meat could be delivered for the contract price was shown by the quality found in Binghamton and Rochester. The meat at these two Hos- pitals was well fatted, clearly indicating that it was possible to secure that grade under the specifications and at the price stipulated in the contract. If the grade of meat found at the three hospitals in the vicinity of New York is suitable for the Hospitals' use, then the specifications should be so changed as to define that quality. With lower specifications the Hospitals ought to be able to secure meat at a less price than that now charged by the contractors. It is the opinion of Mr. Wilkens, however, that the grade of meat found at Binghamton and Eochester would prove to be a more economical quality than that found at Kings Park, Central Islip and Man- hattan, not only because "it is more appetizing and palatable but because a meat containing a reasonable amount of fat is more nutritious, and well fatted carcasses cut to better advantage than those deficient in fat. The grade of meat found at Binghamton, which was being delivered at .0993c per lb. and at Rochester for .0997c per lb., was a quality for which butchers are at the present time (June, 1910) paying approximately 12c per lb. It is highly important either that the contractors should be held to their contracts in the delivery of meat according to the specifica- tions or else the specifications should be so changed as to provide for the quality of meat that is actually being delivered to such Hospitals as Kings Park, Central Islip and Manhattan. Feesh Meat in the Charitable Institutions. — A review of Mr. Wilkens' report will reveal the fact that the specifications of the Purchasing Committee of the Fiscal Supervisors' department were met as to beef found in but three Institutions, viz. The 145 Soldiers and Sailors Home at Bath, Industry and Eome. Here the beef was well meated and well fatted and had the appearance of beiQg native steers and weighed not less than 600 lbs. per carcass. At no other Institution was found beef equal to that at Bath. Ran- dalls Island had but a portion of one quarter on hand, of very poor quality and in the judgment of Mr. Wilkens was cow meat. The records of the office also showed that the quarters previously received were under weight. The same quality of meat found at Eandall's Island was also found at the State Reformatory at Elmira. There were no whole quarters on hand but the ribs of beef had every appearance of being cow meat. Two carcasses of mutton were sour and since they had been at the Institution but one day had evidently been received in that condition. An inspection of the records in the steward's office re- vealed the fact that a good portion of the beef previously received was underweight and much of it had been billed in such a manner, by giving the gross weight of several quarters, that it was impossible to ascertain the individual weight of single quarters. It was also discovered that it was the custom of the store-keeper to weigh all the meat on one delivery in bulk and not quarter by quarter. He was making no endeavor to ascertain whether or not the weights of the quarters were fulfilling the requirements of the specifications. At Craig Colony out of about nine foreqnarters two were from cows and one from a bull, and out of seven hindquarters two were from cows. The butchers confirmed the fact that this was not an exceptional proportion, stating that they were accustomed to receive cow beef. Several of the quarters also were under weight. There seems to be little attempt on the part of the steward to hold the contractor to the terms of the specifications of his contract. At Newark the beef did not meet the specifications in that it was under weight. The steward stated that it was impossible for him to reject meat even though it did not meet the specifications inas- much as his cooler space was of such small capacity that he was obliged to retain all the meat that was sent at any one shipment in order to have enough to supply the inmates. At Syracuse though no cows were found, j'et the receiving store- keeper stated that not infrequently they received cows on shipment. All the carcasses there found were under weight and did not meet the specifications as to weU fatted native steers. 146 At Napanoch not only was the fresh beef received while we were at the Institution from cows, but likewise the corned beef, indicating that at least one previous shipment from which the corned beef was made had been cow meat. Generally speaking, the conditions found in Charitable Institu- tions were bad. The beef at but one Institution, viz, Bath, met the specifications in every particular. The meat at Industry and Eome very nearly fulfilled the terms of the specifications and would be considered acceptable meat, under the contract. At all the other Institutions the meat was either under weight or very poor in quality. Considering the fact that the specifications of the Fiscal Supervisor's Department require a much higher grade of meat than the specifications of the Lunacy Commission, the poor quality of meat in the Charitable Institutions reveals a carelessness deserving of severe censure. Lowest Bids Eeceived Under Highest Specifications. — The Purchasing Committee of the two Departments advertised for bids at approximately the same time. The bids of the Charities De- partment were opened on March 7th and those for the Hospitals on March 8th. There were nothing in the market conditions to warrant a contractor bidding on a term contract to submit a different figure on March 8th than upon March 7th. The actual bids sub- mitted on these two days however differ so widely that especial attention should be called to them. In the first place let it be noted that the specifications for the Charitable Institutions provided for native steer beef weighing not less than 600 lbs., whereas the speci- fications for the Hospitals did not call for native beef; they per- mitted also a minimum of 500 lbs. The term native applies to cattle that have been fatted on grain, in contradistinction to range cattle. This class of beef ordinarily sells for about l%c more per lb. than from a critter not native. A contractor having the privilege of supplying beef with a minimum weight of 500 lbs. could afford to furnish such beef about %c per lb. less than for 600 lb. carcasses. In other words, the specifications of the Charitable Institutions pro- vide for beef that in the open market would cost 3c per lb. more than the beef specified by the Hospitals. With this fact in mind note the bids as given below, submitted by the various bidders on March 7th and 8th. In the following table the endeavor has been to place in con- 147 junction with each Hospital the Charitable Institution located nearest to it so that the freight rate to both Institutions would be approxi- mately the same; for instance, Syracuse and Eome are placed in conjunction with Utica; Bath with Willard, Albion with Buffalo, Newark and Industry with Eochester, etc. A key to the abbreviations follows the table. Bids for Furnishing Fresh Beep for the Charitable Institutions and the State Hos- pitals, Submitted on March 7 and 8, 1910. (For key to abbreviations see below.) Armour & Co. Hospitals Charitable Insts. U .1046, Sy .1040 W .1046, Ba .1040, So .1040 HR .1046, Hu .1095 Mi .1046 Bu .1046, Al .1040 Bi .1046, El .1040 StL .1046, Ra .0911 R .1046, N .1040, In .1040 KP .1046 LI .1046 Ma .1046, RI .0911 CI .1046, Be .0911 Morris & Co Schwarzschild & Sulzberger. Hospitals Charitable Insts. Hospitals Charitable Insts. U .1039, Ro .1040, Sy .1073 U .1065, Ro .1027, Sy .1009 Ba .1109, So .1073 W .1045, Ba .1029, So .1024 HR .1039, Hu .1073 HR .1105, Hu .1049 Mi .108 Bu .1027, Al .0895 Bi .1039, El .1073 Bi. .106, El .1038 StL .1047, Ra .1027 N .1073 R .1057, N .1023, In . 1019 KP .1039 KP .1055 LI .1039 LI .1055 Ma .1039, RI .1073 Ma .1055, RI .1019 CI .1039, Be .1073 CI .1055, Be .1039 Swift & Co. Hammond, G. H. & Co. Jacob Dold Packing Co. Hospitals Charitable Insts. Hospitals Charitable Insts. Hospitals Charitable Insts. U Sy .0895 U .1018, Ro .099, Sy .099 U .0992, Ro .0977, Sy .0977 W .095, So .0795 Ba .099 W .0992, Ba .0977, So .0977 HR HR .1052, H .1027 Mi .0975 Mi .1052 Bu .10, Al .0895 Bu .0952, Al .0977 Bi E .0846 Bi .0992, E .0977 StL StL .0992, Ra .1027 R .0997, N .084 In .09 N .099 R .0982, N .0977, In .0977 KP .0992 KP .0981 LI .0992 LI .0981 Ma .0992, RI .095 Ma .0981 CI .0992 CI .0981 Be .0997 Abbreviations used in the above table: Al Albion Hu. Hudson R.I. Randall's Island Ba. Bath In. Industry R. Rochester Be. Bedford K.P. Kings Park Ro. Rome Bi. Binghamton L. I. Long Island St.L. St. Lawrence Bu. Buffalo Ma. Manhattan So. Sonyea C.I. Central Islip Mi. Middletown Sy. Syracuse El. Elmira N. Newark U. Utica H.R. Hudson River Ra. Raybrook W. Willard 148 By reviewing this table in detail it will be noted that with but few exceptions the bids submitted by all of the firms were less for the Charitable Institutions than for the Hospitals. For instance, the freight rate and delivery conditions to Manhattan State Hospital and the House of Eefuge on Randall's Island are the same. Yet Armour & Co. bid .1046 for Manhattan and .0911 for Eandall's Island. Schwarzschild & Sulzberger bid .1055 for Manhattan and .1019 for Randall's Island. It might be supposed that a firm de- livering beef from Buffalo could furnish such beef more cheaply in the City of Buffalo than at Albion about 70 miles distant. But one of the firms bid higher for Albion than for BuffalOj while Swift & Co.'s bid for Buffalo was .10 and for Albion .0895. Schwarzs- child & Sulzberger's bid for Buffalo was .1037 and for Albion .0895. In each case the bid for Albion was more than Ic less than that for Buffalo, whereas, the bid at Albion should have been at least 2c higher than at Buffalo, considering the difference in the speci- fications. The same disparity may be noted in connection with Binghamton and Elmira. Armour & Co. for Binghamton bid .1046 and for Elmira .1040; Schwarzschild & Sulzberger for Binghamton bid .106 and for Elmira .1038 ; for Rochester, Swift & Co. bid .0997 and for Newark, which is about 30 miles from Rochester with prac- tically the same freight rate, .084; and for Industry, approximately the same distance from Rochester, .09; Schwarzschild & Sulzberger for Rochester bid .1057, for Newark, .1033, Industry .1019. Dif- ferences similar to those noted may be traced throughout these bids. An explanation of this fact, which may be advanced by the bidders, is that the contract for the Hospitals ends on June 30th and that for the Charitable Institutions on September 30, and during the summer months they can secure cattle cheaper than previous to June 30th. It is true that some cattle i. e., grass fed cattle, are cheaper during the summer months than in other portions of the year. This reduction in price however does not apply to the native steer which is supposed to be com fed. The quality of beef furnished the Hospitals is cheaper in the summer months, but not so with the quality specified by the Charitable Institutions. How it would be possible for these firms to furnish native steer beef to the Charitable Institutions at a price less than they would furnish Western beef to the Hospitals is difficult to understand. It seems to indicate that the beef firms give little consideration to the provisions of the speci- 149 fications, and deemed it safe to act on the assumption that they would be allowed to deliver a poorer grade of meat than called for by their contracts. As a matter of fact, according to the report of Mr. Wilkens, they delivered a much poorer quality to the Charitable Institutions with their high demands than to the Hospitals with less rigid specifications. Loss TO THE State in Contracting foe a High Grade but Eeceiving a Low Grade of Beef. — The report of Mr. Wilkens has revealed the fact that but few of the Institutions are receiving beef according to the specifications of the contract under which it is purchased. Some of the Charitable Institutions are accepting beef very much below the contract. As noted above, cow beef was found at Sonyea and Napanoch and probably at some other of the institutions. Though these institutions were receiving cow beef the State was paying for a good grade af steer leef. The cow beef which was being accepted by these various Institutions was of a poor grade and would sell in the open market for about 3%c per lb. less than native steer beef, — the grade of meat which they contracted to buy, and the grade which was actually delivered at Bath, In- dustry and Eome. How mueli the State may be considered to be losing by the defective deliveries, can be only approximated inasmuch as we are not certain what proportion of cow beef is received by these various Charitable Institutions. On the basis of the difference of 3I/2C per lb. between the grade of cow beef actually received and the grade of steer beef . contracted for, it is probable that the insti- tutions noted above, were they to continue to receive the quality of beef for the remainder of the contract that they are now receiving, would accept beef worth from $3,000 to $5,000 less than the value of meat contracted for. In this connection it is well to note the character of beef pur- chased by the Utica State Hospital. For a number of years TJtica has been securing her meat by purchasing cows and butchering them at the Institution. The steward of the Institution has felt that this grade of meat was sufficiently good for the inmates and was more economical than the quality of steer beef purchased by the other State Hospitals. To enable me to determine the relative value of this cow meat as compared with steer meat, I secured the fol- lowing data from the steward as to the number of beef critters July-Sept., Oct.-Dec. Jan.-March, 1909 1909 1910 140 hd. 130 hd. 88 hd. 71,462 65,276 41,422 S5,405.00 $4,736.69 $4,051.82 $4,953.80 $3,425.87 $3,430.12 150 butchered by the institution in the year beginning April 1909. The information obtained was as follows : April-June, 1909 Total number of cows. . . . 150 hd. Aggregate weight, net. . . . 67,372 Gross cost $6,359.58 Net cost by sale of by- products $5,360.70 The average cost of this cow beef during the year April, 1909, to March, 1910, was .0704 per lb. This includes the local cost of butchering. And the average weight per carcass was 484 lbs. The bid price of well meated, well fatted steer beef under joint contract for delivery at Utica averaged for the same period .0779. In this average the price at Willard Hospital for the July-December period was included, since no bid for the period was made for furnishing beef to Utica. Utica thus paid for cow beef but %c less per lb. than a good grade of steer beef would have cost under the joint contract. Since cow beef sells in the open market for at least l^c per lb. less than the grade of steer beef contracted for by the Hos- pitals, Utica's cow beef, butchered at the Institution, cost her %c more than it could have been obtained for from the contractor fur- nishing beef to the various Hospitals. Moreover, the light weight of cows makes the meat cost approxi- mately somewhat higher than the heavy carcasses of steers. An experiment was tried by Mr. W. S. Kemington, steward of Eochester State Hospital in April, 1909, to determine the relative proportion of meat and bone in critters of different weights. He took sides from the carcasses of four steers of different weights and cut the meat clean from the bone, then weighed the bone and meat separately. The results of his experiment are tabulated below. It will be noted that all this meat was purchased at .0811c per lb., but the actual net cost of the meat from the critter weighing 820 lbs. was .0972c; from the one weighing 754 lbs. was .0986c; from the one weighing 530 lbs. was .103c and that weighing 510 lbs. was .104c. Thus the cost of the meat from the lightest critter was i^c more than that from the 750 lb. critter. In other words, a 750 lb. carcass is worth, because of the relatively larger proportion of meat upon it, %c per lb. more than the meat from a 500 lb. critter. 151 If this experiment had included the carcasses of cows, which not only weigh on an average less than 500 lbs., but the proportion of bone is greater than in steer carcasses, it is highly probably that it would have shown the difference in the value of cow meat, as compared with steer meat, to be more than %c per lb. April 3, 1909. Side— 410 lbs. @ $0.0811 per lb. = 833.25 Fore Hind 215 lbs. 195 lbs. Bone 42 lbs. 26 lbs. Meat 173 lbs. + 169 lbs. = 342 lbs. @ $.0972 per lb. = $33.25 Side— 377 lbs. @ $0.0811 per lb. = $30.57 Fore Hind 203 lbs. 174 lbs. Bone 41 lbs. 26 lbs. Meat 162 lbs. + 148 lbs. = 310 lbs. @ $0.0986 per lb. = $30.57 Side— 265 lbs. @ $0.0811 per lb. = 821.49 Fore Hind 144 lbs. 121 lbs. Bone 35 lbs. 22 lbs. Meat 109 lbs. + 99 lbs. = 208 lbs. @ $0.1033 per lb. = $21.49 Side— 225 lbs. @ $0.0811 per lb. = $20.68 Fore Hind 136 lbs. 119 lbs. Bone 34 lbs. 22 lbs. Meat 102 lbs. + 97 lbs. = 199 lbs. @ $0.1039 per lb. = $20.68 After taking all the above facts into consideration it will be found that Utica paid for her cow beef at least as much as she would have had to pay for a good grade of steer beef. The loss however cannot be measured in this simple manner. The digestibility and palatability of the meat are large factors in meas- uring its actual value. For instance, when Mr. Wilkens and myself were at the House of Eefuge we passed through the dining room just after lunch had been served and before the plates had been removed from the tables; and on the majority of the plates were 152 good sized pieces of meat which had been left. It must be assumed that either the boys were given more meat than, they cared to eat or else the quality of this meat was such that the boys did not feel inclined to eat it ; for some reason the meat was not accept- able. Meat from old cows is tough and unpalatable and is not a fit article of diet except when properly prepared, either by means of chopping or by cooking a sufScient length of time to disintegrate the meat. It is questionable whether it would be economical for the State to attempt to feed the patients of its Institutions upon cow meat, even though it could be purchased for at leaet 3%c to 4c a pound less than good steer beef. Even though cow beef were sufficiently palatable for the use of the Institutions and more economical than steer beef there would yet arise another consideration which would have to be taken account of. It is estimated that fully 30% of all dairy cows are infected with tuberculosis and a much larger per cent of cows that are sold to butchers are thus infected. In fact, only such cows are sold as are for some reason unsuitable for dairy purposes. The United States inspector in ISTew York City finds that over 50% of the cows shipped to this place for butchering are infected with tuberculosis. Cereals and Dried Fruits. — It seemed desirable to ascertain the qualities of cereals and dried fruits used by the State Institu- tions as compared with standard qualities quoted in the wholesale market, and also as compared with specifications in the contracts under which these supplies were purchased. In order to make such comparison, samples were sent from the various institutions to New York City and there examined by two experts from one of the lead- ing grocery jobbing houses. In making the examination reported below the expert on cereals graded them as " firsts," " seconds," etc. He interpreted the speci- fications of the Purchasing Committees of both the Hospitals and the Charitable Institutions as providing for "first" quality. So when he used in connection with any institution the term "poor first " it indicated that the sample was slightly below the contract specifications. The expert on dried fruits interpreted the specifications of the Purchasing Committees of both the Hospitals and Charitable Insti- tutions as providing for a grade that he termed " choice." 153 The report was as follows : REPORT OF EXAMINATION OF STATE HOSPITAL SUPPLIES BY Two Experts, May 31, 1910 Com meal Com starch Cracked wheat Wheat flake Hominy RoUed oats Barley Farina Tapioca, pearl med . Rice Beans Peas — split. Raisins. . . . Currants . Prunes Apples, evap . Peaches Long Island First First First First First First First First First Domestic First J-M, good A-J, choice J-M, lumpy J-M, choice Choice Standard Rochester First First First First First First First Poor first Foreign and domestic First J-M, rain dam- aged and sugared A-J, 2-crown and 3-crown mixed J-M, sugared A-J, choice Choice J-M, choice A-J, low choice Apr., choice June, choice Middletown *J-M, first First First Poor first First Domestic First Good Choice Choice Com meal, yellow Com starch . . . Cracked wheat Wheat flake . Hominy. . . . Rolled oats. . Barley Binghamton Kings Park Poughkeepsie Central Ishp First First First First First First First First First First First First First First Fu-st First First First First First First First First First First First ♦Abbreviations used indicate the period in which the material was purchased. J-M — January-March . A-J — April-June. J-S — July-September. O-D — October-December. 154 Bingham ton Kings Park Poughkeepsie Central Islip Farina First First First First Tapioca, pearl First First First First med. Rice First First First First Beans Domestic Foreign Foreign Foreign and domestic Peas, split First First First First Raisins Jan-Mch., ♦Ungraded Jan-Mch., May, lumpy ungraded "rejected" first Currants Jan.-Mch., choice Choice Apr.-May-Jn., choice May, lumpy Prunes Jan.-Mch. Jan.-Mch. May, slightly Lightly . choice choice sugared, sugared Apr.-Jn. scabby slightly sugared Apples, evap — Peaches Jan.-Mch. Choice A.-Jn., choice May, choice choice Apr.-Jn., choice REPORT OF EXAMINATION OF STATE CHARITABLE INSTITUTION SUPPLIES BY Two Experts, Mat 31, 1910 Corn meal, yellow . . Com starch Cracked wheat Wheat flake Hominy Rolled oats Barley Farina Tapioca, pearl med. Rice. . , Beans Peas, split Currants . Prunes Apples, evap. Peaches. State Reform, N. Y. Tr. Craig Colony, Bedford School, Hudson Sonyea First First May, first First First May, first First First First First First First Apr., first First First May, first First First May, first First Poor first May, first First First Apr., first First Foreign May, foreign Domestic First First Ungraded (bad) Apr., good Apr.-Jn., un- graded unclean Poor Apr., choice May, choice Choice May, sugared May, sugared May, scaley and powdered Choice size. Apr., choice Below choice poor color May, choice •Ungraded denotes a mixture of grades. 155 Rome State Agri. Syracuse Industry Com meal, yellow Com starch First First First Cracked -wheat First First First Wheat flake First First First Hominy First First First Rolled oats First Poor first First Barley First First First Farina First First First Tapioca, pearl med First Poor first First Rice First First First Beans Foreign Domestic Domestic Peas, split First First First Raisins Apr., unclean Ungraded May, ungraded May, unclean Currants Choice Apr., choice Prunes Lightly sugared Choice Sugared May, choice May, lightly sugared Apples, evap May, low choice Fancy Choice May, fancy cut poor condition Peaches Apparently '08 Ungraded Mch., choice May, choice The specifications called for " domestic beans." The samples from several institutions were found to be " foreign " beans. These insti- tutions were Eome, Bedford, Hudson, Kings Park, Poughkeepsie, and a mixed " foreign " and " domestic " from Central Islip and Eochester. The " foreign " bean is ordinarily 15e to 50c cheaper per bushel than the " domestic," and although it is equal in food value yet it is much more difficult to boil or bake than the " domes- tic " and consequently does not make as digestible food. The ship- ment of raisins from Kings Park had been rejected by the steward; those from Central Islip were "lumpy;" from Rome they were "unclean;" from Industry were a mixture of grades, as also from Syracuse, Bedford and Craig Colony. The currants from Bedford were "poor," and from Central Islip "lumpy," as also from Long Island. Prunes were in most cases good. Those from Poughkeepsie were " scabby." The evaporated apples were in many cases poor, as for instance, from Eome they were not the current crop but pro- duced the year previous. Those from Industry were a mixture of grades which did not fill the specifications. Those from Bedford were 156 small and of bad color; from Sonyea they did not meet the speci- fications ; and those from the hospitals were according to the contract. Generally speaking, the cereals were of first class quality and met the specifications, but the dried fruits were uneven and in quite a percentage of cases should not have been accepted. Analysis of General Food Stuffs and Supplies. Hospitals. — Samples of supplies which are most likely to be adulterated, or to deteriorate or otherwise to fall below the standard of purity have been sent from various Institutions. These sam- ples were labelled with an index number and sent to the Lederle Laboratories, 39 West 38th St., New York City, where the chemists were instructed to make chemical examinations to determine the elements most likely to be used as adulterants; or deleterious elements that were most likely to be found in excess quantity; or desirable elements that are otten found deficient in food stuflEs. Of samples received from the Hospitals twenty-eight analyses have been made and official reports made thereon by the Lederle Laboratories. The findings were as follows : The following articles were found to be practically pure, according to the standard set by the U. S. Government: Chocolate and Cocoa, from Middletown and Kings Park. Cream of Tartar and Black Pepper, from Rochester. Cinnamon, from Rochester and Middletown. Turpentine and Linseed Oil, from Rochester. The following articles were found deficient in some regards : Concentrated milk. — Concentrated Milk, or what is known com- mercially as White Cross Milk, is used by four Hospitals, namely, Manhattan, Long Island, Kings Park and Central Islip. It is pur- chased by Mr. P. A. Wheeler, purchasing steward for these four Hospitals, in lieu of dairy milk. Arrangements were entered into for the purchase of this milk in the following manner : In June, 1909, proposals for condensed milk were issued on which bids were to be received returnable on or before June 16, for supply- ing the four above mentioned Hospitals with milk for a period of one year beginning July 1, 1909. This proposal specified that such milk should contain not less than 12 per cent of butter fat, with other con- 157 stituents in their natural proportion. The quantity to be delivered was as follows: Manhattan Hospital 360 quarts per day, more or less Long Island Hospital 40 " " Kings Park Hospital 300 " " Central Islip Hospital 600 " " The bids received under this proposal were as follows : Man. C. I. K. P. L. I. White Cross MUk Co 2085 .2275 .2275 .2085 Mutual Milk & Cream Co 1574 .1724 .1724 .1584 Empire State Dairy Co 16175 . 17075 . 17075 . 15675 McDermott Bunger Co 1548 . 1698 . 1698 . 1598 Beakes Dairy Co 16 .1725 .1725 .16 The average bid of each of these firms pro rated according to the amount to be furnished each Hospital was as follows: White Cross Milk Co 2217 Mutual Milk & Cream Co . 16781 Empire State Dairy Co 16782 McDermott Bunger Co . 1653 Beakes Dairy Co 16865 Pour of these bidders bid upon milk to contain 13 per cent butter fat, the fifth bidder, namely, the White Cross Milk Company, bid upon milk to contain some percentage higher than 12 per cent. Their mUk, which they were presumed to furnish under this bid, is described in the following letter : "Our concentrated White Cross Milk contains 16% of butter fat, and wiU on dilution with three parts of water show 4% of butter fat, and the proper proportion of non-fatty solids for normal milk, — consequently we call your attention to the fact that our White Cross Milk is subject to a dilution of one part more of water than the condensed milk of other bidders, or a bid of .18 per quart for ordinary condensed milk is the same as .24 per quart of White Cross Milk." ******* "White Cross Milk can be used either as concentrated milk (or condensed), or with three parts of water added, it is the same as normal milk with the advan- tage which we guarantee, of being entirely free from Tuberculosis Bacilli, Typhoid Fever Bacilli, and all pathogenic germs, and free from all stable dirt and odors." It will be noted that the White Cross Milk Company agreed to furnish a condensed milk containing 16 per cent, butter fat for th« average rate of .2217 per quart, whereas the lowest of the other four 158 bidders agreed to furnish nulk containing 13 per cent butter fat at an average rate of .1653. Inasmuch as these bids were not upon the same basis, four offering to furnish milk containing 13 per cent butter fat, and one offering to furnish milk containing 16 per cent butter fat, all bids were rejected, and the Commission verbally authorized the purchasing steward to make an arrangement with the White Cross Company to furnish milk at the price named in its bid for an experimental period of three months beginning July 1, 1909. This authorization was made as stated by the purchasing steward on the supposition that milk containing 4 per cent of butter fat produced from the White Cross milk would be cheaper than 4 per cent milk produced from the condensed milk furnished by the lowest of the other four bidders. This assumption, that the White Cross bid was the lowest, was not well founded as is evidenced by the following computation: The White Cross Milk Company guaranteed that their milk should contain 16 per cent butter fat in a concentrated form, and 4 per cent when diluted with three parts of water. The Company made a mis- take in its guarantee in that if the original concentrated milk were to contain 16 per cent butter fat, the dilution would contain some- thing over 4 per cent. If, on the contrary, the concentrated milk when diluted with three parts of water really contained but 4 per cent butter fat, the original concentrated milk would have contained only about 14.68 per cent butter fat. Since both elements of the guarantee can not be true, it may be fairly assumed that what the contractor meant to guarantee was that his concentrated milk would produce a 4 per cent mixture when reduced with three parts of water by volume. Assuming this to have been the meaning intended to have been conveyed by the contractor, and also the interpretation put upon it by the Lunacy Commission, the relation of the bid made by the White Cross Company to the lowest of the four bidders for condensed milk, would be as follows : Milk as delivered is in 40 quart cans. With each can the Hos- pitals under the formula of the contractor would mix 120 quarts of water, making a total mixture of 160 quarts, guaranteed by the contractor to contain 4 per cent butter fat. A 40 quart can of 12 per cent condensed milk weighs 90.68 pounds, in this is 10.88 pounds of butter fat. This amount of butter fat 159 when reduced to a 4 per cent dilution, would produce a mixture weighing 273 pounds; that is, there could be added to the original can of condensed milk, 181.33 pounds of water. Since water weighs 2.0843 pounds per quart, this equals 87 quarts of water. If to this be added the original 40 quarts of condensed milk, the mixture would contain 127 quarts. In brief, one 40 quart can of concentrated milk would produce 160 quarts of 4 per cent milk, whereas the same amount of 12 per cent condensed milk would produce but 137 quarts of 4 per cent milk. The average bid of the McDermott Com- pany was .1653. To ascertain what the White Cross Company should have bid to have made their bid equal to that of the McDermott Company, the following proportion may be used: 137 : 160 :: .1653 : x In this case x equals .2083. The average bid of the White Cross Company was .2317. This was .0134 higher than the McDermott bid. In other words, 160 quarts of 4 per cent milk produced from the White Cross Concentrated milk, would cost $8,868; whereas an equal number of quarts produced from the 13 per cent condensed milk bid on by the McDermott Company, would have cost $8.33. On this showing it is difficult to see on what basis the Commission felt justified in throwing out all bids and making an arrangement with the White Cross Company which was not the lowest bidder. At the time the proposals were issued soliciting bids on condensed milk, another proposal was also issued for dairy milk, asking for bids for furnishing to the four above mentioned Hospitals an aggre- gate of 648,000 quarts during a period of one year, beginning July 1. The specifications provided that this milk should contain not less than 3.5 per cent of butter fat. In answer to this pro- posal the same firms bid as were represented in the bids for con- densed milk. In this case, also, the McDermott Company was the lowest, with a bid which aggregated for the total amount to be fur- nished, $39,543.10. The bid of the White Cross Company was $29,645.30. The McDermott Company were the lowest bidders. Al- though the bids for the dairy milk were regular and on a uniform basis, nevertheless they were thrown out with the bids for condensed milk. Under the authority of the Commission, the purchasing steward, after having thrown out all bids for condensed milk, entered into 160 an agreement with the White Cross Milk Co., a copy of which agreement is as follows: Agreement, made and entered into this 23rd day of June, 1909 between the State Commission in Lunacy, Albany, N. Y., by its representative F. A. Wheeler, Purchasing Steward, for the Manhattan State Hospital, Ward's Island, New York, Central Islip State Hospital, Central Islip, New York, Kings Park State Hospital, Kings Park, New York, Long Island State Hospital, Clarkson St. & Albany Ave., Brooklyn, N. Y., and the New York White Cross Milk Co., 115 Broadway, New York, for supply- ing the institutions as named herein with a specified quantity of concentrated milk for a period of three months from July Ist, 1909, with the understanding that the State Commission in Lunacy by its representative F. A. Wheeler, Purchasing Steward, reserves the right to cancel this agreement at any time during the period mentioned herein, for such supply, if found desirable after having carefully and thoroughly tested the product at the institutions named herein. It is further understood and agreed that should the product prove satisfactory after the test of the period named herein, that if so desired all the conditions of this agreement may be kept in force for the three quarterly periods following the one named herein and ending June 30, 1910, with all the rights of cancella- tion retained in this longer period as are set forth in the paragraph covering the first period of deHvery. It is further understood and agreed that this agreement is based upon the following conditions covering deUvery, containers, quahty, quantity, price, guarantee, penalty and payments, as embodied herein; and also all of the con- ditions, guarantees and statements contained in the letter of the company addressed to the representative of the State Commission in Lunacy, F. A. Wheeler, Purchasing Steward, under date of June 23, 1909, together with the price quoted for White Cross Concentrated Milk with 16% of butter fats, at these various i nstitutions — Conditions op Delivery: For Manhattan State Hospital, F.O.B., dock 116th St. & East River, on or before 7 o'clock on each^moming of the week, except Sundays, double delivery Saturdays. For Central Islip State Hospital, by Long Island Express on each morning of the week, except Sundays; double deliveries on Saturdays. For Kings Park State Hospital, by Long Island Express on each morning of the week, except Sundays; double deliveries on Saturdays. For Long Island State Hospital, delivered to hospital on each morning of the week except Sundays; double deliveries on Saturdays. Containers: All to be 20 or 40 quart cans on which jackets are to be suppUed during the entire contract, on each shipment at all points. All cans to be of well- tinned metal and perfectly cleansed and sanitary in every particular and sealed at points of filling. All cans returnable at various points of delivery, at your expense. 161 Quality: White Cross Concentrated Milk. Quantity: Manhattan State Hospital, 590 qts. per day more or less. Central Islip State Hospital, 479 qts. per day more or less. Kings Park State Hospital, 364 qts. per day more or less. Long Island State Hospital, 102 qts. per day more or less. Price: The price must include all carrying charges to points specified for delivery and must be net price per quart. Guarantee : A certified check or a surety company's bond, issued by an authorized com- pany doing business in the State of New York, will be required to amount of 25% of agreement, covering the faithful performance of the agreement in every respect as to condition, delivery, quality, etc. Penalty: It must also be understood that in the acceptance of this agreement the com- pany will be required to pay for any and all analyses that are found contrary to requirements of specifications, and that any attempt to deliver milk below the standard of specifications, when found by analyses to indicate this being the purpose of the company, the agreement will be cancelled and the company held responsible for any loss sustained under conditions of the bond. Payments: Payments will be made on the monthly delivery, on the regular voucher supplied by the office of the Purchasing Steward, as covered by the official order. It is further understood and agreed that it shall be optional with the hospital to request a delivery of raw or fluid milk as per prices quoted in letter attached of N. Y. White Cross Milk Co. under date of June 23rd, up to the full amount of fluid milk, as specified. It is further understood and agreed that the term " more or less " shall entitle the hospital to raise or diminish its daily quantity as required during the life of the agreement and that in this quantity it is also agreed by the New York White Cross Milk Co. that the total consumption of milk as originally required on past specification shall take an absolute reduction of 25% on its original quantities, furnishing to the institutions the required percentage of butter fats in accordance with previous supply. 162 It is further imderstood and agreed that the prices as set forth in proposal of June 23rd relative to the prices of \Miite Cross Milk in concentrated form with 16% butter fats, shall rule where each hospital uses the entire milk supply of this product, which are as follows: Manhattan State Hospital $.2025 per qt. Central Islip State Hospital 2125 " Kings Park State Hospital 2125 " Long Island State Hospital 2025 " It is further understood that if the hospitals shall substitute any portion for fluid milk, the price shall be as follows: Manhattan State Hospital S.0449 per qt. Central Islip State Hospital 0579 " Kings Park State Hospital 0579 " Long Island State Hospital 0464 " It is also agreed that should any one of the hospitals decide to divide its supply between the concentrated and fluid, the price of the concentrated milk will then be as follows: Manhattan State Hospital $.2085l)erqt. Central Islip State Hospital 2275 " Kings Park State Hospital 2275 " Long Island State Hospital 2085 " Though this doctiment is called an agreement, it has the main characteristics of a contract and is in a legal sense a contract. It will be noted that it departs materially from the provisions inserted in the proposals under which the original bids were received. The number of quarts to be furnished to the different hospitals daily was changed and minimum and maximum prices were inserted in place of the flat rate provided for in the original proposal. There is some question as to the propriety of throwing out the bids of five bidders made under open competition and then subsequently making a private contract with one of these bidders at a price less than he had submitted in competition with the other bidders. This contract provides that if the hospitals take the full amount stipulated daily the price shall be for the two hospitals in New York City .2025 per quart, and the Kiugs Park and Central Islip hospitals .212-5. If, however, any one of these hospitals fails to take the full amount indicated daily then the maximimi price provided for in the contract shall be charged. This maximum price for the Manhattan and the Long Island hospitals is .2085 per quart. And for Kings Park and Central Islip .2275. Here it wiU be noted that Manhattan and Long Island hospitals are required to pay but an advance of .006c per quart provided they fail to take the full 163 amount specified, while Kings Park and Central Islip are required to pay an advance of .015e per quart under like circumstances. Inasmuch as it must be assumed that the contractor has provided for the difference in the cost of express between the New York City hospitals and those on the island in his minimum bid, it is difficult to understand why the increase in price, due to purchasing a less amount than contracted for, should not be applied equally to the four hospitals. Whatever reason there may have been in the mind of the con- tractor for this difference, its practical operation was to penalize the Kings Park and Central Islip Hospitals in case they should conclude to discontinue the use of a portion of the concentrated milk and substitute therefor dairy milk. This contract also provides for fluid milk at the following prices: Manhattan $ .0449 Central Islip 0579 Kings Park 0579 Long Island 0464 Under competitive bidding the McDermott Co. agreed to furnish dairy milk at the following prices : Manhattan $.0448 Central Islip 0572 Kings Park 0572 Long Island 0471 It will be noted by comparing these prices that the McDermott bid was lower for three hospitals than the Wliite Cross bid. Though this contract does not bind the Hospitals to take this dairy milk in case they conclude to use any dairy milk as a substitute, nevertheless the dairy milk of the White Cross Milk Co. has been purchased and furnished to two hospitals that did not order the full amount of concentrated milk provided for in the contract. The result is that such dairy milk as is being used by Kings Park is costing more than it would have cost had it been purchased from the lowest bidder. According to the foregoing contract the purchasing steward entered into an agreement for an experimental period covering three months. If the showing should be satisfactory within this period the Commission would consider the advisability of con- tinuing it for the remaining nine months. After the expiration of 164 the three months the arrangement was renewed, and it would naturally be assumed that the contract had been found advantageous during the experimental period. The facts, however, are as follows: On date of March 3, I sent to the purchasing steward the fol- lowing letter: "I presume the circumstances that warranted the letting of the contract to other than the lowest bidder prompted considerable discussion at the time in the Lunacy Conmiission, and also during the test period, and when presented, received considerable discussion before arrangements were continued for another period. I have accordingly asked the Commission for a, record of such dis- cussions and findings." "I should be very glad, also, if you could send me a copy of such analyses of the concentrated milk as you have, made during the experimental period, and on which you based your recommendation for the continuance of the arrange- ment for a longer period." I ' It will be noted that I asked for a copy of such analyses as had been made during the experimental period, and upon which the judgment was based for continuing the arrangement for a longer period. In reply to this request the purchasing steward sent me the following analyses as being those on which the Judgment was based as to the wisdom of extending the arrangement for a longer period. Analyses of concentrated milk made at Kings Park. Milk diluted 312% per cent, showed as follows : Aug. 11 Aug. 23 Sept. 7 Sept. 16 Analyses of concentrated milk made at Manhattan State Hospital : Total solids. Butter fats. Water. Aug. 6 48.66J% 15.97% 51.33j% Aug. 18 50.00% 15.40% 50.00% Aug. 25 47.00% 16.00% 53.00% Sept. 11 44.50% 16.00% 55.50% Sept. 24 49,66J% 16.00% 50.33J% Sept. 2 44.66J% 16.00% 55.33i% Total solids. Butter fats. 12.20% 3.50% 12.45% 3.50% 12.30% 3.50% 12.15% 3.50% 165 In a subsequent letter, date of March 14, there were included two more analyses made by the Lederle Laboratories, which fell within this experimental period. They were as follows: Total solids. Butter fats. "Water. July 6 46.04% 12.88% 53.96% July 12 44.00% 14.04% 56.00% These are apparently all the analyses which formed the basis for judging the advisability of continuing the purchase of concentrated milk. It will be noted that all of the analyses from Kings Park showed the diluted milk to contain but 3.5 per cent of butter fat. This is on a basis of 312.5 per cent dilution. Of the two analyses made by the Lederle Laboratories, one showed 14.04 per cent, and the other 12.88 per cent of butter fat. These are apparently the only analyses on record during that period aside from those made by the purchasing steward. All of his show approximately 16 per cent butter fat. To ascertain, as far as possible, the reliability of the tests made at Kings Park, I had tested at Cornell University, the Lederle Laboratories, and also at Kings Park a portion of the same sample of milk on three difEerent dates. The results of these tests are as follows : Lederle Cornell Kings Laboratories. University. Park. March 10, Jat 13.14% 13.5% 13.3% March 14,'" 14.5% 14.00% 13.8% March 23, " 14.39% 14.00% 14.3% Here it will be noted that the tests made by Kings Park show practically the same per cent of butter fat as shown by the Lederle Laboratories and Cornell University. It is fair to assume, therefore, that the methods used at Kings Park secure a reasonable degree of accuracy. And when they reported during the experimental period that the diluted milk contained but 3.5 per cent of butter fat, their analyses were probably true statements as to the butter fat content of the milk. Many other analyses have been made of this milk, and approximately all show a butter fat content of between 12 per cent and 14 per cent; a few have exceeded 14 per cent by a small fraction. 166 The purchasing steward had at hand when he renewed the arrange- ment with the White Cross MUk Company about October 1, th« analyses made at Kings Park and those at the Lederle Laboratories, and we must assume that he concluded that the concentrated milk when diluted with 312.5 per cent of water, contained but 3.5 per cent of butter fat. He also had in his records analyses of condensed milk furnished under a previous contract, which showed that the milk on delivery actually tested 12.27 per cent butter fat. So that in figuring the concentrated milk that had been delivered in the three months' trial period against condensed milk, it was reasonable for him to have assumed that under the contract for condensed milk, he would with considerable certainty receive a milk contaiaiag not less than 12 per cent of butter fat. His figures should have shown the following results: One 40 quart can of concentrated milk when diluted with 312.5 per cent of water, produces 165 quarts of milk with 3.5 per cent of butter fat. The number of quarts of the same quality of milk that a 40 quart can of condensed milk would produce, may be ascertained in the following manner. A quart of condensed milk containing 12 per cent of butter fat weighs 2.267 pounds. A 40 quart can weighs 90.68 pounds. This amount of milk would contain 10.88 pounds of butter fat. This weight of butter fat when diluted with water to a 3.5 per cent mixture, will form a fluid milk which weighs 310.9 pounds. Of this amount 220.2 pounds will be water and 90.68 pounds will be the original 40 quarts of condensed milk. In this weight of water there are 105.6 quarts, figuring a quart as weighing 2.0843 pounds. To the water should now be added 40 quarts of the original milk, making in all 145.6 quarts of milk which contains 3.5 per cent of butter fat. The value of this milk as compared with the concen- trated milk, may be obtained by the following proportion : 145.6 : 165 : : 1634 : x X in this case is .1852. In other words, the White Cross Company should have furnished its milk at .1855 per quart in order to equal the bid by the McDermott Company, which on the basis of the revised daily quantities would have been .1634. The White Cross Company was at that time, and still is, getting .308 per quart for its milk from these Hospitals. In other words, it is being paid .0228 per 167 quart more than the milk could have been secured for from the McDermott Company, according to the showing made during the experimental period. In furnishing the 560,275 quarts of milt pro- vided for in the contract, the White Cross Company will receive $2,790.73 more than the McDermott Company would have received for furnishing 634,927 quarts of condensed milk, these relative quan- tities of concentrated and condensed milk producing the same quan- tity of 3.5 per cent fluid milk. Although this milk was costing the State more than it could have been purchased for from other parties, and although the purchasing steward was cognizant of the fact that the tests of the concentrated milk were not showing 16 per cent butter fat called for in the contract, yet he continued to pay the higher price for the milk. His explana- tion of this fact was that the tests which had been made in labora- tories other than his own, had been made by weight rather than by volume, and in his letter to me on date of March 11, 1910, he says : " * * * the concentrated milk will show a deficiency in fat in the Babcock test on the weight method, but not on the volume method, which as I imderstand it is the true process, and so admitted by several of the chemists who have heretofore fallen down on this point." I asked the purchasing steward to send me copies of any written expression of opinion from chemists stating that the volume test was the proper test. In reply to this request, he forwarded to me the following letters: Lederle Laboratories, 39 West 38th Street, New York City, C. H. Campbell, Esq., July 15, 1909. 115 Broadway, City. Dear Sir: "Referring to the conversation had in this office regarding butter fat tests made on samples of milk delivered by you, we wish to say that all the reports made by our laboratories give the amount of butter fat present in concentrated milk in terms of weight percentage. A weight percentage in a concentrated milk can not be calculated back to a percentage in the diluted milk by a simple arithmetical proportion; allowance must be made for the difference in specific gravity between the concentrated milk and the water used for dilution. As an example, if a 4% milk is concentrated in the proportion of 4 to 1 by volume, the resulting product will not contain 16% by weight of fat but something 168 less than that, more nearly 14%. Conversely, if a concentrated milk containing slightly more than 14% butter fat by weight, is diluted with three volumes of water, a fluid milk will be obtained containing 4% by weight of fat." "You will undoubtedly find that the apparent discrepancies in the results are due to a misunderstanding as to the meaning of the figures." Very truly yours, Lederle Laboratories, (Signed) J. A. Deghuee, Ph.D. New York State College of Agriculture, Cornell University, Ithaca, New York. Mr. C. H. Campbell, White Cross Milk Company, 115 Broadway, New York City. Dear Sir: "I owe you an apologv for not sending you these reports yesterday. You already know that our Farmers' week is in session, and we are doubly busy all of the time. You will please find enclosed the report of the various tests which you sent." "All of these tests were made by the Babcock method. The lactometer read- ings were taken with the Quevenne lactometer and converted to the Board of Health readings. This would make no appreciable difference from your resxilts so far as the kind of lactometer used is concerned. Some of the marks on those tags we did not fully understand, but we presume they are intelligible to you, but we have reported them to the best of ovu abiUty. If there is anything about them which you do not understand kindly let us know, and we will try to straighten the matter out." Very truly yours, (Signed) H. F. Rosi. Ithaca, N. Y., Feb. 11, 1910. C. G. Campbell, Esq., 115 Broadway, New York. Dear Sir: "I have seen Prof. Ross and straightened out the matter of the tests. I think by this time you have received his report. The tests are all right and the dis- crepancy is due, so far as there is one, to the use of weights and volumes. The following statements I think make the matter clear." " In testing the concentrated product he uses weight instead of volume. I think at your factory they simply measure out the concentrated product into a Babcock cream bottle. The result of the difference in method is that he gets a smaller percentage than you do. As a further result, if you wish to reduce his figure 14% to the percentage which it would be reduced, the number 14 should be divided by a number less than 4. He said he had not calculated it out exactly, but agreed that it would be about 3.7. This would give the result which would be about 4%." 169 "He also made the test by diluting the concentrated product with three parts of water, by volume. In these tests he agreed closely with the results that you obtained, and that I obtained also. I looked over his figures and compared them with yours and with mine, so far as I could from memory. In some cases he obtained one or two tenths of a per cent more. This is, however, exactly the kind of a result that would always be obtained by two different persons making the determination upon the same sample of milk by the Bab- cock method. That method is not absolutely accurate, and two persons will be sure to vary a httle in results. The difference he says, is not more than he would look for. You will note that his figures upon the diluted samples average 4%, just as yours do, and just as mine do. A few of them dropped to 3.8 and some went to 4.3%." "In short, to get the percentage of your diluted product, divide his figure for the concentrated, by 3.7, and bear in mind that two persons' determination by the Babcock, are likely to differ as much as two-tenths of a per cent, and you will find that his results agree with yours." "I hope that this explanation will make the matter clear and satisfactory." Very truly yours, (Signed) H. W. Conn. Note. — Though the above letter is headed Ithaca, N. Y., Prof. H. W. Conn is from Middletown, Connecticut. It will be noted that these three letters, forwarded by the pur- chasing steward, were all addressed to Mr. C. H. Campbell, Presi- dent of the White Cross Milk Company. A careful reading of these letters will not show that there was an admission on the part of any of the writers, that the volume method is the proper method of testing milk. In order to verify the opinion of the Lederle Labora- tories expressed in the above letter, I addressed a communication to them asking whether they had at any time expressed an opinion that milk should be tested by volume. Their reply was as follows: "Since the receipt of your letter of December 9, we have found in our filei a letter written to Mr. C. H. Campbell, of the White Cross Milk Company, which may possibly be the letter to which you refer. We have not been able to find any letter written to Mr. Wheeler regarding the question of fat percentages in concentrated milk, and can not understand to what he refers when saying that we certified to him, by letter, that we had been in error in a previous analy- ■ sis. The writer recollects very distinctly having tested some concentrated milk purporting to contain 16% of fat and which, on analysis, showed consider- ably less than this. An interview was also had at that time, with a representative of the White Cross Milk Company. At that interview, the representative of the company pointed out that they did not claim 16% of fat in their concentrated milk, but only that their milk, if diluted with three parts of water by volume, would show 4% of fat after this dilution." 170 "We pointed out that the particular sample of milk submitted to us which we had tested and reported as containing less than 16% of fat, would comply with the conditions of the dilution test. This was by no means an acknowledg- ment of error on our part, and the statement is as true now as it was then." "Mr. Wheeler is in error when he says that a volume test has to be used in the analysis of a concentrated milk containing large percentages of fat. A volume test is never used in the analysis of milk. If the Manhattan State Hospital has a Babcock Steam Driving Tester, the results obtained by means of this method, are weight percentages, not volume percentages. A milk which eon- tains 4% of fat, contains 4% of fat by weight and not 4% of fat by volume, and a milk guaranteed to contain 16% of fat should contain 16% of fat by weight, and is never spoken of as 16% by volume. Also a milk whether concentrated, condensed or fluid, which is guaranteed to contain 16% of fat, should contain what the guarantee calls for and this, under no conditions, means a milk which when diluted with three volumes of water, contains 4% of fat. If the latter guarantee is meant, it should be so stated, for the 4% guarantee after dilution is a lower standard than the 16% guarantee. We will add that the last sample of concentrated milk delivered by you for test, complied neither with the 16% guarantee on the concentrated milk, nor with the 4% guarantee after dilution." Lederle Laboratories, (Signed) Joseph A. Deghuee. The opinion as expressed by the Lederle Laboratories is further confirmed by C. W. Fryhofer, Butter Inspector of the TJ. S. Depart- ment of Agriculture, in a letter addressed to me under date of December 11, 1909, which reads in part as follows: "In making a butter fat test of concentrated or condensed milk, on account of its viscosity and its similarity to cream, it must be treated the same as cream, and the test made by weight." Also by Prof. Van Slyck, of the Agricultural Experimental Sta- tion, Geneva, K. Y., in a letter to Kings Park under date of December 11, which read in part, as follows : "All materials except normal milk, should be weighed for testing. Also, by letter from Prof. W. A. Stocking, Jr., Cornell University, under date of December 27, 1909, as follows: "There can be little question regarding the best method for testing a material of the consistency of condensed or evaporated milk. It is practically impossible to measure such material accurately with a pipette, and if the exact per cent of butter fat it contains is to be determined, samples should be weighed." The opinions of these experts clearly indicate that condensed milk should be tested only by weight. 171 In the face of these opinions and supported by no opinion from any expert, as far as such opinion has been transmitted to me, the purchasing steward has persisted in the statement and belief that this milk should be tested by volume instead of weight. The volume test seems to indicate the presence of more butter fat than the weight test. It will be noted that the figures presented on the preceding pages showing that the contract was not let to the lowest bidder, were on a basis that did not involve the question of testing the amount of butter fat in the concentrated milk, but the tests were made only after such mUk had been diluted with the prescribed amount of water. No question is raised here as to the satisfactoriness or unsatis- factoriness of this mUk. The only question under discussion is whether the State has been receiving the benefit of the lowest bid for the supply of mUk to these four Hospitals. Note. — ^The above material on condensed milk was written in March. The contract is not now (June, 1910) in force. CINNAMON. — Cinnamon was examined from Kings Park and Bing- hamton. The results were as follows: Kings Pakk Total ash 6.33% Ash insoluble in acid (sand) 2 . 59% Volatile ether extract . 74% Non-volatile ether extract 1 . 97% "Sample contains an excessive amount of ash and sand. This is not 'pure' cinnamon." BiNGHAMTON. Total ash 4.50% Volatile ether extract 1-55% Non-volatile ether extract 1 .66% Ash insoluble in acid (sand) 2 . 30% Moisture 8.01% "Sample contains an excessive amount of ash insoluble in acid. This is not 'pure' cinnamon." It will be noted by the above that neither of these samples was pure cinnamon. Both had an excess of sand, and the sample from Kings Park had an excess of ash. The U. S. (government Pure Food Law provides that ground cinna- mon should not contain more than 6 per cent of ash nor more than 2 per cent of sand. Sand is permitted in cinnamon by the U. S. Gov- 173 ernment because it is found that during the process of growth, sand so incorporates itself in the fibre of the bark that it is impossible by any process of washing to entirely free the bark from it. It is con- sidered, however, perfectly practicable to reduce it to 2 per cent. The above cinnamon was not sufficiently scoured and cleaned before grinding and one of the samples, — that from Kings Park, was not sufficiently sifted to take out the excess bark. All of the spices furnished the Hospitals are purchased and pre- pared at the Utica State Hospital, so are not under contract, nor are specifications provided for them. MOLASSES AND SYEUP. — Samples of molasses and syrup were received from Koehester and analyzed as follows : Molasses. Water 25.47% Ash 4.39% The United States Government Pure Pood Law requirement for molasses is that it shall not contain more than 35 per cent of water, or 5 per cent of ash. The above sample is somewhat high in water, but falls within the specification for ash. It is understood, of course, that the United States Government specifications give maximum or minimum elements which are permissible. The attempt is not to define a good article, but the worst that the government will accept. The Purchasing Committee for the Hospitals specifies for molasses, — " Pure Porto Eico," but does not specify the amount of water or ash ; so the only definition on which we can rely for description of pure molasses is that of the United States Government. The specifications of the Purchasing Committee of the Hospitals for syrup are as follows : " Syrup, mixed as per standard sample, in body, color and sweetness." The specification does not require that syrup shall contain any definite proportion of cane sugar, but leaves it to the committee to select a suitable quality of syrup. In accord- ance with this specification they selected a certain sample submitted by a contractor, and on the basis of this sample contracts were made. A portion of this original sample was sent by the Purchasing Committee 1^3 to Kings Park State Hospital. On analysis at the Lederle Labor- atories it showed the following content: Syrup. Moisture 35.71% Cane sugar 24.74% Ash 3.82% Glucose 25.89% (In terms of glucose polarizing +175°) Polarization N. W. 200 m.m S & H. +70.05° A sample of syrup received from Eochester, which was delivered under the contract, analyzed as follows : Water 34. 16% Ash 3.06% Cane sugar 21 . 53% Glucose 41.87% (In terms of glucose polarizing +175:V) It will be noted by a comparison of the above analyses that the sample furnished by the Purchasing Committee contained 24.74 per cent of cane sugar, whereas the sample taken from stock con- tained but 21.53 per cent of sugar. It will be further noted that the original sample contained but 25.89 per cent of glucose, whereas the sample taken from stock contained 41.87 per cent of glucose. The above samples do not comply with the United States Govern- ment requirements for syrup in their content of water or ash. The Government specifications require that syrup shall not have more than 30 per cent of water, or more that 2.5 per cent of ash. It will be noted that the Committee's sample contained 35.71 of water, and 3.82 per cent of ash, and also, that the sample taken from stock was nearly as high in water and ash content. BAKING pov?DEE. — A sample of baking powder from Eochester was analyzed, and the results were as follows: "Available carbon dioxide, 12.02%. Sample is a tartrate powder free from alum or phosphates. Available carbon dioxide low." The Purchasing Committee of the Hospitals does not contract for baking powder, so has no specifications. The specifications of the Purchasing Committee of the Fiscal Supervisor's Department, how- ever, require that baking powder shall have " not less that 13.25 1^4 per cent of carbon dioxide." This is a fair requirement since good baking powders usually run more than this proportion of carbon dioxide. The sample analyzed above, it will be noted, contains but 13.03 per cent of carbon dioxide, and consequently falls materially below the requirements for a good baking powder. VINEGAR. — Samples of vinegar were analyzed from Middletown and Kings Park. The results were as follows: From Middletown. ' Acidity (equivalent to acetic acid) 4 . 22% by weight. Total solids 2.37% Ash 0.30% Specific gravity at 15.6° C 1 .0162 Free mineral acid (equivalent to sulphuric acid) 0.02% " "Sample does not comply with New York State Food Laws owing to deficiency in acetic acid." From Kings Park. "Acidity (equivalent to acetic acid) 4 . 73 by weight. Total solids 3.41% Ash 0.41% Specific Gravity at 15.6° C 1 . 0201 Free mineral acids (equivalent to sulphuric acid) 0. 06% " " Sample does not comply with New York State Food Laws owing to presence of small amount of free mineral acid." The specifications of the Purchasing Committee for vinegar are as follows: "Vinegar, cider, in barrels. New York State standard." The requirements of the New York State Pood Laws are as follows : Consolidated Laws 1909, Chapter 9, Article 4. Sec. 70. The term "cider vinegar" as used herein shall be construed to mean vinegar made exclusively from pure apple juice. All vinegar which con- tains any proportion of lead, copper, sulphuric acid or other ingredients injurious to health, or any artificial coloring matter, or which has not an acidity equiv- alent to the presence of at least four and a half per centum by weight of absolute acetic acid, or cider vinegar which has less than such an amount of acidity, or less than two per centum of cider vinegar solids shall be deemed adulterated. Sec. 71. No persons shall manufacture for sale, keep for sale or offer for sale: 1. Any adulterated vinegar. 2. Any vinegar or product in imitation or semblance of cider vinegar, which is not cider vinegar. 3. As or for cider vinegar, any vinegar or product which is not cider vinegar. 175 The requirement of the U. S. Government for cider vinegar is as follows : "Vinegar, cider vinegar, apple vinegar, is the product made by the alcoholic and subsequent acetous fermentations of the juice of apples, is laevo-rotary, and contains not less than four (4) grams of acetic acid, not less than one and six tenths (1.6) grams of apple solids, of which not more than fifty (50) per cent, are reducing sugars, and not less than twenty-five hundredths (0.25) gram of apple ash in one hundred (100) cubic centimeters (20°C.); ana the water-soluble ash from one hundred (100) cubic centimeters (20°C.) of the vinegar contains not less than ten (10) milligrams of phosphoric acid (Pj O5), and requires not less than thirty (30) cubic centimeters of decinormal acid to neutralize its alkalinity." It will be noted by comparing the above -analyses with the requirements of the State Law and the U. S. Pure Food Law that the vinegar is adulterated with mineral acids equivalent to sulphuric acid, or is deficient in acetic acid, so that Hospitals are not only not securing vinegar up to their own specifications, but are also receiving a product that is prohibited by the Pure Food Laws of the State. PAINT. — The specifications of the Purchasing Committee of the Hospitals for outside paint are as follows: Ready-Mixed Outside White Paint. All ready-mixed outside white paint shall have the following composition in 'SGi gallons: Pounds. Gallons. 240 Corroded white lead 40 .00% 80 New Jersey XX zinc 13.33% 80 Hydrated calcium sulphate 13 .33% 24 Bleached linseed oil 31 .00% 2 White oil dryer 2 .34% 100.00% Pigment 66.66% Vehicle 33.34% 100.00% One U. S. gallon of this paint shall weigh 16^ lbs. The paint must be finely ground and of uniform consistency and must not contain more than one per cent, of moisture at a temperature of 212 degrees. The paint must be dry, dust free in 8 hours at a temperature of 70 degrees in dry weather, and must dry sufficiently hard for re-painting in 48 hours. The manufacturer must furnish, if requested, samples of pigments and vehicles entering into the above paints, and the State has the privilege of having an inspector at the factory to examine the paint while being manufactured.'' 176 It will be noted that the above specifications provide that there shall be in the total paint 40 per cent of white lead; that the total vehicle shall be 33.34 per cent. To ascertain whether the paint received under the contract was meeting the above specifications, samples were secured from Binghamton, Kings Park, Central Islip and Eochester and Utica. The analyses of these samples were as follows : From Binghamton. Pigment 69.12% Vehicle 30.88% Pigment Mixed paint contains. contains. Barium sulphate 1 .11% ) Zinc sulphide 0.55% [ 115% White lead 31.79% 21.97% Lead sulphate 36.02% 17.99% Zinc Oxide 19.46% 13.45% Calcium carbonate 10.00% 6.91% From Kings Park. Pigment 67.43% Vehicle 32.57% Lithopone Pigment Mixed paint contains. contains. contains. Barium sulphate 66.35% 4.95%) r mv Zinc sulphide 33.65% 2.51%) ^■'^^% White lead 25.10% 16.92% Lead sulphate 24.37% 16.43% Zinc oxide 19.96% 13.46% Calcium carbonate 9 . 64% 6 . 50% From Central Islip Pigment 65.49% Vehicle (non- volatile at 100° C) 31 . 43% White lead in pigment 27 . 71% White lead in the mixed paint 18 . 15% From Rochester. Pigment 71.89% Vehicle 28.11% White lead in pigment 25 . 66% White lead in mised paint .,..,,,, ....,..,. 18.46% 177 By reviewing the above analyses it will be noted that the maximum of white lead found in any one of the four samples analyzed, was in that from Binghamton, and was but 21.97 per cent. In the sample from Kings Park, there was found but 16.92 per cent, while the other two samples ran respectively 18.15 per cent and 18.45 per cent. The average amount of white lead in these four samples was 18.87 per cent, whereas the specifications in the contract called for 40.00 per cent. Another sample of this paint was secured at Utica, and showed the following analysis made by the Lederle Laboratories: Figment 66.06% Vehicle 33 .94% Pigment Mixed paint contains. contains. White lead 45.66% 30.16% Lead sulphate 11 .89% 7.85% Calcium sulphate 11.00% 7.27% Zinc oxide 20.49% 13.64% It will be noted that this sample contained a larger percentage of white lead than the other samples analyzed, namely, 30.16 per cent. The Secretary of the Purchasing Committee sent a sample of the same paint to the Columbus Laboratories of Chicago, which returned the following analysis: Oil 30.6% Pigment 64. 4% Pigment contains. Carbonate of lead 28 . 1% Sulphate of lead 33.9% Oxide of zinc 21 .9% Calcium carbonate 11 . 6% Moisture and organic matter 4 . 4% This analysis not being in the form of the specifications of the Purchasing Committee, the Secretary forwarded to the laboratories ft copy of such specifications and asked that the analysis be trans- 178 formed into its terms. Accordingly the Secretary received as such transformed analysis the following: Corroded white lead 39 . 6% Oxide of zinc 15-2% Hydrated calcium sulphate 15.5% Organic matter, presumably from dryer 2 . 7% Moisture . 3% Linseed oil 30.6% It will be noted that this analysis shows 39.6 per cent of white lead, or practically what the specifications called for. Inasmuch as the first form of the analysis contained but 28.1 per cent of white lead and 33.9 per cent of sulphate of lead, which form of lead is not white lead, I addressed a letter to the Columbus Laboratories asking how they determined the sulphate of lead. Their reply was that they found as result of their analysis, 33.9 per cent of sulphate of lead and assumed that this sulphate of lead had been formed by the sulphuric acid in the calcium sulphate combining with the lead and forming lead sulphate, and therefore, they were justified in figuring the sulphate of lead resulting from this analysis, as corroded white lead. It is true that when a mixture containing lead and calcium sulphate is treated with acetic acid, the sulphuric acid in the calcium sulphate will combine with the lead and form sulphate of lead. It is not fair, however, to assume that all sulphate of lead found as result of analysis, has been formed in this manner, and that no sulphate of lead was in the original composition. As a matter of fact, the Lederle Laboratories found 33.28 per cent of lead sulphate, which was practically the same amount as found by the Columbus Laboratories; but by another form of analysis, they had determined that of this proportion of sulphate of lead 11.89 per cent was in the original paint. Moreover, had the assumption of the Columbus Laboratories been correct, that all the sulphate of lead found had been produced by the process of analysis, their final report would still be wrong, since the amount of carbonate of lead and sulphate of lead when transformed into white lead should not produce 39.6 per cent of white lead, but only 36.12 per cent. Should the Columbus Laboratories' analysis be corrected to con- form to the amount of sulphate of lead actually found in the original paint by the Lederle Laboratories, their analysis then would show practically the same percentage of white lead reported by the Lederle Laboratories. The Hospitals formerly purchased for outside painting White Lead, 179 ground in oil, to be mixed at the Institutions. The Purchasing Committee saw fit to recommend to the Hospitals that they use & ready mixed paint instead of White Lead, and provided a formula for such mixed paint. In order to secure an opinion as to whether or not the formula furnished by the Committee would produce a paint as good as or better than white lead, I addressed to Westing- house, Church, Kerr & Co. a letter of inquiry. This firm is one of the leading engineering companies in the United States, and one of its engineers devotes a large proportion of his time to testing paints. Their judgment as to the quality, suitability and durability of paint should be of the best. My letter of inquiry was as follows: "Westinghouse, Church, Kerr & Co., 10 Bridge St., N. Y. City. Gentlemen: — In our relation to public institutions, occasion arises at times which makes it advisable for us to pass judgment upon the value of the supplies furnished to these institutions. At the present time we desire to be informed as to the value of a formula for outside paint used by certain institutions. We would greatly appreciate it if we can secure from you an expression of opinion as to whether a fornmla, a copy of which we herewith enclose, is suitable to the pur- pose which we will describe. The paint denoted in this formula as outside paint is used by a number of institutions in New York State, four of which are near to salt water, — the remainder of which are in the interior of the State. None of them, as far as I know, are subjected to an atmosphere containing sulphur gases in any form. The paint is used on the exterior of wooden buildings, such as cottages, bams, out-buildings, etc., and also upon wood trimmings of brick buildings, such as window frames, cornices, etc. I should like to know: (1) Whether you consider that this formula would make a paint suitable for the purpose described; (2) whether such a formula will produce a better paint for said purpose than pure white lead and linseed oil; (3) whether such paint prepared and mixed by machinery is preferable to pigment and vehicle mixed by hand. We shall deem it indeed a favor if we can secure the information from you covering these points.'' The following was the reply to this letter: "New York, Dec. 22, 1909. Mr. Henry C. Wright, State Charities Aid Assn., 106 E. 22nd St., City. Dear Sir: — We have your request of the 10th inst. asking our opinion as to the suitability of a formula for outside white paint, which you enclosed with yom- letter, to the purposes described therein. In reply, we would say that this specification 180 for a ready-mixed, outside, white paint to be used on frame buildings in New York State, botli on the seaboard and in the interior, is what we would consider upon the whole a good formula. We believe, however, that it would be im- proved somewhat by an increase of 5% in the zinc content and a corresponding decrease in the amount of inert filler, calcium sulphate or gypsum in this case. We do not recommend the use of gypsum in an outside paint. It is soluble in 500 parts of water and if imperfectly hydrated the lime becomes chemically active and injurious. Barium sulphate or a mixture of it in small percentages with calcium carbonate would improve the paint, the former adding wearing quality and the latter neutralizing any acids that may be present in the paint or oil, or that may be absorbed by the paint film from the atmosphere. We would recommend, therefore, the following formula as an improvement upon the one submitted: Basic carbonate white lead 40% New Jersey XX zinc 18.33% Barium sulphate 5% Calcium sulphate 3 . 33% Raw linseed oO 31% White oil dryer 2.34% However, the paint you describe, if furnished as specified, would be equal to the better paints in the market in the ready-mixed form and very much better than most of the paints so offered. Such a paint as is outUned above is better for the purpose described than a straight lead and oil paint. With the same ingredients in each case, machine mixing is to be preferred, on account of its greater thoroughness; the advantage in hand mixing lying only in the greater probability of securing pure ingredients by purchasing them separately. Trusting the above gives you the information desired, we are Very truly yours, (Sd.) Westinghouse, Church, Kerr & Co. Cloyd M. Chapman." In the judgment of Westinghouse, Church, Kerr & Co., the amount of white lead in the specifications is sufficient, but that it contains too small a percentage of zinc, and much too large a percentage of inert pigment in the form of hydrated calcium sulphate. This element they would reduce from 13.33 per cent provided in the Bpecifications, to 3.33 per cent and they would substitute for a portion of it, 5 per cent of barium sulphate. Summary of Analyses. It will be noted that of the twenty-eight samples of supplies analyzed ten were found to be reasonably good. Of these ten, four were cocoa and chocolate, of known makes and little likely to be adulterated; one was cream of tartar, also of a known make; three were spices that are purchased and prepared by the Purchasing 181 Committee; two were turpentine and linseed oil, which were not under joint contract; and out of the ten good articles, five could be excluded as not being under joint contract, — and the remaining five were products which though easily adulterated, yet were standard brands made for general consumption. The remaining eighteen were found either adulterated or deficient in elements required by the specifications. One of these supplies was concentrated milk, one of the main elements of diet of four of the largest Hospitals, and an article which the officers of at least three of the Hospitals have remonstrated against using as not being a desirable substitute for fresh milk; another cinnamon, bought and prepared by the Pur- chasing Committee at the Utica State Hospital; also molasses and syrup, both of which are easily subject to adulteration, and were so found; the same may be said of the baking powder, and also of the two samples of vinegar. The very serious deficiency in the outside mixed paint should be specially noted. It is universally admitted that pure white lead and oil produces one of the best paints for general outside work upon wood. For the Purchasing Committee to provide that the Hospitals should buy a ready mixed composition paint instead of white lead, and then to neglect to determine whether this paint when delivered filled the specifications, seems an action well worthy of criticism. No clearly defined rules have been laid down by the Committee for the store-keepers to follow in the receipts of goods. In general, the store-keepers check up the number of articles received. They also weigh a certain portion of the articles, but there are no definite and clearly defined rules on the part of the Purchasing Committee as to the method of the cheeking or weighing. When supplies are found deficient in weight or quality, and complaint is made by the steward, too seldom are such complaints heeded by the Purchasing Committee. This is well illustrated by the neglect to take action on complaints that have been made in reference to the quality of butter that is being received. Not only was no attention paid to these com- plaints, but when the Chairman of the Purchasing Committee at- tempted to make an investigation, strong effort was made on the part of other members of the Committee to side-track the investi- gation, or, when it was subsequently pressed to an issue, to reduce the significance of the findings and the penalty imposed upon the contractors. 182 Charitable Institutions. Advantages. Specifications slightly better than those of the Lunacy Commission. — In comparing the methods of operation of the Purchasing Committee of the Fiscal Supervisor's office with that of the Lunacy Commission, no points of superiority can be found except possibly in some minor regards. Their specifications are slightly better than those of the Purchasing Committee of the Lunacy Com- mission. For instance, the Purchasing Comanittee of the Lunacy Commission required that butter should be " extras " made of whole milk and grading 93 points, as set forth in the butter report. This requires a high grade special butter. The Purchasing Conmiittee of the Fiscal Supervisor's office simply specifies that the butter shall be " extras," without designatiag grading points or whole milk. This is a clear, sensible specification which could be filled by any responsible contractor. The adulteration of syrup with glucose is not permitted by their specifications. Disadvantages. Employs a small clerical force. — The Committee has but one clerk, who acts as secretary of the Committee, — a young woman with her desk in the Fiscal Supervisor's office. This is all the clerical force provided by law. All the work of the Committee must be attended to by this one clerk, unless it be attended to for her by members of the Fiscal Supervisor's office, — a situation which probably was not intended by the law specifying the powers of the Fiscal Supervisor and the Purchasing Committee. If the Purchasing Committee is to have the responsibility of contracting, it should have a clerical force competent to secure all needed information and to deal with contractors in a competent way, and not turn these functions over to the Fiscal Supervisor's office. If, however, it be the intent of the law that the Purchasing Committee should have merely the function of deciding upon the supplies that shall be purchased under joint contract, and that the real work of making these contracts and seeing that they are fulfilled should remain in the hands of the Fiscal Supervisor, then the present method of administration is not subject to criticism, and the present clerical force of the Purchasing Committee is adequate to perform those simple functions. The law 183 enumerating the powers and functions of the Purchasing Committee is as follows : (Consolidated Laws, Chap. 55, Article 4, Sec. 48.) "* * * The superintendents and managers or trustees present at such meeting shall consider, and shall determine, subject to the power granted to the fiscal supervisor in section forty-five of this article the following matters: 1. Which articles of supplies it is practicable to purchase for all the state institutions reporting to the fiscal supervisor or any of them, by joint contracts. 2. The specifications for articles of supplies to be purchased by joint contract. 3. The provisions of the contracts under which articles of supplies are to be purchased jointly. At such meetings of superintendents and managers or trustees there shall be designated by those present a purchasing committee, to consist of not more than six superintendents, who shall serve as such purchasing committee until the next annual meeting of superintendents and managers or trustees. Such meeting of superintendents and managers or trustees may refer to such purchas- ing committee any matters which might be considered and determined by such meeting of superintendents and managers or trustees. Such purchasing com- mittee shall meet whenever so requested by the fiscal supervisor, and shall possess the same powers as the annual meeting of superintendents and managers or trustees provided for in this section. Such purchasing committee may appoint a secretary, who is also a stenographer, and may also consider proposals and make awards under joint contracts for the purchase of staple articles of sup- plies for any or all the state institutions reporting to the fiscal supervisor, and shall appoint a committee of two to execute joint contracts, in accordance with such awards. * * * " It will be noted that the law empowers the meeting of superin- tendents and managers or trustees to appoint a Purchasing Committee, and may delegate to such Committee any of the powers which it, itself, has, namely: 1. What articles may be purchased by joint contract. 2. Specifications. 3. Provisions of contracts. The Committee is given the following and additional power to that exercised by the meeting of superintendents, namely : " Such purchasing committee ***** may also consider proposals and make awards. ***** and shall appoint a committee of two to execute joint con- tracts in accordance with such awards, subject to the approval of the fiscal supervisor;" That is — ^this committee is to receive proposals and to make awards under specifications drawn up by the committee of superintendents, or by themselves, if such power has been delegated to them by the 184 superintendents. This being their responsibility, it would seem that they should perform it rather than that it should be performed by the Fiscal Supervisor, but as their clerical force is now composed, it is practically impossible for this sub-committee to attend to all the details of drawing up specifications, making contracts, attending to the receipts of goods, and seeing that contracts are properly filled. 'Not only is this clerical force inadequate to perform the duties assigned to it by law, but the superintendents are too busy to supple- ment in any marked degree the work of their secretary. Methods of receiving and distributing samples. — The method of receiving and distributing samples employed by the Purchasing Committee of Charitable Institutions is somewhat as follows: When the contracts are to be made bids are solicited, to be accompanied by samples of the supplies bid upon, and these samples are in small bulk. On the basis of these samples contracts are let; the samples of the successful bidder are held in the Fiscal Supervisor's office and the contractor is requested to forward to the office a larger bulk of the goods represented by each sample. Decision as to whether the second shipment of samples corresponds with the sample on which the contract was made, is left to the judgment of certain persons in the Fiscal Supervisor's ofiice. Ko chemical analysis is made of the first samples with which to compare the subsequent samples received. The comparison is solely a question of personal judgment. These second samples then, which may or may not correspond with the first sample, are sub-divided into small portions and sent to the various Charitable Institutions, where they are supposed to be kept bj the steward as a basis for comparison. Not sufficient consideration in making contracts. — Contracta are made at times by the Purchasing Committee without due con- sideration. In April bids were received for supplying the Institutions with coal. Among the bidders to supply Syracuse were the C. L. Amos Coal Co., of Syracuse, and the F. B. Weaver Coal Co. The Amos Co. bid a flat rate for the year. The Weaver Co. bid on a rising rate of 10 cents per month from May until September and a flat rate for the remainder of the year. The contract was awarded to the Weaver Co. Wlien the bid was made known, the Amos Co. remon- strated that their flat rate was a less rate than the progressive rate of the Weaver Co. This they proceeded to prove by figuring the total tonnage used during the previous years at both prices. They 185 readily convinced the Superintendent at Syracuse that this was a fact, and the Chairman of the Purchasing Committee and the Fiscal Supervisor were notified. As a result of the remonstrance the contract was cancelled, and new bids solicited. Previous to the purchase of coal by joint contract, Craig Colony purchased its coal direct from the mines, paying the circular price, which has been about $5.00 for April delivery, 10 cents additional for each month until September and $5.50 thereafter for the remainder of the year. Under this arrangement they were enabled to secure a carload of coal on a day or two's notice at any time. Last year, under the joint contract system, they paid $5.49 per ton for their coal, a saving of 1 cent per ton. The steward of the Institution writes that under this system " the contractors have failed almost every year to make delivery in time so that we have been considerably embarrassed for the want of coal and have been obliged to ask the D. L. & W. Coal Co. to cut us out a ear of coal to supplement some other company's contract. It is not fair to them, and it is not justice to us. We do not believe that there is anything saved by making contracts for coal under the conditions that exist at the Craig Colony. *****" Methods of receiving goods. — The methods of receiving goods by the various institutions seem to a certain degree to be haphazard. Out of thirteen institutions that were asked whether they weighed their coal on receipt, of the eleven replying, nine stated they did not weigh it, one weighed a portion of it, and one weighed all of it. In twelve cases they took the car weight. It must be said in extenuation of failure on the part of some institutions that they have no scales with which to weigh and consequently are obliged to receive their coal by the car weight. As far as can be learned at the institutions neither the Fiscal Supervisor's oflBce nor the Purchasing Committee makes any analysis of flour, and but one institution of those inquired from had of themselves made such analysis. Craig Colony complained of the quality of the flour received and sent a sample to the Columbus Laboratory of Chicago, and on the basis of the report from the Laboratory rejected the flour. This is the only instance, however, that I found of flour being analyzed. One institution complained that the flour that was shipped to them by the Washburn-Crosby Co. came in plain sacks and there was no way of their telling whether it was the brand contracted for. 186 The reply of the Fiscal Supervisor to this complatat was that, although the flour came in plain sacks, it nevertheless was the flour that had been designated in the contract. That butter is not properly inspected on receipt is well substantiated by the report of the analyses presented in the butter report on previous pages. Of the twelve tubs of butter sent for examination by the Charitable Institutions, all fell below the contract specifications. The quality of some supplies, such as molasses and syrup, cannot be ascertained by a simple examination such as may be performed by the steward. A small excess quantity of water or of glucose cannot be detected. Only a chemical analysis will reveal such things. There is no systematic method of examining any article of supplies received by the Charitable Institutions by any of the officers of the Institutions or by the Purchasing Committee or by Fiscal Supervisor's oflBce, and if an examination at any time be made, it is only incidental, and is prompted only when there is such a gross breach of the contract as to make the fact easily observable. 187 Chemical Analysis of Articles of Food and Supplies Used in the Charitable Institutions. Chemical analyses were made of a mimber of supplies from the Charitable Institutions. These analyses were made by the Lederle Laboratories, as described in the preceding pages with relation, to the supplies from the Hospitals. Analyses were made of twenty samples. Of this number five proved to be up to standard and fifteen did not comply with the specifications, nor with the provisions of the U. S. Pure Food Law. The five pure articles were as follows: One sample each of Chocolate, Black Pepper, Vinegar, Sal Soda and White Lead. Of these. Chocolate, Vinegar and Sal Soda were under joint contract. The Black Pepper was purchased by ISTewark and the White Lead by Craig Colony. Those not complying with the specifications or with standards for pure foods or supplies were as follows: BAKING POWDER. — The Specifications of the Purchasing Committee of Charitable Institutions require that a Baking Powder shall have 13.5 per cent Carbon Dioxide. A sample received from Syracuse analyzed as follows: "Available carbon dioxide 12.61% Sample ia a tartrate powder, free from alum or phosphate. Available carbon dioxide below specification requirements of 13.5%." It will be noted that it was quite a percentage below the require- ments of the contract. MOLASSES. — A sample of molasses from Syracuse was analyzed. The specifications of the Purchasing Committee for molasses provide as follows: "Molasses: Bidder to furnish one gallon sample. Sample selected by Com- mittee to be analyzed by chemist, for purity, at expense of bidder — per gallon, pure, fancy Ponce, Porto Rico, new crop." It will be noted that the molasses was to be purchased largely by sample. Portions of this sample were distributed to the Institutions. 188 One of these portions of the original sample I had analyzed with the following result: "Water 25.90% Ash 4.69% Sample is slightly high in water content, but substantially complies with th« Federal Government Standard for molasses." The sample from Syracuse taken from stock analyzed as follows : "Water 23 .69% Ash 6.13% Sample does not comply with the Federal Government Pure Food Standard for molasses, and does not equal sample No. 37 standard. Ash is excessive." Here it will be noted that the stock sample did not exceed the contractor's sample in content of water, but it exceeded it very materially in the content of ash, having 6.13 per cent of ash. A second sample of molasses was analyzed from Newark with the following results: "Water 25.70% Ash 4.82% Sample is slightly high in water content, but substantially complies with the Federal Government Standard for molasses. Like No. 37 Standard." It will be noted that this sample also contained an excess amount of water, but was within the limits on ash. SYETJP. — Two samples of syrup were analyzed, — one from Syra- cuse, and the other from Newark, and compared with the sample furnished by the contractor. The specifications of the Purchasing Committee under which the contract was let are as follows : "SjTup: Bidder to submit sample — ^per gallon — fancy, all cane, sugar pure light yellow." The sample as analyzed showed the following content: "Water 38.47% Ash 5.78% Cane sugar 35.80% Glucose None." The TJ. S. Government requirements for syrup are that it shall contain not over 30 per cent of water and not more than 3.5 per cent of ash. 189 It will be noted that the sample furnished by the contractor was about 25 per cent high in water and over 100 per cent high in ash. The sample from Syracuse analyzed as follows: "Water 37.76% Ash 5.67% Cane sugar 35 . 65% Glucose None." Though it did not exceed the sample in either water or ash content, yet it was very materially deficient as compared with the U. S. standard. The sample from Newark analyzed as follows: "Water 37.05% Ash 5.87% Cane sugar 35.86% Glucose None." This sample did not exceed the contractor's sample in content of water, but it did exceed it in ash, and very materially exceeded the U. S. Government standard. viNEGAH. — A sample of vinegar from Syracuse was analyzed with the following result: "Acidity (equivalent to acetic acid) by weight. 4. 33% Total solids " 2.16% Ash " 0.30% Specific gravity at 15.6° C 1 .0164 Free mineral acids None. Sample does not comply with New York State Food Laws owing to deficiency in acetic acid." As noted in connection with the analysis of supplies from the Hospitals, the New York State standard requires that vinegar shall have not less than 4.5 per cent of absolute acetic acid. This sample contains but 4.33 per cent. MACHINE OIL. — A Sample of machine oil was analyzed from Newark, with the result as follows: "Flash point 406° F. Burning point 445° F. Specific gravity 60° F 24° Beaumg. Mmeral matter .009% Free acids (equivalent to oleic acid) .112% Soap thickener None. 190 Specifications call for 'Engine Oil' of a specific gravity of about 30° Beaum^; not sufficient sample for further tests. Sample complies with specifications, except in case of specific gravity." The specifications of the Committee required that "The oil shall have a specific gravity of about 30° Beaumfi." WHITE LEAD. — Two Samples of white lead were analyzed from Craig Colony. One was found to be pure white lead, as above noted; the other analyzed as follows : Calculated As to oil free received, substance. "Oil 9.24% White lead 1 .23% 1 .36% Lead sulphate 1.77% 1.95% Barytes 50.49% 55.64% Sample consists of lithapone, (a mixture of barium sulphate and zinc sulphide), with a small amount of white lead and lead sulphate ground in oil." Pure white lead should contain 90 to 92 per cent white lead. It will be noted that the above specimen contained but 1.33 per cent of white lead and 50.49 per cent of barytes,— a useless ingredient. This lead was not purchased under joint contract, and the steward was unable to tell by his bills from what dealer the lead was purchased. The purchasing of such lead emphasizes the necessity of adopting some means of inspection of supplies that will insure the Institutions against securing such worthless material. Means of Improving the Joint Contract System. Defective specifications. — As previously pointed out, the speci- fications of the Purchasing Committees, both of the Lunacy Commis- sion and of the Charitable Institutions, are defective. It is not the province of this report to point out wherein all these specifications are defective, and to suggest corrections. It is deemed best, however, to call attention to some of the chief defects in two or three of the specifications as an illustration of the kind of work that should be done in the preparation and revision of specifications for all of the supplies. 191 FLOUE. — The specifications for flour as given on a previous page and here repeated, are as follows: Standard Straight Flour from hard wheat of 196 lbs., net — grades, quanti- ties and deliveries to be in accordance with the following: Deliveries on this proposal which the Committee will have analyzed, must not be of a lower grade than the following: Analysis of Stanbard Straight Flour From Hard Wheat. Gluten, per cent 11.0 Ash, per cent .52 Absorption 62 .0 Color 97.0 Loaves per barrel 100 .0 Size of loaf 100 .0 Quality of loaf 99 .0 Average value 99 .0 Fermenting period 102 . 2 Quality of gluten 97 . 8 This specification has many defects. In the first place, it is a standard that has been secured from a certain, laboratory, the Columbus Laboratory in Chicago, which retains the standards that enter into this specification. In other words, neither the contractor nor the committee knows the number, the size, the quality nor the value of the loaves, nor the quality of the gluten that these percentages represent. This is a standard that can be tested only at one laboratory. The State should not put itself in such a position. It should adopt some specification that can be clearly understood both by the purchasing committees, and by the contractors who bid; specifications that can be tested at any laboratory within the State. These specifications simply call for fiour made from " hard wheat." The intent probably is to specify spring wheat, but hard wheat applies to the spring wheat raised in the Northwest, and to the winter wheat of Kansas. But the qualities of the grain from these two sections differ materially. The specifications should provide either for a spring wheat or winter wheat, according to which ever is desired. Nor do the specifications say whether this flour shall be " sound flour," which means it must be free from mould, or any foreign odors or taste. One of the main difiiculties of the specifications drawn in this form, is that it requires the testing of one flour against another. That is, a standard flour is taken, and by the use of yeast, is mixed into 192 dough and baked. Then a sample of the flour delivered is put through the same process and tested against this. The process, however, iavolves the use of yeast, which is an uncertaia element, and it also requires either the naming of some flour which shall be used as a standard, or else the choice of such flour without naming it is left to the laboratory that is to make the analysis. BEEF. — The specifications used by the Purchasing Committee of Lunacy Commission for beef reads as follows : "Beef: Full carcass, to be of good quality of steer beef, well fatted and well meated, weighing not less than 500 pounds, or more than 750 pounds per carcass, with a general average of not less than 600 pounds per carcass on total delivery on contract. All beef to be free from bruises, and one liver to be fur- nished without cost with each carcass." "Beef: Fore-quarters, to be of the same quality as specified for full carcass, tore-quarters to weigh not less than 150 pounds each." This specification provides for too low a minimum limit for the weight of the carcass in that the smaller the carcass the larger the percentage of bone, and consequently, the greater the waste. It is generally conceded by men competent to speak, that for economy^i sake, such minimum should not be under 600 pounds. Again, the minimum weight specified for fore-quarters is not in the right pro- portion for the minimum weight specified for the carcass. A carcass weighing 500 pounds vdll have fore-quarters weighing from 130 to 135 pounds, and hind-quarters from 115 to 120 pounds. Moreover, a maximum weight for the fore-quarters is not given, and whatever difficulty there may be in the delivery of the fore-quarters, is likely to arise from its over-weight. The fore-quarters of bulls, cows and stags weigh unduly heavy, or out of proportion to the weight of the hind-quarters, and this should be provided against by the use of a maximum weight for fore-quarters. The following specifications are suggested as more nearly meeting the needs of the State Institutions : Beef: Full carcass, to be of good quality of steer beef, from well fatted and well meated short legged steers, weighing not less than 600 pounds, nor more than 900 pounds per carcass. No hind quarter shall weigh less than 140 pounds; no fore quarter shall weigh less than 160 pounds, nor more than 210 pounds. No carcasses of cows, bulls, or stags will be received. All meat on delivery shall bear the mark of United States inspection. All beef to be free from bruises, and one beef's liver in good condition, to be furnished without cost, with each carcass. Beef : Fore-quarters, to meet the specifications as to weights for fore-quarters contained in the specifications for full carcass. The quaUty of meat shall be the same as that specified for full carcass. 193 MOLASSES AND STEUP. — The Specifications now in use for molasses and syrup by the Purchasing Committee of the Hospitals, read as follows : "Molasses, pure, Porto Rico." "Syrup, mixed as per standard sample in body color and sweetness." This leaves the testing of the stock delivered entirely to the personal judgment of the receiving steward. The molasses may be a "pure Porto Eico," and yet contain entirely too much ash or too much water. A syrup " mixed as per standard sample," may contain glucose varying widely in amount from the original sample, and yet not be detected by the receiving steward. It is perfectly practicable to so specify these supplies that there will be no question of the method of com- paring the stock delivered with the original sample submitted. The following is a suggested specification: . Molasses, pure, cane sugar, containing not more than 25% of water, nor more than 5% of ash. Syrup, pure, cane sugar; containing not more than 30% of water, nor more than 2 . 5% of ash. It win be noted that the word "Porto Eico" is not included in this specification. The Porto Eico molasses is not likely to be as good as New Orleans molasses since the Porto Eican mills are more exclusively 'devoted to the manufacture of sugar than are some of the mills in New Orleans. The specification of the amount of water and ash is according to the United States Standard, which is true also of the amount specified in the specification for syrup. In specifying for syrup, if it is desired that it should contain glucose, the percentage of glucose should be definitely stated and not left to the judgment of the receiving steward as to the amount of glucose the stock received probably contains. It is stated by the sugar expert of the United States Department of Agriculture, that glucose is always used when mixed with syrup, to cover up an objectionable base. Glucose in and of itself is a good food, but it is mixed with syrup to raise the degrees of polarization and to dilute the strongly alkaline base. It might be much wiser on the part of the institutions to use a clear glucose or corn syrup, or to make their own mixture by combining together cane sugar and glucose. The specifications given above are sufficient to illustrate what is meant when it is stated that the specifications for the food supplies of the State Institutions should be thoroughly revised. There are 194 but few of them but that could be improved. One element of the present specifications should without question be omitted, namely, the specifying of a particular brand. This is furnishing an unwar- ranted advertisement for certain firms. It is by no means an easy task to write proper specifications for the purchase of supplies. The kinds and qualities of food most desirable for institutional use must first be determined. For instance, the Hospitals use broken and the Charitable Institutions whole rice. Whole rice is more expensive than the broken. Which of these two should be used? The specifications of the Purchasing Committee of the Charitable Department provide for native steer beef with the minimum weight of 600 lbs., whereas the specifica- tions of the Hospitals provide merely for steer beef, minimum 500 lbs., which may be range cattle. This latter quality, as noted else- where in the Eeport, is about 2c per lb. cheaper than that specified by the Charitable Institutions. At least one Hospital has been- for years and is at the present time using cow beef. Which of these three qualities of beef is most desirable and economical? The speci- fication of the Charitable Institutions provide for pure Porto Kico molasses; those of the Hospitals permit glucose to be mixed with the molasses, resulting in a cheaper quality. Which of these two is most desirable for institutional use? Domestic beans cost from 15c to 50c per bushel more than foreign beans. The nutritive value of the foreign bean is equal to that of the domestic, but it cannot be so readily cooked and prepared for table use. Considering these facts, which of the two beans are most desirable for use in the Institutions? Standard Straight flour contains more protein than First Patent flour. It however makes a darker and less palatable bread. Which of these two are most economical? The above examples are only illustration of questions that could arise in connection with nearly every food product used in the Insti- tutions. Experiments should be performed in the various State Institutions to determine the best and most economical grade of food to use and the results of such experiments should be compared with the experience of institutions in other States. Such experi- ments can be properly carried on only by a trained dietitian. Such an expert should be employed by the State. Knowledge can be gained also from many experiments performed and from data collected by the United States Department of Agriculture and alao 195 by the various State Agricultural Schools. The United States Gov- ernment has issued a bulletin upon the nutritive value of the different grades of flour. It has also issued a pamphlet upon the economical use of coal and the best methods of contracting for it. Many such pamphlets of marked value are available. After a conclusion has been reached as to the most advisable qual- ity of foods to be used, there yet remains the task of drawing speci- fications for these foods in terms so definite, clear and specific that there can arise no doubt in the mind of any bidder as to the kind and quality of food he is expected to bid upon and supply. Knowledge as to the best form of drawing food specifications can be obtained from various sources. It might be advisable to apply first to the Department of Agriculture of New York State, then to have the. information gained from that Department supplemented by suggestions from the United States Department of Agriculture. After this information is collected it should be checked by experts of jobbing houses dealing with various lines of supplies. It would be well to select jobbing houses located outside of New York State, houses that would not be expected to furnish food supplies to the New York State Institutions. The specifications and the experi- ence of the United States Navy should be of material value. The contract which is a part of the specifications, is defective both in the Lunacy Commission's and in the Fiscal Supervisor's department. The Purchasing Committee of the Lunacy Commission in case of the delivery of flour which did not meet the specifications, has arbitrarily fined the contractor but did not reject the goods. The contract should be so clearly drawn that there could be no double interpretation as to the method of dealing with the goods when delivered. It should be very clearly stated, moreover, who is to be the final arbiter as to the fulfillment of the specifications of the contract. The wording of the contract of the Purchasing Committee of the Charitable Institutions does not provide for the annulment of the contract under certain conditions. Apparently the contractor can continue to deliver defective goods, and after each delivery adjust the matter as best he may with the receiving party, and then there- after continue to deliver defective goods without the annulment of the contract. It should be distinctly stated in the contract under 196 what conditions it may be annulled. Moreover, it should be clearly stated who is to be the final arbiter as to the fulfillment of the contract for any supplies. The contract for butter, for instance, provides for " Extra Creamery." It does not state what the definition of " Extra " is, nor whether the " Extra " included in the specifications is accord- ing to the definition of any exchange or association. Where no definition is given of such terms the contract should be very clear and definite in stating that the judgment as to what constitutes " Extras " remains with the institutions. The contracts of both committees need a considerable revision in such regards. The above examples are sufficient to illustrate the need of revision of the contracts and specifications. Testing of food on receipt at the Institutions. — The nature of tests that should be applied to foods as they are received at the Institutions will depend primarily upon the terms of the sjiecifica- tions under which such foods are purchased. Where foods are speci- fied upon a chemical basis it is obviously necessary to transmit samples to a chemical laboratory for examination. Tests of this nature could be best applied to such foods as flour, milk, cheese, molasses, syrup, vinegar, bakingpowder, soda, potash, chocolate, cocoa, farina, parafiine, etc. Where foods are contracted for upon samples, such samples should be of sufficient size to enable the receiving agent to readily determine the relative value of the samples and the goods purchased. If a central testing laboratory be established in con- nection with the State Department of Agriculture, all foods with the exception of beef, butter and fresh vegetables could be tested and compared at such laboratory. Such a system would obviate the necessity of an expression of opinion on the part of the receiving agent. His sole function would be to check the quantity or weights received and transmit samples. Inas- much as beef and butter must be examined at the Institutions, it would be necessary either to depend upon the judgment of the local receiving agent or to employ a competent expert to make the rounds of the State Institutions to pass judgment on these two supplies. The work can not be properly done by the stewards and such an expert should be employed. The work would require his entire time. The De- partment of Charities of Few York City employs an inspector who de- votes his entire time to the examination of meats coming to the insti- 197 tutions. It is highly improbable that it would be necessary for such expert to see all shipments. If- it were known by the contractor deliv- ering such supplies that they were subject to inspection at unexpected times, it is improbable that such contractor would risk making a defective delivery. Fabrics could likewise be tested at such laboratory and the quali- ties of utensils could be determined by the inspecting engineer employed by the central department. How to determine what supplies should be purchased under joint contract. — At present the Purchasing Committee of the Hos- pitals decides, on the approval of the Lunacy Commission, what supplies shall be purchased jointly. For the Charitable Institutions the meeting of Superintendents and Managers decides this question or delegates such commission to its Purchasing Committee. Thus far, such decisions have been made necessarily without adequate experience or knowledge on which to base them, and decisions touch- ing the same supplies have been rendered differentlj by the two departments. For instance, the Hospitals contract for flour, cotton cloth, paint, etc., while each of the Charitable Institutions buys its own supply of these articles. On the contrarj^, for several years, the Charitable Institutions bought butter jointly, while the Hospitals purchased individually. In the case of flour, the open market buying of the Charitable Institutions seemed to secure about the same price as that obtained by the joint contracts of the Hos- pitals. Butter, however, was purchased by the Hospitals more cheaply in the open market. The instances in which the two departments purchased similar supplies by different methods would seem to give good ground for a decision as to which were the better method. Such purchasing, however, is not a safe ground for judgment since the comparative qualities received in each department are not Imown. Had the institutions, during the time certain supplies were under joint contract, been receiving the qualities specified, it would be pos- sible to determine the advantages or disadvantages of joint contracts by comparing the contract price for the year with the wholesale market price prevailing during the same period. Since the investi- gation has shown that there is ground for questioning whether or not the institutions actually received the goods contracted for, such a comparison would be of little value. 198 If in the future the supervising departments see that the goods delivered are according to the specifications, and if at the same time a record be kept of the prevailing wholesale prices on the same supplies, it then will be a comparatively easy task to determine whether or not it has been advantageous to purchase any particular supply under joint contract. Pending the collection of such information, the only ground on which to base a decision will be opinions of leading experts and jobbing houses familiar with market conditions. It will be found that such opinions, in many cases, will not agreee. Under such circtimstances the Purchasing Committees will be obliged to make a decision based almost solely upon the convenience or inconvenience to the institutions of either of the two methods of purchasing. The studies made in connection with this report have not been sufficiently comprehensive to warrant making definite suggestions as to what specific supplies should be purchased under joint contract. Comparison of Joint Contract with Market Prices. An endeavor has been made during this investigation to answer the question whether or not the Joint Contract System, by means of term contracts, has secured better prices than could have been secured by purchasing in the open market, but it has been found prac- tically impossible to answer it in a conclusive manner. It was not difficult to secure information and opinions from men competent to speak upon such matters, and in fact, such opinions were secured. All of the cotton mill agents were unanimous in expressing the opin- ion that one case (about 3,000 yards) of cotton goods could be pur- chased as cheaply as a car load of cases, or even larger amounts, and that open market buying would be more advantageous than term contracts. To confirm the opinion of these agents, I had sent to New York City samples of cotton goods from Eome and Hudson, two charitable institutions, and from Kings Park State Hospital. The State Hos- pitals purchase cotton goods under joint contract and Charitable Institutions secure such supplies in the open market. These sam- ples were passed upon by the general manager of one of largest cotton goods jobbing houses in New York City. He compared cottons of different makes with one another and indicated when they were of like or of different qualities. In his judgment, Hudson bought in the open market the following cloths as cheaply as did 199 Kings Park: Amoskeag gingham, cheviot, various grades of un- bleached and bleached muslin, and khaki cloth. Rome's purchases in the open market were as low as Kings Park for various grades of unbleached and also of bleached muslin, also seer- sucker, Madras cloth and Turkey red cloth. Rome was a little high on some heavy drilling, which was evidently bought in small quan- tities, and also for certain grades of outing flannel. Generally speak- ing both Hudson and Rome with a population respectively of about 400 and 1,000, purchased their cotton cloth in the open market as cheaply as did Kings Park, who secured it under joint contract made for supplying the combined State Hospital population of about 30,000. All but one of the grocery experts consulted, were of the opinion that open market buying would secure lower prices than term con- tract. Such opinions, however, are more or less unsatisfactory, in that experts of equal standing differ in their judgments. In order to verify these opinions, an attempt was made to compare the prices paid under joint contracts with the market prices prevailing during like periods. These difficulties were at once encountered, — the terms and descriptions used in the specifications of the purchasing commit- tees were not such as to clearly identify a specific supply with the same grade of supply quoted in the wholesale market. For instance, the Journal of Commerce through its market sheets, gives prices of First Patent Flour, Spring Wheat and Winter Wheat. But the specifications of the purchasing committees do not use the terms Spring Wheat or Winter Wheat, but instead use the word "hard" wheat. As explained under the head of specifications on a previous page, "hard" wheat may apply to the spring wheat of the North- west, or to the winter wheat of Kansas, which two wheats differ con- siderably in price, resulting in a difference in the price of flour made from these two wheats. So the price paid by the purchasing com- mittees can not be compared with either the market quotation for winter wheat or spring wheat flour with any assurance that a correct comparison is made. California prunes come in various grades with different prices. Foreign beans can easily be mistaken for domestic beans that are somewhat higher priced. Such differences apply to a large proportion of food supplies and render it practically impossible to make comparisons that will form a basis of a judgment of any value. Again, it is impossible to determine to what extent contractors have bid with a feeling of confidence that they could deliver a grade 300 of goods lower than the specifications called for. As has been proven in previous pages of the report, many articles have been delivered that do not meet the specifications. Any one institution might purchase either in the open market or under a term contract; likewise joint purchasing might be made in the open market or through term contracts. It would be highly advantageous to ascertain which of these possible methods of pur- chasing would secure the best prices. This, however, can not be ascertained with any great degree of accuracy owing to the facts noted above, viz. : that we cannot determine the qualities of sup- plies actually having been received by the institutions. This much may be said, that the joint contract system is pur- chasing quite uniformly near wholesale market prices, and that it is probably making purchases of some supplies at prices somewhat lower than the individual institution could secure. It is, however, the general consensus of opinion among competent buyers that for most supplies better prices could be obtained in the open market than under term contracts. Inasmuch as we are unable to determine with any degree of accuracy the effect the joint contract system has h^d upon the estimate system, we must pass judgment upon the general effect of the estimate system, and the joint contract system combined. 301 IV. DOES THE ESTIMATE SYSTEM JUSTIFY ITSELF ? Previous to 1893-4 the Hospitals and Charitable Institutions were free to purchase their supplies from any merchants they chose or at any price they saw fit to pay. Central State supervision at that time was restricted to the State Board of Charities and the State Commission in Lunacy which had only recommending power. The expense of such Supervising Boards was small. The introduction of the estimate system required highly paid Supervising Officers and an expensive clerical force and large office space. The question naturally arises, — Does this additional expense of supervision pay for itself ? An answer to this question requires an inquiry not only into the possible saving of dollars and cents, but also into the demands made by its operation upon the officers of the Institutions. It might be possible for the Institutions to be saving a number of thousands of dollars per year in the cost of supplies, due to the estimate system, and yet to be expending so much time and patience and energy in the carrying out of the system as to neglect the more important function of the proper care of the inmates. It is by no means an easy task to ascertain whether the estimate system is even producing a saving in dollars and cents. If the Institutions to-day were using the same quality of supplies that they used previous to the installation of the estimate system, and if we could be assured that they were receiving full quantity and full weight of supplies, both to-day and formerly, the task of determining the value of the estimate system could be reduced to the problem of comparing the prices paid with the market price, both for the present time and for the time previous to the installation of the estimate system. Against any apparent saving resulting from the operation of the system could be balanced the cost of administering it. Unfortunately a review of the bills and vouchers, on file in the Comptroller's office in Albany, does not inform us as to the quality of the goods purchased previous to 1893. We can secure the prices 303 paid, but it is a pure assumption when we try to assign to such prices a definite quality. Then again, we have no means of knowing what degree of care was exercised in those days to insure a proper delivery of goods. When we come to the prices paid to-day, we easily ascertain the quality of goods contracted for at a specific price, but upon a closer examination we are not at all confident that the quality contracted for is being delivered, and in some iastances we are suspicious that the quantity is deficient, so that the price nominally paid is not the real price, considering the quantity and quality of the goods delivered. An endeavor has been made in the following pages to compare prices paid in 1893 with prices paid in 1908, assuming that the quality of the goods in each of these years was the same. Such an assumption makes it necessary to choose few articles for comparison. Very few articles of diet or clothing maintain a standard grade throughout a long term of years. This comparison has been made in two ways, — first, the prices of 1893 were taken from vouchers filed in the Comptroller's office; secondly prices for the same year were secured on a more limited list of articles from the Annual Eeport of the Hospitals. In both cases these prices for 1893 have been compared with prices paid in 1908. Again, a comparison has been made between the prices paid for supplies by the Department of Charities in New York City and the Manhattan State Hospital. Both being located in Few York City, they are subject to the same market conditions and the same price for deliveries. The first of these comparisons is included below in Table I. : Table I. Hospitals. Showing the margin above or below the average yearly wholesale market price paid by certain Hospitals for specific articles, as exhibited by vouchers entered dm-ing the winter of 1892 and contract prices for October 1907 to April, 1908. The wholesale market prices were taken from Bulletin 81, Bureau of Labor. The figures given in the above table are the amounts paid for products above or below the market price chiefly in New York City. A minus sign indicates that the article was purchased below the market 203 price, and the amount given is not a percentage amount, but the actual difference between the price paid and the market price. A plus sign indi- cates the amount paid in excess of the market price. Utica. Middletown. Rochester. Binghamton. Article. 1892. 1908. 1892. 1908. 1892. 1908. 1892. 1908. Rice, lb $—.0032 S— .0296 $+.0001 $—.0298 S— .0019 $—.0295 3—0019 $—0314 Beans, bu —.2198 —.3498 +.5802 —.3698 Com meal cwt +.589 +.245 +.839 +.035 Ham.lb —.0101 +.0010 +.0024 +.0010 ... . Bacon, lb —.0062 +.0374 Vinegar, gal —.0142 —.0642 —.0342 .—0642 —.0442 —.0592 —.0142—0592 Cod, dry, lb +.0046 —.0127 +.0321 —0265 Saleratus, lb +.0332 +.0060 +.0307 +.0049 The first article in the table is rice. A comparison of this one article is of little value, since the price as given to-day is upon broken rice, and in all probability, though we cannot be certain, the rice used in 1893 was whole rice. A comparison on vinegar is also of little value, since it is so easily reduced by water or otherwise adulterated. It is certain that the institutions are not receiving pure vinegar to-day, and it is equally possible that they were not in 1892, so that a comparison of price upon this article would be of little value. The remaiuing articles listed, namely, beans, corn meal, ham, cod fish, saleratus, — are more nearly standard, less easily adulterated, and yet each of them comes in several grades, and it is impossible for ua to tell what grade of any one of the articles was purchased in 1892. But assuming that the same quality was purchased in that year as at the present time, the comparisons are somewhat as follows : Utica in 1892 purchased beans at .22 a bushel below the market price; to-day the contract price is .33 a bushel less than the market. Binghamton in 1892 paid .58 a bushel above the market price; whereas, under the contract system, it is now getting its beans at .36 per bushel less than the market price. Corn meal was purchased by Eochester in 1892 at .59 above the market, and to-day the joint contract price is .24 above the market. "Utica in 1892 paid for ham .01 below the market; to-day under joint contract, it is paying .001 above the market price; whereas 204 Eochester, for the same supply in 1892 paid .002 above the market, and is receiving it to-day at the joint contract price of .001. That is, the joint contract has reduced the cost of ham to Rochester, but has increased it to TJtica. Bacon, likewise, is costing more in proportion to the market price than it did in 1892. According to the records of Utica, that Hospital purchased bacon for .006 below the market price. The joint contract now pays .037 above the market price. Dried Cod Pish was purchased by Utica in 1892 for .004 above the market price, and to-day, through the joint contract system, it is secured for .0127 below the market price. About the same ratio is evident in the records of Binghamton. Such a comparison as is contained in the above figures is not conclusive evidence either in favor of or against the estimate system, inasmuch as there are so many factors of uncertainty involved, — ^the quality of supplies, the amounts received, the accuracy of the records, etc. After considerable labor in examining the records previous to 1892, and in the compilation of such data as is obtainable from the United States Government, the conclusion must be reached that it is impossible to judge of the efficiency of the estimate system by com- paring prices prevailing under its operation, with those paid previous to its inauguration. There is no clear evidence obtainable from this source showing that the estimate system has secured materially better prices than were secured by the institutions purchasing independently. It is evident, therefore, that if a judgment is to be reached as to the efiiciency of the estimate system in reducing the cost of supplies, it can be reached, if at all, only by comparing prices within the period covered by the estimate system. Several different bases of comparison which may throw some light upon the problem, are set forth in the following pages. The Annual Eeports of the Lunacy Commission give yearly the average price paid for certain articles by each of the Hospitals. Among these articles are flour, butter, cheese and sugar. This table has been given consecutively year by year, going back as far as 1892. By taking these figures as a basis and comparing them with the 205 market price, as given in Bulletin 81 of the Bureau of Labor, we secured the following tables of results : Table II. Hospitals. Showing wholesale prices of certain standard commodities, as reported by the Bureau of Labor compared with prices paid for certain articles by State Hospitals in years noted: Utica. 1892 1908 A A f N r Market Price Market Price Commodity. price. paid. Margin. price. paid. Margin. Flour, based on bbl. — Winter Straights $4.1216 $4.50 $+.3784 $4.2909 $4,534 $+.2431 Butter based on N. Y. Creamery — extra per lb ... . .2612 .225 — .0362 .2711 .248 — .0231 Cheese based on N. Y. full cream per lb .1058 .1025 — .0033 .1364 .119 — .0134 Sugar — granulat- ed — per lb ... . .04354 .0425 — .00104 .0494 .049 — .0004 Binqhamton. 1892 1908 Market Price Market Commodity. price. paid. Margin. price. Flour $4.1216 $4.31 $+.1884 $4.2902 Butter 2612 .22 —.0412 —.2711 Cheese 1058 .097 —.0088 —.1364 Sugar 04354 .041 —.00254 —.0494 Buffalo. Flour $4.1216 $4,550 $+ .4284 $4.2902 Butter 2612 .2433 —.0179 .2711 Cheese 1058 .1050 —.0008 .1364 Sugar 04354 .043 —.00064 .0494 Hudson River. Flour $4.1216 $5. 04$+. 9184 $4.2902 Butter 2612 —.1979 —.0633 .2711 Cheese 1058 —.1128 + .0070 .1364 Sugar 04354— .0412 —.00234 .0494 Price paid. Margin. 14.539 $+.2688 .258 —.0131 .123 —.0134 .049 —.0004 t.497 $+.2068 .256 —.0151 .133 —.0034 .050 +.0006 1.737 $+.4468 .227 —.0441 .121 —.0154 .04842 —.00098 2902 $ 4.471 $+.1808 2711 .256 — .0151 1364 .129 —.0074 0494 .051 + .0026 206 MiDDLETOWN. Flour $4.1216 $5.28 $+.1584 $4.2902 $4,705 $+.4148 Butter 2612 —.2175 —.0437 .2711 .250 —.0211 Cheese 1058 —.119 +.0132 .1364 .135 —.0014 Sugar 04354— .044 +.00046 .0494 .0493 —.0001 Rochester. Flour $4.1216 $5.08 $+ .9584 Butter 2612 .2556 —.0057 Cheese 1058 . Ill + .0052 Sugar 04354 .0462 + . 00266 St. Lawrence. Flour $4.1216 $4.81 $+.6984 Butter 2612 .209 —.0522 Cheese 1058 . 1127 + .0069 Sugar 04354 .0439 +.00016 .0494 .0486 —.0008 WiLLARD. Flour $4.1216 $4.31 $+.1884 $4.2902 84.554 $+.2638 Butter 2612 .187 —.0742 .2711 .257 —.0141 Cheese 1058 .098 —.0060 .1364 .101 —.0354 Sugar 04354 .039 —.00454 .0494 .0487 —.0007 Summary of Table II. The figures given are the margins paid above or below the market price, as indicated by the plus or minus signs. Flour— bbl. Cheese— lb. 2902 $ 4.537 $+.2478 2711 .24 — .0311 1364 .11 — .0264 Institutions. 1892 1908 1892 1908 Utica $+.3784 $+.2431 $—.0033 $—.0134 WiUard +.1884 +.2638 —.0060 —.0354 Hudson River +.9184 +.4468 +.0070 —.0154 Middletown +.1584 +.4148 +.0132 —.0014 Buffalo +.4284 +.2068 —.0008 —.0034 Binghamton + . 1884 + .2688 — .0088 + .0134 St. Lawrence +.6984 +.2478 +.0069 — .0264 Rochester +.9584 +.1808 +.0052 —.0074 Average $+ .48965 $+ .2841 $+ .00167 $—.01105 307 Butter— lb. Institutions. 1892 1908 Utica $—.0362 $—.0231 Willard —.0742 —.0141 Hudson River —.0633 —.0441 Middletown —.0437 —.0211 Buffalo —.0179 —.0151 Binghamton —.0412 —.0131 St. Lawrence —.0522 —.0311 Rochester —.0051 —.0151 Average $—.0417 $—.0196 Sugar — lb. 1892 1908 — .00104 $—.0004 —.00454 — .0007 — .00234 — .0010 + .00046 — .0001 — .00054 + .0006 — .00254 — .0004 + .00016 — .0008 + .00266 + ,0026 $—.00096 J ;— .00002 By referring to the Summary of Table II., above, it will be noted that in 1892 the average price paid for flour by the eight Hospitals tabulated was .4896 per barrel above the market price. To-day the same Hospitals pay on an average of .284 above the market, or a reduction of practically 20 cents per barrel. Butter, in 1892, these Hospitals bought at .0417 below the market and in 1908 they purchased at .0196 below the market, which indicates that in 1892 the Hospitals bought this article more advantageously than to-day. With cheese, the average price paid in 1892 was .00167 above the market, and in 1908 the price paid was .01105 below the market. Sugar, in 1892, they purchased at .00096 below the market, and in 1908 at .00002 below, which is a slight increase. The same thing must be said in reference to these articles that was said in connection with the previous table. It is impossible to tell what grade of flour or butter or cheese, or even sugar, was used in 1893. It is altogether probable that the Kew York market quotations do not bear the same relation to the local market in the vicinities of these Hospitals as it does to-day. New York city quotation on flour may have been met but slowly by the local millers. The cold storage plants had not been developed so generally in 1892 and butter could not be stored as it is to-day, nor shipped so readily; consequently, the local butter market would not bear the same relation to the general market in 1892 as it does at present. These observa- tions, however, would not apply to any great extent to the articles of cheese and sugar, both of which are more easily kept and shipped. 208 If we take the above margins in the summary of Table II. and multiply them by the per capita consumption of each of the articles we shall secure the amount apparently saved or lost on the articles by the introduction of the estimate system. As noted above, there was a saving of 30 cents per barrel on flour which, when reduced to the per capita consumption, equalled a saving of .25098 per capita per year. On cheese there was a saving of .08446 per capita. On butter there was a loss of $1.0266, and on sugar a loss of .0538 per capita. Considering these four articles, there appears to have been an ag- gregate loss, by the introduction of the estimate system, of .745 per capita, or practically .75 per capita per year. We have no ground for assuming that this same ratio maintains through the other articles of supplies used by the Hospitals, since there are very few articles as comparable as those above indicated. A comparison of clothing or household supplies would require a sample of the goods used in 1892. The fact, however, is significant, that of these four important articles noted in the table above, there was a loss apparently due to the removing of the purchasing power from the Hospitals and placing it in a central department. Were this same ratio to be maintained in the purchasing of the supplies for the Hospitals, the loss would be very material. The fact that the Hospitals purchased butter at a price much more below the market price in 1892 than the estimate system secured in 1908 might be assumed to be somewhat due to the fact that cold storage facilities, both as to local plants and as to refrigerating cars, had not developed in 1892 as they have since that time. Owing to this fact the local price of butter might be supposed to be less influenced in that period by the general market than it is to-day. This would be a very fair assumption, and would materially affect conclusions were it not for the fact that it becomes evident even in recent years, — for instance, since 1906, — that the Hospitals have purchased butter cheaper than butter is purchased by the joint spstem, as operated in the Charities Department. The Hospitals did not begin to purchase butter under the joint contract system untn 1909. The Charitable Institutions began in 1906, and the 309 average prices in the three years — 1906, 1907 and 1908, by the two departments were as follows: Charitable Institutions, Joint Con- Hospitals, Purchasing Separately, tract — ^Average Price. — Average Price. 1906 $.2298 1906 $.2158 1907 2685 1907 2473 1908 2645 1908 2503 Total average $.2543 Total average $.2378 Here it will be noted that the average price paid for butter by the Charitable Institutions which bought it under joint contract system was .2543, while the Hospitals during the same years bought their butter at the average price of .2378, or nearly .02 cheaper per pound. This would indicate that it is fair to assume that the higher price paid for butter in 1908, as compared with 1892, was due in part at least to the estimate system rather than to any change in the improvement of cold storage plants, etc. Another comparison may be made between the prices paid by the Charitable Institutions and those by the Hospitals for beef carcass and cheese, which were purchased by the Charitable Institutions under joint contract system during the j'ears 1906 to 1908, and by the indi- vidual Hospitals during the same period. The average prices paid were as follows: For Fresh Beep. Charitable Institutions Hospitals under joint contract, buying separately. 1906-1907 .05966 .0661 1907-1908 .06429 .06685 Cheese. 1906-1907 .11 .116 1907-1908 .139 .121 {Note. — The hospital prices for fresh beef were taken only from Kings Park, Hudson River and Middletown.) It will be noted by the above table that the Hospitals paid a frac- tion of a cent higher per pound for fresh beef than did the Charitable Institutions; and for cheese, the Hospitals paid higher in 1906-1907, but paid less in 1907-1908 than did the Charitable Institutions. The saving on fresh meat by the contract system, averaged for two 310 years .0045 per pound, which at a yearly consumption of 130 pounds per capita, would produce a saving of 58.5 cents per capita a year. This saving on meat is more than overcome by the apparent loss, previously noted, of 75 cents per capita on butter and sugar. A comparison applicable to the Charitable Institutions similar to that made with the Hospitals in Table I. is contained in Table IV. as follows : Table IV. Charitable Institutions. Showing margin above or below average wholesale market price paid by three Institutions for specific articles bought in 1892 and 1908 respectively- The 1892 prices were taken from vouchers as follows: Batavia, July to Sep- tember, inclusive; Hudson and Newark, October, 1891 to March, 1892. The prices for 1908 are joint contract prices for similar periods in 1908. Hudson. Newark. Syracuse. Bath. Article. 1892. 1908. 1892 1908. 1892. 1908. 1892. 1908. 1892. 1908. Flour S— .8716 $+.7641 81+. 8784$+. 7641 $+.6284$+. 7M1 Com meal + .01308 + .00185 Rice +.0081 —.0274 .?+ .0081$— .0274 Beans +.6302+.0502 Cheese +.0292 —.0044 Butter —.0012 -.0056 —.0612 -.0056 —.0212 —.0056$— .0612$— .0056 Lard +.0229 —.0071 +.0037 Sugar, granulated +.0015 +.00159 Vinegar —.0242 —.0417 +.0358 —.0417 —.0142 —.0417 Codfish —.0029 —.0098 An examination of the above table bears out the fact stated above, in connection with the Hospitals, that butter was purchased more cheaply before the introduction of the estimate system than subsequent to it. Newark in 1892 purchased butter at .06 below the market price, Syracuse .03 and Bath .06. All three of these institu- tions in 1908 purchased but .005 below the market price. That is, in 1908 they were purchasing under the estimate and joint contract system. It will be noted that flour was purchased .87 below the market price in 1893 by Batavia, and at .76 above the market in 1908. On the other hand, in 1893 Hudson paid $1.87 above the market, while Newark paid but .63 above. Both in 1908 paid .76 above the market. Two of these institutions, it would appear, lost by the introduction of the estimate system in the purchase of flour. Hudson, on the other hand, gained. The estimate system seems to have produced favorable results in the purchase of corn meal, beans, cheese and cod flsh. It was not 211 advantageous in the purchase of sugar. The same remarks are applicable here as made above, — that, owing to the uncertainty of the quality of articles purchased in 1892, any conclusions drawn from these figures are not necessarily conclusive. But assuming that the qualities of articles were the same in 1892 as in 1908, the saving on the estimate system is not clearly established. Though it produced a saving on some articles, it results in a loss on others. A side-light on the economies of the joint contract system may be gained by comparing the prices paid for supplies that are under the joint contract system in the Hospitals and Charitable Institutions, with the same supplies in the Prison department, which are bought by the individual institutions. Such a comparison is set forth in the tabulated form below: Comparative Prices Paid by Rochester, Matteawan, Rome and Sing Sing. These prices are for the month of January, 1909, except where otherwise indicated. Flour, graham Flour, rye Cora meal Hominy Roled oats Barley Tapioca Rioei Macaroni Beef, carcass Beef, fores Fresh fish Cod fish Butter Vinegar Chocolate Salt, table Apples, evaporated . . . Peaches, evaporated. . , Oranges Lemons Parafi&ne Com (feed) Bran Oats Peroxide of hydrogen . Glycerine Ether Chloroform Eochelle salts Ammonia carb Castor oil Sodium bromide Morph. sulph., } gr Migraine tablets No. Wyeth Ex. bitter orange Cod liver oil Clinical thermometers . . Bismuth subnitrate . . . Rochester, bbl., $3.85 bbl. « 4.25 " 4.01 " 5.29 lb. .0274 .0338 " .0294 " .038 " .0811 " .0695 <( .0425 av. " .0513 " .25 gal.. .14 1 Ih., .212 bbl, 1.56 i lb,, .0685 .0635 box. 3.00 " 3.50 lb.. .0674 bu„ .71 ton. 24.00 < bu„ .57 lb.. .11 Matteawan. S4. 60 Mar., '09 bbl., 4. 75 Mar., '09 .... 4.07 bbl., 4.05 5.95 Rome. 33.86 Sing Sing. lb., .0375 .04 .076 .0615 .0323 av. .065 .255 .1375 lb.. 4.60 4.60 5.90 2.60 .0335 .0317 broken lb., .04 .018 bbl., lb.. 5.84 .0239 .0287 broken .07 .0409 av. bbl., lb., 1.87 lb, gal., lb., bbl.. .0687 Feb., '09 lb., .264 .135 .23 1.95 .0675 .0772 lb., gal.. ,345 .04 lb.. .0725 .07 . . .box, lb., . . .bu., 26.00 ton, .60 Feb., '09 bu., lb.. gal., lb., 1000 .16 .17 .47 .22 .29 1.00 .20 2.58 gal., 1.70 gal., lb.. .205 .40 .95 .27 3.66 .069 .75 24.50 .58 .22 Feb., '09 .1485 Mar., '09 .21 Feb., '09 .86—500 .96—500 .2178 Feb., '09 box, 3.00 bu., 1.02 ton, 30.00 gal., 1 . 15 May, '09 .87 lb., .75 gaL, 1.00 gr., 28.50 lb., 1.46 lb.. 1.00 1.06 Feb., lb., 1.06 Dec, '08 500 .56 .doz., .lb., 3.96 Mar., '09 1.584 Dec, '08 213 It ■mil be noted by reviewing the figures of the above table, that the prices of some of the supplies is somewhat higher in Matteawan and Sing Sing, than in Eochester and in Eome; on the other hand many of them are lower. Graham and rye. flour cost respectively, $4.60 and $4.75 a barrel in Matteawan as against $3.85 and $4.10 in Eochester. This difference, however, is largely accounted for by the increase in market price, Eochester having contracted for her flour under joint contract in the fall, whereas Matteawan bought her flour in the late spring after there had been a material rise in the price of wheat. On the other hand, Matteawan purchased corn meal at $4.07 per barrel as against $4.25 for Eochester, and $4.60 for Eome. Likewise Matteawan purchased hominy at $4.05 per barrel as against $4.01 for Eochester and $4.60 for Eome. Eolled oats cost Matteawan somewhat more than the other institutions, viz., $4.95, Eochester paid $4.29, and Eome $4.90. This was also true of tapioca, Matteawan buying at .036, Eochester at .0338, and Eome at .0335. Matteawan purchased her beef more cheaply than either of these institutions, paying for carcass .076 against the price of Eochester, .0811, or Eome, .0806, and for fores Matteawan paid .0615 against the price at Eochester of .0695, and at Eome .07. Salt Matteawan bought for $1.87 per barrel, as against $1.56 for Eochester, and $1.95 for Eome. Matteawan paid $26.00 a ton for bran as against $24.00 for Eochester, and $24.50 for Eome. Matteawan paid $1.00 a pound for extract of bitter orange; Eome paid $1.06. Matteawan paid .95 a gallon for castor oil, whereas Eochester paid $1.00, and Eome $1.15 a gallon. For Eochelle salts, Matteawan paid .205 a pound, whereas Eochester paid .22, and Eome .2178. Inasmuch as Matteawan is also under the estimate system, it might be assumed that a comparison such as is made above, would be of no value. But it must be borne ia mind that although the estimate system exists in the Prisons, it is practically non-operative, since each institution is at liberty to buy about as it chooses. A superficial glance at this table might lead one to believe that Eochester and Eome purchased supplies a fraction of a cent lower than Matteawan. If, however, all of the supplies purchased by Matteawan at a price lower than that paid by the other institutions, be added together and compared with the aggregate paid by the other institu- tions at a higher rate, it will be found that on an average, the 213 prices were apparently slightly lower at Matteawan than at Eome and Eochester. As remarked in connection with previous figures, this comparison is not of great value, since we are unable to com- pare the quality of the supplies received by these different institutions. I believe it is fair to assume, however, that they are about of the same grade, and that the general conclusion we are warranted in drawing from the figures is, that prices are little if any higher at Matteawan, purchasing separately and practically without an estimate system, than at Eome and Eochester, purchasing under a joint contract and a rigidly administered estimate system. In the endeavor to ascertain whether or not the estimate system pays, another line of inquiry which may be followed is to attempt to discover in what degree it has regulated the yearly fluctuation of the cost of maiatenance. Plate I. on the following page, gives the curve of the yearly main- tenance of the Hospitals since 1894. This table shows that the maintenance cost has varied from a maximum of about $195.00 in 1897, to a minimum of about $162.00 in 1902, and a gradual rise from the latter date to 1909, when it reached about $191.00. To ascertain what caused this fluctuation it is necessary to analyze the elements that make up this curve. By putting in curved form the yearly cost of each of the twelve estimates, it is discovered that ten of these estimates have comparatively little effect upon this variation. These ten estimates include all expenditures for maintenance except wages and provisions and stores. On the other hand, the item of wages, and provisions and stores, taken together account for nearly all of the variation. Plate II. shows the curve of expenditure for wages, and Plate III. for provisions and stores. The expenditures represented in Plates II. and III. are thrown into one curve, and in Plates IV. are compared with the maintenance curve of Plate I. It will be noted that the curve composed of provisions and wages is very similar to the curve for maintenance. The correspondence of the maintenance cost with the combined cost of provisions and wages in the Charitable Institutions, is shown in Plate V. The expenditure for wages is more or less of a fixed charge which cannot be regulated to any great extent through the means of the estimates. To be sure the ratio of employes to inmates can be varied more or less, and in fact it has been so varied, increasing from a ratio of 1 to 4 in 1894, to 1 to 5.5 in 1903. Since that 214 215 & 216 P4 :::;;:||j;||jp; ;;;:;;;;; iiillMiliilii n inn llili iill iiii ii iilllll III! i IIII III illi»lll!lll[|[lh:l:|n[lli[ll[[|[ 1:;: :: si :::::::; ;;:: :i :::::»:::: i: iiii: I i iiiii-i iii: ii ii i;:ii:ii:i ::is iiii: ii ii iii Iiii illii iiii iiiiiiiii iii ^iii iill IjHllli III! 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''^: : : :^ tf ffr p^" in wF flffrli: llliiiiii]ii]iiiiill piiijii 111^^^ ■-. 1 :::::: c: :: : :: 1 1 ::^:|^: lliiiiiii 1-1 <: H O w H .2 c e B cog < < < 1 9 u ;3 8 8 » ^ » ;S 0} o £2 5& § w o (13 2 a CO S. ■* N 09 L 4» 4» 318 : jlilll f||I n]]] !w -lff-l ^^ o .2 2 2| t 9.9. ^^ a) u < o. a H „ - « 3 = < g c 219 II 1 ;: :: ;: : : ; :;;i;;;SJ:i lllllljllllllllllllllllll ' ■■'"' tji+ii 1 ::: : : : \:----\ ! WWW |Mj : :: :: : :: :±1d iitt i: :± h:;!! : ;;|S;e£|;;i|;|;;;;;;;; :!:: : a|iil"»iF J Ulilil m T't T^ ^' xga ™l ' 1 : : :: ::::B 44tJ- j- t:::| -4-:i'; 1 ill! ^ m ^-■t f ittrtttt : : |. . :::::::':t:t^ 1,, :■; ;;-l;i*3E :::|:::-j:p-1 :|±i::::: ::|: :;±t : : :: : : :::q: : ::::::::::± ig; ::: M ■lll|B|iy^ si 1 S 1 tt::!: ;:;; a ^^ B -f :; :: 1^: 1^;: ]■■:■. IpS^ ■-i--f S i t?^i*^t ;:::::::: 1 ■■■'i ■ i--| Illlilllllllllllllllll w lilS: ■r-k ES M ; , IT--H :.mm ::::M , t-t ■ <; H O M w < sS a ^ g rt el u o 220 year it has decreased again to 1 to 5. This fluctuation in the ratio has accounted for a large element in the fluctuation of the wage curve. The largest factor- in this fluctuation, however, is probably due to legislative action increasing wages in the years 1904 and 1905. Since the estimate system has practically no control over the expenditures ordered by the Legislature, and little control over the fluctuation of the ratio of employees to attendants, we must look for the variation from year to year in the total cost of provisions. Since the chief variant, regulated by the estimates, entering into the yearly maintenance cost is provisions, an endeavor has been made to ascertain what relation the cost of these provisions bore yearly to an estimated cost of the same provisions based on wholesale rates. Such a comparison would be of value in reaching a conclusion as to the effectiveness of the estimate system if all the factors entering in could be known. In making this comparison the curve in Plate III. was corrected as shown in Plate VI. by eliminating from it the estimated cost of stores and commutation. It was further corrected by distributing the cost of provisions among the total number fed at the institutions including the employees and officers. This corrected line is shown in Plate VI. in con- junction with a curve representing the estimated cost of pro- visions supposing them to have been purchased at wholesale rates. The wholesale prices were taken from the Department of Labor in Bulletin No. 81. This line was constructed by securing the actual consumption of the difl'erent articles of food in two Hos- pitals and taking the average of these two as the average per capita consumption for all Hospitals. It is easily possible that the amount assumed to be consumed by each inmate is too large, so that the broken line may be above the complete black line in places where it should be below. But this fact does not affect the con- clusion which we wish to draw by placing the two lines in conjunction, namely, to notice the varying distances between these two lines year by year. If the inmates were fed the same number of pounds of the same kind of food each year, and if such food was bought at the same percentage above or below the wholesale market rate each year, then the line representing the actual cost per capita and the line representing the wholesale prices, would remain parallel and the same distance apart each year. As a matter of fact, it will be noted that there is a wide variation. In 1894 these two lines, the wholesale price line and the cost of provisions line, were very near together. the wholesale price being somewhat above the actual expenditure. In 1895, the actual expenditure rose considerable above the market price, whereas in 1896 when the price of provisions was very low, the two lines approached somewhat nearer, while in 1897, the actual costs were materially higher than the market price. In 1898 the actual cost came down to nearly the market price, and in 1900 reached a point below the market price, and has maintained that position since that year. In 1903 the market price for food rose very materially, whereas the actual cost to institutions decreased slightly. This may be explained by the extreme and unwise economy which was exercised at that time. One factor which tends to keep the cost of living down as the market price of food increases, is the increased effici- ency of the farms. The cost of supplies as given in these tables, gives only the amount actually spent for food, but does not take into account the amount raised on the farms of the institutions and consumed by the inmates. This amount has increased year by year and materially reduces the per capita cost of provisions, and should naturally cause the curve representing the market price and the curve representing the cost of food to diverge. It might be argued from these two curves that the estimate system had undoubtedly proven itself effective in that it gradually reduced the cost of food to a point below the wholesale market rate, and had maintained it nearly on the same level though the market price had steadily and very materially increased since 1896. This argument would be effective and this conclusion well founded, could we be sure that the inmates had been uniformly provisioned with equal propor- tions of the same kind of food, year by year, and if we also could be sure that qualities of food delivered under the joint contracts ful- filled the specifications. Since we can be sure of neither of these points and since moreover, we are quite certain that as to the latter there are some grounds for belief that the specifications have not been complied with, we are unable to found an argument either for or against the effectiveness of the estimate system upon this method of comparison. Again, if we assume that there has been an actual reduction in the cost of food in relation to wholesale prices, we have yet to ask whether such reduction is due to the operation of the estimate system, or to the introduction and operation of the Joint contract system. Each could operate without the other, and each may have been to a certain extent effective in reducing costs if there have been reductions. 222 V. SUMMARY OF FINDINGS. THE JOINT CONTEACT SYSTEM 1. Prices paid and qualities of supplies received: (a) The Purchasing Committees secure good prices, but give too little heed to the quality of goods received under their contracts. (b) Over 90% of the butter was below contract specifications. (c) The beef met the specifications in but five of the seventeen institutions examined. (d) Cow beef was being received at several places, though steer beef was being paid for. (e) The mixed white paint contained less than half the amount of white lead provided for in the formula. (f) Some of the dried fruit, molasses, syrup, vinegar, baking powder, etc., did not measure up to the specifications of the contracts under which "they were purchased. 2. The specifications of both Purchasing Committees are unsatis- factory: (a) In some cases they call for a higher grade than seems advis- able, in others they are not sufiiciently clear. (b) The Committee of the Hospitals specified butter, "extra" by name but " special " by grade, a contradiction in the definition that tended to keep some reliable merchants from bidding. No con- tractor could have delivered "special" butter in quantities required by the contract. (c) The Committee, of the Charitable Institutions, designated a quality of beef suitable for a high class trade. (d) The Purchasing Committee of the Hospitals permits glucose in its molasses but does not designate the amount. (e) Both Committees name firms and brands in their specifications. 3. The Purchasing Committee of the Hospitals levied fines on contractors for defective deliveries, retained these fines to pay ex- penses of the Committee and made no report to the Lunacy Com- mission of fines collected for a period of over two years. 223 4. Neither the Purchasing Committees nor the supervising depart- ments have instructed stewards how to distinguish various qualities of supplies. At present the steward is self taught; his knowledge is gained only while occupying the position. 5. The Purchasing Committee of the Charitable Institutions, com- posed of busy, superintendents and with the aid of but one woman clerk, is attempting the impossible task (a) of watching the markets (b) of drawing up proper specifications (c) of making contracts (d) of conferring with producers and merchants (e) of testing various competing products (f) of experimenting to determine the most advantageous foods and fabrics for use of the institutions (g) of seeing that the supplies received correspond with the speci- fications under which they were purchased. 6. Too little care is given to a selection of the supplies to be pur- chased under joint contract. The investigation show"S that, (a) Butter has cost more purchased under joint contract than when purchased by each separate institution; (b) Cotton goods can be bought as cheaply by one institution as by all combined. 7. The form of contracts used by both Purchasing Committees do not provide for an annulment of the contracts. The present Fiscal Supervisor sought to cancel the contract for butter on the ground that the contractor was persistently delivering butter below the specifications of his contract. It was found the contract could not be cancelled. 8. Both Purchasing Committees receive small samples at the time bids are made; the successful bidder is permitted subsequently to send a larger sample, which is subdivided and a portion sent to each institution. Ko reliable method is in use of comparing the second sample with the one submitted with the bid. The samples, during the term of the contract, are kept in small pasteboard boxes, where they rapidly deteriorate. THE LUNACY COMMISSION 1. The Lunacy Commission has but one expert adviser regularly employed. The result is that the Commissioners depend too much upon their own judgment as to the technical needs of the institutions. 324 2. The Lunacy Commission makes arrangements with firms to furnish certain supplies at given quotations, and the institutions are informed of such arrangement. The arrangement has practically the force of a contract. This was done for absorbent cotton and for window shades. The Commission is not empowered to enter into a contract for supplies. It is important that the function of buying and contracting for supplies which now resides in the Hospitals or their representatives, should be kept separate and distinct from the function of regulating the prices to be paid, which function resides in the Lunacy Commission. 3. The Commissioners do not keep in close enough touch with its Purchasing Committee of stewards appointed by themselves. It was not known by them that the Purchasing Committee was fining contractors for defective deliveries of supplies. The Committee had not reported such fines for over two years, yet they had not been called to account by the Commission. 4. Although the Purchasing Committee contracts for supplies, nevertheless it is the duty of the Lunacy Commission to see that such methods are adopted as will insure a proper receipt of goods contracted for. This duty has been almost entirely neglected. 5. The commissioners have not sufficiently scrutinized the recom- mendations of subordinates. Had they done so it is unlikely that they would have authorized a contract to be given to not the lowest bidder, resulting in an excess cost to the State of about $3,000. 6. Had the Commission had a better system of receiving, cheeking and reporting on supplies, it is unlikely that butter, beef, paint, dried fruits, etc., not complying with the specifications under which they were purchased, would have been received by the institutions. The State has lost many thousands of dollars by such defective deliveries. THE FISCAL SITPEEVISOE 1. The Fiscal Supervisor, as noted above, has so administered his office as to lessen the attention and strength which the superintendents could give to the care of the inmates. The necessity of almost daily argument on the part of the superintendents with the Fiscal Super- visor's office by means of correspondence, telephone and telegraph, to secure small articles of daily need, has left little time to be de- voted to the larger needs of the institutions. 025 2. The policy of the Fiscal Supervisor seems to have been to appear to save by reducing the price permitted for any and all articles, wherever possible, regardless of the insignificance of the article or the amount of the reduction. The result has been that what in a great many cases appeared to be a saving was an actual loss due to the substitution of a poorer article, or due to the necessity of paying an amount for freight or express, in buying from the firm referred to, that more than exceeded the assumed saving. 3. While giving attention to many small savings, the Fiscal Super- visor has neglected to take note, (a) of the large losses resulting from not properly contracting for coal and not weighing it on receipt, and from the careless firing of the boilers; (b) of the loss from the poor management of the farms con- nected with the institutions resulting in the necessity of purchasing many thousands of dollars worth of food that should have been produced ; (c) of the loss resulting from poorly built buildings, (d) of the loss resulting from buying a certain set variety of foods regardless of the market price of such foods, — overlooking the pos- sible substitution of foods of equal nutritious value but of less cost. 4. The Fiscal Supervisor having employed but one expert, viz, an engineer, has been largely in ignorance of the real needs of the institutions. (a) He had no means of knowing whether or not the officers, the inmates or even the cattle are properly fed with the food allowed under the estimates passed by him. (b) He did not know the possible productive value of each farm and what should have been received from it. (c) In short, he neither had the knowledge himself, nor was it supplied to him through experts, to properly direct the financial management of the institutions. 5. The Fiscal Superflsor had not established any system of re- ceiving, checking or reporting supplies: as a result, (a) nearly all of the butter received did not meet the specifications; (b) although the specifications called for a high grade of steer beef, yet many of his institutions have been receiving poor cow beef. The weights also have been much less than specified. The inmates 226 thus have been fed on tough unpalatable cow meat while the State has been paying for a good grade of steer beef. (c) Other supplies have fallen below the specifications, such as molasses, syrup, vinegar, machine oil, etc. (d) No supplies on receipt have been regularly tested chemically. THE ESTIMATE SYSTEM 1. The Estimate System combined with the Joint Contract System (a) Secures prices which are as low as New York City wholesale market quotations for supplies purchased in quantity. Low prices are also obtained on all supplies not purchased under joint contract. (b) Equalizes the quality of supplies for each class of institutions. (c) May, and to some extent does, regulate the quantity of sup- plies purchased by each institution so that these supplies may be provided in proper proportion for the best welfare of the inmates. 3. Though the estimate system as administered apparently has been reasonably effective in regulating the price, quality and quantity of supplies, yet it has failed to properly guard the receipt of goods, which failure, in quite a measure, has offset the good work done in purchasing. In attempting to save by means of the estimate system the central supervising officers have largely directed their attentions to reducing prices rather than to possible savings that might be made in the foods and goods during consumption and also to the production of food on the farms and the manufacture of goods by the labor of the inmates. 3. The estimate system costs to operate per year about $30,000 in the Fiscal Supervisor's Department and about $19,000 in the Lunacy Commission. Much effort has been expended during this investigation in an endeavor to determine whether or not the system has been saving the State more than it has cost to operate it. It is probably impossible, from any obtainable source of information, to ascertain the net saving, if any, secured by the supervision and revision of the estimates. This failure is due most largely to the fact that the qualities of supplies actually received by the institutions is not known. 4. As operated the Estimate System has not produced an equal treatment of the superintending officers of the institutions in the three departments using the system. The wardens of the prisons get from $75.00 to $150.00 per month for their private tables; the 327 superintendents of the Hospitals have good table furnishings, and although they secure their food from the general supplies, yet it is of a reasonably satisfactory quality ; the superintendents of the Char- itable Institutions have poor table furnishings and an uninviting variety of food. POSSIBILITIES OP A CENTRAL SYSTEM OF CONTEOL NOT WELL WOEKED OUT. 1. Details that could be fully understood only by officers at the Institutions, the central departments have attempted to supervise from Albany. This method of administration, especially in the Charitable Institutions, has required almost constant attention on the part of the superintendents, thus greatly reducing the time and attention that should have been devoted to the inmates. 2. The activities of the Albany departments have been chiefly nota- ble in securing small savings on many relatively unimportant things. The problems which have been most successfully handled by the Albany departments are such as could be readily supervised and understood by subordinates, while the large constructive questions involved in institutional management, and which require serious study on the part of the responsible heads of departments or under their direction, have been little considered by the Lunacy Commis- sion and almost totally neglected by the Fiscal Supervisor. 3. The constructive possibilities of a central system of control have been but little realized in the administration of the New York State Institutions. A central system's chief function should be to determine the best methods of handling, feeding and clothing the inmates ; the best methods of buying and receiving supplies ; the most profitable ways of operating the farms; the most economical ways of constructing, heating and lighting buildings; the systems best adapted, for keeping complete and accurate accounts of all opera- tions, and various other large needs of the institutions. As at present administered the central departments are reasonably efficient in regulating the prices paid for supplies — ^the least import- ant of their functions, and a function which could be fairly well performed by the Institutions themselves. The larger functions enumerated above — functions which the Institutions acting indi- vidually could not well perform, are exercised in but a moderate degree by the Lunacy Commission and but slightly hj the Fiscal Supervisor, 238 APPENDIX. Exhibit A. — The following incidents, supplementing those given in the body of the report, are designed to show the petty policy and small view of the Fiscal Supervisor's Department. Food supplies. — In December, 1908, Eome estimated for 410 pounds of bacon. On purchasing, the amount shipped was 413 pounds, making an excess of 3 pounds or 37c over the estimate. The Fiscal Supervisor under date of February 15th makes this remark to Dr. Bernstein, as treasurer, " This excess does not appear to have been provided for." In the same estimate was an item for 3,787 pounds of sugar. The purchase exceeded this by 6 pounds or 30c. The same remark was made in reference to this item. In October, 1908, Syracuse estimated for one barrel of mackerel, which was disallowed with the following note from the Fiscal Supervisor, "Allowed in August. It has not been usual for this institution to buy mackerel in October.'' It was finally allowed. In December, 1908, Bedford estimated for sixty pounds of baking powder. In the revision this was cut down to fifty pounds, without explanation. Thereupon the superintendent wrote the Fiscal Super- visor as follows: "As dealer is unwilling to sell except in 30 lb. packages, we have only bought 30 lbs. each month this year. This leaves us 15 lbs. short on our purchases. We asked to be allowed to buy 60 lbs. in January and 30 lbs. for three months thereafter. The average for last year was 35% lbs. per month, and for this year 35 lbs." • It was not subsequently allowed. In June, 1909, Bedford estimated for one barrel of hominy. It was disallowed with this explanation by the Fiscal Supervisor. " No purchase last year in June." 229 Thereupon the superintendent, under date of May 35, wrote the Fiscal Supervisor as follows: " We show a balance of 33 lbs. on hand. I cannot see that the fact that no purchase was made in June last year has any bearing upon the needs of this year. It is probable that if a barrel is allowed in June we shall be enabled to omit purchase of hominy in July." Household and General Supplies. In October, 1908, Hudson estimated for six gross of agate buttons at $1.00 with the following explanation: "For general use on the girls' clothes; supply exhausted." The item was suspended with the following explanation: " These do not seem to be usual, none having been purchased prior to September." The superintendent verbally explained that the only thing unusual about these buttons was their size; that they were constantly pur- chasing agate buttons. In October, 1908, the Bedford estimate contained an item for one dozen clothes baskets, with the explanation that they were to be used in the Eeception House. These were disallowed with the remark on the part of the Mscal Supervisor that, " One dozen were allowed in September for the laundry." In reply to this, under date of September 25, the superintendent wrote the Fiscal Supervisor as follows: " In order to accomplish the ironing of the institution we are obliged to run an ironing room in the basement of the Reception House, carrying the clean clothes from the laundry. It is for this room that the baskets are needed, those now on hand being entirely worn out. The wear and tear on clothes baskets is very great, — first, because they are used for carrying very heavy loads of wet clothes, and, second, because they are used by people who are very careless in the way they handle them." In February, 1909, Bedford estimated for one bottle of ink. The item was suspended with the remark that, " The size of the bottle was not stated." Syracuse in December, 1908, estimated for one bottle of India ink at 25c which was reduced to 19c and reference made to the Albany News Company. Under date of December 15th, the superintendent wrote the Fiscal Supervisor that he could not purchase this ink locally for 19c and to purchase it at Albany would involve an expressage 330 cost amounting to more than the original cost of the ink. Under date of December 18th, the Fiscal Supervisor replied to the super- intendent that he might include this item in his January estimate, thus postponing the purchasing of the ink two months from the time it was estimated for. The Board of Managers of Syracuse desired a new directors' table and chairs to match. Accordingly after a visit by the President to a warehouse, a selection was made and in August, 1909, the table and chairs were estimated for. The price of the table was cut, in the revision, from $58 to $35 and the price of the chairs was increased 50c each and reference made to an Albany firm. A visit was made to Albany to inspect the table and chairs which were found unsatis- factory and after several letters on the part of the institution and the President of the Board, Mr. Cheney, the estimate was finally allowed. Under date of February 32, 1909, the superintendent of Craig Colony found it necessary to write to the Fiscal Supervisor asking for the authority to get a pair of hair clippers sharpened at a cost of 50c to 75c; on February 35th to get eight surgeon's knives sharp- ened. On March 9th he asked for the privilege of buying some hinges for refrigerators, and on April 5th one dozen stenographer's note books at the cost of fSe. Tn April, 1908, Industry estimated for some pipe unions and neglected to specify "galvanized." As a result of this oversight the Fiscal Supervisor cut the price to black unions with reference to Fairbanks' Companv of Albany. This matter was not straightened out before June 35th, during which time there were exchana:ed between the institution, Fairbanks and Company, and the Fiscal Sup- ervisor's office twelve letters. The followinsf illustrations are taken from the records of Hudson : ETTLER Chapd rttrberV — Tn thp Mav. '09. estimate was an item for one hard rubber ruler for use in the office. Tt was disallowed. This same ruler had been estimated for at various times for more than a year, and it was estimated for in April, Mav and Julv of 1909, and each time disallowed. The cost of the ruler was placed at forty- five cents and was a much needed article in the office, but the Fiscal Supervisor each time disallowed it without explanation, 231 TYPEWRITER PAPER. — Three reams of typewriter paper was esti- mated for in October, for use in the office. The item was suspended without explanation. Inasmuch as this was the usual allowance, and the amount needed, the superintendent was unable to understand why the item should be suspended. MATTRESS. — The August, '09, estimate provided for one mattress. It was disallowed, with an explanation on the part of the Fiscal Super- visor as foUows: " Hair mattresses should be made over, not replaced." This, however, was not a hair mattress but Tampa moss, and had been used for a number of years and could not be made over. The mattress was subsequently allowed July 20. DOUBLE BOILER. — In the May, '09, estimate a double boiler was asked for, with the following explanation : " For No. 5 Cottage : The one allowed for No. 5 in March is too small, as there are thirty-four girls in that cottage.. We need one for No. 1 Cottage this month to replace one worn out, so we are estimating for a fifteen quart boiler for No. 5 Cottage and will transfer the one allowed in March, which is eleven quarts to No. 1 Cottage, as this Cottage has only twenty-five girls." The double boiler was disallowed. So urgent was the need of this boiler that it required the following lengthy letter to the Fiscal Supervisor following the disallowance : " It is believed that the explanation was not carefully read and that your inspector did not investigate in regard to this, as it was disallowed and not suspended. No. 1 Cottage has now no double boiler for cooking cereals for inmates. The outer part has a hole in it and cannot be used. They are cooking the cereals in the top part. There are twenty-five girls in No. 1 Cottage. The double boiler bought for No. 5 in March is too small for that cottage, where they have thirty-four girls. We proposed to transfer the double boiler bought for that cottage to No. 1 Cottage." As a result of this subsequent appeal, the double boiler was granted May 4. WASH BOARDS. — In March, '09, a half dozen wash boards were asked for at the estimated price of $10.50 per dozen, which would make a total cost of $5.25. The wash boards were allowed, but the price was cut to $4.88, and they were referred to the Waterman Hardware Company. The $4.88 quality had been purchased before and had been found almost useless and a waste of money. This fact had 232 been reported at the Fiscal Supervisor's office, and only after the superintendent had gone in person to the office and remonstrated as to the quality of the wash boards was she permitted to purchase a make that was serviceable. SHEAES. — One pair of shears was estimated for in March, to cost thirty-five cents. It was allowed, but the price was cut to twenty- five cents, with reference to the Waterman Hardware Company. The shears and the above wash boards were shipped together from Water- man's with a freight charge of twenty-five cents, so the total saving was very little in actual net cost, and inasmuch as the wash boards were useless and the shears inferior, the ultimate cost to the State was much more. GABBAGE CAN. — ^In March, '09, one garbage can was asked for. The item was suspended without explanation. It was stated by the steward that these cans were purchased from the State Prison and were of a very poor quality and lasted but a short time; that they were used for garbage when new and after they had begun to leak badly were used for ashes. She stated that it was very essential, owing to the place where the cans had to be put, that they should not leak as it badly contaminated the surrounding place. ASBESTOS MATS. — One dozen asbestos mats were asked for in Octo- ber, '08, estimated at fifty-five cents. They were allowed, but reduced to thirty cents and reference made to the Croissant Company of Albany. At the same time chopping knives were asked for on which a reduction of eight cents was made, and window cord with a redac- tion of ten cents. The total reduction made by the Fiscal Super- visor on these three items was forty-three cents. They were sent by express at a cost of thirty cents. The asbestos mats were of so poor a quality that they dissolved when water struck them and they had to be thrown away. The chopping knives also were of a very poor quality, so there is a question whether there was any saving to the State. PARING KNIVES.' — One-half dozen paring knives were asked for in October, '08, estimated to cost seventy-five cents, witji this explanation : " For the two cooking schools, where a, good quality is needed. Those allowed in June were not purchased as we have had the same quality pre- viously and they have proven so poor that they do not pay." 233 Kegardless of this explanation the price was reduced to fifty cents and reference made to Waterman Company. They came alone by express with an express charge of thirty-three cents. MIXING BOWLS. — In November, '08, eight mixing bowls were asked for at the price of $3.37 per dozen. They were allowed, but at a price of $2.06 per dozen. The mixing bowls asked for were of a white variety which were used as vegetable bowls on the girls' tables when not in use as mixing bowls. The quality allowed by the Fiscal Supervisor was of a dirty yellow, which the superintendent would not use on the tables. As a result, the cheaper price was in the end dearer. The following illustrations were taken from the records of Bedford : BELT LACINGS. — A Small quantity of belt lacing was estimated for in November, '08 at the price of $1.25 per hundred feet. The price was reduced to $1.13 and reference was made to the Waterman Hard- ware Company. The institution had once or twice before bought the cheaper grade of belt lacing furnished by the Waterman Hard- ware Company, and their experience was such that the superintendent wrote as follows to the Fiscal Supervisor: "The cheap sort (of lacing) recently bought in Albany has caused great delay and vexation by constant breaking." BASINS AND PITCHERS. — In November, '08, a small number of basins and pitchers were estimated for and disallowed on the part of the Fiscal Supervisor without remark. Thereupon the superintendent, under date of October 34, wrote the Fiscal Supervisor as follows : "It seems to me that upon consideration the department will see the necessity of allowing both basins and pitchers. The situation is this: The upper corridor of the Reception House is known as the Prison Corridor and has been used for the more disorderly girls. Up to the last few months it has not been necessary to have more than ten or twelve girls on this corridor. With the increasing population we have been obliged to put a girl in every cell. There is a lavatory attached to this corridor, and up to this time the girls have used this for washing morning and evening. It is impossible, however, to let out more than two or three girls at once for ehis purpose. These girls are the most troublesome in the house, and if a larger number were allowed out at once, trouble would be certain to arise. Under the present system of letting out only two or three girls at once, dressing in the morning becomes a very long process, and breakfast is delayed until an unreasonably late hour. If the girls had water in their cells this 234 could be avoided; they could all dress at the same time and be ready for breakfast at the same time with the other inmates. The basins and pitcheri are supplied in all the other rooms." DOUBLE BOiLEE. — In November, '08, the estimate contained an item for a double boiler, which was suspended without an explanation. Thereupon the superintendent wrote to the Fiscal Supervisor as follows : " In Reception House where cooking is done for 148 girls. The attention of the department's inspector was called to the fact that we have no double boiler at all in this house, and that the housekeeper has temporarily sup- plied the need by buying with her own money a tin pail which she suspends in a kettle. This, of course, is only a temporary expedient, and a very unsatisfactory one." This was subsequently allowed. Material for the Educational Department. — The following illustrations were taken from the records of Hudson: SCHOOL BOOKS. — In June, 1909, Hudson estimated for seventy-two school books with the statement that they were needed for the summer term. The item was suspended with the following remark on the part of the Fiscal Supervisor : "The superintendent will please state if the purchase of these books should not be deferred to the close of the school year." In reply to this suspension, under date of May 29, the superin- tendent wrote to the Fiscal Supervisor as follows: " It is not expected to close all our book schools this summer, and the books estimated for will be used in the schools that will be in session. This was considered before the estimate was sent up and it was found that the grades would be without books for at least two months, which counts with the pupils who are in school only half a day. Some of these pupils may not be here when the fall session begins; we therefore desire the books now, and hope the department will grant them." These books were finally granted June 8. It was the feeling on the part of the superintendent that there was no occasion on the part of the Fiscal Supervisor to suspend this item, inasmuch as he should have known that the school was con- stantly in session at the institution during the summer as well as the remainder of the year. SALMON. — In October, '08, two cans of salmon were estimated for with an explanation that it was needed by the classes in the cooking school. It was disallowed with the explanation that two cans had been allowed in September. 235 This explanation was hardly satisfactory to the superintendent iq- asmuch as each lesson given to the girls required two cans, so that the former supply provided for but one lesson for the girls. OLIVE OIL. — In October, '08, a quart and a half of olive oil was asked for for making salads. It was disallowed. Again in November it was estimated for with the explanation that it was to he used in the cooking school in teaching the girls how to make salads. The amount was reduced to one quart. In November, this quantity having been used up, a quart was asked for with a similar explanation, — ^which Was disallowed. BREAD BOX. — In June, '09, a bread box was asked for, with the explanation that it was to be used in the cooking school. It was disallowed, with the remark on the part of the Fiscal Supervisor as follows: " It should be stated why it is needed now and not formerly." It was subsequently allowed June 38. The following illustrations were taken from the records of Bedford : FLANNEL. — In February, '09, a few yards of flannel were asked for with a statement that it was for the use of the sewing school. The item was suspended, with the remark on the part of the Fiscal Supervisor that, " It should be stated for what purpose this is needed." Thereupon the superintendent wrote the Fiscal Supervisor as follows : " The flannel asked for is to be cut into small pieces and used for making the so-called models in the sewing school. On these the girls will learn to do cat, brier and feather stitching, making ' crow's-feet,' etc." Three yards of lawn asked for was also suspended, and the super- intendent wrote the Fiscal Supervisor about this as follows: " This, as stated, would be used by the sewing class for making models. The use it will be put to will be for fine hemming, hemstitching, shirring, whipping, tucking, felling, etc." KETTLES. — ^The November, '08, estimate contained an item of two kettles, with an explanation that they were to be used in the cooking school. But one kettle was allowed, instead of two, without explana- tion. This reduction in the number prompted the following letter on the part of the superintendent to the Fiscal Supervisor, under date of October 24: 236 " I cannot understand how the department's inspector can be in a posi- tion to decide whether the teacher of the cooking class needs one kettle or two. It is certainly not a matter which I should feel in a position to determine." EXJLBKS. — In November, '08, an estimate was made for three dozen rulers to be used in manual training work. This number was needed to supply the number of girls that were already in the classes. The revision allowed one dozen without comment. EXHIBITS. — ^In January, 1909, Syracuse estimated for $10.00 worth of material to be used by the children in preparing an exhibition to be subsequently used in connection with the State Conference of Charities. The estimate was suspended, and on January 35th the superintendent wrote, giving a fuller explanation of the need for these articles. Under date of January 30, the superiutendent wrote the Fiscal Supervisor in part, as follows: " Our interpretation of your suspension of this item is that your depart- ment is disposed to discourage an exhibition on the part of this institution at the State Conference of Charities. Are we correct in this interpretation? " Under date of February 2nd, the Fiscal Supervisor replied, stating, " No, you are not correct in your interpretation, but the department doei not believe it desirable to purchase material for the purpose a year ahead • * «.» He further suggested that remnants should be used for such pur- pose. The superintendent replied that the exhibition was to be in November and two months of the intervening time was devoted to vacation, leaving barely sufficient time to make the exhibit. Under date of February 6th, the Fiscal Supervisor removed the suspension. Craig Colony also estimated for expenses of an exhibit at the State Fair but the estimate was disallowed. The institution went ahead and made the exhibit trusting that the question of expenses would be adjusted later with the Fiscal Supervisor. It was allowed in December, '09. PART II COMPARISON OF THE METHODS OF FISCAL CONTROL OF STATE INSTITUTIONS IN NEW YORK, INDIANA AND IOWA MADE UNDER THE DIRECTION OF The State Charities Aid Association By HENRY C. WRIGHT NEW YORK CITY United Charities Building 105 East 22nd Street March. 1911 CONTENTS. PAGE. FOREWORD 241 Systems of fiscal control ... 244 Supervising departments 246 Supervision of purchases 249 By whom purchasing is done 252 Specifications ... 254 Methods of contracting for supplies ... 257 Handling of samples 262 Receiving, testing and storing of supplies 264 Deliveries from the store room 267 Food consumption ... 274 Use of delicacies 319 Home products 32 1 Cost of supplies .... 322 Qualities 322 Costs 332 Sutnmary of findings 338 Conclusions 342 Suggested method of supervising state institutions . 347 FOREWORD. An examination was made into the conditions in New York State, beginning in August, 1909, and continuing for about one year. The results of that examination have been stated in the foregoing report. The references to the N'ew York situation in the following report are based on conditions existing at the time of the investigation of that State previous to July, 1910. Since that time many changes have been made by the Lunacy Commission and by the present Fiscal Supervisor, Hon. Dennis McCarthy, to meet the criticisms with regard to handling of samples, forms of contracts, drawing of specifications, testing of supplies, store-room deliveries, management of farms, etc. Since, however, it would require a re-investigation to find out how these reforms are operating, such references as are made at present to New York, must be on the basis of the investigations already made. The following report is a comparison of the fiscal control exercised by the States of ISTew York, Indiana, and Iowa over their respective state institutions. This report is based upon data gathered by visiting most of the institutions in Indiana and in Iowa and upon records in the offices of the State Auditor and the Board of State Charities of Indiana and also from the office of the Board of Control of Iowa. To secure a uni- form judgment as to the qualities of supplies used in the three states, a United States beef inspector, who inspected the beef in New York State Institutions, was taken to the institutions of both Indiana and Iowa. Samples of food supplies were also taken from institutions of Indiana and Iowa and shipped to Chicago, where they were examined by experts and compared with standard grades prevailing through the middle west. These same samples were then forwarded to New York, where they were compared by experts with like samples from New York State institutions. Such comparison was necessary to determine the relative qualities of supplies used by the institutions of the three states. "Without this comparison the relative prices paid would throw little light upon the economies of the purchasing bodies. It would be manifestly impossible to make a comparison of all of the supplies used in these institutions. It was therefore deemed best to compare only such supplies as came in recognized standard grades. It has been assumed that the same degree of care has been exercised in 241 342 purchasing the other supplies of the institution as was exercised in the purchase of the limited number of supplies examined by the experts. Data as to prices paid and amounts used by the various institu- tions were obtained on blanks furnished to each of the institutions, and in this way information was secured that is not included in any reports made to state officials. To throw light upon market conditions, jobbers in New York, Chicago, Indianapolis and Des Moines were interviewed The examination has been confined to methods of purchasing, re- ceiving and distributing, to prices paid, and to qualities of supplies used by each of the institutions. The care of the patients has not been considered, except to the extent of ascertaining the total amount of food supplied. The state institutions of Indiana and Iowa are as follows. Those marked with an asterisk were visited one or more times. Indiana. ♦Central Hospital for Insane Indianapolis. ♦Eastern " " " Richmond. ♦Southern , " " Evansville. ♦Northern " " " Logansport. Southeastern " " " Madison. ♦State Soldiers Home Lafayette. ♦Soldiers' and Sailors' Orphans' Home Knightstown. ♦School for Feeble-Minded Youth Fort Wayne. Village for Epileptics New Castle. ♦Indiana State School for the Deaf Indianapolis. Indiana School for the Bhnd " ♦State Prison Michigan City. ♦Indiana Reformatory Jeffersonville. ♦Indiana Woman's Prison Indianapolis. ♦Indiana Girls' School Clermont. ♦Indiana Boys' School Plainfield. Iowa. ♦State Hospital Independence. Mt. Pleasant. * " " Clarinda. Cherokee. State Hospital for Inebriates Knoxville. ♦Soldiers' Home Marahalltown. Soldiers' Orphans' Home Davenport. College for the Blind Vinton. 243 School for the Deaf Council Bluffs. ♦Institution for Feeble-Minded-Children Glenwood. State Sanitarium for the Treatment of Tuberculosis Oakdale. Industrial School for Girls MitcheUville. ♦ « " " Boys Eldora. ♦Penitentiary Fort Madison. ♦Reformatory Anamosa. 244 Systems of Fiscal Control. New Yohk State. The New York system of fiscal control is described fully in the ear- lier report. Its main features are here recalled to facilitate ready comparison. The institutions in New York State are divided into three groups — the Prisons, the Insane Hospitals, and the Charitable Institutions. The prisons are administered by the Superintendent of Prisons, who appoints and dismisses wardens, dictates policieB, and controls the finances. There is also an advisory State Commission of Prisons, appointed by the Governor. This commission has power merely to inspect and to recommend. The State Hospitals, whose function is to care for the insane, are supervised by a State Commission in Lunacy, which has power to appoint and to dismiss superintendents, subject to approval by the Boards of Managers; to formulate poHcies and control finances. Each institution has a local Board of Managers appointed by the Governor, which has supervisory and recommending power, with lim- ited powers of control over internal affairs. The Charitable Institutions are supervised as to finances only, by a Fiscal Supervisor who controls their purchases and the prices that may be paid. The policies of each institution are determined by a Board of Managers appointed by the Governor. This board in turn appoints or dismisses superintendents. A State Board of Chari- ties appointed by the Governor examines into all phases of the ad- ministration of the Charitable Institutions and makes reports. Its powers are largely recommendatory. Indiana. Bach institution in Indiana is an independent unit. There is no central body or board which has power to dictate policies or to con- trol finances. Each institution has a bi-partisan Board of Trustees of four members appointed by the Governor. Their authority, duties and compensation are uniform. These trustees appoint the Superin- tendent, who, in turn, appoints all subordinates. Some central su- pervision is exercised over the institutions through the agency of a committee appointed by each legislature. The committee visits each 245 institution and receives a type-written report of its flndncial opera- tions and reviews its requirements for the succeeding biennial period. The committee reports to the Legislature its recommendations as to the amount of money needed by each institution for maintenance and buildings. In the main the recommendations of this committee are adopted by the Legislature. Other than the legislative committee the only central supervision exercised over the institutions is by an unpaid Board of State Charities, whose power is confined to inspect- ing, reporting, and making recommendations. The Board of State Charities is composed of six members appointed by the Governor; the Governor being, ex-officio, a member. It maintains an office at the Capitol, with a paid secretary and staff. The institutions are required to report to this Board quarterly statistics as to their at- tendance, subsistence, repairs, buildings, finances, etc. Each institution decides its own policies and provides for its sup- plies, repairs, and buildings without any supervision other than that of the Board of State Charities, which, as stated above, is but recom- mendatory. lOVFA. All the State institutions in Iowa, with the exception of the ed- ucational institutions, are under the supervision and administrative control of a central board called the Board of Control of State Institu- tions. This Board is responsible for the policies and the detailed man- agement of all the institutions. It appoints the Superintendents and controls all their purchases through the form of periodical esti- mates. It contracts for all their supplies with the exception of a few minor ones, which the Superintendents are permitted to purchase under specific direction of the Board. The institutions have no boards of trustees or managers, nor is there a general or recommending board which corresponds to the Board of State Charities in Indiana and New York. Since the Board of Control may appoint or dismiss superintendents, decide the poli- cies of the institutions, and has between it and the institutions no Boards of Managers or Trustees, and is advised by no central board of charities, it stands supreme and is solely responsible for the man- agement of the institutions. Indiana and Iowa, therefore, stand at opposite poles of administra- tive method, with New York midway between. 246 Supervising Departments. Supervision in New York State, as heretofore stated, is divided be- tween several bodies, each body having its own offices and clerical stafi. The Superintendent of Prisons has offices in the Capitol and has a staff, including himself, of eleven. His clerical force is occupied mainly in handling the estimates and the Bertillon system of identi- fication. He has no experts making detailed examinations as to the needs of the institutions. The Lunacy Commission consists of three commissioners, with of- fices in the Capitol, and a staff consisting of thirty-nine. This num- ber, however, includes attorneys for the Hospitals and five employees of the Board of Alienists. The only expert employed by the Commis- sion is a physician known as Medical Inspector who examines the methods of handUng patients at various institutions and makes recom- mendations. When advice is needed as to engineering questions, pri- vate firms are consulted. The Fiscal Supervisor's office employs, including the Fiscal Super- visor, eighteen clerks, inspectors, agents, etc. This force includes a traveling engineer, two inspectors, and an auditor. The State Board of Charities has thirty-two people on its staff, including the secretary. The State Architect supervises the erection of all state buildings, and the si^e of his staff varies according to the work in hand. The Board of State Charities in Indiana has an office in the Capitol and employs a staff of thirteen including the secretary. Of these thirteen, six are agents placing-out and supervising dependent child- ren. One is an inspector of maternity hospitals and children's homes, and five are clerks and stenographers. The Board of Control in Iowa has an office in the State House, and beside the three salaried members of the Board its staff con- sists of fifteen. This number includes the secretary and the archi- tect, a lecturer on tuberculosis, a young man to handle the samples, three state agents, and clerical help. The Board employs no experts for the purpose of visiting the institutions to report upon the opera- tion of the farms, the care of patients, the dietary, etc. Judgment as to all of these questions is expressed by the members of the Board. It employes an architect, who at the time of this investigation was receiving not even the assistance of an office boy. He was expected 347 to plan all state buildings under the supervision of the Board, to draw all plans, make all specifications, even make his own blue-prints, supervise all construction at the various institutions, and, in addition, supervise the heating and power plants. It was stated that in the past he has had some assistance and probably would be granted some in the near future. The man employed is very competent, but the task assigned him is beyond the power of one individual to perform properly. The cost of operating the supervising departments in each of the three states is set forth in Table I, on page 247. It will be noted, by Table I. Cost of State Supervision of State Institutions in New York, Indiana, and Iowa, covering period Oct. 1, 1909-Sept. 30, 1910. Average inmate population,' New York, 46,119; Indiana, 10,523; Iowa, 10,137. Maintenance, Repairs, Bui dings. Cost of operating supervising offices. New York: Prisons . . $1,082,988 7,131,278 2,836,101 Supt. of Prisons Lunacy Commission .... Expenses Bds. Managers Fiscal Supervisor Expenses Bds. Managers State Board of Charities . State Architect $18,972 104 200 Hospitals Charitable institutions. 2,111 36,524 13,353 10,362* 52,966t Board of State Charities. Expenses Bds. Managers Board of Control Total $11,050,367 2,365,945 2,057,966 $238,488 8,000t 22,022 Indiana: All institutions Iowa: All institutions $.30,022 37,571t Ratio of cost of supervision to amount supervised. Cost of supervision per inmate New York $1.00to$46..30 1.00 to 78.80 1.00 to 54.80 $5.18 2.85 3.70 Indiana Iowa ♦ In the same ratio to the total expenses as the number supervised in State institutions bears to those supervised in private institutions. t Estimated by the author at 52 per cent, of total cost of operating the office which also supervises other state buildings. {Proportion of total expenses assigned to supervision of State institutions, as estimated by the respective boards. 248 consulting this table, that the five supervising and controlling de- partments in New York State, cost to administer $238,488, during the year October 1, 1909-September 30, 1910. The only supervising board of Indiana i. e., the Board of State Charities, expended $8,000 for operating expenses. The only supervising board in Iowa, i. e., the Board of Control, expended $37,571. The total expenditure, by 'Rew York State Institutions, during the last fiscal year, was $11,050,367. It cost, therefore, $1.00 to supervise every $46.30 expended. The total expenditure by the Institutions in Indiana was $2,365,945, or in this State the $1.00 expended in supervision supervised $78.80. In Iowa the total expenditure, of all of the Institutions, was $2,057,966. Here $1.00 supervised $54.80. It is clear, therefore, that on the basis of expenditures supervised, the cost of supervision in New York State was about sixteen per cent, higher than in Iowa and nearly twice as high as in Indiana. If the supervision be figured on a per capita basis, viz. : the total amount expended for supervision divided by the total number of inmates in the institution, for New York State the per capita cost was $5.18, Indiana $2.85, and Iowa $3.70. It is generally assumed, in business undertakings, that centralized control reduces overhead, or administrative charges. A similar re- duction, however, is not noted in connection with the centralized control in New York State. In this state more than four times as many inmates are supervised by central departments as in Indiana or Iowa, yet the per capita cost of such supervision is materially larger than in either of those states. This has not resulted from employing a large number of field inspectors or experts, since there are not a suf- ficient number employed properly to supervise the work of the institu- tions, as the supervision is now carried on. The same statement can be made with relation to Iowa, that too few experts are employed by the Board of Control to supervise properly the institutions. Iowa cannot reduce its cost by further centralization of control, and to pro- duce satisfactory results its cost of supervision must be increased. Further centralization might take place in New York State by the consolidation of supervising boards, which would reduce somewhat, the salary cost of the chief supervising officers, but the consolidation would require more traveling agents, inspectors, and experts, so the resulting cost would probably be not less, but greater, than at present. 249 Supervision of Purchases. New Yoek State. The purchases made by the state institutions in New York Statb are supervised by the Administrative Departments at Albany through the means of estimates submitted by each institution. The method of making out these estimates, and the manner in which they are han- dled by the supervising officers, has been described in detail in the report on New York State. Indiana. All purchases by state institutions in Indiana are supervised by the Board of Managers of each institution. The superintendent of an institution is supposed to make out a budget, monthly, in the form of an estimate and to submit this to his Board of Trustees for ap- proval. This is done in two or three of the institutions in the state, but the majority of them, after having made out such estimate, send it in the form of a proposal to bidders, and it is reviewed by the Board of Trustees in the form of bids returned from the various merchants. It is probable that a review of the estimates, after the bids have been received, answers the purpose practically as well as though such estimates were submitted previous to inviting bids, inasmuch as they are reviewed before contracts are let. It was im- -possible to ascertain to what extent the different boards of mana- gers may have cut down the estimates, either as to quality or price, since such records are not retained by the institutions. Judging, however, by statements made by each of the superintendents, the estimates are passed on by the board of trustees very largely in the form in which they are presented to them. Inasmuch as these estimates are made monthly, there is little oc- casion for supplemental estimates. If such a necessity arises, how- ever, the superintendent secures bids on such articles as he desires to buy and communicates these bids to his board of trustees, by mail, who thereupon pass upon them. Iowa. The Board of Control of Iowa supervises the purchasing of all supplies made by the state institutions. This supervision is exer- cised through the method of estimates submitted by the institu- tions in six months periods. These estimates are separated into sub- 250 divisions corresponding very closely to the sub-divisions of the es- timates used in New York State. The records indicate that the Board finds it necessary to do very little revising of these estimates. The following illustrations, taken from the records of Clarinda and Independence Hospitals, repre- sent about the average amount of revision found on estimates of the various institutions. The estimate of Clarinda Hospital for the period of April-October, 1910, contains 64 pages of items. All items were approved with the exception of 3 which were dis- allowed, and this note was recorded as explanation : " The following items are disallowed at request of Superintendent : Nos. 13, 14, 15." The only other item changed was as follows: The Superintendent asked for 12 porcelain lined water coolers. This was reduced to 6, and he was instructed to secure the remaining six from one of the other Institutions that had a surplus on hand. The item of 5,000 doz. eggs, was reduced to 4,000 doz. The estimate for Independence Hospital covering the period from October 1909 to April 1910, contained the following notations: Crackers, ginger snaps 2,000 lbs. Nuts, Brazil 50 lbs. " Pecans 50 lbs. " English Walnuts 300 lbs. British Journal of Mental Science $6.00 Journal of Nervous and Mental Diseases. . . S5.00 London Lancet $8 . 00 Items allowed, reduced in quantity: Item 21 Oranges, 14 boxes, reduced to 12 boxes. " 38 Chickens, ducks, geese, turkey, 4,000 lbs., reduced to 3,000 lbs. " 469 'Veterinary Expenses, $30, reduced to $20. All re-estimates have been abolished and only supplemental es- timates have been retained. It was possible to do away with the re- estimates inasmuch as the Board of Control does not hold institu- tions strictly responsible for spending the exact amounts indicated in their estimates. If they exceed the prices in their estimates by a small amount they are still at liberty to purchase and pay the additional amount without re-estimating for the article desired. They are only held responsible for keeping approximately close to aggregate amounts of the estimate submitted. This method of dealing with the estimates reduces clerical work, gives more liberty Item 6, d saUo " 27, u " 28, " " 30, u " 769-i " " 769-k u " 769-L u 251 to the superintendents and at the same time proves quite as economi- cal as a system which uses re-estimates. When the Iowa estimate system was first installed, in 1898, it was operated upon a monthly basis. It was. shortly thereafter changed to a three months' basis, which period continued until 1907, at which time it was extended to a six months basis. Some supplies are now purchased on annual contracts. It is interesting to note that supplemental estimates at present submitted, under the six months estimate period do not exceed in number those submitted when the period of estimating was three months. Grlenwood, under quarterly estimates from January to June, 1906, submitted eleven supplemental estimates containing 336 items; un- der semi-annual estimates, from October, 1909, to April, 1910, it submitted ten supplemental estimates containing 183 items. Independence Hospital, under quarterly estimates, from January to June, 1906, submitted 18 supplemental estimates containing 202 items, and under semi-annual estimates from October 1909 to April 1910, it submitted 16 supplemental estimates containing 189 items. Anamosa Eeformatory, under quarterly estimates from January to June 1906, submitted 22 supplemental estimates, containing 483 items, and under semi-annual estimates from October 1909 to April 1910, it submitted 8 supplemental estimates containing 195 items. It is very evident that the labor required to make out six months estimates is much less than that involved under the three months plan, and contrary to what might be expected supplemental es- timates are less under the six months than under the three months plan. Inquiry was made of the superintendents of the various institu- tions as to the difficulty they may have found in anticipating their wants covering the six months period. In fact, their estimates must be made out nearly nine months in advance, owing to the fact that the Board of Control requires the estimates to be sub- mitted nearly three months before the contracting period. The su- perintendents stated that it was somewhat difficult at first to ad- just themselves to the six months period owing to their inability to anticipate all the detailed needs and also to their lack of knowl- edge as to the increase or decrease of population in their institu- tions. That their needs have been closely anticipated, however, 353 is evidenced by the fact noted above, viz., their supplemental es- timates have been reduced in number rather than increased. It is difficult to determine what effect the six months period of estimating has had upon the amount of supplies used, or the prices paid. That estimating for too large quantities is done is quite evid- ent from supplies found in several of the institutions. For instance, Glenwood had a large stock of dry batteries which had been pur- chased at the beginning of the period and were deteriorating while held in stock. At the end of the semi-annual period (Sept. 36) Independence Hospital had on hand 3,080 lbs. of coffee. The su- perintendent stated that at the end of the previous period he had had on hand 1,453 lbs., so that he had over-estimated to the extent of 683 lbs. This, of course, does not necessarily indicate wasteful- ness, but rather that the Board of Control places the responsibility upon the superintendent to determine the amount of each supply that he may choose to use. In one regard, at least, the six months period was proving un- satisfactory to some of the institutions which had ordered all of their dried fruits for the period and had not sufficient cold storage space in which to store them. Quite a proportion of them had become wormy. This condition probably could have been obviated by or- dering the fruit as needed instead of receiving the entire supply at the beginning of the period. Though the periods at which orders are placed rests with the superintendents; yet the Board of Control is responsible for ascertaining whether or not the supplies are being ordered and handled in an economical manner. By Whom Purchasing is Done. New Yoek State. As has been noted in the previous report on New York State, all the purchasing for the prisons is done by the respective wardens of each prison after having submitted an estimate to the Superintend- ent of Prisons. In the Lunacy Department, the major supplies are purchased by a committee of stewards appointed by the Commission; in the Charities Department it is done by a committee of superin- tendents appointed by a meeting of all the superintendents and a member of each board of managers. 253 Indiana. Bids for the supplies of Indiana institutions are received by a Board of Trustees of each institution. These boards of the re- spective institutions then enter into contracts with the various job- bers for the supplies for their institutions. These boards also per- mit their superintendents to purchase certain articles in open mar- ket without receiving bids. The number of such purchases is small, however, inasmuch as all of the boards endeavor to comply with the state law, which requires that all purchases shall be done through the form of competitive bidding. The law reads as follows : " In the purchase of all supplies that enter into the maintenance of any of the institutions covered by this act, it shall be the duty to invite competitive bids through sealed proposals to the president of the board of each institution, and the lowest and best responsible bidder shall be awarded the contract, and the same provision shall apply to the construction and equipment of all buildings for any such institution." — Acts of 1907, ch. 98, sec. 7. Iowa. In Iowa the Board of Control through the signature of one su- perintendent contracts for nearly the entire quantity of supplies used by the state institutions. The Board receives bids, but the actual signing of the contract is done by one superintendent dele- gated by the board to perform this function. The superintendents are permitted to buy a few things locally, such as corn meal, graham flour, eggs, and supplies produced in the vicinity of the institutions. They are also permitted to buy some special articles that are needed by one institution only. A clearer idea of the nature of purchases that the superintendents are per- mitted to make may be gained from the following illustration taken from the estimate of Cherokee Hospital for the period April to October, 1910. The superintendent was permitted to make the following expenditures: 1500 doz. eggs. Soap grease. Repairs to sewing machines and laundry machinery $25 . 00 Needles for sewing machines 7. 60 Coal for blacksmith 10.00 Brushes for motors, repairs to instruments and appliances 10 . 00 Veterinary expenses 10 . 00 Axle washer -20 Pitman socket bolt, 6 -30 C!bain links for drive chain, 20 2. 00 254 Threshing 76.00 Boiler compound 90.00 Screen for steam kettle Box rent 2.00 Folders for filing cabinet 9 . 15 Telephone charges 20.00 Telegraph charges 20. 00 Timing and repairing piano 20. 00 List of various miscellaneous articles for fancy work Expenses incurred in search patients 10.00 Expenses of Superintendents while attending Quarterly Conference of Board of Control 40.00 Freight charges 50.00 Express charges 40. 00 Aside from these incidental expenditures, and also the purchase of a few local products, such as corn meal, graham flour, eggs, etc., the Board of Control contracts for all things used by the institutions. Specifications. Full, complete, and accurate specifications are very necessary especially where contracting is done by one person and the pur- chasing and receiving by another. Thus, it is important in New York State and in Iowa, that goods be clearly and accurately de- scribed. In Indiana, where the superintendents do the specifying, buying and receiving, it is less important that these specifications be complete. This fact is more generally recognized in New York State and Iowa and the specifications in these states are drawn with some degree of care, though they are by no means as complete as they should be in order to insure accurate delivery of goods. On the other hand, specifications in Indiana, in many institutions, are quite indefinite. This lack of clear description, however, does not result in the institutions receiving an unusual proportion of de- fective goods, since the samples and the subsequent shipments are inspected by the same person, viz., the steward. He exercises the same judgment in buying and receiving. The following table of comparative specifications will illustrate the custom in the three states : New York State. Iowa. Indiana. Butter — Whole milk, " Butter must be Best Butterine (sample), creamery extras, scor- creamery, packed ing equal to, or better new, clean tubs," 255 New York State. than 93 ix)ints Chicago, 93 points New York. Official inspection cer- tificate to be furnished if required and butter to be guaranteed equal to above specifications out of storage. (Com- mercial extras will not be accepted.) Flour — Standard straight from hard wheat of 196 lbs., net-grades, quan- tities deliveries to be in accordance with the following: Deliveries on this proposal which the Committee will have analyzed, must not be of a lower grade than the following : Analysis of Standard jj Straight Flour from ^'f Hard Wheat: Gluten, per cent. 11 .0 Ash, percent. . . .52 Absorption 62 .0 Color 97 .0 Loaves per bbl. . 100 .0 Size of loaf 100 .0 Quality of loaf. . 99 .0 Average value . . 99 .0 Perm ent i ng period 102.2 Quality of gluten 97 8 Iowa. Indiana. ' The floiw must be of BEST PATENT and made from PLUMP, SOUND, DRY WHEAT, either Win- ter or Spring, and bid- ders must specify on bid whether flour offer- ed is from Iowa, Neva- da, Missouri, Kansas, Minnesota, or Dakota wheat, and whether hard or soft, winter or spring." Spring, wheat flour (name). (Indiana Prison.) Straight wheat flour in 50-lb. sacks. (Eastern Hosp.) Fancy, straight grade flour without any pat- ent and free from any adulteration. Name brand and show sam- ples. (Central Hosp.) Flour, patent, winter wheat. Flour, patent, spring wheat. (East- em Hosp.) Beef — Full carcass, to be a good quality of steer beef, well fatted and well meated, weighing not less than 500 lbs. or more than 750 lbs. per carcass, with a All beef must be of the Beef, fore quarters from best quality, from corn- fed. Native steers, each carcass weighing from 600 to 800 lbs. dressed, hind and fore quarters to be from the same No. I cows fore quar- ters must not weigh less than 150 lbs. each; not wrapped with cheese cloth. (Indiana Prison.) 256 New York State. general average of not less than 600 lbs. per carcass on total deliv- ery on contract. All beef to be free from bruises, and one liver to be furnished without cost with each carcass. Iowa. animal and of practi- cally the same weight, none less than 150 lbs., hind quarters to have two ribs attached, to be well and evenly fat- tened, smooth and free from blemishes of aU kinds, dressed in the best possible manner, and delivered in good condition at the respec- tive institutions. Also bid on beef from young, fat cows or heifers, of medium weights. In case any beef from bulls, stags, cows, heif- ers, Texas, Western or other cattle, except as specified in the forego- ing is furnished, it will either be rejected or returned at the expense of the contractor, or used at the option of the chief executive officer of the institution, and paid for at such a price as may be deter- mined upon by the Board of Control. Indiana. Prime dressed Native steers, well-fatted, quartered, clear of kid- ney and other super- fluous fat, and each steer to weigh net at hospital not less than 650 lbs. and not more than 800 lbs. To be delivered in prime con- dition in shipments of ten to fifteen carcasses, as may be required during the months of September, October and November, in well- iced refrigerator cars on the hospital siding free of all charges for transportation. (East- em Hosp.) Fresh beef, steers well fatted and trimmed, not over three years old and weighing not less than 600 lbs. nor more than 700 lbs. each. Each quarter to bear the mark of the U. S. Inspector. (Central Hosp.) current crop, domestic; 60 lbs. to bushel. Beans — Medium or pea. Beans must be choice Navy beans, hand-picked, choice hand-picked, hand-picked navy (Eastern Hosp.) beans and a i-lb. sam- Hand-picked pea beans pie must accompany (sample). (Central bid. Hosp.) Beans. (Southern Hosp.) Navy, hand-picked, most recent crop (sample.) (Soldiers' Home.) The above will sufficiently illustrate the differences in the specifi- cations of the three states. A number of the institutions in Indiana, in specifying household articles, simply name the articles without 257 indicating the make, size, brand, or grade. In many instances they depend upon the general knowledge of the. bidder to bid upon the grade of article desired. The test of the adequacy of any specification is in the quality of goods received under such specification. The relative qualities re- ceived by the institutions of the three states will be treated later in the report. Methods of Contracting for Supplies. New Yoek State. As noted in the report on New York, the supplies for the prisons are purchased by the respective wardens; for the larger supplies of the Hospitals by a committee of stewards; and for the Charitable Institutions by a committee of superintendents. All contracts are by items. Such things as household supplies, hardware, etc., are purchased by each institution. A decision as to what shall be pur- chased by joint contract rests with the committees. Indiana. The proposals sent out by the various institutions in Indiana are in a variety of forms. Two of the institutions in the State print their proposals monthly. The majority submit them to the bidders in typewritten form. The institutions that print their proposals are the Southern Hospital and the Soldiers' Home. The Southern Hospital includes various schedules on each sheet, whereas those of the Soldiers' Home include but one class or schedule upon each sheet, each item of which is likely to be handled by any job- ber dealing in that line. Some of the institutions let contracts chiefly by schedule, while others let them item by item. The institutions contracting chiefly by schedules were the Boys' School, Soldiers' Home, Central Hos- pital for the Insane, and Indiana Prison. The remaining institu- tions more generally contracted item by item. The Board of State Charities in Indiana is convinced, after carefully comparing the expenses of the difl^erent institutions, that such institutions as contract item by item, secure their supplies more cheaply than do the institutions that contract by schedule. It is the general cus- tom, throughout the institutions, to reject goods that are not up to specifications. No instance was found where an institution had resorted to the plan of fining a contractor for defective deliveries. 258 The number of jobbers bidding upon proposals sent out by the different institutions varies considerably. Those in the northern part of the state receive bids from more Chicago iirms, and a good portion of their contracts are let to these firms, while those in the southern and western parts of the State place more contracts with local and Indianapolis jobbers. At each institution there seemed to be a suflBcient number of bidders to furnish fair competition. Somewhat more effort was noticeable on the part of the superintend- ents in the Indiana institutions to let contracts to local firms, where possible, than was observed in New York or Iowa. The feeling on the part of the cities in which the various institutions are located that these institutions are in a certain sense local possessions and should be supplied by local dealers is somewhat stronger in Indiana than in the other two states. Iowa. When the estimates are received at the Board of Control in Iowa, the items asked for are reviewed and passed upon. The items asked for are grouped together in schedules and, with few ex- ceptions, bids are asked for and contracts let on these schedules as a group, and not upon items. It is the endeavor of the Board not to include large items in a schedule containing many other items. For instance, the following are some of the more important items, each constituting a schedule : Beef, liver and mutton ; butter ; beans ; tea ; coffee ; crackers ; syrup ; molasses ; rice ; and sugar. Among others the following items are grouped in schedules : Periodicals, drugs, plumbers' supplies, painters' supplies, gar- deners' tools, shoemakers' supplies, stationery, photographic sup- plies, iron and hardware. The New York committees have deemed it inexpedient to attempt to contract for other than the larger general supplies. Hardware is purchased by the institutions. All supplies, however, seem to be purchased by the Board of Control in Iowa, usually economically and in the main to the satisfaction of the superintendents. In the case of hardware this is accomplished by each institution having in its possession two or three standard catalogues of jobbers in Des Moines, Chicago and St. Louis, wherein each article is described in detail. In their estimates they refer to the article they desire by number and page of the catalogue. When the proposal is sent out by the Board of Control it includes these articles designated according to 259 the catalogue, and all bidders are supposed to bid upon either the identical article referred to in the specific catalogue, or its equal. The following taken from the estimates of Cherokee Hospital wiU illustrate this method : The reference is to the catalogue of Hib- bard, Spencer, Bartlett and Co., of Chicago, when not otherwise indi- cated. One, only, butcher's steel, p. 1661, No. 820, 14'i. 1 doz. cans oil, p. 882, No. 8. i doz. knives, butcher, p. 1662, No. 70, 10" blade. 2 doz. ladles, granite, p. 806, No. 10. One, only, faucet measuring, p. 663, No. 62. 3 doz. mop sticks, p. 750, No. 4. 3 doz. butcher's white enamel, p. 882, No. 17. 2 doz. trays, No. 54, 20" p. 859. i doz. curry combs. No. B, p. 1335. Though occasionally the contractor will attempt to deliver some other quality of article than that specified by catalogue, yet ap- |jarently this attempted substitution does not occur more often than under the system in Kew York, where each institution specifies and buys its own hardware. Letting contracts by schedules is open to serious objection, unless it is very carefully handled. It may enable the contractor to bid very low on some things that may not be needed and very high on some articles which may be used in excess of the quantity specified in the bids. This form of bidding is usually termed an "unbal- anced bid." It is held by the Board of Control that they leave no opportunity for unbalanced bids, inasmuch as they specify the quan- tity of each article which they desire, and after the contract has been let the full quantity is ordered and paid for, and in the majority of cases an order for a six months' or a year's supply is placed for these goods immediately after the contract is let. Where a con- tract is for a period of one year, in most cases it is expected that institutions will order the full quantity for the year's supply at one time, except for coal, but they have the privilege of distributing their payments throughout the year, and receive a corresponding discount in case the payment is made in less than that time. That there is a great variation in bids upon specific articles in- cluded within a schedule is noticeable. For instance, in the bid for groceries at Glenwood, for the current period, 200 lbs. of Ply- 260 mouth Eock, or Cox's gelatine, was called for, on which seven bids were received as follows : $60.00; $160.00; $96.00; $66.00; $160.00; $166.67; $230.00. On an item of 40 barrels of split peas, the following bids were received : .$290.00; $320.00; $340.00; $320.00; $390.00; $316.00. The schedule in which these articles were entered included 31 items, on which the lowest aggregate bid was $1,795.65. Had these items been contracted for, separately, however, instead of by sched- ule, they would have cost $58.50 less than the lowest aggregate bid, assuming that the lowest bids represented qualities equal to the highest bids. The hardware schedule for Glenwood, among other items included the following, on which the indicated bids were made : Meat Platters, white enamel, Bids $15.00; $24.00; $18.00. Pole Straps, Bids, $7.05; $12.00 ; $3.25. In this hardware schedule there were 87 items. It was awarded as a schedule to the lowest bidder at $337.32. Had the same sched- ule been made by items, they could have been purchased for $55.22 less than the schedule price. In the drug schedule for Glenwood were the following items and bids: 10 gals, acetic acid. Bids, $5.00; $7.00; $10.00. 200 lbs. ammonia aqua, Bids, $12.00 ; $19.00 ; $8.00. In this sched- ule there were 54 items, the lowest bid on which aggregated $143.92. Had it been made by items, a saving could have been made of $7.73. If the above three schedules had been made by items, instead of by schedules, there would have been a gross saving of $121.15. It was stated by the officers of the Board of Control that firms will not bid upon these smaller articles, item by item, and insist on their being placed in schedules. The dealers of Indiana and New York, however, seem willing to bid upon items, and all contracts with few exceptions are let in this manner. Though the greater bulk of the supplies used by the Iowa institu- tions are contracted for by the Board of Control on a six months 261 basis, nevertheless a certain portion is purchased upon a yearly basis. Among these are blankets, woolen goods, dry goods, men's and wom- en's clothing and underclothing, canned fruit and vegetables, toilet paper, flour, coal and butter. All supplies, with the exception of butter, are contracted for at a definite figure. The contracts for butter, is based upon the weekly quotation for fresh butter contained in the report of the Elgin Board of Trade. The butter is furnished by the contractor at a certain percentage above or below this weekly quotation. The result of this method of contracting for butter se- cures the grade of butter contracted for. This is probably owing to the fact that the contractor is relieved of any temptation to re- duce quality to compensate for a rise in the market. This method probably costs the State less than though the butter were purchased in the open market, if the experience of Independence Hospital is a fair illustration of prices paid by the other institutions. During eleven months of 1909-1910 Independence Hospital purchased 35,786 lbs. of butter, for which it paid $10,860.63. Had it purchased this butter at the Des Moines wholesale price, month by month, it would have paid $11,135.68. If, however, the State had bought this butter at the lowest price quoted in May or June, which was $.37, it would have cost $9,662.23. After having paid storage charges in a storage warehouse of $.015 per pound, amount- ing to $516.79, it would still have saved $681.09. Such a method of purchasing at the lowest spring price, and storing, would seem to be better than the method adopted by the Board of Control. This method as now operated however is much more satisfactory than that used by the Purchasing Committees in ISTew York State. In case of false deliveries, the Board has adopted a method of adjustment quite as objectionable as that used by the purchasing committee of the Lunacy Commission of ISTew York State. When beef is delivered under weight, instead of returning the beef, the contractor has been fined usually half a cent per pound. A fine of this small amount does not operate as a serious deterrent, as evi- denced by the fact that the contractor repeatedly sent underweight carcasses to institutions where he had been fined for previous deliv- eries of lightweight cattle. This repeated delivery was noticeable on the vouchers of two or three institutions. The institution re- ceiving such beef is supposed to deduct half a cent per pound on such quarters as are under weight. If, however, the institution fails 262 to do this, upon receiving a bill for such shipment, the Board of Con- trol makes the deduction. This method of fining, however, does not apply to deliveries of all classes of supplies, for in many cases de- fective food stuffs and articles are returned to the contractor. Handling of Samples. In the handling of samples where supplies are purchased on term contract, it is highly important that the samples which are sub- mitted by the contractor and which form the basis of the contract, should be carefully preserved and should be in sufficient quantity to adequately represent the quality of goods contracted for. It is highly important, also, that these samples should be not only in the hands of the contracting bodies but should also be accessible to those who receive the goods. Considerable laxity was noted, especially in the States of Few York and Iowa in the handling of samples. New Yohk State. As noted in the report dealing with New York State, there was considerable laxity in receiving, distributing and handling of sam- ples. Both purchasing committees received small samples submitted by bidders, and when the contract was let the successful bidder sent to the purchasing committee a larger portion of the supply repre- sented by the original sample, which larger portion was distributed to the institutions where the receiving is done. The purchasing committee of the Lunacy Commission preserve the samples in glass jars with a fair degree of care. The portions transmitted to the various institutions, however, are kept by them in the original containers, which in most cases are small paste- board boxes. These samples are kept with a greater or less degree of carelessness by the different institutions. The same may be said with relation to the purchasing commit- tee of the charitable institutions, except that this committee was still more negligent than the committee of the Lunacy Commission. In fact it failed to preserve its samples at the committee headquarters in such a manner as to prevent deterioration; they were allowed to remain in the original pasteboard boxes. The samples sent to the institutions were in some cases destroyed; while in others they were stored away in dusty and forgotten drawers. In no case were the 263 samples kept in uniform glass receptacles or in the storeroom where they would be easily accessible. In many cases they appeared to have been seldom used for comparison. Indiana. Inasmuch as each institution in Indiana purchases most of its supplies upon a monthly basis, it is unnecessary to retain samples after the supplies have been received. In most cases the month's supply is ordered at one time and received shortly after the begin- ning of the month. After the receipt of the supplies samples are destroyed. Under this system it is unnecessary to provide any glass, air-tight receptacles in which to keep samples, since they are not retained sufficiently long to allow deterioration. Little criticism can be offered of the method of receiving and handling samples in Indiana. lOVFA. The Board of Control in Iowa, retains all samples. It sends no portion of these to the institutions, but expects the institutions to transmit to its office in Des Moines a sample of each delivery of supplies bought on the samples. The samples in the office of the Board of Control are preserved with a fair degree of care in so far as they are easily accessible. They are, however, in small quantities and are retained in the original pasteboard boxes submitted by the successful bidder. In such receptacles some of the material, such as dried fruits, deteriorates and gradually becomes a poorer and poorer standard with which to compare deliveries made by the contractor. In some instances the Board has either not received samples or has neglected to preserve them. Inasmuch as the Board does not transmit samples to the institutions the institutions are never certain what action has been taken upon a sample of delivery which has been sent by them to the Board. A number of stewards stated that they had sent samples of supplies to Des Moines which, in their judgment, were not good. They had not, however, been no- tified by the Board of Control to reject the shipment and they thus assumed that the samples transmitted by them to the Board had corresponded with the samples in the Board's possession. In certain instances, however, this assumption was not correct. Evaporated apples of a very bad quality, had been received at Independence Hos- 364 pital. Though samples had been properly transmitted to the Board the goods were not rejected. Whenever the Board receives a sam- ple which indicates a bad delivery it is supposed to order such goods returned to the contractor. During the present contract certain shipments of rolled oats had been received by some of the institutions and samples sent to the Board of Control. Subsequently I secured samples of these same shipments, carried them in person to Des Moines, and at- tempted to compare them with the samples in the office of the Board of Control, but learned that no sample had been retained by them. The Board employs but one man, who receives a salary of $75.00 per month, to handle all of the samples and to compare samples sent by the institutions, with contractors' samples. Practically all the comparing of samples of supplies is done by him. This one young man is supposed to pass judgment upon such a variety of goods as clothing, shoes, tea, coffee, molasses, flour, cereals, dried fruits, etc. It is impossible for any one man to be a competent judge in all of these lines. It is clearly evident to the superintendents, to the Board and to the young man himself, that he cannot be an expert in judging all lines of supplies and that his judgment in many cases must be that of an inexperienced layman. It would seem highly important, if the qualities of a large portion of the supplies of the State are to be judged at one office, that they should be passed upon by several experts, each familiar with certain lines. The system, as at present operated by the Board of Control, is undoubtedly defective, and results in more or less dissatisfaction on the part of the superintendents owing to the acceptance of sup- plies at times which do not correspond with the samples submitted under the contracts. Receiving, Testing and Storing of Supplies. Eeceiving and testing of supplies has not been given the attention on the part of state institutions that its importance warrants. In very few of the institutions of the three states were samples kept in the storeroom. In many cases invoice weights were accepted. With few exceptions no chemical tests were made of supplies that could 365 be judged upon this basis. In not one of the three states was exacted the requirement that contractors should bill their goods in terms of specifications. There is certain to be considerable loss to all the state institutions unless greater care is exercised in the counting, weighing and testing of supplies on receipt, and in storage of per- ishable supplies pending consumption. New Yoek State. In all of the institutions in New York State the steward is as- signed the duty of receiving supplies. As a matter of fact, he sel- dom does this in person but trusts it to the storekeeper for general supplies and to the butcher for meats. These men pass judgment upon the supplies received by them respectively. In some instances the steward passes judgment upon receipt of certain classes of goods. Though the storekeeper's judgment is not of the best, yet, in general, it is probably equal to that expressed by the one clerk in the Board of Control in Iowa and to that of the various storekeepers in the institutions of Indiana. That defective supplies have been received— especially butter, milk and beef, and some dried fruits and cereals — has been noted in the report on New York State. In two instances, at least, where stewards have complained of faulty deliveries, there was an attempt on the part of the purchasing steward and the purchasing committee to minimize the seriousness of the report of the receiving stewards and to be over-lenient toward the contractor furnishing these supplies, — which facts have been noted in detail in the previous report. Though the contracts for supplies in New York institutions in the main are upon a six months' basis, yet the supplies are ordered by the superintendents at more or less frequent intervals and a large supply is seldom kept on hand at any one time; so the question of storage is not the important matter that it is in Iowa, where it is the general custom to receive a six months' supply of many of the different articles used. With but one exception, no instance was noted in New York State of supplies spoiling while in storage at the institution. Indiana. In the Indiana institutions goods are received by the steward, or, in some cases, this function is delegated by him to the storekeeper or the butcher. The care with which supplies are received varies 266 in the different institutions. Some institutions, such as Eastern Hospital and Jeffersonville Eeformatory, weigh all the food stufEs received. This applies even to molasses and syrup, and the weights are carefully checked with the invoices. ISTumerous instances are related of trouble with the contractor for short-weight deliveries. Some of the institutions are accustomed to accept part of their food supplies upon invoice weights, more especially such material as comes in boxes, barrels and sacks. This was especially noticeable at the Central Hospital, Soldiers' Home, the Boys' School, the Girls' School and Indiana Prison. It not infrequently happens that sacks of flour and meal are short a pound or two in weight, and barrels of rolled oats, oatmeal, etc., are somewhat deficient, and barrels of molasses occasionally do not contain the full number of gallons. If such supplies be re- ceived at invoice weights it is likely to prove somewhat expensive to the institutions. No chemical testing is done by any of the institutions in Indiana. All of their specifications are upon a basis of description or sample, and the goods as received are passed upon according to these specifi- cations. The storage of goods in the Indiana institutions is not of great importance, inasmuch as most of their food supplies are ordered monthly, or more frequently, so there is little chance of deteriora- tion before they are consumed. Iowa. The stewards in the institutions in Iowa are responsible for re- ceiving goods, but this responsibility, in many cases, is shifted to the storekeeper and the butcher. Inasmuch as the Board of Con- trol retains all samples and requires that the institution transmit samples of delivery to their office for comparison, the steward is not responsible for judging the quality of supplies, except in such food stuffs as beef and butter, or such material as is bought upon specifi- cation rather than sample. With few exceptions the Board of Control itself is responsible for passing upon the supplies sent to the institutions. In two in- stances where beef was to be passed upon by the stewards, these stewards had not been informed by the Board of Control as to the qualities which they were expected to receive. The existing con- tract for meat in Fort Madison and Anamosa provides exclusively 267 for cows and heifers. The receiving stewards at these institutions had not been instructed as to the weights or grades of cows that they were expected to receive, or the proportion of heifers that were supposed to be delivered under the contract. All that they could do under the circumstances was to reject the meat which seemed un- suitable for their purposes. The storage of goods at the institutions in Iowa is a question of greater importance than has been recognized by the Board of Con- trol. Quite a number of their supplies are received annually and the whole amount needed for the year is placed in the storeroom. Such foods as evaporated fruits and cereals are very hkely to be- come wormy if not kept in cold storage, and few of the institutions have sufficiently large storage capacity in which to place a six months' supply of such food stuffs. As a result, it was noted, at at least one institution, that the dried fruits on hand had become unfit for use owing to the development of worms, and it was stated by sev- eral stewards that at times their supplies of cereals had likewise de- veloped worms. Such suppUes, if held for a long period, should al- ways be kept in cold storage. Deliveries from the Store Room. The three states under examination have given a fair amount of attention to the purchasing of supplies, but have largely neglected to throw proper safeguards around the delivery of such supplies from their storerooms to the consuming departments. It is highly important that no goods should leave the storeroom of the institu- tion except on requisition signed by the superintendent. Moreover, this signature should be so placed on the blank as to make it im- possible to add items after the signature has been inserted. It is very important also, that when the goods have been delivered the receipt should be signed in ink by the person receiving them, with the date of the signature. The original form of requisition signed by the superintendent and receipted by the head of the department should become the basis of record. No items should be permitted to be added to the original requisition, except on approval of the su- perintendent, and all such items should either be placed upon the original requisition, or else a new and complete requisition should be made out for them. 268 New York State. Both the Lunacy Commission and the Fiscal Supervisor have in the past instituted in their respective departments uniform sys- tems of deliveries from storerooms. After the systems were intro- duced, in a large measure they have gone without supervision, and it has been assumed that they were working according to the original plan. They have not thus operated, however. Neither of the sys- tems, as originally designed, provided for a receipt to be given by the person who ordered and received the goods, nor were the requisi- tion forms so made out that the signature of the superintendent would cut ofE the possibility of inserting additional items after the signature had been placed on the blank. In some of the Charitable Institutions it was found that heads of departments were making out requisitions by simply inserting the item and permitting the store- keeper to fill in the amount. This resulted, hot infrequently, in the department becoming overstocked with perishable goods, because the storekeeper had overestimated its needs. In some of the institu- tions in the Lunacy Department the system has been operated in a very lax manner. A special instance of this was noted, in November 1910, in connection with the Manhattan State Hospital, where it was discovered that a theft of fresh meat had been taking place, and the indications were that the thefts had continued for some time. Such theft was made possible, not because of the system employed, but because the steward did not make sure that the goods were received by the kitchens which ordered them. As a matter of fact, there was a daily shortage on deliveries as ordered from the butcher. Indiana. The requisitions used in connection with storeroom deliveries by the institutions of Indiana are in general of two forms. Some in- stitutions use a book, unprinted, largely in the form of an order book used by grocers. One of these books is furnished to the head of each department, in which such head writes the things needed for the following day. This book is then taken to the superintendent, who signifies his approval by signing his name below the last item. This form is used by the Eastern and Northern Hospitals. The form of requisition used by most of the institutions is a form printed in duplicate with a blank line at the top to be filled in by the de- partment and with a blank line at the bottom for the signature of 269 the superintendent. In no institution were they so printed that a carbon could be used, but the head of the department was under the necessity of making two copies of each requisition. This required more labor than would have been needed by the use of a carbon, and at the same time left the way open for mistakes in copying. In all but two of the institutions in the state using this form, the su- perintendent placed his signature at the blank line at the bottom and did not cut off in any way the spaces below the last item of the requisition. Thus it was easily possible to add items after his ap- proval. The superintendents of a few of the institutions required the heads of departments to receipt for the goods when delivered to them. More than half of the superintendents, however, did not require this receipt. At the Institution for the Deaf in Indianapolis, the su- perintendent had adopted the plan- of punching his initials below the last item, which effectually cut off the possibility of adding any items subsequent to his approval; and if additional items were needed, which may have been forgotten, he required new requisi- tions to be made out in full. The superintendent of the Southern Hospital also limited the items on the requisition by checking below the last one. In the Boys' School the baker was permitted to insert items for supplies under his charge subsequent to the signing by the superintendent. The requisitions in the Girls' School are made out weekly and the superintendent signs at the end of the list of the week's supplies. There are, however, many vacant lines in this list and additional items could easily be inserted. The requisition used by the Central Hospital is not made out in duplicate, and the one form after being signed by the superintendent on a line at the bottom of the blank, is transmitted to the storekeeper, who copies it in a blotter. The copied form in the blotter then becomes the basis of record instead of the original requisition made out by the head of the department. When these goods are delivered no re- ceipt is taken. It will be easily seen that where the requisitions are thus copied by the storekeeper, who subsequently makes the de- livery, and where a receipt is not required, the system might be sub- ject to the grossest abuse. The School for Feeble-Minded Youth uses two forms of requisition. For material going to the kitchen it has a form in which all of the items used by the kitchens are printed, preceded by blank lines on which the head of the kitchen is supposed to fill in the amounts of the particular articles desired. For its general supplies it has the ordinary duplicate form of requisition. The same objection ap- plies to this form of requisition as to the duplicate form previously described, in that it is possible for a person to fill in items after the superintendent has given his approval. In fact, it is more ob- jectionable, in that this filling in cannot be obviated without placing a check before each item which has not been filled in by the head of the department. It is preferable to have the head of the department write in the items desired on an ordinary blank form, so that the remaining space on the form can be checked o£E, thus making it im- possible to insert additional items after the superintendent has ap- pended his signature. Though there is considerable irregularity in the requisitions used by the institutions of Indiana, as noted above, these irregularities are not greater or more serious than those found in New York State and in Iowa. Some of the institutions in Indiana deliver each day to the kit- chens the foods required for the day's consumption, while others deliver in unit quantities, or original packages. This latter method of delivery was especially noticed in the Southern Hospital, Boys' School, Girls' School, the Northern Hospital, Soldiers' Home and the Central Hospital. It is the opinion of some very competent su- perintendents that it is much more economical to deliver each day the food necessary for that day, than to deliver it in unit quantities. This opinion is held by the Board of State Charities of Indiana, which has given the matter much consideration. Delivering in unit quantities has the following rather serious objections. In the first place it prompts wastefulness in the kitchens where they have a supply on hand larger than needed at any one time, and, in the second place, it creates subsidiary stores from which supplies may be stolen without the likelihood of detection, since the deliveries are made from the original store and there accounted for. Though it is much more labor for a storekeeper to make deliveries where packages must be broken, nevertheless it probably results in econo- my. The unit system of delivery has one obvious advantage from the standpoint of a storekeeper, in that when he receives the sup- plies on invoice weights, and delivers them in the original package, he never has "overs" or "shorts" and his books always balance. Store- keeper's books that do thus balance are always subject to a suspicion that deliveries have been made in original packages, since if the 271 supplies be weighed out daily, it is impossible that the many detailed weights of the storekeeper should aggregate exactly the same as the original quantity. Nearly all of the institutions in Indiana require the bookkeeper to keep invoice and delivery records in the store. An economical but faulty system. There was one exception to this general method, and that was at the School for the Deaf in Indianapolis. The Su- perintendent had his storekeeper keep no record whatever. He was simply responsible for checking the invoices as they came in, de- livering the supplies on requisition, without keeping a copy of such requisition, and at the end of the month sending to the chief clerk an inventory of his store. This inventory was checked up with the invoices and a report made to the superintendent of the "overs" or "shorts." If either was large the superintendent called for an explanation on the part of the storekeeper. This same superintend- ent also required a daily report of a portion of the waste and refuse material from the kitchen. From these reports he was enabled to determine whether the right kinds, qualities and proportion of food were being served. For the sake of economy it may be necessary for the institutions to require their storekeeper, who has some leisure time, to keep book records of invoices and deliveries. From the standpoint of an efficient system, however, it is highly advisable that the store- keeper keep no records; that he simply report the goods received, deliver the goods on requisition and hand in monthly an inventory of his store. This store should be periodically checked up by some other officer. Without such a method it is possible for a storekeeper to adjust his books to correspond to the amount on hand. The records now kept by the storekeeper should be kept by the steward, or clerk. The records kept by the storekeepers of the various institutions in Indiana are in some cases complete and illuminative. In general, a page was assigned to each article in the store room, on the left of which the invoices were entered and across the page were columns for each department, and the deliveries were entered in the ap- propriate column according to their destinations. The deliveries made to the officers were kept separate from those made to the in- mates. It was thus possible to secure records from Indiana show- ing the amount of food consumed by the officers and employees as distinguished from the inmates. Though one or two institu- 273 tions were found that did not employ this general method, i. e. the ISTorthern Hospital which did not keep a distributed daily ac- count of deliveries, yet, on the whole, the system throughout the state was surprisingly uniform, especially considering the fact that there is no central authority with power to require a unified system. Iowa. There is one system of store-room deliveries and accounts estab- lished by the Board of Control and maintained in all of the institu- tions in Iowa. This system provides a requisition made out by the head of each department to be signed by the superintendent. Sup- plies are delivered on this requisition by the storekeeper. Keceipt is supposed to he given by the one having made requisition and having received the goods. The requisition is then transmitted to the steward's office. This system, as actually operated, however, is not as complete in practice as in theory. At least in some of the institutions, such as Fort Ma-dison, Anamosa, and Independence, the head of the department makes out a requisition in the form of a pencil memorandum, which is transmitted to the storekeeper, who thereupon copies it on to a printed blank, which copied form is then transmitted to the superintendent for signature. After the signed requisition has been returned to the storekeeper the goods are delivered, and in some cases, at least, the storekeeper does not send these requisitions with the goods, but retains them in his pos- session for some days, after which he takes them to the heads of departments and gets a quantity of them signed up at one time. This method of securing receipts was especially noticeable at In- dependence Hospital. The looseness of this system, as operated, will be at once observable. If the original requisition be made out in pencil form, and then copied by the storekeeper, it would be easily possible for such storekeeper to change the quantities of the original on his copied form and to alter that quantity in the pencil memorandum to correspond. Again, where the requisitions are not signed at the time the goods are delivered, but on some subsequent date, and where several are signed at one time, it is quite impossible for the head of the department to be certain whether the goods indicated on the requisition have actually been delivered in the recorded quantities. Most of the institutions in Iowa de- liver in unit quantities. This results in the institutions having a number of subsidiary stores. Such a system, as noted in connection 273 with Indiana, does not work for economy, nor does it properly safeguard the supplies of the institution. The system of books kept by the institutions does not provide a record of separate delivery of food to the oflQcers' and employees' tables, as distinguished from the inmates'. The stores in the store- room are kept in separate places corresponding to the divisions of the estimates and quarterly the auditor of the Board visits the in- stitution and checks up the stores. His task is made much easier because of this method of keeping the stores in estimate form. The checking of the auditor, however, is by no means an assurance that nothing has been taken from the store owing to the fact that the storekeeper is permitted to copy all the requisitions and his copied form becomes the basis of record. The methods of making deliveries and the form of keeping ac- counts in institutions in Iowa, though reasonably good, are not as satisfactory as those in Indiana. This is contrary to what one might have expected to find. It would be naturally assumed that a central board of control would have established a system that would secure the greatest economy and reduce to the lowest limits the possible theft of supplies from institutions. Its system is as open to objection and is as carelessly operated as any system noted in the individual institutions of Indiana. 274 Food Consumption. Consuinption of food in pubKc institutions is an exceedingly im- portant problem, both from the standpoint of economy and the health of the inmates. Too little food or food of poor quality, or in small variety, results in diminishing strength; too much food results in excessive cost, unnecessary waste and bodies poisoned from over- feeding. To a certain extent, the efficiency of state supervising depart- ments and superintendents of institutions may be judged by the quantities and the varieties of foods furnished the inmates. It is easily possible for a superintendent to supply the inmates under his charge with too little or too much food. Inasmuch as the constituent elements of foods vary greatly, a range of choice is of- fered. It is the duty of superintendents and supervising oflBcers not only to select the foods that will give the proper proportions of nutriment but at the same time those that can be purchased at approximately the least expenditure. A variety which might be economical under one market condition might prove expensive un- der others. For instance, bacon ordinarily is a fairly cheap food, rich in fuel value. For the last two years, however, it has been very high priced, and some other foods, such as fat beef and butterine which could be purchased at a somewhat less price, and furnishing the same number of calories, could be economically substituted for it. An endeavor has been made in this investigation to ascertain the varieties and quantities of food furnished in the institutions of the three states under consideration. This data was secured by submitting to the various institutions a blank containing a list of the bulk of food consumed by the inmates. It will be noted that the list given below includes practically all foods used with the exception of fresh fruits and fresh vegetables. These were omitted because some institutions raise all such foods used, and raise them in great abun- dance, whereas other institutions find it necessary to purchase them, and accordingly feed less of these articles than do the institutions with ample gardens. Inasmuch as fresh fruits and vegetables contain but a very small percentage of protein, had they been included they would have added but very little to the per capita consumption of 275 protein. They would however, have increased the calories by one to three per cent. In connection with this list, the institutions were asked to state in relation to each of the items on the Ust, the total amount used, the unit average cost, the total cost, the per capita amount, and the per capita cost. Home products were also reported. Owing to the labor put upon the institutions in getting out this information, and also the labor necessary in recasting this data, it was deemed inadvisable to request it from all of the institutions in each of the three states. The blanks, however, were sent to a sufB- cient number to give basis for judgment as to the manner in which the institutions are supervised, and it may be fairly assumed that institutions not reported upon are handled in a manner somewhat similar to those having submitted reports. The list is as follows: Ahticles Flour Molasses Patent Fresh meats Straight Beef Clear Carcass — Steers Graham Cows Rolled wheat Fores Cracked wheat Hinds Farina Plates Macaroni — Whole Mutton Broken Pork Com meal Veal Hominy Cured meats Rolled oats Corned beef Oat meal Bacon Rice— Whole Salt pork Broken Ham Beans (Navy) Shoulder Peaa (Split) Lard Potatoes (Irish) Fish— Fresh Butter Salt Butterine Poultry Cheese Chicken Sugar^Grariulated Turkey Soft A or No. 4 Duck Yel. C or No. 10 Dried fruits DTc C or No. 14 Prunes Syrup — Cane Peaches Com Apricots Mixture Apples 376 Canned fruits and vegetables Tomatoes Corn Apples Apricots Peaches Pears Coffee Tea Milk In compiling the data thus furnished by the institutions for the purpose of this report, articles that have relatively the same food value have been combined in one class: as, for instance, all flours, rolled wheat, cracked wheat, farina, and macaroni have been listed under the head of "Flour and wheat products." The various grades of sugar have been listed under the one head, "Sugar." Syrup and molasses have been combined. All dried fruits have been thrown into one group, as also canned vegetables and canned fruits. The data thus furnished from the lists is included in Table III, on pages 279 to 307. In these tables the total pounds of food per capita consumed during the year October 1, 1909 — September 30, 1910, based on the list, is given. In each case the per capita consumption indicates the total amount of food, divided by the total number having con- sumed the food. That is, if the records of the institutions were so kept as to indicate the total amount of food consumed by the in- mates alone, this amount was divided by the inmate population. If, however, their records showed only the total amount consumed and this was consumed by the inmates, ofBcers and the employees com- bined, the per capita was obtained by dividing by the aggregate number. In other words, the endeavor has been to secure the actual per capita consumption. The results obtained will necessarily differ somewhat from the reports issued by the supervising departments, inasmuch as in most cases the per capita consumption is arrived at by dividing the total amount of food used by the number of inmates. This method does not show the true per capita consump- tion, inasmuch as officers and employees are likewise fed from the same supply. The per capita cost, as given in these tables, is likewise figured on the above indicated basis. These tables show the total per capita 277 number of pounds of protein in the food consumed and also the fuel value, or calories. Those most competent to speak with re- lation to the physiological action of food state that the protein in food is used by the body to build, or rebuild, muscle and tissue, while the fats and carbohydrates are consumed as fuel, — ^producing energy, — and are represented in the form of heat energy called calories. The value of food, then, as utilized by the human body, may be represented by the amount of protein contained and the number of calories produced. The data in the following tables gives not only the total amount of protein and calories in the food pur- chased, but also gives it under each class of food, so that a study may be made of the relative proportions of the various kinds of foods used by the different institutions and the combined food value of the different combinations. It will be noted that institutions of a like character in the differ- ent states have been grouped together, — for instance, hospitals, sol- diers' homes, industrial schools, reformatories, prisons, institutions for feeble-minded, etc. This grouping will enable the reader to compare like institutions in the different states as to the per capita amount of food furnished, its cost, and its food value. On pages 333 to 337 the relative costs of food in the different states is shown. It may be stated here, however, that generally speaking the costs of the various food articles in the three states are very nearly the same, and, in the aggregate, differ surprisingly little. This fact should be borne in mind in considering the per capita cost of food consumed in the different institutions. Table II. Amount of protein and number of Calories in food products as given in Bul- letin No. 28 (revised), U. S. Department of Agriculture. ARTICLES. Flour and wheat products Macaroni Com meal and hominy Oats, rolled and meal. ... Rice Beans and peas Potatoes Butter and butterine ... Cheese Sugar Syrup and molasses Beef and veal Mutton Pork Corned beef Bacon Salt Pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Carmed vegetables Canned fruits Eggs Milk Per cent. Fuel value of per pound, protein. calories. .104 1636 .134 1665 .092 1665 .167 1850 .08 1630 .225 1605 .018 310 .01 3605 .259 1950 .00 1860 .024 1290 .148 1040 .13 1215 .08 2215 .143 1271 .091 2795 .074 2655 .142 1675 .00 4220 .085 205 .139 1155 .14 800 .028 1350 .02 300 .005 400 .134 720 .033 325 279 Table III. Food consumption, cost and value. On a per capita basis this table gives the pounds of food consumed, its cost, its food value expressed in protein and calories. Period covered Oct. 1, 1909 to Sept. 30, 1910, except for Iowa institutions. The period for these institu- tions runs from July 1, 1909 to June 30, 1910. HOSPITALS. New York. ARTICLES. Binghamton.* Pounds of food per capita. Average cost per capita. Protein, pounds per capita. Fuel value, calories per capita. Flour and wheat products Com meal and hominy 188.67 10.29 10.70 5.65 16.93 211.49 33.36 6.55 46.00 19.39 159.98 7.06 9.00 'i!48 .03 1.57 2.00 24.60 7.43 2.05 8.85 ilio 10.66 2.79 27.81 438.30 $4.31 .18 .28 .14 .65 1.59 9.56 .96 2.32 .51 12.67 .64 .68 "!25 .00 .23 .26 1.27 .38 .35 .51 "!63 1.21 .40 4.44 6.59 19.68 .95 1.79 .45 3.81 3.81 .33 1.70 .00 .46 23.68 .92 .72 ";i3 .00 .22 ,00 2.09 1.03 .29 .25 "!o6 .00 .00 3.72 14,46 308,536 17,133 19,655 Rice 9,210 27,173 65,561 120,262 12,772 Sugar 85,560 Molasses and svruD 25,013 166,379 8,578 Pork 19,935 Corned beef Bacon 4,137 Salt DOrk 80 2,630 Lard 8,440 Fish, fresh 5,043 Fish, salt 8,582 Poultry 1.640 11,947 560 Coffee 000 Tea 000 20,023 MU c 142,448 Total 1254.04 $50.41 80.49 1,091,297 Consump- tion per day. Average cost per pound. Grams per day. Calories per day. 3.44 .0404 100.00 2,990 * A summary by institutions is given on page 308. 280 Table III. — Continued. HOSPITALS. ARTICLES. Flour and wheat products Corn meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Egge Milk lotal New York. Rochester. Pounds of food per capita. 247.36 15.88 7.90 4.00 9.50 181.02 29.28 3.65 34.57 18.19 123.57 13.38 20.00 2.41 10.41 2.44 4.12 13.96 6.57 2.72 3.31 3.06 2.16 10.95 2.66 21.54 393.10 1187.71 Consump- tion per day. 3.25 Average cost per capita. $5.95 .28 .22 .10 ,45 1.38 8.26 .41 1.72 .43 9.98 1.23 1.50 "!38 1.22 .35 .56 .78 .48 .42 .19 .08 .06 1.21 .38 3.27 7.73 $49.02 Average cost per pound, .0413 Protein, pounds per capita. 25,78 1,46 1,32 ,32 2.14 3.26 .29 .95 .00 .44 18.29 1.74 1.60 "^22 ,77 ,35 ,00 1,19 ,91 .38 ,09 .06 .01 .00 ,00 2,89 12,97 77.43 Grams per day, 96.20 Fuel value, calories per capita. 404,487 26,440 14,615 6,520 15,248 56,116 105,554 7,118 64,600 23,465 128,513 16,257 44,300 6,736 27,639 4,087 17,386 2,862 7,688 2,176 4,469 918 864 000 000 15,509 127,758 1,131,325 Calories per day. 3,100 281 Table III. — Continued. HOSPITALS. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal .... Rice Beans and peas, dried . . . Potatoes Butter and butterine .... Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Pish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk lotal New York. Kings Park. Pounds of food per capita. 239.48 12.89 4.52 7.17 6.29 200.76 30.67 5.35 35.60 12.06 131.94 19.18 13.05 5.28 1.61 4.56 3.57 2.15 22.66 1.60 2.99 5.62 7.80 .59 8.58 2.48 26.48 328.81 Average cost per capita. 1143.74 Consump- tion per day. 3.13 $5.84 .22 .11 .16 .24 1.61 8.73 .63 1.74 .28 10.40 1.77 .98 .64 .24 .54 .47 .19 1.13 .06 .52 .31 ,22 .02 .94 .37 4.00 9.44 $51.80 Average cost per pound .0517 Protein, pounds per capita. 25.02 1.19 .75 .57 .142 3.61 .31 1.39 .00 .29 19.53 2.49 1.04 .76 .15 .34 .51 .00 1.93 .22 .42 .16 .16 .00 .00 .00 3.55 10.85 76.66 Grama per day. 95.3 Fuel value, calories per capita. 391,663 21,462 8,362 11,687 10,095 62,235 110,565 10,432 66,216 15.557 137,217 23.304 28,906 6.711 4,500 12,107 5,980 9,073 4,645 1,848 2 392 7,587 2,340 236 000 000 19,066 106,863 1,081,049 Calories per day. 2,962 983 Table III. — Continued. HOSPITALS. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total New York. Middletown. Pounds of food per capita. 255.25 11.45 5.83 6.43 6.41 205.58 36.16 6.50 46.26 15.44 244.63 13.80 22.77 4.41 10.27 4.04 21.97 9.58 2.06 6.62 9.35 .08 10.36 1.63 19.60 415.80 1392.26 Consump- tion per day. 3.82 Average cost per capita. $6.48 .20 .16 .15 .24 1.77 10.25 .96 2.32 .39 19.34 1.26 1.71 '.62 iiso .32 1.13 .60 .40 .34 .24 .02 1.14 .23 2.51 8.31 $62.39 Average cost per pound. .0448 Protein, pounds per capita. 26.56 1.05 .97 .51 1.44 3.70 .36 1.68 .00 .37 36.21 1.79 1.82 .40 1.46 .00 1.87 1.33 .29 .19 .19 .00 .00 .00 2.63 13.72 98.54 Grams per day. 122.43 Fuel value, calories per capita. 417,346 19,064 10,786 10,481 10,288 63.730 130,357 12,675 86,044 19,918 254,415 16,767 50,436 12,326 17^262 17,049 4,504 11,065 1,648 8,937 2,805 032 000 000 14,112 135,135 1,327,122 Calories per day. 3,636 283 Table III — Continued. HOSPITALS. ARIICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Caimed vegetables Canned fruits Coffee Tea Eggs Milk Total New York. Utica. Pounds of food per capita. 273.12 15.00 11.50 2.50 9.00 235.80 33.50 3.50 46.00 17.60 163.61 4.10 14.60 .60 .11 14.70 3,33 17.00 4.00 1.16 8.35 5.44 .67 11.00 2.60 13.60 349.80 1262.19 Consump- tion per day. 3.46 Average cost per capita. $6.27 .24 .25 .06 .32 2.26 9.35 .47 2.22 .46 12.46 .38 1.08 ".m .01 1.64 .26 .58 .16 .20 .43 .14 .07 1.15 .38 1.81 5.37 $48.11 Average cost per pound .0381 Protein, pounds per capita. 28.48 1.38 1.92 .20 2.03 4.24 .34 .91 .00 .42 24.21 .53 1.17 .05 .01 2.09 .00 1,45 .56 .16 .23 .11 .01 .00 .00 1.82 11.54 83,86 Grams per day, 104.19 Fuel value, calories per capita. 446,626 24,975 21,275 4,075 14,445 73,098 120,768 6,825 85,560 22,704 170,154 4,982 32,339 1,677 292 24,623 14,053 3,485 4,620 928 11,273 1,632 268 000 000 9,792 113,685 1,214,154 Calories per day. 3,326 284 Table III — Continued. HOSPITALS. ARTICLES. Flour and wheat products Corn meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total Indiana. Eastern Hospital — ^Richmond. Pounds of food per capita. 199.31 15.16 6.03 6,43 27.70 326.00 33.00 5.05 64.08 26.73 143.76 21.19 4.72 2.69 4.08 4.22 11.51 9.46 11.78 20.65 10.72 9.35 1.15 17.31 188.00 1170.10 Consump- tion per day. 3.21 Average cost per capita. $5.16 .28 .16 ,35 1.07 3.29 3.77 .81 3.25 .60 12.15 '2!78 .64 .47 .51 .51 1.59 1.77 .73 .60 .35 1.26 .23 2.62 3.28 $48.23 Average cost per pound, .0412 Protein, pounds per capita. 20.82 1.39 1.01 .51 6.23 5.87 .33 1.31 .00 .64 21.28 'i!76 .67 .22 .30 .60 .00 1.32 .33 .41 .05 .00 .00 2.32 6.20 73.51 Grams per day. 91.33 Fuel value, calories per capita. 325,965 25,241 11,156 10,481 44,459 101,060 118,965 9,848 119,189 34,482 149,510 46,936 5,999 7,519 10,832 7,069 48,572 7,568 15,903 6,195 4,288 000 000 12,463 61,100 1,184,800 Calories per day. 3,246 885 Table III — Continued. HOSPIIALS. ARTICLES. Flour and wheat products Corn meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . , Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal , Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total Indiana. Southern Hospital — Evansville. Pounds of food per capita. 202.72 20.57 4.86 11.37 25.75 215.50 37.23 2.37 57.57 16.13 198.93 35.87 9^45 4.65 6.67 17.21 .41 14! 73 33.47 22.70 21.42 .92 7,42 245.46 1213.38 Consump- tion per day. 3.32 Average cost per capita. $5.51 .30 .13 .43 1.01 2.08 4.99 .39 3.04 .38 15.98 '4!57 'i'.'si .50 1.01 2.25 .05 2.63 2.09 .70 '2.78 .18 1.16 4.71 $58.39 Average cost per pound, .0481 Protein, pounds per capita. 21.08 1,89 .71 .91 5.79 3.88 .37 .81 .00 .39 29.44 '2!67 "!86 .34 .95 .00 .03 2^08 .94 .45 '.66 ,00 ,99 8.10 82.08 Grams per day. 101.98 Fuel value . calories per capita. 331,437 34,249 7,651 18,533 41,328 66,805 134,214 4,621 107,080 20,807 206,887 57,303 26^412 12,345 11,172 72,626 84 11,784 45,184 6,810 000 000 5,342 79,774 1,302,448 Calories per day. 3,568 286 I ABLE III — Continued. HOSPIIALS. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total Indiana. Central Hospital — Indianapolis. Pounds of food per capita. 278.30 17.54 7.26 10.84 19.95 366.00 40.67 8.13 70.83 12.45 178.81 30.22 37.42 19.56 3.46 23.46 10.00 1.46 20.70 2,83 15.00 306.16 1481.05 Consump- tion per day. 4.00 Average cost per capita. $7.37 .30 .20 .57 .76 2.88 5.34 1.29 3.27 .28 15.29 '4!67 5.80 2.63 .78 1.74 .32 .10 ,10 71 37 ,34 863.51 Average cost per pound. .0429 Protein, pounds per capita. 28.94 1.61 1.21 .87 4.49 6.59 .41 2.11 .00 .30 26.46 2.42 5.31 .00 .48 .66 .20 .01 .00 .00 2.01 10.10 94.18 Grams per day. 117.015 Fuel value calories per capita. 455,021 29,204 13,431 17,669 32,020 113.460 146,615 15,854 131,744 16,061 185,962 66,937 62,679 82,543 2,768 31,671 3.000 684 000 000 10,800 99,502 1,517,525 Calories per day. 4,157 287 Table III — Continued. HOSPITALS. ARIICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total Indiana. Northern Hospital — Logansport. Pounds of food per capita. 222.42 11.59 7.37 13.79 21.81 169.63 36.94 6.46 57.63 38.99 164.11 10.48 25.10 18.38 4.18 18.96 1.95 11.89 11.12 2.67 9.31 231.50 1089.89 Consump- tion per day. 3.00 Average cost per capita. $6.89 .23 .23 .44 1.01 1.72 5.21 1.25 3.12 1.02 13.91 .79 2.76 2.89 "!54 .55 2.02 .11 .68 1.43 .53 1.83 5.45 $54.61 Average cost per pound. .0501 Protein, pounds per capita. 23.26 1.07 12.30 1.11 4.91 3.05 .37 1.77 .00 9.36 22.81 1.36 2.01 1.36 "!o6 .69 .53 .04 .24 .00 .00 .16 .64 95.04 Grams per day. 118.08 Fuel value, calories per capita. 363,786 19,297 13,634 22,478 35,005 52,585 133,168 12,597 107,092 50,297 160,274 17,973 55,597 48,799 15^234 3,344 25,596 585 3,567 000 000 6,603 76,238 1,222,749 Calories per day. 3,350 oyij Table III — Continued. HOSPITALS. ARTICLES. Flour and wheat products Corn meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee lea Eggs Milk Total Iowa. Independence. Pounds of food per capita. 242.44 6.20 18.20 6.60 21.40 508.20 29.30 2.20 44.67 12.96 144.90 .32 16.00 4.10 6.50 2.90 1.80 2.90 12.00 15.00 8.88 10.95 4.00 4.75 69.00 1196.17 Consump- tion per day. 3.28 Average cost per capita. $5.99 .12 .49 .26 .89 3.84 8.93 .34 2.39 .51 12.07 .02 1.52 '.64 .71 .18 .13 .28 .87 .45 .41 .31 .22 .64 .04 $45.26 Average cost per pound .0378 Protein, pounds per capita. 25.23 .57 3.04 .53 4.82 9.15 .29 .57 .00 .31 21.45 .04 1.28 .37 .00 .25 .25 .41 .34 .30 .04 .00 .00 .63 2.28 72.15 Grams per day. 89.64 Fuel value, calories per capita. 396,403 10,323 33,670 10,758 34,347 157,542 105,627 4,290 83,086 16,718 149,968 389 35,440 11,460 27,430 595 2,079 2,320 16,200 4,500 3,552 000 000 3,420 22,425 1,132,542 Calories per day. 3,103 289 Iable III — Continued. HOSPITALS. ARTICLES. Iowa. Flour and wheat products Corn meal and hominy . . . Oats, rolled and meal. . . . Rice Beans and peas, dried . . . Potatoes Butter and butterine .... Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total Clarinda. Pounds I Average of food cost per capita, per capita. 336.31 19.20 11.70 11.60 2.80 378.08 36.90 5.10 51.70 25.30 141.40 22.50 B.QO '2'07 12.10 8.20 4.70 2.70 12.60 32.90 12.80 24.10 5.50 6.75 218.00 1388.91 Consump- tion per day. 3.80 $8.17 .40 .57 .35 .12 3.88 10.88 .78 2.75 .66 12.97 'i!88 .69 .29 1.41 .51 .32 .34 ,86 1.15 .39 2.90 1.66 .90 4.36 ).19 Average cost per pound .0426 Protein, pounds per capita. 35.17 1.77 1.95 .93 .63 6.80 .36 1.32 .00 .61 20.93 1.80 .36 .29 .00 .70 .65 .38 .35 .66 .06 .00 .00 .90 7.19 83.12 Grams per day. 103.27 Fuel value calories per capita. 550,065 31,967 21,645 18.908 4,494 117,180 133,024 9,945 96,162 32,637 147,056 49,837 16^840 '3^467 51,062 1,681 5,428 2,160 17,010 9,870 5,120 000 000 4,860 70,850 1,384,297 Calories per day. 3,792 200 Table III — Continued. SOLDIERS HOMES. ARTICLES. Flour and wheat product: Corn meal and hominy. . Oats, rolled and meal. . . . Rice Beans and peas, dried . . . Potatoes Butter and butterine . . . . Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total New York. Bath. Pounds Average Protein, Fuel value, of food cost pounds calories per capita. per capita. per capita. per capita. 271.53 $4.15 28.36 444,074 7.06 .14 .65 11,755 5.81 .16 ,97 10,749 4.3.3 .15 .35 7,058 10.55 .42 2,37 16,933 315.98 3.07 5,69 97,954 44.89 12.82 .45 161,828 4.66 .69 1,21 9,087 42.88 1.98 .00 79,767 7.52 .18 ,18 9,701 120.28 10.44 17.80 125,091 15.90 1.48 2.07 19,319 10.62 .99 .85 23,523 38.29 3.39 5.48 48,667 13.82 2.24 1,21 37,229 15.73 1.64 1,16 41,763 18.89 2.12 2,68 31,641 3,85 ,34 ,00 16,247 6.85 .31 ,58 1,404 20,44 1.13 2,84 23,608 6,15 1.12 .86 4,920 11.31 .74 .32 15,269 4.32 .07 .07 1,296 25 'si '3.0b ■ ■ '.00 ' ■ '606 2.56 ,37 .00 000 13.44 2.10 1.80 9,677 220.48 3,92 7.28 71,656 12.6395 S59.16 85.23 1,320,206 Consump- Average Grams Calories tion cost per day. per per day. per pound. day. 3.46 .0468 105.895 3,616 391 TableJIII — Continuea, SOLDIERS HOMES. Indiana. ARTICLES. La Fayette. Pounds of food per capita. Average cost per capita. Protein, pounds per capita. Fuel value, calories per capita. Flour and wheat products Corn meal and hominy Oats, rolled and meal 150.60 7.06 10.09 3.53 14.08 261.23 28.42 5.85 71.92 1.34 100.91 20.44 20.78 1.51 33.73 .43 27.83 9.08 2.81 3.99 6.47 13.53 33.49 19.60 25.94 1.20 18.06 338.19 $4.21 .29 .29 .14 .64 2.44 3.75 .92 3.73 .54 8.56 1.82 2.62 .09 5.41 .04 3.81 1.24 .33 .37 .99 1.06 1.11 1.58 3.88 .27 2.66 6.24 15.72 .65 1.69 .28 3.17 4.70 .28 1.52 .00 .03 14.93 2.66 1.66 .22 3.07 .03 3.95 .00 .24 .55 .90 .38 .67 .10 .00 .00 2.42 11.16 246,288 11,755 18,667 Rice 5,754 22,598 Potatoes 81 , 181 Butter and butterine 102,454 Cheese 11,408 Sugar 133,7 Molasses and syrup 1,728 Beef and veal 104,946 Mutton 22,834 Pork 46,028 Corned beef 1,919 Bacon 94,295 Salt pork 1,142 Ham and shoulder 46,615 Lard 38,318 Fish, fresh 576 Fish, salt 4,608 Poultry 5,176 Dried fruits 18,266 Canned vegetables 10,047 fla.TiTipd fniitf! 7,840 Coffee 000 lea 000 Eggs 13,003 Milk 109,912 Total 1232.11 $59.03 70.98 1,161,109 Consump- tion per day. Average cost per pound. Grams per day. Calories )er day. 3.37 .04792 88.16 3,181 292 Iable III — Continued SOLDIERS HOMES. ARIICLES. Flour and wheat products . Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried .... Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk: Total. Iowa. Marshalltown. Pounds of food per capita. 189.40 5.07 28.30 4.20 8.80 408.60 50.90 6.30 93.00 14.40 131.70 44.70 is! 66 9.90 7.90 5.60 4.70 8.80 4.41 6.60 23.04 62.16 29.50 2.20 23.15 532.00 .1723.03 Consump- tion per day. 4.72 Average cost per capita. $4.54 .08 .74 .19 .46 3.48 13.67 95 6.03 .06 10.74 5.28 '2!98 1.10 1.18 .76 .30 .62 .58 .61 .66 2.31 3.55 .66 .83 9.93 $71.29 Average cost per pound. .0413 Protein, pounds per capita. 19.71 .46 4.73 .34 1.98 7.35 .51 1.63 .00 .35 19.49 's.hs 'i!64 .73 1.12 .00 .40 1.22 .62 .18 .46 .31 .00 .00 3.10 17.56 87.47 Grams per day. 108.68 Fuel value, calories per capita. 309,682 8,442 52,355 6,846 14,124 126,666 193,495 12,285 127,989 18,576 136,968 99,011 '56,316 26,285 13,232 23,632 964 10,164 3,528 8.910 6)912 24,864 000 000 16,668 172,900 1,464,799 Calories per day. 4,013 293 Table III — Continued. INDUSIRIAL SCHOOLS. ARTICLES. Flour and wheat products . Corn meal and hominy. . . Oats, rolled and meal Rice Beans and peas, dried .... Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee lea Eggs Milk Total. New York. Industry. Pounds of food per capita. 443.93 13.78 10.21 5.44 21.39 420.00 7.60 3.18 28.71 28.92 117.71 6.64 26.84 3.60 3.57 11.13 7.33 1.35 2.64 4.66 7.90 .80 .82 7.73 1.50 22.00 391.30 Average cost per capita. 1600.68 Consump- tion per day. 4.39 810.91 .26 .28 .18 .72 4.20 1.75 .46 1.33 .82 9.24 .71 2.95 .40 .39 1.22 .69 .11 .14 .75 .51 .08 .09 .90 ,22 3.44 7.28 Protein, pounds per capita. Fuel value, calories per capita. 46.09 1.27 1.71 .44 4.81 7.56 .08 .82 .00 .69 17.42 .86 2.15 $50.03 Average cost per pound. .0312 .33 .26 1.58 .00 .11 .37 .64 .22 .02 .01 .00 .00 2.95 12.91 103.30 Grams per day. 128.35 725,872 22,944 18,889 8,867 34,313 130,200 27,398 6,201 53,401 37,307 122,418 8,068 59,451 i6;662 9,478 18,643 30,933 277 3,049 3,728 10,665 240 328 000 000 15,840 127,173 1,485,745 Calories per day. 4,071 294 Table III — Continued. INDUSTRIAL SCHOOLS. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea -. . . . Eggs MUk Total New York. Randalls' Island. Pounds of food per capita. 360.05 9.72 3.70 3.13 29.58 108.09 3.04 .70 20.74 21.35 97.94 .718 3.01 23.10 .04 1.61 3.70 4.55 4.51 3.13 2.02 15.34 5.41 5.55 is '27 383.55 1133.91 Consump- tion per day. 3.10 Average cost per capita. .19 .10 .10 1.11 3.14 .85 .10 .96 .45 7.90 .66 .42 1.41 .01 .16 .52 .41 .36 .15 .34 .95 1.40 "]65 2!66 8.19 $41.47 Average cost per pound. .03657 Protein, pounds per capita. 37.45 .89 .62 .25 6.65 1.94 .03 .18 .00 .51 14.50 .93 .24 3.30 .00 .11 .52 .00 .38 .43 .28 .43 .11 .00 1.78 12.66 84.19 Grams per day. 104.60 Fuel value, calories per capita. 588,689 16,183 6,845 5,102 20,853 33,508 10,959 1,365 38,576 27,542 101,857 8,723 6,667 29,360 112 4,009 6,198 19,201 926 3,616 1,616 20,709 1,623 000 9,654 124,654 1,088,445 Calories J)er ay. 2,982 295 Table III — Continued. INDUSTRIAL SCHOOLS. ARTICLES. Flour and wheat produf ts Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . , Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt Pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs MUk Total Indiana. Plainfield. Pounds of food per capita. Average cost per capita. Protein, pounds per capita. Fuel value, calorie* per capita. 319.50 22.96 $8.05 .36 33.40 2.11 512,574 38,228 ii!27 20.68 489.59 6.17 '!25 .62 3.07 1.54 .90 4.66 8.81 .06 18,370 33,191 151,772 22,243 34;i8 5.24 188.19 .14 7.53 "!66 .72 27.85 63; 574 6,759 195,717 26; 09 '2!6i i.'ei 44,499 4.28 "[to .39 11,962 k'.m i!65 "loo 34;6i3 23! 25 ilos "!65 si; 387 '2^91 '"!44 '".66 ' ' 006 "iso 261.34 "!64 6.08 8.62 216 94,935 1418.01 $34.47 89.21 1,259,440 Consump- tion per day. Average cost per pound. Grams per day. Calories per day. 3.98 .0243 110.84 3,451 296 Table III — Continued. INDUSTRIAL SCHOOLS. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice . ; Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and^veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total Iowa. Eldora. Pounds Average Protein, Fuel value, of food cost pounds calories per capita. percapita. percapita. per capita. 351.10 $8.31 36.65 574,184 12.40 .23 1.14 20,646 25.00 .62 4.17 46,260 6.90 .29 .65 11,247 40.60 1.57 9.13 65,163 267.00 3.03 4.80 82,770 10.90 3.22 .10 39,785 4.00 .63- 1.13 7,800 46.00 2.37 .00 85,561 15.62 .41 .37 20,149 93.67 7.14 13.86 97,416 27! 90 ■2!54 '2!23 61,798 5^65 ";92 ".51 isJTOi '4!76 "!72 '".66 ■ 7^872 2.07 .13 .17 424 2!66 "!l6 "!28 i^eoo 12.60 1.06 .35 17,010 34.54 1.87 .69 10,362 5.50 .28 .02 2,200 7.00 .84 .00 000 1.50 .45 .00 000 8.85 1.12 1.18 6,372 291.00 5.84 9.60 94,575 1276.50 $43.75 87.67 1,268,975 Consump- Average Grams Calories tion cost per per per day. per pound. day. day. 3.50 .035 108.92 3,477 297 Table III — Continued. REFORMATORIES. New York. ARTICLES. Elmira. Pounds of food per capita. Average cost per capita. Protein, pounds per capita. Fuel value, calories per capita. Flour and wheat products Com meal and hominy 585.00 6.19 8.63 8.30 18.77 202.45 2.86 isiie 60.33 111.84 16.25 17.07 11.81 's'.sk 's'.e's 1.74 4.82 4.69 1.66 7.94 1.95 .36 182.36 $10.35 .12 .21 .28 1.03 1.57 .68 ■ ' .'68 1.49 7.54 1.48 1.19 1.42 "!29 "!25 .24 .23 .37 .04 .92 .29 .06 1.70 60.84 .57 1.44 .66 4.38 3.64 .03 ■ ' .66 1.45 16.55 2.11 1.36 1.69 ".66 '1.26 .24 .13 .09 .01 .00 .00 .05 6.02 956,475 11,306 Oats, rolled and meal 15,965 Rice 13,521 Beans and peas, dried 30,500 Potatoes 62,759 Butter and butterine 10,310 Cheese Sugar 28,197 Molasses and syrup 77,825 Beef and veal 116,313 Mutton 19,743 Pork 37,810 Corned beef 15,010 Bacon Salt pork Ham and shoulder Lard 14,263 Fish, fresh Fish, salt 9,990 Poultry 1,392 Dried fruits 6,507 Canned vegetables 1,407 CannpH fniits 664 Coffee 000 lea 000 Eggs 259 Milk 59,267 Total 1282.21 $32.43 102.56 1,489,483 Consump- tion per day. Average cost per pound. Grams 3er day. Calories )er day. 3.49 .0253 127.42 4,081 398 Table III — Continued. REFORMAl OKIES. ARIICLES. Flour and wheat products Corn meal and hominy . . . Oats, rolled and meal . . . , Rice Beans and peas, dried . . . , Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee lea Eggs Milk lotal New York. Bedford — for Women. Pounds Average Protein, Fuel value, of food cost pounds calories per capita. per capita. per capita. per capita. 245.58 $6.55 25.66 401,648 6.83 .27 .63 11,371 5.00 .13 .84 9,250 6.70 .22 .54 10,921 21.65 .83 4.95 34,748 185.30 1.97 3.34 57,443 17.45 4.99 .17 62,907 4.24 .63 1.10 8,268 41.10 2.15 .00 76,446 4.84 .13 .12 6,244 110.00 9.01 16.28 114,400 2.60 .25 .34 3,159 .62 .06 .05 1,373 "!37 "m '"^OS 'l,63i 10.80 1.26 .80 28,674 2.17 .32 .31 3,635 5.78 .55 .00 24,392 ft. 60 .67 .82 1,968 i^oo "!i5 ".U 'soo 11.18 .71 .31 15,093 9.29 .29 .18 2,787 .80 .01 .00 320 7.58 .88 .00 000 2.70 .32 .00 000 15.84 2.55 2.12 11,405 219.00 4.76 7.23 71,175 948.02 $39.72 65.96 959,461 Consump- Average Giams Calories tion cost per per per day. per pound. day. day 2.60 .0420 81.92 2,629 299 Table III — Continued. REFORMATORIES. ARTICLES. Flour and wheat products. Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried .... Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk lotal. Indiana. Jeffersonville. Pounds of food per capita. 415.41 116.15 8.80 14.50 30.65 297.91 19.77 32.70 21.21 111.52 15.58 22.89 12.47 4.56 8.38 5.41 5.65 .35 .25 18.57 Average cost per capita. 1161.73 Consump- tion per day. 3.18 $9.51 1.67 .23 .35 .98 2.34 2.03 i!58 .49 6.74 2.28 3.00 .66 .30 .07 .10 .63 .05 .04 .99 Protein, pounds per capita. 43.29 10.59 1.47 1.16 6.90 5.36 .20 '.66 .51 16.50 1.42 .00 1.06 Fuel value, calories per capita. $34.04 Average cost per pound. .0293 679,270 191,726 16,280 23,636 49,193 92,352 71,271 60,822 27,361 116,981 .13 .17 .03 .00 .00 .03 .61 89.43 Grams per day. 111.11 43,546 96,596 2,656 6,166 2,514 2,164 000 000 180 6,035 1,487,637 Calories per day. 4,076 300 Table III — Continued. REFORMATORIES. ARTICLES. Iowa. Anamosa. Pounds of food per capita. Average cost per capita. Protein, pounds per capita. Fuel value, calories per capita. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese .' Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total 251.31 16.30 2.40 4.00 19.00 433.20 17.90 25.60 53.00 169.40 59.00 25 3 60 35 20 50 2.07 7.80 30.60 16.00 1.00 4.50 47.00 1209.53 $6.08 .33 .06 .15 .80 3.13 5.47 i!36 1.48 14.24 4!96 .26 i'.n .31 .53 .85 1.92 .31 .59 .82 $49.38 26.15 1.50 .40 .32 4.28 7.80 .18 .00 1.27 25.07 '4!72 2.33 .25 !o6 .29 .22 .61 "!66 .00 .60 1.55 77.54 Consump- tion per day. 3.32 Average cost per pound .0408 Grams per day. 96.35 410,900 27,140 4,440 6,520 30,495 134,29 64,530 47,616 98,580 176,176 130,685 71,552 8,894 86^510 1,656 10,530 9,180 '666 000 3,240 15,275 1,338,211 Calories per day. 3,666 301 Table III — Continued. PRISONS. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and s3Tup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total Indiana. Michigan City. Pounds of food per capita. 320.85 76.35 4.93 7.02 21.97 309.00 8.79 18.62 13.50 195.25 14.89 43.47 7.63 .10 'i!43 29,12 .20 8.36 .04 .63 68.31 1149.86 Consump- tion per day. 3.19 Average I Protein, cost pounds per capita, per capita. $7.98 1.31 .13 .20 .73 2.46 .86 '!93 .28 10.89 'l'58 4.05 .09 ".29 1.49 .02 "!93 .01 .10 1.43 $36.64 Average cost per pound, .0319 33.37 7.02 .82 .56 4.94 5.56 .09 Fuel value, calories per capita. .00 .32 28.90 'i!i9 3.22 .00 .01 .20 .81 .00 .00 .00 .08 2.25 88.84 Grams per day. 110.38 524,589 127,122 9,120 11,442 35,261 95,790 31,688 34,633 17,415 203,060 32,98 115,412 29^666 115 1,144 39,312 60 '666 000 453 22,200 1,331,463 Calories per day. 3,648 302 Table III — Continued! PRISONS. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rfce Beans and peas, dried . . . , Potatoes Butter^and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total: Iowa. Ft. Madison. Pounds of food per capita. 283.40 13.90 6.20 5.10 6.10 828.00 26.30 3.60 19.40 6.00 309.00 18.20 is! 60 27.90 i7!60 27.80 '".89 .990 17.60 7.90 20.50 .66 4.62 61.70 1740.87 Consump- tion per day. 4.77 Average cost per capita. $6.72 .23 .18 .22 .25 5.05 7.65 .56 1.02 1.78 25.21 1.70 '2^75 3.32 '2!i9 1.29 '".12 1.49 .49 .24 2.46 .20 .56 1.51 $67.19 Average cost per pound, .0386 Protein, pounds per capita. 29.47 1.28 1.04 .41 1.37 14.90 .26 .93 .00 .01 45.73 1.46 'i!69 2.06 '!66 2.36 "!i2 .28 .35 .04 .00 .00 .62 2.04 Fuel value, calories per capita. 106.42 Grams per day. 132.22 463,359 23,144 11,470 8,313 9,790 256,680 94,811 7,020 36,084 7,740 321,360 40^313 51^987 74,075 74 i 272 5,699 '7i2 13,365 5,280 3,160 000 000 3,326 20,053 1,532,013 Calories per day. 4,198 303 Table III — Continued. INSTITUTIONS FOR FEEBLE MINDED. ARTICLES. Flour and wheat products Corn meal and hominy. . . Oats, rolled andjmeal Rice Beans and peas, dried ... Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs MUk Total New York. Rome. Pounds of food per capita. 236.64 11.10 9.00 6.59 31.38 207.09 22.68 2.84 30.82 14.26 78.00 3.26 5.77 2.16 3.10 8.25 8.60 6.97 10.68 5.70 .68 6.18 14.40 5.19 1.59 9.93 422.45 1165.31 Consump- tion per day. 3.20 Average cost per capita. $5.80 .22 .24 .22 1.22 1.72 6.51 .41 1.58 .25 6.11 .31 .72 .23 .44 .87 1.08 .67 .45 .30 .13 .33 .58 .23 1.54 5.89 $38.71 Average cost per pound. .0332 Protein, pounds per capita. 24.67 1.02 1.50 .53 7.07 3.72 .23 .74 .00 .34 11.53 .42 .46 .31 .28 .61 1.22 .00 .91 .79 .10 .17 .29 ".66 .00 1.33 13.94 72.18 Grams per day. 89.68 Fuel value, calories per capita. 386,964 18,482 16,650 10,741 50,365 64,198 81,761 5,538 57,325 18,395 81,120 3,961 12,781 2,945 8,665 21,904 14,405 29,413 2.189 6,584 544 8,343 4,320 000 000 7,150 137,296 1,051,839 Caloriei per day. 2,881 304 Table III — Continued. INSTITUTIONS FOR FEEBLE MINDED. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . , Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total New York. Syracuse. Pounds of food per capita. 292.67 3.80 4.99 3.70 6.52 166.87 23.76 3.40 40.47 32.90 74.32 17.24 10.50 8.41 1.41 3.73 9,27 5.60 3.57 3.17 4.47 9.00 Q.ie 2.32 15.45 543.77 1297.47 Consump- tion per day. 3.55 Average cost per capita. $7.78 .07 .14 .14 .26 1.34 6.80 .50 2.09 .81 6.01 1.23 1.26 1.00 .23 "!54 .84 .34 .20 .64 .27 .12 "!72 .35 2.38 8.81 S44.87 Average cost per pound, .0346 Protein, pounds per capita. 30.44 .35 .83 .30 1.47 3,00 .24 .88 .00 .79 11.00 2.24 .84 1.20 .13 .53 .00 .48 .50 .44 .13 .18 .00 .00 2.07 17,94 75,98 Grams per day. 94.36 Fuel value, calories per capita. 478,510 6,327 9,232 6,031 10,465 51,730 85,655 6,630 75,274 42,441 77,293 20,947 23,258 10,689 3,941 6,248 39,119 1,148 4,123 2,536 6,035 2,700 666 000 11,124 175,725 1,157,181 Calories per day. 3,170 305 Table III — Continued. INSTITUTIONS FOR FEEBLE MINDED. ARTICLES. Flour and wheat products. Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried .... Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Pish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs MUk Total. Indiana. Ft. Wayne. Pounds of food per capita. 291.24 11.10 9.29 8.26 25.28 116.03 27.47 .32 39.69 31.50 73.96 1.25 3.99 '8!75 '3^89 'i!62 12.99 24.38 .66 Average cost per capita. S7.18 .18 .23 .28 .89 .99 3.31 .05 2.00 .70 5.95 .13 .40 1.10 "!43 Protein, pounds per capita. 4 .31 193.87 889.75 Consump- tion per day. 2.44 .27 .63 1.12 .02 .68 .85 $30.39 Average cost per pound. .03141 30.29 1.02 1.55 .66 5.69 2.09 .27 .08 .00 .76 10,95 16 .32 .65 .00 Fuel value, calories per capita. .21 .36 .49 .01 .58 6.40 62.54 Grams per day. 77.66 476,177 18,482 17,487 13,464 40,574 35,969 99,029 624 73,823 40,635 76,918 1,519 8,838 23,231 1,21S 17,537 7,314 264 3,103 63,008 1,036,028 Calories per day. 2,838 306 Table III — Continued. INSTITUTIONS FOR FEEBLE MINDED. ARTICLES. Flour and wheat products. Corn meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried .... Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef , Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Milk. Total. Iowa. Glenwood. Pounds of food per capita. 291.30 17.80 15.00 14.00 28.50 306.00 19.80 4.20 57.00 20.91 118.90 1.70 22.20 .90 Average cost per capita. Protein, pounds per capita. 4.10 7.90 .37 1.40 3.39 10.60 76.20 15.60 11.30 1.60 6.52 363.30 1424.49 Consump- tion per day. 3.93 $6.62 .47 .34 .54 1.24 3.02 6.07 .63 2.97 .57 10.91 .15 2.45 "]79 ".hi .55 .02 .11 .44 .73 2.16 .74 1.36 .49 .87 7.40 $52.28 Average cost per pound, .0367 30.42 1.64 2.51 1.12 6.41 5.51 .20 1.09 .00 .50 17.60 .23 1.78 "a5 "^SS .00 .03 .19 .47 .30 1.52 .08 .00 .00 .87 11.99 Fuel value, calories per capita. 85.49 Grams per day. 106.22 476,401 29,637 27,750 22,820 45,743 94,860 71,379 8,190 106,020 26,874 123,656 2,066 49,173 13,696 6,868 33,338 76 1,617 2,712 14,310 22,860 6,240 000 000 4,694 118,073 1,309,053 Calories per day. 3,586 307 Table III — Concluded. INSTITUTION FOR EPILEPTICS. ARTICLES. Flour and wheat products Com meal and hominy . . . Oats, rolled and meal Rice Beans and peas, dried . . . . Potatoes Butter and butterine Cheese Sugar Molasses and syrup Beef and veal Mutton Pork Corned beef Bacon Salt pork Ham and shoulder Lard Fish, fresh Fish, salt Poultry Dried fruits Canned vegetables Canned fruits Coffee Tea Eggs Milk Total New York. Sonyea. Pounds of food per capita. 266.42 8.66 18.04 5.59 8.29 243.44 37.45 1.89 49.01 9.15 111.54 16.07 10.73 6.03 18.92 6.30 1.06 10.89 15.70 '8]62 3.89 33.15 306.01 1196.85 Consump- tion per day. 3.28 Average cost per capita. $5.38 .16 .46 .18 .34 1.68 11.38 .28 2.77 .23 8.10 1.36 1.26 .72 1.04 .31 .20 .69 .17 'i'.m .61 4.87 6.07 $49.32 Average cost per pound. .0412 Protein, pounds per capita. 27 Fuel value, calories per capita. 4.38 .37 .49 .00 .22 16.51 2.09 .86 .00 1.61 .88 .15 .30 .31 "!66 .00 4.44 10.10 76.65 Grams per day. 95.24 435,710 14,419 33,374 9,112 13,305 75,466 135,007 3,956 91,159 11,804 116,002 19,525 23,767 25,447 3,879 7,277 848 14,702 4,710 666 000 23,8 99,453 1,162,790 Calories per day. 3,186 308 Summary op Table III. Average per capita food consumed; average cost per pound; food values covering period Oct. 1, 1909 to Sept. 30, 1910. Note: Food consumption of Iowa institutions is for one year from July 1, 1909 to June 30, 1910. INSTITUTIONS. Hospitals. New York: Rochester Middletown Utica Binghamton Kings Park Indiana : Eastern Southern Central Northern Iowa: Independence Clarinda SoLDiEES Homes. New York: Bath Indiana : Lafayette Iowa: Marshalltown Indtjsthial Schools, New York: Industry Randall's Island Indiana : Plainfield Iowa: Eldora Reformatories. New York: Elmira Bedford Indiana : JeffersonvUIe Iowa: Anamosa Per capita, pounds of food. 1,187.71 1,392.26 1,262.19 1,254.04 1,143.74 1,170.10 1,213.38 1,481.05 1,089.89 1,196.17 1,388.91 1,263.95 1,232.11 1,723.03 1,600.68 1,133.91 1,418.01 1,276.50 1,282.21 942.02 1,161.73 1.209.53 Average cost per capita. $49.02 62.39 48.11 50.41 51.80 48.23 58.39 63.51 54.61 45.26 59.19 59.16 59.03 71.29 50.03 41.47 34.47 43.75 32.43 39.72 34.04 49.38 Protein, grams per capita, per day. 96.20 122.43 109.67 100.00 95.3 91.33 101.98 117.02 118.08 89.64 103.27 105.90 88.16 108.68 128.24 104.60 110.84 108.93 127.42 81,92 111.11 96.35 I Calories per capita. per day. 3,100 3,636 3,326 2,990 2,962 3,246 3,568 4,157 3,350 3,103 3,792 3,616 3,181 4,013 4,071 2,982 3.451 3.477 4,081 2,629 4,076 3,666 309 Summary of Table III — Continued. INSTITUTIONS. Prisons. Indiana: Michigan City Iowa: Ft. Madison Feeble Minded New York: Rome Syracuse Indiana: Ft. Wayne Iowa: Glenwood Epileptics. New York: Sonyea Per capita, pounds of food. 1,149.86 1,740.87 1,165.31 1,297.47 889.75 1,424.49 1,196.85 Average cost per capita. 36.64 67.19 38.71 44.87 30.39 52.28 49.32 Protein, grams pfer capita, per day. 110.38 132.22 80.16 94.36 77.66 106.22 95.24 Calories per capita, per day. 3,648 4,198 2,881 3,170 2,838 3,586 3,186 To a marked degree, the efficiency of central control may be judged by the uniformity of operation it has secured in institutions handling the same class of inmates and meeting the same problems. Two institutions caring for the same class of inmates should use the same per capita amount of food, with allowance made for difference in climate, relative proportion of males and females, physical exercise, kitchen equipment, etc. That these problems have received com- paratively little attention is shown by the data in the preceding tables. A review of these tables will show that the per capita consumption of food in institutions of a similar character varies greatly. For in- stance, by referring to Summary of Table III, page 308 it will be noted that the per capita consumption of food in the Northern Hos- pital in Indiana, was 1,089 lbs., while Central Hospital, having the same class of inmates, used 1,481 lbs., per capita. The Soldiers' Home in New York State used 1,363 lbs. per capita, while the sim- ilar institution in Iowa consumed 1,733 lbs. In New York State the House of Eefuge on EandaU's Island and the Industrial School at Industry, have the same class of boys, yet on EandaU's Island but 1,133 lbs. were consumed per capita, while at Industry 1,600 310 lbs. Quite as much difference is noted between the prisons. The prison at Michigan City in Indiana consumed 1,149 lbs. per capita, while the similar institution in Iowa used 1,740 lbs. per capita. A like diSerence is noted in connection with the institutions for feeble- minded. At Fort Wayne, Indiana, but 889 lbs. per capita were used, whereas at Glenwood, Iowa, the consumption was 1,424 lbs. These varying amounts of per capita consumption between institu- tions dealing with the same class of inmates mean very little stand- ing alone, inasmuch as one institution might purchase a larger bulk of a cheaper food and thereby increase the total number of pounds consumed, but not increase the per capita cost, so there must be taken in connection with such consumption the consideration of its cost and its food value. For instance, the amount consumed by the Northern and Central Hospitals in Indiana, viz., 1.089 and 1,481 lbs., cost respectively, $54.00 and $63.00, so the larger amount consumed by the Central Hospital actually cost proportionately more than that consumed by the Northern. If, however, we examine the value of the food thus used, it will be noted that for the $54.00 ex- pended by the Northern Hospital, 118 grams of protein per day were secured, whereas for the $63.00 expended by the Central Hospital but 117 grams were supplied. The Northern Hospital at the same time secured 3,350 caloris per capita per day, while Central, with the food furnished, secured 4,157. In other words, the $9.00 ad- ditional per capita, which the Central Hospital expended for its food, did not produce quite as much of the flesh-building elements, but did secure an additional 24 per cent, of fuel value. Whether or not, this additional amount was needed and advisable will be taken under consideration in subsequent pages. It was noted that the Soldiers' Home in Iowa used much more food per capita than the like institution in New York State. It also paid much more for such food; viz., $71.00 per capita as compared with $59.00 in New York. This additional expenditure of $13.00 per capita secured but little more protein; viz., 108 grams as compared with 105 for the smaller expenditure, but did secure somewhat more fuel value, viz., 4,013 calories as compared with 3,616 in the other institution. The question at once arises whether or not the additional money spent by the Iowa institution was needed or advisable. Comparing the two Industrial Schools in New York State, heretofore referred to, it will be noted that Eandall's Island paid $41.00 per capita for its food, whereas the food at Industry 311 cost $50.00 per capita, or $9.00 additional. In this case there is a direct proportion both between the amount of protein and the num- ber of calories furnished. For $41.00 Eandall's Island furnished 104 grams of protein per capita per day and 2,982 calories, and for the $50.00 expended by Industry 128 grams of protein were furnished and 4,071 calories. The additional amount of $9.00 per capita is thus represented in a proportionate increase of the pro- tein and of the fuel. The question yet remains to be asked, how- ever, whether all or any of this additional amount was needed or was advisable. Comparing the Eeformatories in New York, Indiana and Iowa, it will be noted that Elmira furnished 1,282 lbs. of food per capita, costing $32.00, furnishing 127 grams of protein and 4,081 calories; Jeffersonville, Indiana, used 1,161 lbs. of food per capita, costing $34.00, slightly more than that used in New York, furnishing 111 grams of protein and 4,076 calories, whereas Anamosa, in Iowa, bought about the same amount of food as did Elmira, i. e., 1,209 lbs., but it cost $49.00 per capita, or $17.00 per capita more than that in New York State. With this $17.00 extra, however, it did not secure more food value. On the contrary it furnished but 96 grams of protein as against 127 for Elmira, and 3,666 calories as against 4,081 for Elmira. Eeferring to the Prisons it will be noted that the food for Fort Madison, Iowa, cost $67.00 per capita as against $36.00 in Michigan City, Indiana. For this 86 per cent, increase in the per capita cost there was secured but 20 per cent, increase in the amount of protein and but 15 per cent, in the num- ber of calories. Again, it will be noted, that the Fort Wayne In- stitution for Feeble-Minded in Indiana, for an expenditure of $30.00 per capita secured 77 grams of protein per day and 2,838 calories, or practically the same amount as was secured by Eome, New York, for $38.00 per capita or $8.00 additional; whereas Glenwood, Iowa expended $52.00 per capita for its food, which is an increase of 73 per cent, over Port Wayne, and secured but 38 per cent, in- crease in the amount of protein and but 27 per cent, increase in the number of calories. A general summary of results is contained in Table IV, page 312, which is an average of the per capita food consumption, its cost, the amount of protein and number of calories, obtained by taking two Hospitals and one each of Soldiers' Homes, Eeformatories, Prisons, Industrial Schools, and Schools for Feeble-Minded, from each of 312 the three states. This method of average probably gives a fair presentation of the situation existing in connection with all of the institutions in these states. It will be noted by this table that Iowa not only feeds its inmates more heavily than the other two states, but also its per capita cost is more. It will also be observed that Indiana feeds the least of the three states and its per capita cost is also less than the other two states. By taking Indiana's figures as a basis and with them comparing those of New York and Iowa, it will be noted that New York uses .043 per cent, per capita more food than Indiana. The cost of this food is .047 per cent, more and for this additional expenditure New York receives .059 per cent, more protein, but .035 per cent., less of calories. Moreover, Iowa uses 31 per cent, more food per capita than Indiana and pays for this larger amount of food 29 per cent, more than is paid by In- diana. On the other hand, for this additional expenditure of 39 per cent, is secured but .078 per cent, additional protein and but .076 additional per cent, calories. This is strongly presumptive that Table IV. Comparison on per capita basis of the amount of food consumed cost ; protein ; calories; in the institutions of New York, Indiana and Iowa. State. Poimds per year. Cost per year. Protein, grams per day. Calories per day. New York. ... , ... 1227 1176 1423 + .043 *" 1 45.05 43.03 55.48 + .047 + .29 104.62 98.78 106.47 + .059 + .078 3313 Indiana Iowa Percentage of increase or decrease based on Indiana. New York ... 3429 3691 —.035 Iowa + .076 either Iowa is not as judicious in the selection of food as Indiana or New York, or else there is a marked waste in its consumption. Some idea of the handling of foods by the institutions may be gained by comparing details found in the table III, on pages 279 to 307. For instance, Middletown Hospital in New York State and Clarinda Hospital in Iowa use, respectively, 1,392 and 1,389 pounds of food per capita. Middletown, however, from this amount of food furnishes 122.43 grams of protein per capita, while Clarinda fur- 313 nishes but 103.27 grams. Some of this difference may be accounted for by the following items. Middletown uses but 10 lbs. of coffee, whereas Clarinda uses 24 per capita. Clarinda uses 5 1-2 lbs. of tea and Middletown 1 1-2. These contain no protein or other food values. Clarinda uses but 6.75 lbs. of eggs while Middletown uses 19.6 lbs. Eggs are strong in protein food. Clarinda uses 12 lbs. of lard per capita while Middletown furnishes but 4.04 lbs. This has no protein, but is high in caloric value. Middletown furnishes 6.41 lbs. of beans and peas per capita while Clarinda uses but 2.8 lbs. These are strong in protein. By comparing the various insti- tutions in this way it will readily be discovered which ones have been wise in buying food that is low in price but which contains proportionately a large amount of food material. Most of the in- stitutions using more than 1,200 lbs. of food per capita, buy an undue amount of high-priced food lacking in fool value. This is especially noticeable in Iowa institutions. It will be noted by the summary of Table III, page 308, that there is a very wide variation in the amount of protein and calories furnished inmates for the different institutions. This variation is almost as great between institutions dealing with the same class of inmates as between institutions having inmates of unlike physical and mental condition. It will be noted, for instance, in 'New York State, that Kings Park Hospital furnishes 95.3 grams of protein per day and 2,962 calories as against 122.43 grams of protein and 3,636 calories furnished by Middletown. This is a large variation in the food supplied to inmates of a like character and living under like conditions. Nearly as wide a variation is noted in Indiana, where the Eastern Hospital furnishes 91.33 grams of protein and 3.246 calories as against 117.02 grams of protein and 4,157 calories for the Central Hospital. Practically the same variation is noted in Iowa, between Independence and Clarinda Hospitals. All the Sol- diers' Homes contain about the same class of inmates— men doing practically no work and sufficiently old to require a comparatively small amount of food. Eegardless of this fact, they are fed about as heavily as other classes of inmates, and there is wide variation between the amount of food furnished by the institutions of this character in the different states. For instance, Lafayette, in Indiana, furnished 88.16 grams of protein per day and 3,181 calories as against 108.68 grams of protein and 4,013 calories for Marshall- town, Iowa. A wide variation is also noticeable between the prison 314 at Michigan City, Indiana, and the prison at Fort Madison, Iowa. The Indiana prison furnished 110.38 grams of protein and 3,648 calories as against 133.22 grams of protein and 4,198 calories for the Iowa prison. One of the most striking comparisons is between the schools for the feeble-minded. The one at Fort Wayne, In- diana, furnished 77.66 grams of protein and 2,838 calories as against 106.22 grams of protein and 3,586 calories for Glenwood, Iowa. The question at once arises, whether the institutions that are furnishing the smallest amount of protein and calories per day are feeding enough, or whether the ones that are furnishing the larger amounts are feeding too much. Professor W. 0. Atwater, in his re- port to the Lunacy Commission in New York State in 1899, included data from an extended examination of the food consumed in the Long Island and St. Lawrence Insane Hospitals. The per capita consump- tion in the two institutions was very nearly the same. In St. Law- rence he found the food actually eaten to be an average daily con- sumption of 73 grams of protein and 2306 calories. He considered the inmates adequately nourished. The subsequent data collected by the U. S. Department of Agriculture, and printed in a pamphlet entitled " Pood and Diet in the United States," sustains the opinions formed by Professor Atwater. His conclusions are substantially con- curred in by the present U. S. Expert in Nutrition, Mr. C. P. Lang- worthy. Professor 'Chittenden of Yale has, during the last few years, performed many experiments to determine the amount of food nec- essary to maintain health and strength. His conclusions are that the per capita amount reported by Professor Atwater, as actually consumed by the inmates of these institutions, is ample to maintain health and strength in a laboring man of average weight. For the purposes of this report, however, such authorities need not be called to witness, but the general health conditions in the institu- tions under consideration should be ground for passing judgment as to the necessity of furnishing the large amounts of protein and calories given by some of the institutions. For instance, Bedford Eeformatory for Women, in New York State, has about 300 able- bodied women. Many of these women work hard at manual labor for a portion of the time. They have constructed the conduits for steam pipes running from building to building, doing all of the ex- cavating by hand; they have built long tiers of concrete stairways; 315 they have laid many hundreds of feet of cement sidewalk; they have graded the grounds; they cultivate the farm. They are vigor- ous, active women, and the Superintendent, Miss Katherine B. Davis, who has given years of study to dietetics, states that they are not only now in excellent health, but have continuously been so during her years of observation. These women are furnished daily but 81.92 grams of protein and 2,629 calories as based on the food list heretofore given. Sex, age, and body weight are factors which must be taken into consideration in comparing the food needed by the inmates of different institutions. These factors, however, account for but a small variation, especially between institutions caring for the same class of inmates. The health conditions in the Soldiers' Home in Lafayette, Indiana, are apparently good. They are satis- fied with their food. They receive all they desire to eat, which in- dicates at least that they receive enough, yet this institution furnishes per day 19 per cent, less protein and 27 per cent, less calories than does Marshalltown, Iowa, feeding exactly the same class of inmates. It is almost conclusive that Marshalltown either over-fed her old soldiers or else wasted a large amount of food. The same may be said with reference to the prison at Fort Madison, Iowa. It furnished much more protein and calories than did Indiana prison, and it is probable that even the Indiana prison was feeding too heavily, or was wasting a portion of the food. The above very cursory examiaation of the food question readily reveals the fact that comparatively little attention has been given by central departments to this very important subject. The investi- gation of Professor Atwater, made under the authority of the Lunacy Commission of New York State in 1899, seems to have had little effect in producing uniformity in the methods of handling food. Though further study is needed to determine the proper varieties and amounts of food needed to maintain health, yet the most im- portant and immediate problem is a study of methods of reducing the amount of waste resulting from the process of preparing and serving the food. Here is a very promising field for possible economies. Food Waste. In but two institutions visited was there any special effort noted to- ward keeping an accurate account of the food wastes in the kitchens. One of these institutions was the School for the Deaf in Indianapolis. 316 Here a daily record was kept of the waste in meat and bone. The other institution is Kings Park Hospital in New York, which has in- stituted a well-thought-out and carefully studied form of accounting for all of the unused food in the kitchens. The form used by this hos- pital is as follows : 317 DAILY REPORT OF WASIE AND USABLE FOOD RETURNED BY DINING ROOMS 10 KITCHENS. . Kjtchen, Date . 191. Dining Rooms . Waste, not usable, lbs. Usable Food, which can be utiliied by kitchens, lbs. Plate scrap. Bread . Meat. Bone. Bread. Cereal. Pota- toe. Veg- etable . BreakfaBt. . . . Dinner Supper Instructions on reverse side of sheet. The waste from dining rooms should be kept separate and each kind weighed. Nearly all the food sent to the dining room should be served so that the patients can have an opportunity to eat it. Only a small part should be held back for a second helping, for if it is so held back and returned to the kitchens unused it will appear that too much food has been sent to that dining room. When one dining room returns practically no waste and another considerable waste it is an indication that one dining room is receiving too much and the other too little, and some should be cut from the one and sent to the other. This transfer should take place before reducing the requisitions on the storehouse to prevent deprivation of the patients. All liquids — water, coffee, tea, etc. — should be kept out of the waste. WASTE — is such things as can not again be utilized by the kitchens on account of having been served on the tables in the dining rooms. USABLE FOOD is such food as has not been served on said tables. BONES from carved meats are used in stock kettle and care should be taken to keep these separate. Blank spaces are for kitchens to list anything returned which is not covered by the printed headlines. A report is made on this blank daily by the person in charge of the waste and a synopsis is periodically transmitted to the super- intendent. This enables him to determine accurately whether a proper proportion of the various kinds of food is being served in the kitchens. Without some such system as this, it is difficult for a superintendent to be sure that his food supplies are being served in proper proportions and varieties. 318 The differences in the judgments exercised as to the best and most economical qualities of food to use, may be illustrated by the size of prunes contracted for in the three states. It was noted' during the investigation that several institutions in Indiana pur- chased prunes as small as 80-90 per pound, and two of them as small as 90-100, while Few York and Iowa purchased 60-70's. The question arose whether or not the Indiana institutions were exercis- ing good Judgment in buying these smaller prunes. To throw light on this question for the purpose of this investigation, various sizes of prunes were purchased, beginning at 30-40; pits were ex- trated from a pound of each size and weighed separately. In- formation was obtained from two jobbing houses in New York as to the relative selling prices of the various sizes of prunes under average market conditions. With this data in hand, the cost of a fifty pound box at nine cents a pound was taken as a basis and the net amount of prune meat that could he purchased for $4.50 was then determined in connection with each size of prune. The results are tabulated below: Net Cost op Prunes Figured on the cost of meat, exclusive of the pits. Net weight of meat Pounds of Price in one lb. meat for Size. per lb. of prunes. $4.50. 30-40 .09 14 5-8 oz. 45 lbs. 11 ox. 40-50 .075 14 1-4 " 54 " 50-60 .0675 14 1-4 " 59 " 11 " 60-70 ,0625 14 3-16 '• 64 " 1 " 70-80 .0575 13 1-2 " 66 " 1 " 80-90 .0525 13 1-4 " 70 " 15 " A review of the above calculations will show that the weight of the pits is comparatively little more in the 80-90 prunes than in the 30-40. For $1.50 invested in 30-40 prunes, 45 lbs. 11 ozs. of meat could be purchased; of the 60-70 size, 64 lbs. 1 oz. of meat while of the 80-90, 70 lbs. 15 oz. of meat. In other words, the in- stitution purchasing the 80-90 size, for an expenditure of $4.50 would secure of meat 6 lbs. 14 oz. more than it would have secured 319 had it purchased the 60-70 size. Other considerations, such as palatability may enter into the decision as to the best size of prune to buy, but if a decision be rendered purely on the basis of economy, unquestionably the smallest size of prunes is the most economical.* Use of Delicacies. An endeavor was made, in each of the three states to ascertain the manner of supplying the tables of the officers and employees. To determine this a blank was sent to each of the institutions, ask- ing the per capita cost and the amount furnished to the inmates and also to the officers of the following list of foods: Articles. Fresh fruits Candy Oranges Peanuts Bananas Nuts Lemons Poultry Pineapples Chicken PeaiB Duck Blueberries Turkey Strawberries Oysters Blackberries Clams Raspberries Olives Cranberries Olive oil Gooseberries Apples Plums Cherries Currants Grapes Watermelons The data on the returned blanks as compiled is shown in Table V, page 320. Here it will be noted that in all of the institutions so reporting in. New York State, with the exception of Elmira, the officers and inmates are assigned the same proportion. In Elmira none of these delicacies were furnished the inmates, but a per capita allowance of $4.74 was given to the officers. In Indiana each institution reported that the officers received a much larger proportion of such delicacies than did the inmates, * Inasmuch as this experiment was tried but once, before using this infor- mation as a basis of contract, institutions should have the experiment repeated several times. 330 while in Iowa the proportion used by the officers was not reported. It will be further noted that of such delicacies, New York State furnished to each inmate a per capita value of $1.34. In Indiana it was nearly the same amount ($1.39) while in Iowa such delica- cies amounted to $3.36 per capita. It will be further noted that the officers iu New York State received a per capita of $1.91 of such delicacies, while in Indiana they received, per capita, $5.29. Eegardless of the larger amount of delicacies furnished to officers, in Indiana, nevertheless its institutions are operated upon a more economical basis than those in New York State. Table V. Delicacies furnished to officers and inmates; value as estimated by the insti tution, covering the period Oct. 1, lOOO^to Sept. 30, 1910. Institution. New York: Middletown, Hospital Rochester, Hospital Bath, Soldiers' Home Elmira Reformatory Industry Rome, Feeble Minded Average Indiana : Richmond, Hospital Indianapolis, Hospital Lafayette, Soldiers' Home . . Plainfield, Boys' School Jeffersonville Reformatory. . Ft. Wayne, Feeble Minded . . Average Iowa: Clarinda Hospital Independence Hospital Marshalltown Soldiers' Home Anamosa Eldora Glenwood, Feeble Minded . . . Average Value of delicacies furnished to Inmates. $2.48 .90 .58 2.05 .70 $1.34 2.60 2.20 2.07 .45 .17 .83 $1.39 4.93 1.45 1.44 .66 5.00 6.66 $3.36 Officers. $2.48 .90 .58 4.74 2.05 .70 81.91 5.94 6.72 5.77 6.56 *2.18 4.59 $5.29 "■ Price estimated. 321 Home Products. An endeavor was made to ascertain the amount of home products produced by each institution. This information was supplied upon the blanks returned. The information, however, is of little value inasmuch as the total acreage connected with each institution is but a small indication of what might be produced from that amount of ground. Generally speaking, the farms connected with institu- tions in Iowa are large, nearly 1,000 acres, and also, in nearly all cases, good land. But one institution in Indiana has a farm of this size and at most of the institutions the farms are small and some are relatively unproductive. But five of the farms connected with the twenty-eight Hospitals and Charitable institutions in New York State have more than 1,000 acres, and but three of these are reasonably good land. It would be practically impossible to secure any data of value as to the efficiency or inefficiency of the manage- ment of the farms connected with the various institutions, ex- cept through a long and detailed examination by expert agricul- turalists. 322 Cost of Supplies. The efficiency of state fiscal supervision of state institutions can, in some measure, be judged by the prices paid for supplies. A comparison of prices alone, however, without a corresponding com- parison of qualities is of little value. It is exceedingly difficult to compare a large proportion of supplies used by institutions, because of their makeup or texture, because of the difficulty of transporting them to a common place, of passing judgment upon the small varia- tions peculiar to different manufacturers, etc. For this reason a comparison is of little value except between goods having a recog- nized standard grading in the general market. QUALITIES. For the present investigation it was deemed best to attempt to compare only such supplies as have recognized commercial gradings, and in the main only such as could be easily transported to some large jobbuig center where the services of experts could be secured. Accordingly, there was secured from a majority of the institutions in each of the three states, cereals and dried fruits. Samples of these, gathered from Indiana and Iowa, were taken to Chicago, and there passed upon by three experts from one of the leading gro- cery jobbing houses. These same samples, supplemented by others afterwards collected, were brought to New York and there com- pared with like samples from the New York institutions by two ex- perts from one of the leading New York City jobbing houses. In each case the experts passed upon the samples without knowledge of the institutions from which they were secured. The results of these two examinations are incorporated in Table VI, page 333. The terms used by these experts are : "Extra fancy," "fancy," "choice," "prime," "good," "poor,"— "Extra fancy" indicating the highest grade and "poor" the lowest. It will be noted by this table that the qualities from the three states, in general, are of good grade and very nearly of equal quality. A review of the findings gives the general impression that the qualities in New York State grade slightly better than those in Indiana, while Iowa ranks third. It would naturally be expected that considerable variation would appear in Indiana, inasmuch as each institution purchases its own 323 o o > f^ S H o ■D n 0^ r^ < H . c« J 3 O" S 4l o o in gfe,PL| II Is II 3 Crovm Standard loose 9-3 &■ "2 r»!>. u o u e a 1 .§ fe;0 9i 'o ,a Co =•1 fe,5 S « M CO tn < 5 1 Ill ■is 11 93 >-IT-| 1 « && H 1 S3 II >HrH III III 13 T3 II 88 II iS.s m d 5^ o 5 § a g 1 o 8 1 a -2 CO CO .§ d ;2; SI s o a B "-3 a (2 O 'o 6 8 1 t 1 II O O o bO -9 S i 1 d 3 CO m M K 1-t 6 SI M CO Its 1 'o e 8 1 S o 6 g CO m V rt d 5t? SI >> a T3 o o O II 1-3 s 8 i O 1 fills i-H d 12; Is & a a V •3 a o CQ 1 1 1 'o fl 'S M a 1 o d 5&' SI O ■a s 2 8 O o f p ^ 1 o -2 O § a 1 m g Pi (3 '3 o g 03 in to s a M 8 S •a 1 324 7 h1 n ■< .9 d Cracked Fancy 0) a i2 '0 1 Seeded Choice T3 O C O d !z; 1. & =3 g 1 13 i o II 0} Is 8 1 8 CO o ■3 ., la 8 1 g ■3 8 1 < ^ ^ |2 & 8 1 ^ ft. o 1 8 »-3 2 3 « 0) if e 1 CO CO o S >> t 8 »-3 8 1 e 8 CO § s -sis 24(2 si 1 p -l.e S 8 si •S.2 a III |8d goo^ °l pq-o |4^ be g-ii 0, u £0 03 si < a •a a lit Jig. w CO ^1 lis s 2 lis i 1 a § 3 0} 1 1 t II •< s GO lis •3SS a OS >-> II 'Sgl s P S'o S « m 3 1 1 d 's o w a 1 i 1 g : 1 (2 i 1 O 1 1 325 supplies, while all of the supplies under consideration in New York and Iowa are contracted for by a central department, or committee, and would naturally be expected to be of a uniform grade throughout the state. That they are not quite uniform in these two states is evid- ent from the table. A few more exceptions are noted in Iowa than in New York. Inasmuch as the variations are nearly the same in each state, for the purpose of comparing prices, it may be fairly assumed that all of these supplies are of like grade. In order to determine the quality of beef used in the different states, the services of Mr. Henry Wilkens, a foreman beef inspector In the employ of the United States Department of Agriculture, and located in New York, were secured, through the assignment by Hon. James Wilson, Secretary of Agriculture. He was accompanied to the institutions of the three states by the person making this in- vestigation. His report, in each case, was made to his department and thereafter secured for incorporation in this report. His inves- tigation of the New York State institutions is incorporated in the section of the report dealing with New York State. That dealing with the institutions in Indiana and Iowa is incorporated in the following pages. A review of his report will show that with two exceptions in In- diana, he found the beef according to specifications under which it was purchased. At the prison in Michigan City, out of eighteen forequarters all of which should have been of No. 1 cows, he dis- covered six forequarters from bulls; at the Central Hospital he found the beef not as well fatted as called for in the specifications. The sanitary condition in connection with the handling of the meat, in one place was exceedingly bad, namely, at the Boys' Industrial School, and was far from acceptable at the Eeformatory, the Sol- diers' Home, and the School for Feeble-Minded. In Iowa the beef was all according to specifications. The sani- tary conditions in connection with the coolers, however, were fully as bad, if not worse, than those found in Indiana. The institutions, especially criticised, were the prison at Fort Madison, Anamosa Eeformatory, the Independence Hospital, and the Soldiers' Home. The findings in Indiana and Iowa compared with those of New York indicate a much better condition in both the former states. At several institutions in New York State, cows were being received on steer specifications. Some quarters of bulls were found, and at several places the sanitary conditions were very bad. Gen- 326 erally speaking Indiana and Iowa secured beef much nearer the specifications than New York and their sanitary conditions, though not good, were not worse than in ISTew York. The following is the report of the inspector in full : United States Department op Agriculture Bureau of Animal Indtjstrt, Local Oppicb New York, N. Y., Nov. 7, 1910. Db. it. G. Houck, Inspector in Charge, New York, N. Y. Sir: I respectfully report to you my findings of the different institutions on my tour with Mr. Henry C. Wright of the State Charities Aid Association. Indiana Eastern Hospital for the Insane, Richmond, Ind., visited October 25, 1910. Specifications: Native corn-fed steers, well fatted; weighing 650 to 800 lbs. Inspected: 10 hinds of steer beef and 10 fores of steer beef, all from Est. 3 C. Findings: All meats according to specifications. Sanitary conditions very good. IndiaDa Boys' Industrial School, Plainfield, Ind., visited October 26, 1910. Specifications: None. Superintendent is supposed to buy first grade cows on the hoof, so he informed me. Inspected: Three hinds of cow beef and two fores of cow beef. Tried four of Swift's Premium Hams from Est. 3 B. Same were sour. Tried four bellies of pork and same found to be partly sour. Findings: Cow beef of very poor quality. Hams and bacon kept in a warm and very dirty room without ventilation. Foul odors present in this room which is used as part of a storage supply room. Any meats or meat products hung in this room under such bad conditions would become unfit for food in a short, time. The beef cooler floor was in a very dirty condition. The cutting room floor showed evidences of not having been cleaned in some time. Two cutting blocks in a dirty condition. The floor of the cooler adjoining the beef cooler in a dirty condition. The killing-house is a wooden structure 15 x 30 feet, floor partly of rough cement. Twenty-five feet (overall) at one end was in a badly broken condition, showing the sand beneath. On this floor stood an old rusty stove. The wooden walls of this house were in need of washing and painting; they were brown from dirt, dust and spatters of blood. The two cutting benches are old and unfit for further use. Surrounding this structure there is a runway for hogs and cows. It was thoroughly covered with offal, cow manure, and hog manure. Slaughtering at this establishment is conducted without Federal, State or municipal super- 327 Central Indiana Hospital for the Insane, Indianapolis, Ind., visited October 26, 1910. Specifications: Beef — Steers well fatted and trimmed, weighing not less than 600 lbs. nor more than 700 lbs. each. Each quarter to bear the mark of the U. S. Inspector. Hams to weigh not less than 16 lbs. Inspected: 10 fore and 9 hinds of beef from Est. 3 B. Tried 10 hams. Findings: All of the beef was not well fatted. One carcass found to weigh less than 600 lbs. When this matter was drawn to the attention of the steward he admitted that the last shipment of beef was very poor and so informed the local branch of Swift & Co. The 10 hams were O. K. Indiana Reformatory, Jeffersonville, Ind., visited October 27, 1910. Specifications: Beef fores native from well fatted steers. Inspected: 25 beef fore-quarters from Est. 3 F. Tried 10 hams and 6 pork bellies. Findings: Beef and pork according to specifications Beef cooler: Floors and walls in a dirty condition. Smoked meat cooler racks and floors dirty. Two cutting blocks in a dirty condition. Southern Hospital for the Insane, Evansville, Ind., visited October 27, 1910. Specifications: Well fatted native steers, nothing less than 600 lbs. Inspected: 12 hinds and 14 fores of beef from Est. 3 C. Findings: Beef according to specifications and sanitation very good. I was asked to look at a piggery at this jinstitution in connection with its sanitary condition. I found a cement pool and shower for hogs. It was 80 X 80 feet. 15 x 25 feet of this was a runway to the swimming pool and shower; 10x25 feet was used for feeding and the remaining space for housing. A small wooden structure in this enclosure was for winter use. The hogs were constantly kept in the cement enclosure. Entire space was very clean and free from disagreeable odors. Indiana State Soldiers' Home, Lafayette, Ind., visited Oct. 28, 1910. Specifications: First class steer meat, 600 to 700 lbs. average, necks cut close. Corresponding fore and hind quarters to be numbered as such meat to be canvassed. Hams to weigh not less than 16 lbs. Inspected : Three hinds and two fores of beef from Est. 3 C. Tried eight hams from Est. 2 A. Findings: Beef and hams according to specifications. Beef cooler floor in a dirty condition. Beef cutting room floor and walls ina dirty condition, and used as a storeroom' for boxes, barrels and clothes. Tobacco spit was very noticeable on the floor. Cesspool in dirty condition. In trans- ferring meat from the storeroom to the different so-called camps, dirty metal tubs are used and transported in an open wagon. Each tub was covered with a dirty cheese cloth. The bottom of one of the tubs was partly broken, allowing dust and dirt to enter when it was hauled across the floor. Northern Indiana Hospital for Insane, Logansport, Ind., visited October 28, 1910. Specifications: Prime, first class native well fatted steers. Inspected: One hind and two fores from Est. 3. Findings: Beef according to specifications and sanitation very good, 328 Indiana School for Peeble-Minded Youth, Port Wajme, Ind., visited October 28, 1910. Specifications: Fresh beef and first class well fattened cows weighing 600 to 700 lbs. each. Each piece of meat to bear the stamp of the United States Government Meat Inspector. Inspected : One hind and two fores of beef. Findings: Beef according tq specifications. Beef cooler floor in a very dirty condition. Several sausages and particles of meat lying on floor. Cutting room floor and walls dirty. Cutting block showed that it had not been cleaned in some time. This institution was visited about 6 p. M., and these conditions were noted after everything had been closed for the day. Indiana Prison, Michigan City, Ind., visited October 29, 1910. Specifications: No. i cows, not less than 600 lbs. Inspected: 18 fore quarters from Est. 2 A. Findings: Six fore quarters were from bulls. Sanitary conditions were very good. Iowa. State Penitentiary, Fort Madison, Iowa, visited October 31, 1910. Specifications: Warden and steward stated that they were not informed as to the specifications by the Board of Control. Accepted any meats sent to them. Inspected : Three hinds from Est. H-9. Findings : From well fatted, well meated cows weighing about 500 lbs. (veri- fied by steward). When the meat arrives it is taken down a stairway through a cellar room where vegetables are stored . The ceilings, walls and floor of the cellar are very dirty. The walls of the meat room are of rough stone showing much dirt, and evidently they had not been cleaned in some time. There were many marks of tobacco spit on this floor. There were accumulations of dirt in the comers of the room. The only light and ventilation to this room came from a light and air well which was in a dirty condition. In one comer of the room there was a cesspool with no sewer connection. It was dirty and slimy; odors were perceptible Convicts' old clothes were hanging around in this room. The beef cooler was found in a dirty conditidn, and all the wood work was water-soaked Ice bunkers had not been cleaned in some time and presented a dilapidated appearance. In my opinion a new cooler more favorably located is needed. The State Refonnatory, Anamosa, Iowa,, visited November i, 1910. Specifications: The warden and bookkeeper when asked for specifications stated that the Board of Control had not apprised them of same. Inspected : Two hinds and two fores of beef from 6 H. Findings: This meat was from well fatted and well meated cows weighing in my opinion about 500 Ibe. The regular ice cooler was not in use be- cause the ice had melted from the top of the cooler which was being used as an ice'storehouse. A small cooler, which connected with the kitchen, 329 Was being used temporarily. The walls, floor and ceiling of the ice box were very dirty. Old clothes, brooms, mops and dust pans, were found in one comer. Cob-webs in every corner. State Hospital, Independence, Iowa, visited November 2, 1910. The beef on hand at this institution was cut up in small pieces so that a satisfactory inspection as to compliance with specifications could not be made. Inspected: Hams and bacon. Findings: Were from hogs raised at the institution. The bacon was stored in one part of the beef cooler on dirty racks. The cooler was very damp. Hams were hung directly back of the racks. When the butcher was asked to cut a ham he had to step on the bacon in order to reach the hams. Floors, walls, and ceiling were in a dirty condition. The cutting block was dirty. In my opinion the entire cooler should be overhauled or rebuilt, as the insulation is not good and is the cause of the dampness. Beef is carted on hand tru cks without any cover. Iowa Soldiers' Home, Marshalltown, Iowa, visited November 2, 1910. Specifications: Best quahty native corn fed steers, each quarter to weigh not less than 150 lbs. Inspected: Four hinds and four fores of beef from 6-H. Findings: Beef cooler: The walls and rack were in a dirty conc'ition. The floor, walls and ceiling of the smoked meat cooler were dirty. Meat cutting room was in a very filthy condition, and apparently had not been cleaned in months. The ceiling was covered with fly dirt, dust and cob- webs. Walls were soiled from fly dirt and particles of meat which, from their dried condition, indicated that the walls could not have been cleaned recently. The floor was dirty, especially in the corners. The meat cutting blocks are imfit for further use. It is evident that the beef cutters in this room spit tobacco juice on the floor. The door leading to the cooler was found to be very dirty. The general odor in the room was very bad. Old clothes and jumpers were found hanging in this room. The implements used in cutting the meat were dirty. Meat inspected was according to specifications. Very respectfully, (Signed) Henby Wilkens, Foreman Meat Inspector, It is of little value to compare the prices paid for beef by these institutions inasmuch as in all three states it is furnished in the main by the large packing houses in Chicago and Omaha. It is an especially noteworthy fact that the institutions located in Iowa, where large numbers of steers are fatted do not receive their beef from local slaughtering houses. A large slaughtering house at Cedar Eapids, Iowa, situated within about forty miles of four of the largest institutions in the state was asked why it did not bid 330 upon and secure contracts for furnishing these institutions with beef. The reply was that they were able to bid and furnish the beef specified during certain seasons of the year when the corn fed cattle were being turned ofE from farms in Iowa, but were unable to bid during the remainder of the year when it might be necessary to ship cattle from farther west. The larger packing houses of Omaha and Chicago, having facilities for securing cattle through- out the ranges of the west, were enabled to underbid such a slaugh- tering house. Inasmuch as these large houses are able to secure practically all contracts in the three states, the prices paid by the institutions are virtually at their dictation so that a comparison of the prices would be of little value. It is interesting to note, however, the prices se- cured by the institutions on about the same specifications. They were as follows, on the dates indicated. New York. Indiana. Iowa. Oct. 1909. Average, Oct. Oct., '09- 1910. Sept., '10. Oct. 1909. Average, Oct. Oct., '09- 1910. Sept., '10. Oct. 1909. Oct. 1910. Average, Oct., '09- Sept., '10. .0756 .0880 .0827 .0705 .0762 .0838 .0782 .0833 .0853 It will be noted by comparing these prices that for October, 1909, Indiana paid .0051 less than did New York, while Iowa paid .0026 more. For the year October, 1909-1910 Indiana paid .0011 and Iowa .0026 more than did New York, while for October, 1910, In- diana paid .0118 and Iowa .0047 less than did New York. In short, the beef for Indiana and Iowa for the year October 1909- 1910 cost more than it did for the New York State institutions but the contract for October 1910 was notably higher in New York than in either Indiana or Iowa. The fact that the beef in the New York State Institutions was examined last June, and a large pro- portion of it condemned, and the packers thereupon instructed to deliver beef according to the specifications, may possibly enter in as a partial explanation of this sudden rise in the price of beef for New York, as compared with Indiana and Iowa. It would be expected that the same grade of beef in New York State as in Indiana and Iowa would naturally cost somewhat more than in those states, due to heavier freight charges, so some other explanation than better buying facilities in New York must enter 331 in to explain the fact that previous to October, 1910, the price of beef has been higher in Iowa and Indiana than in New York. The former lower price of beef in New York was undoubtedly due to the fact that the packers bid upon and delivered a poorer grade of meat than was specified in their contracts. This is clearly shown by the facts set forth in the foregoing report on New York State. 333 COSTS. The cost of cereals and dried fruits at various institutions in the three states for the periods October, 1909 and October, 1910 and the year October 1909 to 1910 are given in the following pages in Table VII. The average price of each state taken as a whole will be found in Table VIII, on page 335. By reviewing this table it will be noted that for the year October 1909-10, Indiana paid slight- ly less for corn meal than did Few York, and for rolled oats In- diana paid more than Iowa and slightly less than did New York, while for rice both Indiana and Iowa paid slightly more than New York. Beans on the other hand were secured at a less price by In- diana and at a greater price by Iowa than New York. Sugar cost slightly more in both Indiana and Iowa than in New York State. This is likewise true of prunes, while evaporated apples cost less in Indiana and more in Iowa than in New York. Evaporated peaches, on the other hand, cost less both in Indiana and Iowa than .in New York. To gain an idea as to the relative amount paid by the different states for these combined articles it is necessary to multiply each unit price by the approximate number of pounds of each- article consumed. Though no two institutions consume the same per capita proportion of these various foods, yet in order to secure a basis of comparison, it is fair to assign an average amount to each of the articles. Such an arbitrary amount has been assigned in Table IX, page 335. The amounts thus assigned are a general average taken from the reports of the various institutions of the three states. In this table the per capita amounts thus assigned have been multiplied by the average unit costs in each state, and the total amount thus consumed is 110 pounds, and the total cost is as follows : In October, 1909, New York State purchased 110 pounds of cer- eals, sugar and dried fruits for $4.9436 while Indiana paid $5,049 and Iowa paid $4,469. The average price paid during the year Oc- tober, 1909-10 was, in New York $4.9744 and in Indiana $5.0875 and in Iowa $5.1013. Under the current contracts made in October 1910, the costs were as follows : New York, $5.2538, Indiana, $5.35 and Iowa $5.3373, Here it will be noted that for the year October, 333 T3 -g c9 I 1 S3 O •c 3 ^ (14 o P3 <3c Jz: o P Eh oooooooooo S 2 5 "^ 0>N O -iOOi-^OirHi-i.-i OOOOOOOOOO OOOOO OOOO COOOOCnoO OJOOXM cooo-^coco cococo-^ OOOOO OOOO OOOOO OOOO <£)CQtOCO(0 OOOO t>00(NI>l> b-t-O OOOOO ooo oooooo CO CO CO CO CO l>. CO CO CO CO CO CO oooooo O .-H^^rHr-irH to tOOOOOO {N COCOCOCOCOCO O OOOOOO OCOiCiCOOO 00i>I>-00t>.t- CO CO CO CO CO CO OOOOOO OOOOOOOOOO OOOOOOOOOO ■^00t>»OiOiOiO»OU^ OCOCOt--t'-t>t-t-t» OOOOOOOOO 1— (OJi-Hi— li— It— (t-*t-Hi-H 0000»000i0>0 OOOOOOOOO oooooooooo T-1 i-H i-H .-H eq .- oooooooooo oooooooooo oooooooo W'J' (N CO OO00U3I>00CD CO ■^ -^ CO ■* CO CO CO OOOOOOOO OO oo oo »oco oo oo oo OOOOO'^OO I>OI>OOSOO»i5 CqCOC^tNNt> COCqCOlN W(M OOOOOO OOOOOr-tOO b- 1> CO lO --I ■* o -^ i-H>-iiM>-iMwi-H.-( oooooooo lOirs -^ooconico i-fi-H i-H .-H rt i~( r-H oo OOOOO IH 00»0 CO .-lOO O OOO OO OOOO coco COCQCOCO OO OOOO OOOOOOO to »C lO iO iQ U3 lO CO CO CO CO CO CO CO OOOOOOO »r3iO»0*0»OU3 OOOOOO OOOOOOO lO t-- "^ ■<1< O U3 U3 cq (N CD CD CO O O lO (N CM (N (N Dl Cq cq OOOOOOO OOOOOOOO o ° 2 a^Sa 1^- ■■§a'n'-'.9'*S t.-2 o^,S

t^CD OOOOOO t-CNJ C4(NC1 oo ooo ocDin CO CO CO ooo 00 00 00 CO CO M CO^ CO CO CO CO OOOO t-OOOOOt-00 QOOIOOIOIOCO'-H CO t- IC 00 CD lO rj( CO OOOOOOOO CCCDO OOiiO COiCiQ OOO ^<^' <<=> OOO O0IN--H I>l>t> OOO OOOOO rH CO COM* IC xoooooooo OOOOO OWOOO (NNiOiOm 00 00 00 00 00 OOOOO OOOOOt^Q i-H fH i> t>. lo r* C) . . O0Olt>b-00lNCOI>- OOOOOOOO OtOM Ot^i-H OOO OO OiO cnoo oo "So o- oooooio 00"*iHiO 00 00 00 1* 00 OOOOO OOOOOOOOOO COCOCDl>C0N-COt~I>b- OOOOOOOOOO OO^nnOOiCiOiO O lO N (N iO CDI>. O-HOOOOOO ooo 00 -^w r}Ht>eD ooo »OQ0 (NiO CJOO oo oo CDCO oo TliicU3iO»CC0»O"j:3 NCCINCOWCOCOCC t^CDCOCOcOCDCOCO OOOOOOOO 0"50 iD-*iO ooo oo Oirj COlO OO b- 1> 00 1- 1- 1> t^ eo«cccocococo t^ l> !>. t- 1- 1> b- OOOOOOO Ah n ■< I>t-t-COt>COt-.I>t>. OOOOOOOOOO OOOOOOOOOO oi"*oooico"^»0'-tc:»o r-oowt»ooooooooooh- OOOOOOOOOO cOcOcoiOCDOOCOOO COCOM1COSW000000U3 OOOOOOOOOiWOOOlOOOO OOOOOOOOOO OO-HiCiCr-fOOOOiOiO OOOOOOOOOO S.S ! '. ; ■ J « « '-3 ooo POIOO OOOOOO ooo OiCOCI ooo CD OOO) ■^coco t^coco ooo •fill I ^ M~ aWg |25l3^3^ge OQOOOOO CO CO »0 CO t^ «J ^ 00 00 00 X 00 00 00 ooooooo OOOeo»o>oo OOM«OOt-t-00 ooooooo COOOOOOiOOC t-t^t*(^t^oot^ ooooooo 335 1909-10, Indiana paid about ten cents more for the 110 pounds of food, and Iowa thirteen cents more than did New York. During the other two periods, October, 1909, and October, 1910, Indiana paid somewhat more and Iowa somewhat less than did New York. Assuming that this same ratio were maintained in the purchase of all the food required per capita during the year the relative costs Table VIII. Average prices paid for cereals, sugar and dried fruits in New York, Indiana and Iowa for the periods indicated. New York. Indiana. Iowa. ARTICLES. Oct., 1909. Oct., 1910. Average, Oct., '09- Sept., '10. Oct., 1909. Oct., 1910. Average, Oct., '09- Sept., '10. Oct., 1909. Oct., 1910. Average, Oct., '09- Sept.,'10. Corn meal Rolled oats $.0181 .0285 .0387 .0387 .0506 .0472 .0816 .0647 $.0184 .0265 .0345 .0416 .0526 .0650 .0828 .0721 $.0180 .0265 .0334 .0390 .0518 .0483 .0805 .0671 $.0178 .0296 .0497 .0394 .0517 .0456 .0790 .0624 $.0147 .0250 .0414 .0438 .0536 .0679 .0809 .0710 $.0177 .0270 .0460 .0377 .0530 .0503 .0787 .0661 $.0264 .0425 .0418 .0611 .0902 .0624 $.0206 .0350 .0417 .0540 .0737 .0918 .0726 $.0250 .0370 Beans (navy) . . . .0413 .0528 Prunes, 60-70.. . Evap. apples Evap. peaches.. . 0670 ■' .0883 .0646 in the three states are shown in Table X, page 336. In this table it is assumed that each inmate would consume 1,210 pounds, this being a fair average yearly consumption. On this assumption and at the ratio maintained in connection with cereals and dried fruits, New York would have paid per capita $54.67, Indiana $55.99 and Iowa $56.10. This apparently indicates that purchasing is done Table IX. Per capita cost of cereals, sugar and dried fruits in New York, Indiana and Iowa, based upon an assumed consumption. Am't. con- sumed, pounds. New York. Indiana. Iowa. Cost. Cost. Cost. ARTICLES. At price Oct., 1909. At price Oct., 1910. Avg. price Oct., '09- Sept , '10. At price Oct., 1909. At price Oct., 1910. Avg. price Oct., '09- Sept., '10. At price Oct., 1909. At price Oct., 1910. Avg. price Oct., '09- Sept., '10 Corn meal Rolled oats Rice 10 7 6 20 50 9 5 3 $.1810 .1995 .2322 .7740 2.5300 .4248 .4080 .1941 $.1840 .1865 .2070 .8320 2.6300 .5850 .4140 .2163 $.1800 .1855 .2004 .7800 2.5900 .4347 .4026 .2013 $.1780 .2072 .2982 .7880 2.6850 .4104 .3950 .1872 $.1470 .1760 .2484 .8760 2.6760 .6111 .4045 .2130 $.1770 .1890 .2760 .7540 2 . 6600 .4627 .3935 .1963 $.1848 .2560 .8360 2.5560 .4510 .1872 $.1435 .2100 .8340 2.7000 .6633 .4590 .2175 $.1750 .2220 Beans (navy) .... .8260 2.6400 Prunes (60-70)... Evap. apples Evap. peaches . . . .6030 .4415 .1938 Total 110 4.9436 5.2638 4.9744 5.0490 5.3500 6.0875 4.4690 5.2273 5.1013 336 cheapest in Few York State, with a slight increase for Indiana and a still greater increase for Iowa. At this assumed per capita cost New York State would pay for her total food supply $3,521,336, Indiana $589,183, and Iowa $568,686. Had the food been pur- chased at New York prices, for Indiana it would have cost $575,293, for Iowa $554,190. In other words, at New York prices, Indiana could have secured its food for $13,890 and Iowa $14,496 less than was actually paid. Table X. Relative cost of food in New York, Indiana and Iowa, estimated on basis of average prices paid for cereals, sugar and dried fruits for year Oct. 1, 1909 to Sept. 30, 1910. Average population: New York, 46,119; Indiana, 10,523; Iowa, 10,137. Cost of 110 lbs. of cereals, sugar and dried fruits. Estimated cost of 1210 lbs. food at the same ratio. Cost for total population. Cost on basis of New York prices. Differ- ences. New York . . . Indiana .... Iowa $4.97 5.09 5.10 $54.67 55.99 56.10 $2,521,326 589,183 568,686 $575 j 293 554,190 + $13^890 + 14,496 Above cost plus cost of supervision. Above cost plus cost of supervision. Above cost plus cost of supervision at the New York rate. New York . . . Indiana Iowa $55.96 56.70 57.03 $2,580,819 596,654 578,113 $602^757 581,762 —$6^103 —$3,649 In comparing food costs, however, not only the actual cost of the food, but also the cost of supervising the purchase of the food, must be taken into consideration. The per capita cost of super- vision in New York State, Indiana, and Iowa, as previously noted, was, respectively, $5.18; $2.85; $3.70. About one-quarter of the cost of supervision may be attributed to the cost of supervising the purchasing of food since the total cost of food bears about that ratio to the total maintenance costs. The per capita cost of food in the three states, after adding this portion of the cost of super- vision would be, for New York, $55.96 ; for Indiana, $56.70 ; for 337 Iowa, $57.03. If Indiana and Iowa had paid relatively the same supervising costs as New York, their food, instead of costing some- what more than New York State, would have cost, for Indiana, $6,103 and for Iowa $3,649 less than a like amount of food in New York State. In other words, though apparently the purchasing machinery in New York State has secured slightly better prices than in Indiana or Iowa, yet the cost of operating this machinery is so much greater than in those two states that the food, instead of costing less, probably actually cost more for New York State, when the cost of supervision is included. The above figures, as previously stated, are based on the sup- position that the same degree of care or carelessness was exercised in the three states with relation to the purchase of the entire food needed for the institutions as was exercised in connection with the purchase of cereals and dried fruits, and that the same ratio of prices maintaining on these supplies between the three states would also maintain with relation to the remaining supplies. Though it is an assumption, yet it has sufficient basis to warrant its use in attempting to determine the relative efficiency of the pur- chasing machinery of the three states. Another method of approach to this question, which leads to the same conclusion, is somewhat as follows : On page 312 of the re- port it was noted that the average per capita consumption of two hospitals and one each of soldiers' homes, reformatories, prisons, industrial schools, schools for feeble-minded from each of the three states, made an average per capita cost of $45.05 for New York, $43.03 for Indiana, and $55.48 for Iowa. If there be added to these per capita costs one-fourth of the cost of supervision in each state, the per capita cost then resulting would be, for New York $46.36, for Indiana $43.74, and for Iowa $56.41. These figures represent actual costs based on the food list, as reported by the in- stitutions. In this connection, however, must be borne in mind the facts brought out previously in the report, that though Indiana apparently paid slightly more per unit cost than did New York for its supplies, yet in the use of them at the institutions such judgment was exer- cised that the aggregate per capita cost was considerably less than in New York State ; on the other hand, Iowa, owing to the methods of utilizing the food, though paying a fair unit cost yet showed a much higher per capita cost than did New York or Indiana. 338 Summary of Findings 1. Cost of Supervision: The relative costs of state supervision and control in the states of New York, Indiana, and lov/a, covering the year October 1, 1909-September 30, 1910, were as follows : Ratio of^Cost"; of Supervision to Amount Supervised Per capita cost of Supervision New York $1.00 to $46.30 1.00 to"^ 78.80 1.00 to'" 54.80 $5.18 2.85 Iowa . 3.70 The larger costs noted in connection with New York and Iowa are, in large measure, the cost of supervision of details of the administra- tion of institutions, which, in Indiana, remain in the hands of the superintendents of the institutions. These details are handled as sat- isfactorily by the superintendents in Indiana as by the central super- vising officers in New York State and Iowa. 2. Methods of Contracting for Supplies: In New York State the purchasing committees contract for supplies by items. In Iowa the Board of Control contracts for a portion of the supplies by schedules, a method which is open to objection. Both forms of contracting are used by the Indiana institutions ; the custom of contracting by items predominates. S. Handling of Samples: Samples were handled in a very care- less manner, both by New York State and Iowa. The Charities De- partment in New York State gave less heed to this matter than did the Lunacy Commission. Samples, both in the hands of the purchas- ing committee and at institutions, were allowed to remain in the original small boxes submitted by the successful bidder and stored in such places as to be inaccessible. In Iowa, all samples were kept at the office of the Board of Control. Though they were kept in an accessible place, nevertheless they were allowed to remain in the original boxes submitted by the bidder, in which they gradually de- teriorate. In Indiana, samples were kept only for the period between contracting for and receiving goods, which is but a comparatively 339 few days. For this reason the method of keeping the samples in Indiana is unimportant. Jf. Receiving, Testing and Storing of Supplies: As noted in con- nection with the report on Few York State, no chemical testing of supplies has been done by the Charities Department, and but a small amount by the purchasing committee of the Lunacy Commission. No chemical testing is done by the Board of Control in Iowa, nor do any of the institutions in Indiana make such tests. The report on New York State showed that many of the supplies did not meet the specifications. In Iowa, only meat, cereals, and dried fruits were examined. The meat met the specifications, but cereals and dried fruits were defective at some of the institutions. This fact had not been noted by the Board of Control. The cereals and dried fruits in Indiana were undergrade to about the same txent as in New York or Iowa. The storing of supplies in the three states was reasonably satisfactory, except in connection with meat. Some of the institu- tions in Iowa failed to keep dried fruits in cold storage with a re- sulting loss. Though the quality of beef in Indiana and Iowa in the main met the specifications, in a number of institutions in both states, the sanitary conditions, according to the report of the United States beef inspector, were very unsatisfactory — not, however, more so in Indiana than in Iowa and New York institutions, which are under the supervision of central departments. 5. Deliveries from Storeroom: The method of delivering from storerooms and the accounting for such deliveries, is careless in each of the three states. Some of the institutions, in each of the states, de- livered a large portion of their supplies to the kitchens and other de- partments in unit quantities, thereby creating subsidiary stores in these departments, over which no accounting was subsequently kept. The methods of requisitioning, in each of the three states, was also lax. Under the method in use supplies could easily be stolen from the storeroom, without the likelihood of detection. The methods adopted by individual institutions in Indiana were somewhat su- perior to those used in either New York or Iowa, where systems are supposed to be well thought out and are made to operate uniformly over the entire State. 6. Food Consumptions : Apparently little attention is given by the supervising departments in New York and Iowa to the per capita amount of food consumed by the institutions under their supervision. In Indiana, where each institution conducts its own affairs, a wide 340 variation might be anticipated. The variation in this State, however, is less than in the other two states. For instance, in New York State, Kings Park Hospital furnished 95.3 grams of protein per day per capita and 3963 calories, as compared with Middletown Hospital, which furnished 133.43 grams of protein and 3636 calories. The same wide variation may be noted between industrial schools. Ean- dall's Island furnished 104.6 grams of protein per capita per day and 3983 calories, while Industry, having the same class of boys, furnished 138.34 grams of protein and 4071 calories per day. A like variation may be noted between reformatories. Bedford furnished 81.92 grams of protein and 2639 calories per day, as contrasted with Elmira, which furnished 127.43 grams of protein and 4081 calories. The fact that Elmira has men and Bedford women does not account for this wide variation. In Iowa, Independence Hospital furnished 89.64 grams of protein per capita per day and 3103 calories, as contrasted with Clar- inda Hospital, which used 103.27 grams of protein and 3793 calories per day. In comparing the institutions in the different states, the following variations were noted. At the Soldiers' Home, Lafayette, Indiana, there were used 88.16 grams of protein per day and 3181 calories, as contrasted vnth a like institution at Marshalltown, Iowa, which consumed 108.68 grams of protein and 4013 calories per day. The School for Feeble-Minded at Fort Wayne, Indiana, used 77.66 grams of protein per day and 2838 calories, while a like institution at Glenwood, Iowa, provided 106.22 grams of protein and 3586 calories. The averages for the States of New York, Indiana and Iowa were as follows : State Pounds of food per capita per year Cost per capita per year Protein grams per capita per day Calories per capita per day New York Indiana 1,227 1,176 1,423 $ 45.05 43.03 55.48 104.62 98.78 106.47 3,313 3,429 3,691 It is the opinion of Professor Atwater, who reported for the Lunacy Commission in New York State, of Professor Chittenden of Yale and of the Expert in Nutrition of the U. S. Department of Agriculture at Washington, that the smallest amount of protein noted as used by any of these institutions was ample for people living under 341 these conditions. These figures indicate that there is probably much over-feeding, or else a large amount of waste in connection with the operation of many of the institutions, especially in New York State and Iowa. 7. Costs of Supplies: According to an examination by experts, dried fruits and cereals are about of the same quality in Indiana and Iowa as in New York. Beef, however, was somewhat better quality and much nearer the specifications under which it was pur- chased in both Indiana and Iowa than in New York. In October, 1910, 110 lbs. of cereals, sugar and dried fruits cost, in New York State, $5.25 ; in Indiana, $5.35 ; in Iowa, $5.23. The aver- age for the year October, 1909-September, 1910, was for New York State, $4.97; Indiana, $5.09, and Iowa, $5.10. On the assumption that the same ratio would apply to the entire cost of the food supply, used in the institutions of the three states, the per capita cost of 1,210 lbs. of food (an average per capita consumption) would be, for New York State, $54.67; Indiana, $55.99; and Iowa, $56.10. The actual per capita cost of food for 1909-1910 including the cost of supervising its purchase was, for New York, $46.36; Indiana, $43.74; and for Iowa, $56.41. The lower cost in Indiana is due to the better judgment used in the selection, preparation, and serving of food. 342 Conclusions 1. Centralization in New York State has secured low unit prices, but not economical administration of the institutions; the low unit costs have been largely offset by the delivery of goods of a lower grade than those contracted for. Comparatively little attention has been given by the supervising departments to the receiving, test- ing, storing, delivering, and consumption of supplies. Appropriations for the expenses of the central offices have been more largely used in keeping minute records than in employing experts and agents. The institutions have needed advice rather than control. Such centraliza- tion as now exists in New York is maintained at a high per capita cost. Further centralization would add materially to the cost, proba- bly without producing commensurate results. This investigation seems to point to the advisability of a further decentralization of the detailed supervision of buying and a fuller supervision of the larger problems of the institutions. Experts, rather than bookkeepers and clerks, seem to be needed. 2. The Iowa Board of Control has been from the beginning com- posed of prominent citizens of high reputation for public service. It is probably as good a Board of Control as is to be found. It seems to be making every endeavor to properly care for the state institutions, nevertheless it is unable to perform satisfactorily the task assigned to it with the amount of money expended on its staff. To properly super- vise the institutions under its charge it needs more experts and more field agents. Such an enlarged staff, however, would add materially to the expense of supervision and control. Before such additional ex- penses were incurred, it would be well to inquire whether or not the results which might be secured would be commensurate with the ex- penditure. Iowa, apparently, has centralized either too much or too little ; either the judgment of the local superintendents and stewards should have been trusted more, or else power to decide should have been reposed in a number of experts, each competent in his own line ; the judgment of the Board of Control is not materially better than that of the superintendents and stewards and not up to the standard of experts ; the Board is not doing better work in buying than the Pur- chasing Committees of Stewards or of Superintendents in New York and not as good work as the individual superintendents in Indiana. 343 3. Indiana secures an economical administration and very satis- factory results under the present form of supervision through the Board of State Charities. Its institutions are managed more econom- ically and more satisfactorily than are the institutions in either Iowa with complete centralized control, or in New York with a partial cen- tralization. 4. In attempting to draw deductions from the conditions found under the three systems, it should not be hastily concluded that be- cause conditions were found to be excellent in Indiana the type of supervision there maintained would be the most advisable form for other states. The success in Indiana probably can be largely explained by the yfact that there has been on the membership of its Board of State Charities, for a long period of years, men of exceptional judg- ment and devotion. These men have selected and retained in the of- fice of secretary of their Board, men of marked ability, each of whom has gained a national reputation for knowledge and wisdom with re- gard to the management of the various classes of state institutions. The advice of these men has had a marked influence over the admin- istration of the various institutions in the State of Indiana. The re- sults obtained, therefore, are probably due not so much to the system as to the individuals in office under the system. 5. Under average political conditions, it would seem wise to have some form of central control greater than that exercised in Indiana and less than that in either New York or Iowa. Indiana has secured system and uniformity in the management of her institutions which would be difficult to duplicate in any other state under a board with merely advisory functions. Under ordinary circumstances, it would probably be necessary to secure a portion of the results obtained in Indiana through mandatory powers on the part of a central depart- ment. That the individual institutions in Indiana have been able to purchase supplies as cheaply as they have been purchased in Iowa and New York argues that the function of contracting and the regulation of prices could well be left in the hands of the boards of managers and the superintendents of the institutions. 6. A proper system of central supervision should be so planned and adjusted as to utilize, as far as possible, the knowledge and abil- ity of local officers in the institutions, and to supplement their knowl- edge in fields where a broader oversight is needed. The primary need of the local officers, superintendents and stewards, is information and instruction rather than undue restriction and control. A central de- 344 partment could well be given sufiBcient power to require uniformity in accounting and reporting, power to restrict expenditures in aggre- gates, and power to regulate the development of the physical plant. Outside of these powers, the supervision coidd weU be in the form of instruction, advice through experts, and the furnishing of assistance in the work and problems that are common to all or many of the institutions. The general conclusions drawn from the facts disclosed by the investigation may be briefly summarized as follows: (a) An institution with an inmate population of 400 or over can ordinarily secure as low prices as can a central body with power to contract for large quantities. (b) Superintendents and stewards and boards of managers exer- cise as discriminating and reliable judgment in the selecting and contracting for supplies as is now exercised by central bodies. (c) Institutions, whether operating independently without central control, or up to the present time with central control, do not meet as efficiently as seems desirable, some of the larger problems of institutional management which require expert knowledge. (d) In those institutions which seem to do the best work and seem to care for the inmates most satisfactorily, the super- intendent is given, under the general direction of the board of managers, a large degree of liberty with a corresponding responsibility. To give these conclusions concrete form, an outline of a plan of central supervision and partial control is presented below. Such an outline is necessarily general and probably should be somewhat modi- fied to adapt it to local conditions in any particular state. This scheme of supervision is designed to secure the following results: (a) To eliminate, as far as possible, the likelihood of interference for political purposes. (b) To retain on the part of a central department control over classes of expenditures subdivided into reasonably small ag- gregates, without requiring or permitting such a department to control purchases in detail. (c) To insure, as far as possible, a continuity of policy. 345 (d) To provide for uniformity in accounting and reporting. (e) To secure expert advice and action thereon. (f) Through boards of managers to insure action based on knowl- edge of local conditions and details ; to furnish a check upon central control ; to furnish a direct point of contact between the institutions and the general public, and to secure a means of co-operation between the institutions and other social agencies. The plan presented does not maintain the line heretofore more or less clearly drawn between advisory and administrative functions as performed respectively by a Board of State Charities on the one hand and a Board of Control or Fiscal Supervisor or Superintendent of Prisons or Commission in Lunacy, on the other. This clear demarkation is possibly more a theoretical than a practical demand. There is no Board of State Charities without some powers of con- trol, and no Board of Control that does not give some advice without power to enforce its recommendations. The facts brought out by the investigation seem to indicate that the i*lhd*«iling boards have controlled too much, and the advisory boards have either advised too little or else the advice if given has not been followed in cer- tain respects. The institutions have very much felt the need of the advice of experts. This has not been furnished either by supervising boards or by boards having power of control. Such expert advice is impera- tive and should be provided. If provided, however, it probably can- not be effective withoiit some power on the part of a central board or official to apportion expenditures at least in aggregates small enough to insure the purchase of classes of supplies. To make effec- tive the work of these experts, which have been provided for in the plan hereafter presented, more power is given to the central board than is usually reposed in a Board of Slate Charities, without, it is believed, impairing the efficiency of its supervising function. The successes and failures in Few York, Indiana and Iowa seem to make it reasonably clear not only that a power of limited control and the function of giving advice should be combined, but also that such a combination is practicable and workable. 346 " It does not meet the situation to say that Boards of Managers of the several institutions having an undivided responsibility for their management can be held responsible for results. It does not help much to hold people responsible for the performance of duties which they are not in a position to perform efficiently. It is better organization to provide for the securing of information on all the subjects involved and to place responsibility on those who will be in a position to exercise that responsibility with full informa- tion, even though this involves a somewhat different division of powers, than that to which we have heretofore been accustomed." 347 Suggested Method of Supervising State Institutions 1. Central Supervising Board or Boards: A board to be given the function of supervision and partial control. The jurisdiction of such board to extend to all institutions of the state except institutions furnishing instructions only. A state having twenty or more insti- tutions could well consider the advisability of dividing these into three classes — penal, hospitals for the insane, and charitable institu- tions, with a separate board over each class.* 2. Constitution of Supervising Board: Such a board to have from five to seven members, appointed by the governor, each to serve for a period of five to seven years, with the expirations so adjusted that the term of but one member would expire each year; such members to serve without compensation, but to be allowed traveling and other expenses. The Board to meet not less frequently than once a month, and each institution of the state to be visited by one or more members of the board, not less often than four times a year. A member to be removed by the governor for cause, stated in writing, and after an opportunity to be heard. This Board to have the function of inspection, recoromendation and advice, combined with a partial power of control, as outlined in the following plan. S. Staff: 1. A secretary to be employed at a salary sufficiently large to secure a man of marked ability and knowledge with re- lation to the management and care of state institutions, selected without regard to residence. Clerical assistance to be provided. 2. Experts to be employed, some regularly and some from time to time, competent to give advice with regard to the following matters : (a) Care, treatment and education of different classes of inmates. (b) Purchasing, handling and consumption of supplies. (c) Management of farms. * Specific application to New York made on the last page. 348 (d) Handling of steam plants. (e) Accounts. (f) Such other experts as might be deemed advisable. Jf. Fiscal Powers of the Board: 1. The Board to recommend to the Legislature the amount of funds needed by each institution. The Legislature to be urged not to subdivide the appropriations into classi- fications smaller than the following divisions (A) Maintenance. (B) Current repairs. (C) New buildings and permanent improvements. 2. The Board, subsequent to the action of the Legislature, and after conference with the superintendents and with the advice of experts, to apportion the appropriation for each institution, fixing the amount to be allotted to each of the following expenditures. A. Maintenance. 1. Salaries and wages. The central Board to establish all salaries and wages, which shall be as nearly uniform as possible, for like services in all institutions, taking into con- sideration living expenses and local prevailing wages, with provision for a graduated increase based on the length of service. (a) Aggregate expenditure for salaries. (b) Aggregate expenditure for wages. 2. Farm and gardens. (a) Live stock. (b) Feed. (c) Vehicles. (d) Machiues, tools, utensils, harnesses, etc. (e) Fertilizers and seeds. (f) Drainage. (g) Fencing, (h) Farm labor. (i) Miscellaneous material, (j) Miscellaneous expenditures. 349 3. Provisions. (a) Com, oats and wheat products. (b) Rice, barley and tapioca. (c) Beans and peas. (d) Potatoes. (e) Butter and butterine. (f) Cheese. (g) Sugar. (h) Molasses and syrup. (i) Fresh meats. (]") Cured meats and lard. (k) Fish. (1) Poultry. (m) Fresh fruits. (n) Fresh vegetables. (o) Dried fruits. (p) Canned vegetables. (q) Canned fruits. (r) Coffee, tea, cocoa and chocolate. (s) Eggs. (t) Milk. (u) Cooking accessories. (v) Miscellaneous foods. 4. Clothing. (a) Boots and shoes. (b) Outer garments, (e) Under garments. (d) Miscellaneous garments. 5. Tobacco. 6. Ice. 7. Fuel and light. 8. Water. 9. Household stores. (a) Laundry supplies. (b) Cleaning utensils and supplies. (c) Miscellaneous household supplies. (d) Miscellaneous toilet supplies. 350 10. Kitchen and dining-room supplies. (a) Utensils and dishes for kitchens and dining-rooms. (b) Supplies for preserving fruits and vegetables. 11. Mechanics' tools and utensils. 12. House furnishings. (a) Furniture, fixtures, musical instruments and pic- tures. (b) Carpets and draperies. (c) Bedding, including mattresses. (d) Table linen and towels. (e) Miscellaneous furnishings. 13. Books, stationery and office supplies. (a) Books, newspapers and periodicals. (b) Stationery, printing and office supplies. (c) School supplies. 14. Medical supplies and instruments. 15. Transportation and messages. (a) Freight^ express and cartage. (b) Traveling expenses of officers and employees. (c) Transportation of patients. (d) Telephone, telegraph and messengers. (e) Postage. (f ) Expenses of board of managers. (g) Miscellaneous. 16. Amusements. 17. Contingent fund. 18. Burial expenses. 19. Eeligious services. 30. Advertising. 31. Legal services. 32. Expenses of paroled and discharged inmates. 33. Expenses of purchasing committee. B. Current Repairs. 1. Eepairs to each building. 3. Aggregate amount of miscellaneous repairs. 3. Eepairs to heating, lighting and power plants. 351 C. New Buildings and Permanent Improvements. 1. Cost of each building, with power also to designate the location of such building, its plan and materials. ._ 3. Furnishings for each building. 5. Additional Classifications: The board to have the power to add to the above classifications, provided a necessity arises for any ex- penditure which cannot be classified properly under existing headings. 6. Method of Determining the Amounts of the Various Classes of Expenditures : Two months previous to the beginning of the fiscal year, the Board of Supervision to require each institution to submit a budget or estimate of its proposed expenditures, grouped under the above classifications. The aggregate amount of such budget to be the total amount made available by the Legislature for each institution. The Board to require that such budget, under each classification, be submitted in detail, designating the number and character of each article needed, with estimated unit cost. The Board, however, not to have power to determine qualities or unit costs, but to use such information as a basis for determining the necessity for the aggregate amount under each subdivision. The Board, previous to the begin- ning of the fiscal year, to pass Judgment as to the amounts inserted under the various classifications and, in its Judgment, to revise the aggregates. The amounts under each heading so determined by the Board to become the budget and basis of expenditure for the suc- ceeding fiscal year, and to be transmitted to the respective institutions. The institutions not to be required to buy the specific articles listed in their estimates submitted to the Board; to be required, however, to confine their aggregate expenditures for any one class of supplies to the amount established by the Board for that class. At any time during the fiscal year the Board, by a majority vote of those present, to make such further transfer of funds, from class to class, and from institution to institution as it may deem advisable. 7. Accounting and Reporting: The Board to have power to deter- mine and establish all forms of accounting used in the institutions; also to have power to determine the periods and forms in which re- ports shall be made by the institutions to the Board. 8. Power of Inspection: The Board to have full power of inspec- tion and the right to examine into all methods of conducting and administering the institutions. 352 9. The Board to Mahe Recommendations : The Board to advise the managers and the superintendents with regard to all adminis- trative policies, measures and methods touching at least the following matters : (1) Care, treatment and education of patients. (2) The purchasing of supplies, framing of specifications, forms of contracts, selections of foods, and methods of making comparisons of deliveries with samples or specifications. (3) Dietaries. (4) Fuel qualities and consumption. (5) Operation of the farms, gardens, care of live stock, etc. (6) Manufacture or raising of supplies and methods of ex- changing the same between institutions. 10. Boards of Managers: A board of managers to be appointed by the governor for each institution, consisting of from four to seven members; the boards of institutions with women inmates to have one or more women members. Members of the boards to serve as many years as there are members of the board. All necessary expenses to be paid. The boards to have all powers of management of the institutions not conferred upon the Board of Supervision by the plan herein outlined. The boards to meet not less frequently than once each month. The boards to contract for all supplies, except as hereafter provided, on the basis of competitive bids. The superintendent to be permitted to purchase a certain amount of supplies in the open market from a contingent fund, the amount of which to be subject to the regulation of the Board of Supervision. Members of the boards to be subject to removal by the governor, on written notice and after an opportunity to be heard. 11. Appointment of Superintendent: The superintendents of in- stitutions to be appointed by the boards of managers of the respective institutions. A superintendent to be removed by the board of man- agers only for cause, stated in writing. Each superintendent to appoint or dismiss subordinates in his institution. 12. Conferences of Superintendents and Managers: A quarterly conference of superintendents and one manager from each board to be provided for at which problems touching the care, treatment and education of the inmates and administration of the institutions are 353 to be discussed. Such conference to have power to provide for joint purchasing as outlined in the following paragraph : 13. Joint Purchasing: The conference of superintendents to be given power to enter into joint contracts for supplies; such confer- ence to decide what, if any, supplies are to be purchased by joint contract; if joint purchases are to be made, the conference to appoint a committee and delegate to it the power to draw specifica- tions and enter into contracts for the supplies to be so purchased; the Board of Supervision to furnish the committee such expert advice and clerical help as may be necessary to perform the function of contracting for supplies; the committee to be given power to have supplies, purchased under joint contract, tested in a state or college laboratory; provision to be made authorizing such laboratory to do the required work. A decision as to the joint purchase of any particular supply to be binding upon all the institutions of the state, except that any institution may be exempted from such requirement by a majority vote of the conference, acting upon an appeal for such exemption, passed by a unanimous vote of the board of managers of such in- stitution. The conference to pro rate the expenses of the purchasing com- mittee among the institutions on the basis of the gross amount pur- chased under joint contracts by each institution. The above plan is general. As applicable to the State of Few York, with its existing State Commission in Lunacy, Fiscal Super- visor of State Charities, and State Superintendent of Prisons, the powers and responsibilities suggested as appropriate for a Board of Supervision might wisely be conferred upon these authorities respec- tively, leaving to further experience and future consideration the question as to whether or not any or all of these three administra- tive authorities should be superseded by such an unpaid Board of Supervision as that provided for in the general plan. In either case the existing State Board of Charities and State Commission of Prisons would be continued, with powers of inspection aind recommendation. Respectfully submitted, HENEY C. WRIGHT. March, 1911,