HD8051.C3'l9;4"'"'""'"'™^ First annual report of tt,e Commission on 3 1924 002 404 774 REPORT L/f i. lLi:j Commission 0}^ Industrial Relations <^ OS WASHINGTON, D. C. 1914 THE LIBRARY OF THE NEW YORK STATE SCHOOL OF INDUSTRIAL AND LABOR RELATIONS AT CORNELL UNIVERSITY FIRST ANNUAL REPORT OF THE Commission ON Industrial Relations '^ WASHINGTON, D. C. 1914 Baknabs & MiLLEB Pbint, Chicaqo. »137 0-^6 The original of tliis 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. arch i ve . o rg/detai Is/cu31 924002404774 CONTENTS. PAGE. Act Cebating the Commission 1 Lbtteb of Transmittal 3 Introduction 5 Scope of the Commission's work 6 Organization and staff 7 Public Hearings 10 General results of hearings 11 Places and subjects of hearings 12 Character of witnesses 16 Analysis of testimony 18 Causes of unrest 19 Collective bargaining ; 22 Criticisms of existing trade unions 24 Criticisms of employers ' associations 33 Mediation, conciliation, and arbitration 39 Jurisdictional disputes 41 Workmen's compensation 42 Unemployment 42 Subjects requiring further hearings 43 Tentative program for future hearings 44 Research and Investigation 46 Trade unions and employers' associations 46 Condition of unorganized labor 49 Scientific management 50 Mediation, conciliation, and arbitration 51 Women and children in industry 52 The elimination of human waste 52 Agriculture and land problems 54 Unemployment 55 Social legislation 57 Interstate competition 59 Labor and the law 60 Illegal entry of Asiatics 63 Fundamental problems 63 Summary and Progress Toward Final Recommenda- tions 65 Exhibit A PROPERTY -OF -LIBRARY NEW YORK STATE SCHOOL INDUSTRIAL AND LABOR REUTIONS 71 ACT CEEATING THE COMMISSION. [PuBUc No. 300.] AN ACT to create a Commission on Industrial Relations. Be it enacted by tJie Senate and House of Representatives of the United States of America in Congress assenMed, That a . commission is hereby created to be called the Commission on In- dustrial Relations. Said commission shall be composed of nine persons, to be appointed by the President of the United States, by and with the advice and consent of the Senate, not less than three of whom shall be employers of labor and not less than three of whom shall be representatives of organized labor. The Department of Commerce and Labor is authorized to co-operate with said commission in any manner and to whatever extent the Secretary of Commerce and Labor may approve. Sec. 2. That the members of this commission shall be paid actual traveling and other necessary expenses and in addition a compensation of ten dollars per diem while actually engaged on the work of the commission and while going to or returning from such work. The commission is authorized as a whole, or by sub- committees of the commission, duly appointed, to hold sittings and public hearings anywhere in the United States, to send for persons and papers, to administer oaths, to summon and compel the attendance of witnesses and to compel testimony, and to employ such secretaries, experts, stenographers, and other assist- ants as shall be necessary to carry out the purposes for which such commission is created, and to rent such ofSces, to purchase such books, stationery, and other supplies, and to have such printing and binding done, as may be necessary to carry out the purposes for which such commission is created, and to authorize its members or its employees to travel in or outside the United States on the business of the commission. Sec. 3. That said commission may report to the Congress its findings and recommendations and submit the testimony taken from time to time, and shall make a final report accompanied by the testimony not previously submitted not later than three years after the date of the approval of this Act, at which time the term of this commission shall expire, unless it shall previous- ly have made final report, and in the latter case the term of the commission shall expire with the making of its final report; and the commission shaU make at least one report to the Congress within the first year of its appointment and a second report within the second year of its appointment. Sec. 4. That the commission shall inquire into the general condition of labor in the principal industries of the United States including agriculture, and especially in those which are carried on in corporate forms; into existing relations between employers and employees ; into the effect of industrial conditions on public welfare and into the rights and powers of the com- munity to deal therewith; into the conditions of sanitation and safety of employees and the provisions for protecting the life, limb, and health of the employees; into the growth of associa- tions of employers and of wage earners and the effect of such associations upon the relations between employers and em- ployees; into the extent and results of methods of collective bargaining ; into any methods which have been tried in any State or in foreign countries for maintaining mutually satisfactory relations between employees and employers; into methods for avoiding or adjusting labor disputes through peaceful and con- ciliatory mediation and negotiations; into the scope, methods, and resources of existings bureaus of labor and into possible ways of increasing their usefulness ; into the question of smug- gling or other illegal entry of Asiatics into the United States or its insular possessions, and of the methods by which such Asiatics have gained and are gaining such admission, and shall report to Congress as speedily as possible with such recommendations as said commission may think proper to prevent such smuggling and illegal entry. The commission shall seek to discover the underlying causes of dissatisfaction in the industrial situation and report its conclusions thereon. Sec. 5. That the sum of one hundred thousand dollars is hereby appropriated out of any money in the Treasury of the United States not otherwise appropriated for the ' use of the commission for the fiscal year ending June thirtieth, nineteen hundred and thirteen : Provided, That no portion of this money shall be paid except upon the order of said commission, signed by the chairman thereof: Provided, That the commission may expend not to exceed five thousand dollars per annum for the employment of experts at such rate of compensation as may be fixed by the commission but no other person employed hereunder by the commission, except stenographers temporarily employed for the purpose of taking testimony, shall be paid compensation at a rate in excess of three thousand dollars per annum. Approved, August 23, 1912. LETTER OF TRANSMITTAL. Commission on Industeiaij Relations. Washington, D. C, October 23, 1914. To the Sixty-third Congress: In behalf of the Commission on Industrial Relations, I have the honor to transmit herewith its first annual report. Respectfully, Fbank p. "Walsh, Chairman. INTRODUCTION. "Washington, D. C. To the Sixty-third Congress: As members of the Commission on Industrial Relations, we have the honor to submit this, our first report, as re- quired by law. The Commission was created by Act of Congress Au- gust 23, 1912. The present membership of the Commis- sion was confirmed September 10, 1913, and the funds provided became available October 22, 1913. The first meeting of the Commission was held at Wash- ington, D. C, beginning October 23, 1913. The general outlines of the inquiry were agreed upon at this meeting and the work has been carried forward with all possible expedition. The intent of Congress, insofar as the duties of the Commission are concerned, is set out in Section IV of the Act: Sec. 4: That the commission shall inquire into the general condition of labor In the principal industries of the United States including agriculture, and especially in those which are carried on in corporate forms; Into existing relations between employers and employes; into the effect of industrial conditions on public welfare and into the rights and powers of the community to deal therewith; into the conditions of sanitation and safety of em- ployes and the provisions for protecting the life, limb, and health of the employes; into the growth of associations of em- ployers and of wage earners and the effect of such associations upon the relations between employers and employes; into the extent and results of methods of collective bargaining; into any methods which have been tried in any State or In foreign coun- tries for maintaining mutually satisfactory relations between em- ployes and employers; into the methods for avoiding or adjust- ing labor disputes through peaceful and conciliatory mediation and negotiations; into the scope, methods, and resources of exist- ing bureaus of labor and into possible ways of increasing their usefulness; into the question of smuggling or other illegal entry of Asiatics into the United States or its insular possessions, and of the methods by which such Asiatics have gained and are gaining such admission, and shall report to Congress as speedily as possible with such recommendation as said commission may think proper to prevent such smuggling and illegal entry. The commission shall seek to discover the underlying causes of dis- satisfaction in the industrial situation and report its conclusions thereon. 5 SCOPE OF THE COMMISSION'S WORK. There was immediate agreement by the members of the Commission that the Commission on Industrial Rela- tions was not a Bureau, nor a Department of the Govern- ment in the ordinary acceptation of these words, but an independent body, created by Congress to do certain specific things. As an instance of what we hold to be the essential dif- ference between this Commission and the permanent de- partments of the Government, we believe that their work is administrative, while ours is meant to be interpretative and remedial. The usual governmental agency makes de- tailed investigation for the purpose of presenting facts in a more or less statistical form to Congress and to the public. The Commission's duty is to get behind the facts, find the explanation for their existence, and establish their relation to industrial unrest as a basis of recom- mendation for constructive legislation. It was plain that Congress did not intend the Commis- sion to be a board of mediation, conciliation, or arbitra- tion to undertake the settlement of labor disputes. There- fore, no study of any industrial struggle has been or will be made with the object in view of settling the immediate trouble. Our purpose is to ascertain the causes of in- dustrial strife, to plan the removal or mitigation of the same, and to suggest machinery that will facilitate in some degree the orderly and peaceful conduct of industry on a level that will insure the maintenance of the highest practicable standards of working and living conditions. The Commission is not blind to the danger in govern- mental institutions of duplicating energy and expense, nor to the necessity of avoiding interference and con- fusion. As a result there was an immediate decision that the closest and most harmonious co-operation must be effected with all the bureaus, departments, and commit- tees of the Government that deal with industrial ques- tions. A survey of the field developed the fact that on every hand volumes of valuable and essential facts had been accumulated, practically all of which could be brought to serve our purposes by such interpretative study as might relate conditions to causes. Among the mass of material that is being thus treated may be mentioned the reports of the various Committees and Sub-Committees appoint- ed by Congress to investigate industrial disturbances in West Virginia, Michigan and Colorado, and to inquire into such matters as the concentration of capital and credit, the violation of the anti-trust laws, and employ- ers' liability and workmen's compensation; the very ex- tensive compilations of the Department of Labor, the Department of Commerce, and the Immigration Commis- sion ; and the reports of various state agencies. In addition it is proper to mention that co-operation has been maintained, both with the Special Investigating Committees of Congress and with the mediators connected with the Department of Labor. In Colorado and Mich- igan, for example, the Commission has refrained from holding hearings without ascertaining whether or not such action would in any way embarrass the other agen- cies of the Federal Grovernment. A thorough investiga- tion has, however, been conducted in each of these fields, and all plans have been made for holding public hear- ings at an early date upon the basis of which the Commis- sion can prepare recommendations. ORGANIZATION AND STAFF. The Commission feels that for its work there has been gathered together an efificieiit staff. As Director of Ee- search and Investigation is Charles McCarthy, Chief of the Legislative Reference Library of Wisconsin. Other members of the staff are George E. Barnett, Professor of Statistics in Johns Hopkins University; Miss Marie L. Obenauer, head of the Division of Investigations of Women and Children for the United States Bureau of Labor Statistics; Robert F. Hoxie, Associate Professor of Political Economy of the University of CMcago; W. Jett Lauck, former Superintendent of Industrial Investi- gation, United States Immigration Commission ; William M. Leiserson, former Superintendent of Employment Agencies, State of Wisconsin; John Lee Coulter, Pro- fessor at Peabody College, former Expert Special Agent in charge of Agriculture, Bureau of the Census ; Basil M. Manly, formerly of the United States Bureau of Labor Statistics ; Thomas I. Parkinson, Chief of the Legislative Drafting Division of Columbia University; B. S. Warren, Surgeon, United States Public Health Service. These, with others, comprise a carefully selected staff who bring to the work an accumulation of knowledge through re- search and experience of many years. The work of the Commission is divided into two large divisions : 1. Public Hearings. 2. Research and Investigation. In order that the Commission might secure as broad and intimate knowledge of the industrial situation throughout the country as is possible during the limited time at its disposal, it was necessary that all of its ac- tivities should be closely coordinated and so planned as to give organic unity to the entire work. The purpose and methods of conducting the hearings and the fields which are being studied by the Division of Eesearch and Investigation are described more fully here- after. At this point it is necessary only to point out the close connection which has been maintained between these two divisions of the Commission's activities. The work of the Division of Research and Investigation has been two-fold : a. The intensive study of those industrial problems which require the accumulation and careful ana- lysis of a large mass of facts. h. The careful and thorough investigation of points on which the testimony offered to the Commission at its hearings did not appear to be conclusive. Through the coordination of these two divisions the Commission has been furnished, for use at its hearings, with carefully digested material on the various subjects which were considered, and at the same time the investi- gators of the Commission have been directed by the re- sults of the hearings into many important fields which needed careful study. In brief, it is the policy of the Commission to supple- ment its hearings by minute and painstaking investiga- tion of all points which seem to be doubtful or inconclu- sive, and to give breadth and public sanction to the find- ings of its investigators by means of the hearings. The findings and recommendations of the Commission will be based upon the combined results of these separate departments of the work. 10 PUBLIC HEARINGS. The Commission after careful deliberation decided to hold public hearings in a number of the industrial cen- ters of our country. William O. Thompson, Counsel of the Commission, and Basil M. Manly were selected to direct the Staff of the Commission in Charge of Public Hearings. This conclusion on the part of the Commis- sion was based on the belief that laws are valueless except where they are expressive of and rest upon a strong pub- lic opinion, and there seemed to be no way that would more effectively ascertain the general sentiment as to in- dustrial unrest and its causes, than the face to face method of open hearings to which are summoned inter- ested parties from all walks of life. The Commissioners, designedly representative of di- vergent interests, appreciated the necessity for broaden- ing their own horizons and enlightening their minds as effectively as possible to discharge the duties imposed upon them. It was also felt that by visits to the industrial centers of the country, the Commissioners would learn at first hand of the conditions in those industries and locali- ties with which they were unfamiliar. The hearings have not only accomplished these pur- poses, but have afforded an opportunity for the best informed men and women in the industrial world to tell of their beliefs, hopes, and determinations, and to ex- plain the experience upon which they have been built. The hearings have provided a forum from which the most powerful and the most humble, the most conserva- tive and the most radical, the deepest thinker and the man who has learned only the lessons of bitter experi- ence, have told of the faith that is in them, not only to the Commission, but through the Commission and the press to the general public. These witnesses have been given the widest possible liberty in order tbat they might express their opinions 11 freely as to industrial unrest and its causes. It is a pleasure to be able to report that the men and women most active in the industrial field have united from the very first in an attitude of splendid support and coopera- tion with the work of the Commission, and we feel that such patriotic and sincere cooperation is, in a measure, a guarantee of ultimate success. GENERAL RESULTS OF HEARINGS. Over five hundred witnesses, drawn from almost every section of the country and representing nearly every trade and industry, have appeared before the Commis- sion in connection with its industrial problems and in its executive hearings on the Smuggling of Asiatics. The testimony of these witnesses occupies about 19,000 pages of typewritten matter and covers, as shown below, in a fairly comprehensive manner, many of the most im- portant problems with which the Commission is con- fronted. The hearings have been held in twelve important cities and industrial centers, widely scattered from New York to San Francisco. While there are industrial sections which have not yet been visited, it is believed that the Commission has already heard in these widely diverse communities intelligent statements representative of the opinion and sentiment of the entire country. To sum up the results of the hearings in a paragraph : the Commission has made a comprehensive survey of the broad general problems assigned to it by Congress, and in certain fields has secured information which, coupled with the reports of its investigators, and the compilations of its research force, may be regarded as practically con- clusive. The fields which now demand its special atten- tion are: 1. The working conditions and industrial relations existing in the large basic industries which are controlled by corporations. 2. The fundamental relations of the State, through its Legislative, Administrative, and Judicial func- 12 tions, to employers and workers, both as individ- uals and in their collective capacity as organiza- tions. 3. The formulation of a constructive program for dealing with the most important problems. The citizenship of the United States has an eagerness for justice and a keen interest in our country's industrial problems. One of the great barriers to industrial prog- ress has been the lack of widespread knowledge of exist- ing conditions and of popular discussion of the many problems that arise from these conditions. For these reasons, the hearings, in addition to their value to the Commission, have served two other great purposes which are at least as important. They have car- ried to the general public for the first time, it is believed, a knowledge of the issues involved in the industrial struggle and an understanding of the causes which make for industrial unrest. They have compelled both capital and labor to consider deeply their own weaknesses and shortcomings, and to search for means to correct evils which have been brought to their attention in this public manner. We believe that out of this interchange of view- points, attitudes, and opinions, a better understanding on the part of both employers and employes has already been promoted. PLACES AND SUBJECTS OF HEARINGS. The cities which have been visited and the general sub- jects covered in each are outlined in the appended list. It should be understood, however, that this list is merely indicative of the general character of the hearings, since in each city the discussion was given wide range, and many topics were considered which do not appear in this list. Washington, D. C. Dec. 29-31. Suggestions and plans from public offi- cials, experts, and other authorities bearing on the scope and methods of the Commission's work. 13 New York City. Jan. 15-17. The Protocol Agreement between Manufacturers and Workers in the Cloak, Suit, and Skirt Industry of New York City. — Its char- acter and results. Washington, D. C. Apr. 6-9. Collective Bargaining, Conciliation and Arbitration. — Underlying principles, methods, and results in important industries. Apr. 13-15. Efficiency Systems. — The methods and results of these systems and the attitude of or- ganized labor toward them. New Yoek City. May 18-20. Employment Offices and Unemploy- ment. — ^A general survey of these problems. May 21-23. The American Federation of Labor, the Socialist Party, and the Industrial Workers of the World. — Organization, purposes, and meth- ods. May 25-29. The Building Trades of New York City. — Organizations, working conditions, and rela- tions between employers and employes in the principal trades. May 27-28. Special Witnesses on Labor Conditions in Colorado. June 1-2. Industrial Education, Apprenticeship and Administration of Child Labor Laws. June 3-4. State Mediation and Arbitration of In- dustrial Disputes. June 4-5. Men's Garment Trades of New York City. — ^Working conditions and relations be- tween employers and employes in shops and tenements. June 8-9. Dock Workers of New York City. — Wages, hours of labor, irregularity of employ- ment, accidents, and working conditions. Com- parison with conditions maintained on the docks of European dties. 14 June 10-12. Department Stores of New York City. — General working conditions in these stores and the attitude of department store owners, managers, and employes toward a minimum wage, legal limitation of working hours, unioni- zation of employes, etc. Pateeson, N. J. June 15-16. Industrial Conditions and Eelations in Paterson, N. J. — History and results of the strike in the silk industry. Philadelphia, Pa. June 22. General Industrial Conditions and Rela- tions. — Opinions and experience of prominent witnesses regarding extent and causes of indus- trial unrest. June 23. The Cooperative Plan of the Philadel- phia Rapid Transit Co. June 24. Industrial Conditions and Relations in the Metal Trades of Philadelphia. June 26. Industrial Education, Apprenticeship, and Administration of Child Labor Laws. June 27. Industrial Relations in the Glass and Pottery Industries. June 29. Industrial Conditions and Eelations in the Textile Industries of Philadelphia. June 30. Industrial Conditions and Relations in the Women's Garment Industry of Philadelphia. Boston, Mass. July 6-8. Executive Hearing. Smuggling of Asi- atics. Chicago, III. July 21-25. General Industrial Conditions and Re- lations. — Opinions and experience of leading witnesses regarding not only extent and causes of industrial unrest, but also such specific mat- ters as the issuance of injunctions in labor cases, picketing, boycotting, and the incorporation of trade unions ; industrial conditions and relations 15 in the building trades, lunch rooms and restau- rants, metal trades, and in the coal mining and printing industries. Lead, S. D. Aug. 3-4. Industrial Conditions and Relations in Gold Mining Operations in Lead, S. D., and the Black Hills. Butte, Mont. Aug. 6-8. Industrial Conditions and Relations in the Copper Mining Industry. — History of the local miners' union and its relations with the copper companies. The extent, cause, and prevention of tuberculosis among miners. Seattle, Wash. Aug. 10-15. General Industrial Conditions and Re- lations. — Testimony of leading witnesses with special reference to the lumber industry; sea- sonal and migratory labor; unemployment; minimum wage, workmen's compensation and other labor legislation. Aug. 17-18. Executive Hearing. — Smuggling of Asiatics. Poetland, Oke. Aug. 20-22. General Industrial Conditions and Re- lations. — Development and results of the mini- mum wage law. San Feanoisoo, Calif. Aug. 25-26. Open and Closed Shop Controversy in Stockton. Aug. 27-29. Seasonal Labor and Unemployment. Aug. 31. Labor Conditions in Construction Camps. Sept. 1. Collective Bargaining. Sept. 2-3. Industrial Accident Compensation. Gen- eral Industrial Conditions and Relations in San Francisco. Sept. 4-5. Executive Hearing. Smuggling of Asi- atics. 16 Los Angeles, Calif. Sept. 8-17. Open and Closed Shop Controversy. Testimony of representative witnesses regard- ing not only the general question of the "open shop," but also detailed evidence regarding the industrial conditions and relations in newspaper and job printing offices, foundries and machine shops, planing mills, in the building trades, and in department stores. Also on such subjects as workmen's compensation, the issuance of injunc- tions, and the attitudes and actions of the courts and police during industrial disputes. CHARACTER OF WITNESSES. The number of witnesses who have appeared before the Commission does not convey an adequate idea of their value as sources of information, without an analysis of their diverse character and an indication of the care with which they were selected. In practically every case the witnesses were summoned only after careful investigation by members and agents of the Commission. The witnesses were not arbitrarily selected, but were the best who could be suggested by persons most closely in touch with the industry, problem, or locality which was being considered. In order to indicate the general characteristics of the witnesses who have appeared before the Commission, we submit the following statenjent showing the number of witnesses representing the various interested groups. This analysis shows the great diversity of the witnesses and also the equality which has been accorded to repre- sentatives of the employers and employes. 17 classification of witnesses upon industrial subjects. Affiliated with Employees : Employers, Managers, Poremeii, etc. .132 Eepreseiitatives of Employers' Or- ganizations 16 Attorneys for . Employers ' Organiza- tions 7 Efficiency Engineers 8 Agriculturists 5 Emplojonent Agents 13 181 Affiliated with Labob : Trade Union Officials 127 Workingmen and Workingwomen 39 Attorneys for Labor Organizations ... 4 Industrial Workers of the World. ... 7 Eepresentatives of the Socialist Party 6 183 Not Affiliated with Either Group : Public Officials 52 Eepresentatives of Civic Organiza- tions 24 Educators 17 Economists and Sociologists 16 Investigators 8 Eepresentatives of the Press 6 Clergy 6 Unclassified 21 k 150 Total 514 18 ORGANIZATIONS REPRESENTED. The witnesses who have appeared before the Commis- sion represent 319 organizations, firms and corporations, distributed as follows : Labor Organizations 82 Employers' Associations 36 Firms and Corporations 113 Civic Organizations 38 Public Institutions 50 A large proportion of the trade unions, employers' as- sociations, and civic organizations, which are formed upon a national basis, have been represented before the Com- mission by one or more witnesses. It should be remem- bered also that the widest latitude has been given to wit- nesses. Comprehensive statements of the attitudes of each of these organizations and industries have been placed before the Commission. A classified list of the various organizations, firms and corporations, which have been represented, is attached to this report as Appendix A. ANALYSIS OF TESTIMONY. On certain subjects in the Commission's field a great deal of testimony has already been taken. It seems de- sirable at this time to summarize this testimony as an indication of its general trend and substance. It should be understood that this summary does not in any sense represent findings or conclusions of the Com- mission and that the later hearings may, and probably will, develop additional ideas and opinions. Neverthe- less, where witnesses in such dissimilar and widely sep- arated localities agree substantially in their statements and analysis of the points at issue, it may be assumed that a reasonably complete presentation of the evidence has been made. 19 CAUSES OF UNREST. The primary duty imposed upon this Commission by Congress is to ascertain "the underlying causes of dis- satisfaction in the industrial situation." While it is rec- ognized that this subject is practically inexhaustible, it is believed nevertheless that the testimony furnishes an outline of the fundamental cahses. Analysis of this testimony shows that the following causes have been most frequently advanced by the wit- nesses who have been questioned on this subject : 1. liargely a ixrorld-ivide movement arising from a laudable desire for better living conditions. Advanced by representatives of labor, sociologists and employers, and generally endorsed. 2. A protest against loiv -wages, long bours, and improper ivorking conditions in many industries. Advanced by practically all labor representatives and assented to by many employers. 3. A desire on tbe part of tbe ivorkers for a voice in tbe determination of tbe conditions under \rbicb tbey labor, and a revolt against arbitrary treatment of individual urorkers and against tbe suppression of organization. This was almost uni- formly approved by labor witnesses. 4. Unemployment and tbe insecurity of employ- ment. Generally advanced by witnesses from every standpoint. 5. Unjust distribution of tbe product of indus- try. Advanced by most labor representatives and agreed to by some employers. 6. Misunderstanding and prejudice. Agreed to by employers and employes. 7. Agitation and agitators. Grenerally advanced by employers but defended by labor representatives and others as a necessary means of education. 8. Tbe rapid rise of prices as compared -witb wages. This was given by a very large number of 20 employers, labor witnesses, and students of industrial conditions. 9. A rapidly growing feeling that redress for injustice and oppression cannot be secured tlirougli existing governmental institutions. The statement came from a large number of labor witnesses. In addition, it has been stated by many witnesses that the tremendous immigration of the last quarter century, whUe not itself a direct cause of unrest, has served to accentuate the conditions arising from other causes by creating an oversupply of labor, unfamiliar with Amer- ican customs, language, and conditions. The causes of unrest outlined above summarize the testimony of a very large number of experienced and thoughtful witnesses, and received some measure of as- sent from the representatives of the employers, employes and the observing public. There are, however, a number of causes, which must be considered in relation to the partisan bias of the various witnesses who urged them. CAUSES OF UNBEST ADVANCED BY EMPLOYERS. 1. Normal and healthy desire for better living condi- tions. 2. Misunderstanding and prejudice. Lack of con- ception that interests of labor and capital are identical. 3. Agitation by politicians and irresponsible agitators. 4. Unemployment. 5. Unreasonable demands arising from strength of organization. 6. Labor leaders who stir up trouble to keep them- selves in office and to graft on employers. 7. Inefficiency of workers, resulting in ever increasing cost of living. 8. Rapidly increasing complexity of industry. 9. Sudden transition of large numbers of foreigners from repression to freedom, which makes them an easy prey to labor agitators. 21 10. Universal craze to get rich quick. 11. Decay of old ideas of honesty and thrift. 12. Misinformation in newspapers. 13. Too many organizations for combative purposes instead of for cooperation. 14. Violence in labor troubles. 15. Sympathetic strikes and jurisdictional disputes. 16. Boycotting and picketing. 17. Meddlesome and burdensome legislation. 18. The ' ' closed shop, ' ' which makes for labor monop- oly. 19. Financial irresponsibility of labor unions. CAUSES OF UNEBST ADVANCED BY EMPLOYES AND THEIR EBPBB- SENTATIVES. 1. Normal and healthy desire for better living condi- tions. 2. Protest against low wages, long hours, insanitary and dangerous conditions existing in many industries. 3. Demand for industrial democracy, and revolt against the suppression of organization. 4. Unemployment, and the insecurity which the vage- earner feels at all times. 5. Unjust distribution of the product of industry. "Exploitation of the many by the favored few." "De- mand for full share of production." 6. Unjust attitude of police and courts. 7. There is one law for the rich, another for the poor. 8. Immigration and the consequent oversupply of labor. 9. Existence of a "double standard," which sanctions only a poor living in return for the hardest manual labor, and at the same time luxury for persons who perform no useful service whatever. 10. Disregard of grievances of individual employes and lack of machinery for redressing the same. 11. Control by ' ' Big Business ' ' over both industry and state. 22 12. Fear on the part of those in comfortable positions of being driven to poverty by sickness, accident, or in- voluntary loss of employment. 13. Inefficiency of workers on account of lack of proper training. 14. Unfair competition from prison and other ex- ploited labor. 15. The rapid pace of modern industry, which results in accidents and premature old age. 16. Lack of attention to sickness and accidents, and the difficulty and delay incident to securing compensation for accidents under the common law and under the stat- utes of states which have not adopted modern methods dealing with these questions. 17. Arbitrary discharge of employes. 18. Blacklisting of individual employes. 19. Exploitation and cruel treatment of womea and children in industry. 20. Promotion of violence by the use of gunmen, spies, and provokers hired by employers. 21. Attempt to destroy unionism by the pretense of the "open shop." 22. Ignorance of social economics on the part of em- ployers and indifference toward the well-being of their employes. 23. Monopolization of land and natural resources. 24. Suppression of free speech and right of peaceful assembly. COLLECTIVE BAEGAINING. It is believed that the testimony which has been pre- sented to the" Commission, together with the results of the work of the Commission's investigators cover in a satisfactory manner the philosophy as well ais the tech- nical points involved in collective bargaining. It is remarkable that there has been almost complete agreement upon the part of the employers and employes who have appeared before the Commission favorable to the general principle of collective bargaining. There is 23 a wide divergence with regard to the form which the various witnesses believe that such collective bargaining should take, and in many cases the correctness of the principle was admitted grudgingly. Nevertheless, only five witnesses from among the employers objected to the principle of collective bargaining. On the other side, the principle of collective bargaining is practically rejected by the various representatives of the Industrial "Workers of the World, who maintain the theory that there can be no just bargaining between em- ployers and employes. They admit, however, that in practice it is desirable to conduct negotiations with em- ployers or with employers' associations, in order to se- cure the best possible terms for the workers, but hold that if agreements arise from such negotiations they need not be respected. It is interesting to note that a large number of employ- ers, including some who do not employ union workmen, not only expressed themselves as being in complete ac- cord with the principles of collective bargaining, but also expressed the opinion that a large part of the improve- ments in industrial conditions in the last half century have been due to collective bargaining with existing trade unions. Many of these have, however, claimed that the larger part of such improvement has come from the gen- eral advancement of economic conditions, from the initi- ative of employers, and from a more enlightened business policy. A majority of the best informed witnesses who have appeared before the Commission have insisted upon the necessity of securing a proper basis upon which collective bargaining can be carried out. It may be well to note that practically all of the most experienced witnesses have insisted upon the necessity for strong organizations of both employers and employes as a fundamental basis for the successful conduct of collective bargaining. Witnesses representing employers and employes have appeared before the Commission with reference to a num- ber of the national trade agreements which are now in 24 effect, and without exception have testified that sudi agreements have not only greatly improved the condi- tions of the workers in the industry but have tended to the promotion of stable industrial peace. Numerous alleged defects in these agreements have been pointed out; but none of the parties to these existing national agreements has failed to express the desirability of such a method of determining the wages and other conditions which prevail in an industry. CEITICISMS OF EXISTING TRADE UNIONS. The majority, at least, of the labor representatives who have appeared before the Commission have urged that the most potent, and in fact, the only real remedy for the existing industrial situation lies in the rapid extension of labor organizations along essentially the lines of the existing trade unions. It is therefore of the greatest importance to have brought together in definite concrete form the criticisms on trade unions. These criticisms come from two main sources, — the employers and the so-called "radicals" who advocate other forms of organization. Accordingly there have been summarized below the principal crit- icisms that a preliminary analysis of the testimony has brought to light, and in addition the typical replies of the trade union representatives to these criticisms. OBITIOISMS BY EMPLOYEBS. Criticism 1. Lack of responsibility on part of unions ; not only is there no penalty for the breaking of agree- ments, but the employer has no redress even for material damage done by the union, except through legal action against individual members. The reply of the union representatives is: That ex- perience has shown the best guarantees of the observance of contracts to be moral responsibility and regard for the reputation of the union. That the instances of con- tracts broken by unions are few in number, and ineon- 25 siderable in comparison with the number of contracts broken in the business world, where money damages are commonly imposed. That putting up a forfeitable bond would lower the entire plane upon which the observance of contracts now stands, and would simply mean a finan- cial calculation on the part of the union to see whether a breach of contract would leave a balance in favor of its members after the bond was forfeited. That the assump- tion of financial responsibility by the unions would sim- ply be taken advantage of by the employers to harass the unions. Criticism 2. The "closed shop" policy of the unions not only means a monopoly of labor as far as the em- ployer is concerned, but also prevents competent me- chanics, who are unable or unwilling to accept the terms imposed by the union, from obtaining employment at their trade. The reply from labor is that there is no "closed shop," but that the maintenance of the "union shop" imposes no burden on the employer, who is free to employ any workman he pleases provided that the workman will be- come a member of the union, and bear his share of the responsibility in return for the benefits which the union offers to all who work where union conditions have been established. That the conditions imposed upon appli- cants for membership are merely those which every com- petent mechanic can meet, and that they are reasonable from every standpoint and necessary for the protection of the trade. Criticism 3. The unions stand for restricting the out- put of industry, and insist, nevertheless, on the payment of the standard wage for an output which is below stand- ard. The reply is that the unions have never attempted to establish a restriction on output, save as a protection for the health of their workers and to prevent the overspeed- ing of all by the use of pace-makers. That the union is applying merely the rule of ordinary business, where the 26 amount of a given commodity sold is regulated entirely by the price that is paid. Criticism 4. The unions establish a uniform wage- rate for all members, which results in rewarding the in- competent with higher wages than they earn, and de- stroys the ambition of the skilled worker. The labor representatives reply that the standardiza- tion of the wage-rate to a dead level is the work of the employers, not of the unions. That the unions merely establish minimum rates and leave the employers free to pay the individual workman as much more as they please. Some of the employers have admitted that this is true in theory, but insist that as soon as a skilled in- dividual is paid higher than the minimum rate the other members immediately demand the same rate of pay. Criticism 5. The unions establish unreasonable and arbitrary restrictions on apprentices, which not only pre- vent a sufficient supply of skilled workmen, but also pro- hibit the American boy from learning the trade in which he is interested. The unions ' reply is that where restrictions of appren- tices exist, they are not arbtirary, but are, on the con- trary, fixed after careful consideration with the idea of preventing an oversupply of labor in the trades, and the consequent "cut throat" competition for employment. That the employers usually do not make use of the full number of apprentices to which they are entitled under the union rules, and, furthermore, that the employers do not sincerely wish to train apprentices, but on the con- trary, wish merely to make use of a cheap labor supply. Criticism 6. The power of the unions is based, not on reason or on advantages offered to employers, but on a policy of coercion. This statement is denied by the union representatives, who assert that the charge falls flat as soon as the history and organic structure of trade unions are intelligently studied. Criticism 7. The unions use violent methods and do 27 not hesitate to violate the law or to destroy property or life, if necessary to gain their ends. The unions reply that violence is never sanctioned by any legitimate labor organization and is never resorted to by individuals except under severe provocation and in self-defense. They recognize their duties to defend their lives, homes, and families, but, even under attack, exer- cise such greater self-control than the civilized nations. On the other hand, they insist that most of the violence which occurs in connection with industrial disputes is deliberately provoked by the agents of the employers, in order to discredit the unions, or to secure employment or reward for themselves. The testimony of a number of witnesses shows, how- ever, a widespread opinion that violence is the natural accompaniment of disputes where large numbers of men are brought together. Witnesses have stated that there ia a lack of frankness on the part of both employers and employes regarding violence, and that both sides use violent methods whenever it serves their ends. Criticism 8. The business agents and other officials of the unions have too much power, and abuse it by becom- ing blackmailers and grafters.* The reply of the union representatives is that the officials in trade unions possess only the power necessary to transact the business of the unions, and, in fact, have very much less power than the officials of corporations. That this power is seldom abused, and that when it is clear that the charge against a union official is true, and not simply a trumped up charge to weaken the union, there is always rapid and decisive action by the union to punish such an official. That any abuse of power by offi- cials for blackmail or graft is necessarily detrimental to the interests of the union, and consequently can never be regarded with favor by trade unionists themselves. *It is interesting to note that most of the employers who testi- fied with regard to the United Mine Workers, the strongest labor union in the country, greatly deplored the fact that the officials ■were without the power necessary to control the rank and file of the union, or to fix a definite, clear-cut policy. 28 Criticism 9. The action and policies of trade unions are frequently the result neither of reason nor of a purely economic interest, but on the contrary are determined largely by union labor politics. This charge is generally met by an admission on the part of the union officials that unions are subject to the same defects as other democratic institutions, but it is pointed out that the unions have always, at the earliest possible moment, adopted all the measures which have proved of value in the political field to insure actual democracy. They point out that the initiative, referen dum, and recall were adopted by the unions, before they found any general support in the field of political govern- ment in this country. Criticism 10. The unions create antagonism between the employer and his individual employes, and undermine the discipline of the shop. This is denied by the unions. It is insisted that the employer regards any instruction of individual work- men with regard to their rights as an attempt to create antagonism and to destroy discipline. That the employer who makes this point is not interested in the orderly and harmonious conduct of his shop, but in having the in- dividual employes subjugated so they will be entirely subservient to his wishes. Criticism 11. The unions, as soon as they acquire strength of numbers and a compact organization, make unreasonable demands upon employers and imperil the very life of the industry. The union representatives insist that, while their or- ganizations are subject to the frailties of human nature, a careful examination of the facts will show that unrea- sonable demands seldom arise from strong organizations, but, on the contrary, are made by weak unions which hare little to lose by erratic action. Criticism 12. Some unions are disloyal to the state, in that they prohibit their members from joining the militia, and discriminate against men who have serred in the regular army. 29 The unions, in reply, demand the production of specific eases where such action has heen taken; but their repre- sentatives admit that a strong suspicion and aversion to the militia has grown up in the minds of many individual unionists, not toward the militia as a state institution, but as a tool which is used by the employers for their own advantage and for the destruction of the union. Criticism 13. The unions are not sincere in their de- mands for collective bargaining, for, as soon as they have obtained power in any trade or locality, they pro- ceed to make their demands in the form of ultimatums to the employers. The union representatives state that, while in many cases terms are fixed by the union because of the lack of adequate organizations of employers with which to take up such questions, nevertheless, the unions are at all times ready to discuss their demands either with in- dividual employers or any associations directly inter- ested. That wherever the employers accept such condi- tions, it is due to their own apathy in failing to form a proper organization with which the unions can deal. Criticism 14. The union rules are designed for selfish purposes, and make for waste and social inefficiency. As instances, witnesses have cited the rules in the printing industry, limiting the amount and character of work which feeders for pressmen are allowed to perform, and specifying that all plate must be reset by members of the union, even when furnished in usable form. The unions reply that each of these rules, if carefully considered, will be found to be reasonable and to be necessary for the protection of the rights of the employes. That the rules which are most frequently cited as being of an unreasonable character, are those which were originally suggested by the employers for their own in- terest. Criticism 15. The acceptance of union conditions yields the control of many elements of a business to union officials, who are not connected with the industry, and who have no direct interest in its progress and life. 30 The union representatives state that, on the contrary, the control of those elements of a business in which the union interests itself, is in the hands of the employer and of the members of the organization who have the most direct interest in the welfare and prosperity of the industry. Criticism 16. The unions, while asserting their right to control certain elements of the employers' business, are unable to prevent jurisdictional disputes among them- selves, and as a result cause enormous loss to the in- dustry and the public. The reply of labor representatives is, that jurisdic- tional disputes arise inevitably from the rapidly changing character of American industry; that they are more genuinely deplored by the unions than by any one else; and that every effort is being made either to prevent their occurrence or to settle them as soon as possible. Criticism 17. The unions use the "sympathetic strike" ruthlessly, illegally, and to the certain injury of innocent parties who have no interest in the dispute. The unions reply that the sympathetic strike is used, only after mature consideration, for the protection of their fellow employes. That the sympathetic strike is entirely legal, and the so called innocent parties are sub- ject to injury, not by the will of the union, but because of the peculiar economic position which they happen to occupy. Criticism 18. The unions, by using the so called "sec- ondary boycott," are guilty of an illegal act of conspir- acy to injure innocent parties who are neither responsi- ble for, nor interested in, the dispute at issue. The unions reply that it is certainly legal for an in- dividual, or indeed for a corporation, to withhold its patronage for any reason whatsoever, and that it must therefore be equally legal for an association of workers, acting as an entity, to do the same thing. The criticisms outlined above are those which have been presented to the Commission by the representatives of the employers. 31 In addition even more sweeping criticisms are outlined in the following section : OBITICISMS BY SOCIALISTS AND INDUSTRIAL WOKKEES OF THE WOBLD. Criticism 1. Organization on craft lines defeats soli- darity and at times makes labor organizations the tools of the employers. The representatives of trade unions reply that the best justification of the craft form of organization, is to be found in the fact that the unions formed on this basis prospered, while in many cases ambitious attempts to organize without regard to crafts have resulted in com- plete failure. It is further stated that the question of the method of organization is a matter of practicability and the choice of the individual members. Criticism 2. Acceptance, especially by conservative leaders, of the idea that the interests of employers and of labor are the same, makes the existing trade union an ally in the exploitation of the rank and file of the union workmen, as well as of unorganized labor. The trade union representatives state that there is no acceptance of the idea of the identity of interests of em- ployers and workmen, other than the firm belief that whatever advances the cause of the workers and improves their material condition, must be valuable to the . em- ployer by giving more efficient and competent employes. Criticism B. The lack of democracy in trade unions, and the domination by individual leaders, hinder develop- ment of the rank and file and make it easy for the em- ployer to prevent aggressive action. It is said by the labor representatives that, on the con- trary, the trade unions are the most democratic organiza- tions in the world, and that their leaders possess no greater power than is necessary for the conduct of the business of the unions. Criticism 4. The existing trade unions are, with a few notable exceptions, attempts to secure through monopoly 32 all the improvements for the skilled workers, often at the expense of the unskilled. The unskilled workers are therefore regarded as an encumbrance, and no effective attempt is made to organize them. The trade union representatives repudiate these charg- es, and state that their efforts to organize the unskilled are more complete and far reaching than any attempts which have been made by their critics. They insist, more- over, that the one great obstacle to the organization of the unskilled workers into trade unions, is the campaign of opposition which is continually pursued by these very critics. Criticism 5. The trade unions, by neglecting the politi- cal field, fail to use their most effective weapon. The trade union representatives reply that the history of the attempts to use labor organizations for political purposes shows a succession of failures, which have re- sulted in the disintegration of such organizations. That the trade unions urge their members to utilize the ballot for their own industrial interests. Criticism 6. The trade unions, by accepting the philos- ophy that labor is a commodity, attempt only to get the best price for its sale, and are constantly defeated be- cause the employer, by raising the price of the commodi- ties which he sells, is able not only to recoup himself, but to pass the increase to the consumers, the greater number j of whom are themselves laborers. ' The trade union representatives repudiate the accepf tance of any philosophy which regards labor as a conjf modity, and point not only to the fact that in one of t^G recents Acts of Congress they have secured the insertion of a clause denying that labor is a commodity, but aiso to the long list of legislative measures, secured ^y the efforts of the trade unions, which are intended toSpro- mote the well-being of men, women and childrett. \ Criticism 7. The restrictions on membership whijch have been set up by many craft unions, in the form )of high initiation fees and disbarment on account of race 33 and color, are undemocratic and prevent the formation of real solidarity of labor. The trade union representatives answer that the initi- ation fees, as a rule, are extremely reasonable ; that where high fees are charged there is some well grounded neces- sity therefor; that there are comparatively few restric- tions as to race or color, and that by the very necessities of our social institutions, these must be determined in many instances according to the particular circumstances of trades and localities; that excessive fees and racial and other discriminations are the acts of individual unions; and that the overwhelming sentiment, among the rank and file of the trade unions, is unalterably op- posed to the charging of excessive fees and to discrimina- tions undemocratic in character. CRITICISMS OF EMPLOYEES' ASSOCIATIONS. The criticisms outlined are those presented chiefly by trade union witnesses, who, without exception, approved the formation of strong organizations by employers for the purpose of negotiating and maintaining collective agreements. The criticisms were therefore directed al- most exclusively against those associations which do not have trade agreements, and which are conducted on either "open shop" or "anti-union" policies. Criticism 1. Many of these associations, while acting collectively themselves, deny or attempt to prevent the organization of their workers. The reply of the employers is that they do not object to the organization of their workers along proper lines, but that they will not tolerate organizations which inter- fere with the employer's right to conduct his business as he sees fit, or which prevent the free American workman from securing employment under such conditions as he wishes to accept. Criticism 2. The associations are maintained largely for the advantage of paid officials and lawyers, who ere- 34 ate an atmosphere of bitterness and hatred and provoke trouble in order to keep themselves in employment. The employers reply that this charge is untrue, as the associations are voluntarily formed and the officials and attorneys are paid and retained only as long as they fulfill their duties in a businesslike manner. Criticism 3. The salaried secretaries and managers of many of the associations are not themselves employers, and have no direct interest in the industries which they represent, nor knowledge of the existing industrial con- ditions except through hearsay. The employers reply that these secretaries and man- agers are well fitted for the positions which they occupy, and since they merely carry out policies which are dic- tated by practical employers, their lack of contact with industry is of little consequence. Criticism 4. The associations are usually undemocratic in form, and are generally dominated by small cliques who use the organization for their own purposes. The employers reply that the form of organization is that which business experience has shown to be most effective, and that is what is called "domdnaition by cliques" is simply the centralization of power and re- sponsibility. Criticism 5. The employers ' associations are generally ignorant of, and indifferent to, the conditions of the work- men in their own industries, and have no concern for the progress of humanity. Apart from the associations which claim to be active in humanitarian work, the reply is generally made that the organization was effected simply for business rea- sons, as a defense against trade union encroachment, and leaves its members free to carry out their altruistic plans in their own way. Criticism 6. The employers' associations which keep a record of individual employes use such records as a method of blacklisting agitators and active union men. The employers reply that it is entirely legal and proper 35 to keep such records, and to hire men on the basis of their past performances. That this is the only way to avoid favoritism, and can be objected to only by those who seek to secure employment for some purpose other than that of exchanging "a fair day's work for a fair day's wage." That the elimination of the agitator is in the interest not only of shop discipline, but also of indus- trial peace. Criticism 7. The employers' associations which oppose trade unions, boycott the employers of union labor and goods bearing the union label. The employers reply that this action, where used, has been adopted as a matter of defense against the aggres- sions of trade unions. Criticism 8. The employers' associations, by the em- ployment of armed guards and gunmen, not only main- tain a state of feudalism, but also thereby display an attitude of opposition to those branches of the state created for the maintenance of law and order. Further- more, these armed guards and gunmen provoke and cre- ate violence and disorder to put the strikers in a false position before the public, to harass the strikers by in- volving them in unwarranted arrests, or to create and maintain employment for themselves. The reply of the employers is, first, that the employ- ment of the guards in no sense arises from disrespect for the constituted authority of the state, but is made neces- sary by the failure of individual officials to perform their duties. Second, the employment of these guards is a matter of heavy expense, which would not be incurred if it were not necessary for the protection of human life and property, and that the emplojonent of armed guards is the effect, and not the cause, of labor violence. Third, the existence of violence is most detrimental to the property of the employer and the safety of his faithful employes, and consequently it is inconceivable that it should be provoked with the employer's knowledge or approval. Criticism 9. The employers' associations maintain corps of detectives and spies for no legitimate purpose. 36 but simply to spy on the activities of unions, to harass union members and officials, and to provoke strikes at such times as they are sure to be lost. The employers reply that such detectives as are used are employed merely to obtain information needed by the assoications, and that it can hardly be believed that employers stir up trouble among their own employes and suffer the consequent losses and dangers. Criticism 10. The employers ' associations maintain or have access to bodies of strike-breakers, who are not bona fide workmen, but simply a reserve of mercenaries for use in industrial war. The reply of the employers is that the first duty of the manager is to keep his plant in operation, and that when a strike occurs he necessarily secures workmen to take the place of the strikers from the most convenient supply. The maintenance of such a supply of reserves should be characterized only as an example of business foresight. Criticism 11. The employers' association undertakes the support and defense of its members in strikes, with- out determining first whether or not such strikes are jus- tified by existing conditions. The employers reply that this is by no means charac- teristic, and that it would be very foolish for any asso- ciation to follow such a policy. Moreover, even where conditions may apparently justify a strike, there is fre- quently a fundamental principle involved which must be defended by the association. Criticism 12. The associations which advocate the so- called "open shop" are insincere, as this is a device which is uniformly used to eliminate union men and all who are active in the improvement of working conditions and in securing for employes their rights. The employers repudiate this charge of insincerity, and reply that it is true that many employers who started to conduct a genuine "open shop" have found that it is impracticable to employ union men, as they" secure em- ployment only for the purpose of organization, and not 37 to better the condition of themselves of their fellow em- ployes through the proper channels. Nevertheless, where such a change of policy has been adopted, it has been forced by hostile actions on the part of the union men and agitators, and that a genuine "open shop" policy would be resumed, as soon as it could be done without the risk of endangering discipline and loyalty of employes. Criticism 13. The employers use their connection with banks, and other sources of credit, to hold members of the association in line during labor disputes and to compel outsiders to join the association. This is advanced by representatives of labor as an aggravated case of "sec- ondary boycott, ' ' and more oppressive than anything that could possibly be devised or carried out by the unions. The employers reply that such cases are extremely rare, and can be considered only as means of defense adopted as an offset to the unfair aggressive tactics of trade unions. Criticism 14. The members of employers' associations, by manipulating their advertising patronage, exercise un- due control over the press, for both the suppression and the distortion of facts regarding labor matters. The employers assert that where such action occurs, it is done on the initiative of the individual employers and not as a part of the policy of the association. That no as- sociation has sufficient power over its members to control their actions in so vital a matter as advertising, even if it were desired. Criticism 15. Through their social and business con- tact with judges and other public officials, the members of employers' associations are able to influence their at- titudes and actions during industrial disputes. The employers deny this charge, and insist that the in- fluence of labor over judges who are elected is much stronger than any that could possibly be exerted in this manner. Criticism 16. The officials and members of employers ' associations frequently attempt to influence the actions 38 of tinion officials by bribes and otber considerations, aad even when such bribery is known or acknowledged the associations seldom, if ever, remove or discipline the of- fending member. The reply of the employers is that such bribes are generally solicited or secured by coercion, and that it would be unjust to discipline a member who has been "held up" by labor officials. Criticism 17. The employers' associations regularly oppose humane and necessary legislation until it is in- evitable, and, if support is then given, it is only to secure modifications which weaken or destroy it. The employers assert that the attitude of their organ- izations and individual members toward remedial legis- lation is rapidly growing more and more liberal, and they point to their indorsement of such legislation as work- men's compensation acts and safety and sanitation meas- ures. Criticism 18. The employers maintain paid lobbyists, to. obstruct or influence legislation by their connection with individual legislators. The employers state that this is a matter of heavy ex- pense, which would not be borne if experience had not demonstrated the need of having representatives at the state and national capitals to protect themselves against meddlesome, foolish, and burdensome laws. That if there were no labor lobbyists, the employers would gladly avoid this expense. Criticism 19. The employers' associations are fre- quently used to prevent competing firms from entering the same territory. In this action the unions claim that the employers virtually set up the "closed shop," but without the fundamental basis of social progress which underlies the demand for the "union shop." The employers reply that if such a situation exists, it is contrary both to common law and to the Sherman Act and should, therefore, be prosecuted rather than dis- cussed. 39 Criticism 20. The employers' associations are not in- corporated nor financially responsible. The reply is that such incorporation is not necessary, as the individual members can easily be sued, and have tangible assets upon which any proper damages can be levied. Criticism 21. The employers ' associations seldom dis- cipline their members for breaking labor contracts, or for failing to carry out the awards of arbitration boards. The employers reply that the individual firms guilty of breaking such agreements are directly responsible, and that it is the duty of the parties affected to bring suits, in such cases, for the recovery of the proper dam- ages. MEDIATION, CONCILIATION AND ARBITRATION. The testimony presented to the Commission empha- sized the superiority of conciliation over other methods of adjusting labor disputes. Conciliation, we were told, is the practice of representatives of the contending par- ties meeting for discussion, bargaining and settlement of difficulties, without the intervention of outsiders. This method, however, implies strong and disciplined organ- izations on both sides, and it is the almost unanimous opinion of the witnesses that mediation by a public body should be used to the greatest possible extent, especially where such organizations are lacking. The purpose of mediation, it was insisted, should be to bring the parties to a dispute together and to make known the facts in the case. It was suggested that arbitration should be used only as a last resort, and that it should be purely voluntary. Practically every witness has expressed disapproval of any form of compulsory arbitration. With respect to mediation, witnesses suggested that (1) the mediators should be men of the highest caliber, capable of understanding the points of view of capital 40 and labor alike, and having tlie confidence of both. (2) The mediators should act if possible before the dispute has broken into a strike or lockout. (3) Where this is not possible and where they cannot get the parties to con- ciliate, they should have full powers of investigation and should make public the facts regarding the dispute at an early date. (4) In all investigations by the mediators, they should be assisted by representatives chosen by the employers and by the employes. (5) The contact of the mediators with the industries with which they are likely to deal should be as nearly continuous as possible, in order that they may be familiar with the technical prob- lems involved. With regard to arbitration, suggestions were made by many witnesses that where the mediators could not get the parties to a dispute to settle their difficulties them- selves, an attempt should be made to have each side choose an equal number of representatives for a board to arbitrate the difficulties, and that wherever these repre- sentatives could not reach a decision, an umpire satisfac- tory to both sides should be chosen. The testimony of a majority of the employers was in favor of a rule similar to that of the Canadian Industrial Disputes Investigation Act, which prohibits strikes and lockouts pending investigation by the public mediators, assisted by representatives of the employers and em- ployes. Such a law was uniformly opposed by the representa- tives of labor, on the ground that it is entirely in favor of the employer, who utilizes the period of delay to make preparations for breaking the strike. It was also in- sisted that such a law would be in violation of that pro- vision of the Constitution of the United States which prohibits involuntary servitude. There was practically unanimous agreement among the witnesses that the formation of a Federal Commis- sion of Mediation and Conciliation, composed of repre- sentative employers and employes, would be a desirable 41 Step toward the establishment of industrial peace and the protection of the nation from the damage resiilting from protracted strikes and lockouts, with which the in- dividual states seem incapable of dealing. It was im- pressed upon the Commission, however, that the very greatest consideration and care should be given to the organization of such a Commission, and that before all the method of selecting its members should be such as to secure the representation of the interests involved, and the exclusion of politics. JUEISDICTIONAL DISPUTES. A great deal of valuable testimony has been secured from experienced witnesses with regard to the causes and best methods of avoiding jurisdictional disputes. Elaborate and detailed statements with regard to the various plans which have been adopted are in the posses- sion of the Commission. The testimony is that such disputes arise largely from two causes: First, and principally, through the rapid evolution of industry, which brings about changes in the methods of doing work and in the materials used, more quickly than the unions are able to adapt themselves; second, from too great subdivision in the various trades, which brings about conflicts over minute points. The methods which have been suggested for avoiding jurisdictional disputes have been along two principal lines : First, the creation of boards composed of employ- ers and employes, before which such questions can be decided on their merits, and by which the necessary "give and take" which is involved in such negotiations can be reasonably and fairly adjusted ; second, the amal- gamation of trades which handle the same materials, or which work with essentially the same tools. Evidence has been presented to the Commission show- ing that both of these lines are being rapidly developed throughout the country, and are meeting with almost uniform success. 42 WOEKMEN'S COMPENSATION. It is noteworthy that all witnesses who have appeared before the Commission have expressed their strong ap- proval of Workmen's Compensation, and that by far the strongest praise for such legislation has come from the employers and workers in those states in which it has actually been tried out. Witness after witness, who ad- mitted that in the beginning he was either skeptical or bitterly opposed to such legislation, has testified that its results have been for the benefit of both the employer and the employe, and that it has imposed no burden upon the industry. . UNEMPLOYMENT. A great number of witnesses have touched, in their tes- timony, on various phases of this problem. Every wit- ness who has discussed the question has pointed to its grave significance as one of the most important problems with which the country has to deal. It is a striking fact that this question is a more acute issue on the Pacific Coast than in the older sections of the East. Nevertheless, in every community that the Commission has visited, the witnesses have expressed great concern at the tremendous amount of suffering that is caused by unemployment, and have pointed out the serious menace to society constituted by the presence of a large body of unemployed men. Witnesses testifying on this subject agreed almost unanimously that the first step in any program of deal- ing with unemployment must be the creation of a national system of labor exchanges, along the lines suggested in the tentative proposals for such exchanges which were prepared by the Commission and distributed among the witnesses for their comment and criticism. It was brought out that efficient labor exchanges would eliminate unnecessary idleness, and in addition would 43 afford the information, wMch is not now available, for properly handling the unemployment inevitably caused by seasonal trades, casual labor, industrial depressions, and changes in the machinery and processes of industry. SUBJECTS REQUIEING FURTHER HEARINGS. There are a number of important problems upon which data have not yet been obtained, or in regard to which the testimony is inconclusive, and plans have been perfected for continued investigation and further hearings to cover the same, as follows : 1. Industrial conditions and relations between employ- ers and employes in the large unorganized or poorly or- ganized industries, such as lumber, steel, textiles, and sugar refining. 2. Industrial conditions and relations between employ- ers and workmen on railroads and other public utilities. 3. Agricultural conditions. 4. Labor and the Law. 5. Centralization of the control of industry and alleged domination of social institutions by capital. 6. The problems of women and child labor. 7. Interstate competition. 8. The policing of industry during industrial disputes. 9. The administration of labor laws. 10. Social insurance against accident, sickness, and unemployment. 11. Safety and sanitation. 12. Profit sharing. 13. Immigration. 14. Prison labor. 15. Relations of government institutions to their em- ployes. 44 TENTATIVE PROGRAM FOR FUTURE HEARINGS, j I. Centbauzation and Contkol of Industet. 1. New York. a. Control of industry through stock ownership and interlocking directorates. , b. Relations of capital to private institutions | which deal with industry. II. Manufacttjeing Indttsteies. 1. Chicago. I a. General problems of manufacturing indus- | tries. ' b. The Structural Iron Workers. 2. Indianapolis, — (also mining) Birmingham, — (also mining) Atlanta. 3. Boston, Pittsburg, — (also mining) Detroit. III. Mining Industeies. 1. Chicago — General problems of mining industries. 2. Denver. 3. Wheeling. 4. Calumet. IV. Raileoads and Other Public Utilities. 1. Chicago. a. General railroad problems. b. The strike on the Harriman lines. c. The telegraphers. d. The Pullman Company. e. Street railways. 45 v. Agbicultxjbe and Land Problems : 1. Chicago, St. Louis or Kansas City, and "Washing- ton. (In addition, important witnesses will be heard in other cities.) a. Working and living conditions on farms. b. Seasonal labor. c. Tenancy. d. General land problems. VT. Labob and the Law. 1. Chicago and Washington. a. The law governing industrial relations. b. The interpretation of the law by the courts in industrial matters. c. The cost and difficulty of securing justice under existing laws and court procedure. d. The administration of the law by public offi- cials and police. VII. Special Subjects. 1. Washington. a. Administration of labor laws. b. Smuggling of Asiatics. c. Immigration. d. Safety and sanitation. e. Women and child labor. f . Social insurance. g. Interstate competition. h. Relations of govenmiental institutions to their employes. 46 RESEARCH AND INVESTIGATION. The preceding statements serve to show the lines of in- quiry which have been pursued in the Public Hearings of the Commission, and to indicate the character of the results which are being secured from that source. In certain subjects, however, the method of public hearings cannot well be applied, while in others it is neces- sary to supplement the broad results of the hearings by the detailed methods of research and investigation, A comprehensive statement of the many fields in which the Commission's investigators are at work, alone or in co- operation with other organizations, would unnecessarily burden a preliminary report. It seems sufficient merely to state the principal lines of inquiry which are being pur- sued and to indicate the character of the results which are being secured. TEADB UNIONS AND EMPLOYEES' ASSOCIA- TIONS. The most striking feature of the industrial field is the existence of labor organizations, embracing millions of workers, and associations composed of thousands of em- ployers who control unnumbered millions of dollars. In many ways this is also one of the most hopeful features, for almost without exception these organizations are vol- untary associations formed for the purpose of dealing with the industrial problems which confront them. It is true that many bitter contests have arisen between these very organizations, but, nevertheless, where indi- viduals have reached the point of definite organization to grapple with their problems, there is formed a basis on which to work hopefully for their solution and the ad- justment of existing difficulties. Out of these industrial conflicts between organizations have sprung understand- ings which make for peace and agreements which stand for progress. 47 EXTENT AND GROWTH. The first questions wMcli will naturally be asked are : How extensive are these organizations, how completely do they embrace the employers and workers of the country, and how rapidly are they growing? In order to answer these questions, the Commission is making a comprehensive survey of all the organizations in the industrial field, which survey is bringing together in concise form the most exact statements and estimates that can be secured. FORM AND ORGANIZATION. The next questions relate to their form and organiza- tion: How is their membership selected, how do they elect officers, what are the powers of their officials, what are the dues and other charges, and a hundred similar questions dealing with their detailed characteristics. It would be impossible during the life of the Commis- sion and with the funds available to make a complete de- tailed study of the thousands of organizations which exist in the industrial field. Furthermore, such a comprehen- sive study is unnecessary, as hundreds of the organiza- tions are exactly alike in every material characteristic. We have therefore limited this study to those national, state, and local organizations which represent the prin- cipal types. PURPOSES AND METHODS. The two lines of inquiry just described are designed to show the size and make-up of these organizations, but there is a third line of inquiry which deals with a much more vital question, namely, the actual methods and pur- poses of such organizations, as manifested in their dec- larations and their actions. This is a difficult subject, but for that reason it is all the more important that it should be covered with thoroughness and impartiality. Against many of these associations and unions grave 48 charges have been laid before the Commission. It is only by the most painstaking, impartial, and unrelenting ex- amination that the facts with regard to such charges can be developed, and such an examination we are now pro- secuting. The charges and counter-charges hitherto set forth in the chapter upon Public Hearings are, therefore, wherever necessary, the subject of research and investiga- tion by the staff of the Commission. TEADE AGREEMENTS. Another great question presented in connection with these organizations of employers and workmen has to do with their relation and the basis upon which they deal with each other. The method by which the relations between such organ- izations are maintained is commonly known as "collective bargaining." This term embodies and implies the right of employes to organize and to exercise those functions which are necessary to make organization effective, to make bargains collectively rather than individually, and, most important of all, to have a definite recognized voice, co-equal with that of the employer, in determining the wages, hours, and working conditions upon which their safety, health, and lives are dependent. The Commission has found that it is a subject largely hidden and greatly confused by prejudices and hatreds engendered through years of industrial struggle. The claim of the unions that organization has resulted in higher wages and better conditions, while generally ad- mitted by many of their bitterest opponents, is met with strenuous insistence on the part of some employers that these betterments have come about in the natural order of economic development. Fortunately, there are many examples of collective bar- gaining in the United States to-day that afford ample room for conclusive study, both through the testimony of experienced witnesses, and through the work of trained investigators. Among them may be mentioned the great 49 joint agreements that are periodically renewed in the coal fields, covering in minute detail and with business-like exactness the wages, hours of labor, and general condi- tions of employment ; the several remarkable agreements in the printing trades ; the protocols that govern the gar- ment trades in New York and Chicago; the wage scale agreements of the maritinae unions; the agreements be- tween the railway companies and the railroad brother- hoods and organizations of shopmen; the agreements that exist in the glass, pottery, and stove foundry industries, and between employers' associations and trade unions in the building trades ; and the innumerable other agree- ments which exist in practically every trade and industry that has a labor organization within the United States. The Commission is making a survey of all the examples of collective bargaining that have been mentioned and many others, with a view to ascertaining their effective- ness in the promotion of industrial peace, not failing to put emphasis upon the question whether these forms of collective bargaining carry with them guarantees of per- manence and responsibility, not only from one class to the other, but to the people as a whole. Inquiry is also being made into the comparative results and desirability of various methods of wage payment, notably day-wage basis, piece-rate basis, task systems, and the various bonus systems, which are either demanded or specifically rejected by these agreements. CONDITIONS OF UNORGANIZED LABOR. The Commission realizes that all wage workers are not organized; that there are thousands of workers outside the unions, where individual bargaining prevails. The conditions in these unorganized employments are being carefully studied. The task of the Commission in this field has been sim- plified by the large number of exhaustive reports that have been made by responsible Government bureaus. The material in these reports is being assembled and digested 50 by the research force. In many oases, however, a great deal of original investigation by the Conunission's agents has proved to be necessary. In connection with the investigation of these unorgan- ized industries, special attention is given to the reason for this lack of organization, in order to discover how far it is due to genuine aversion to organization, bow far to apathy and ignorance, and how far to fear of active op- position on the part of the employer. There can, bow- ever, be no question that one of the contributing causes of industrial unrest is the conviction of labor that lack of organization makes inevitable inequality between employ- ers and employes. SCIENTIFIC MANAGEMENT. Scientific management in connection with industry has come to be one of the live issues of our times. In the hearings before the Commission, tbe exponents of vari- ous systems displayed the most diverse opinion as to the aims, methods, and results of the plans that are actually in use. Similarly, tbe representatives of organized labor, while openly critical or definitely antagonistic to tbe gen- eral purposes of tbe plans, are by no means agreed on tbe specific points to which objection is made. The union men testified that scientific management is nothing more than the old piece-work and task systems, and tliat it is used to break down organization. The Commission feels tbat it is putting tbe issue fairly, by stating that it is the contention of tlie scientific man- agers, as a rule, tbat unionism is incompatible with scien- tific management and the highest productivity. The unions' contention is tbat the so-called scientific manage- ment is not truly scientific, and that it is incompatible with the welfare of the workers. Other witnesses testified that it is not only possible, but desirable, to combine collective bargaining with scien- tific management, by giving both sides an equal voice in fixing tbe conditions of employment. 51 Where there is such great diversity of opinion, it is evident that the ease does not permit either of sweeping approbation or of condemnation, but that it is rather a case where the most careful analysis must be used to separate the good points from the bad, in order that whatever is of value may be retained and perpetuated, and whatever is evil in its industrial or social results may be eliminated. The Commission is investigating this subject with competent experts. MEDIATION, CONCILIATION, AND ARBITEA- TION. The intention of the Commission to put emphasis on the study of the prevention of industrial disturbances, makes it very plain that large time and attention must be given to the ideas, the plans, and the machinery for medi- ation, conciliation, and arbitration, that have already been devised and tested. The lives and money lost to society by the lamentable conflicts of Colorado, West Virginia, and Michigan, to mention no other, point clearly to this as a pressing neces- sity. As has been previously stated, the testimony which has been presented to the Coromission at its hearings, not only demonstrates the great need for social machinery of this character, but indicates clearly the general lines upon which it must be built to be successful. The de- tailed study of the various plans that have been tested both in this country and abroad, is, however, being pur- sued both by research and investigation in order that the Commission may have the benefit of all existing experi- ence, and in presenting its proposals may be assured that every feature has been rigorously proved to be useful and practicable. 52 WOMEN AND CHILDKEN IN INDUSTRY. An economic revolution has thrown many thousands of women and children into industry, and this influx has compelled many changes and produced new industrial conditions. Owing to the multiplicity of interests in- volved and the prejudices that have been engendered by impassioned controversies, there are few questions that offer such difficulties to impartial approach as those re- garding women and children in industry. At our hearings it has been claimed that women today labor under economic, political, and industrial disabilities, and that many states are notoriously remiss in the matter of giving protection to women and children. The Com- mission is therefore making a detailed study of those in- dustries and occupations in which women or children ,are largely employed, such as the textile trades, garment trades, and department stores, in order to determine how far these charges of oppression, injustice, and exploita- tion are true. The Commission feels that there is important work to be done in establishing the facts in connection with the employment of women and children in industry, in fixing the responsibility for the conditions that may exist, and in suggesting to the public the most practicable and effect- ive means that have been devised for dealing with this question. THE ELIMINATION OF HUMAN WASTE. Not the least important of the many questions with which organized society has to deal, is that of seeing that every human being is given the fairest possible chance in the struggles of life. The study of this problem car- ries us to the schools. The experience of employment agencies and labor exchanges is proving daily that even where men and jobs are brought together, there is still a large supply of labor that does not lend itself to profitable 53 use. ^ There seems to be an ever-increasing class of unfits and inefficients, and our inquiry is developing the fact that a principal cause is the lack of practical prepared- ness for the duties of life. On every hand there is agree- ment that education must be stripped of its purely academic emphasis and brought into closer and more helpful relations with the business of living. The question of vocational guidance and training has come to be overwhelmingly important. Investigation of the great body of unemployed who were found drifting from one part of the country to another, has shown that a very considerable percentage of them have become tramps because they were never taught in youth to per- form any kind of work properly. Consequently, when they left the school they drifted from one job that led to no advancement, to another, and finally lost their desire to be of real and substantial use in the world. Organized society is responsible for this condition of affairs and must find an adequate cure. In the relation of this subject to industrial unrest, we find a growing feeling that not only education but the school itself, is capable of, and should be made to pro- vide, a wider and richer use for the people of our nation. May it not also be well to give training to workers dis- lodged from industry by ill health or new machinery? How far may the schools deal with adult delinquency and dependency by installing systems of medical inspec- tion that will discover defects and deficiencies, in the interest of the best possible physical equipment for every person that passes through the public schools of the United States? Besides the children who are led ignorantly into indus- try, overcrowding certain occupations and leaving others unsupplied, there is also the problem of vocational guid- ance for immigrants. The quick and healthful assimila- tion of those who come to us from other lands is essential to national peace and prosperity. While this bears some- what upon the question of intelligent distribution, it is not 54 to be doubted that our educational system can be made to serve adults during the struggle for prosperity and citizenship. AGEICULTURE AND LAND PROBLEMS. The investigations and hearings of the Commission have already established that iudustrial unrest has ex- tended to agriculture. In the recent strikes among agri- cultural laborers, in the increasing irregularity of their employment, in the growth of farm tenancy, and the ap- pearance of tenants' unions, we see grave menace to the sound agricultural base that has been so essential to American prosperity. The contention that tenancy is a step to ownership is met by the report of the last census, which showed that 37 out of every 100 farms are in the hands of tenants, and that the number of farms operated by tenants increased more than 16 per cent from 1900 to 1910. During the same period the increase in farms operated by owners was but 8 per cent. We are warned that a gradual alienation of the worker from the land is taking place, and this, it is suggested, is true not only in the country but in the cities as well. In proof of this contention, our attention is directed to the increasing price of land, which makes it more and more difficult for a poor man to acquire a farm or home, to the large holdings in the hands of corporations and individuals, and to the growth of a large class of roam- ing, homeless, agricultural and casual laborers. In Cali- fornia, testimony was given tending to show the menace to family life in the land situation of that state. In one school district of 110 square miles, it was charged, there are but 40 children. Another of 102 square miles has 47 children. One of the most fertile valleys in the world, said the witness, a school district of 88,564 acres, has but 19 children, or one child to 4,661 acres, and still another of 186 square miles has no children at all. 55 To the cry "Back to the Land" is suggested the coun- ter appeal "Get back the Land." The Commission is investigating these questions of land tenancy, farm labor, land ownership, speculation, and taxation as affecting industrial conditions and relations. The foremost au- thorities on these questions in the country are being called to aid the Commission in this fundamental work. UNEMPLOYMENT. The question of unemployment is one of the most im- portant that we have to consider. The Commission is convinced that quite a large measure of unemployment is due not to lack of work or unwillingness to work, but to a wretched and outworn system of labor marketing. Nothing comes more clearly to the Commission than the imperative necessity of organizing the market for labor on a modern business basis, so that there will be no vacant jobs and idle workers in the same community at the same time, or within distance where transportation is practicable. This problem is work for law-makers, social engineers, practical employers, and experienced workers, who will plan the machinery for the right ad- justment of the supply and demand in labor, so as to reduce idleness to a minimum. The first task was to study employment agencies, both public and private, in order to find out the character of their work and the methods of reorganization necessary to put them on an efficient and adequate basis. This has been done and the report of our findings and recommen- dations on this subject will in due course be submitted to Congress. In order to ascertain public opinion upon this subject, the Commission had its staff prepare a tentative pro- posal for a national system of labor exchanges. Printed in pamphlet form this proposal was submitted to persons and organizations interested in the subject throughout the nation. Many helpful criticisms and suggestions were received from employers, workmen, trade unions, employ- 56 ment agents, public officials, and private citizens. The consensus of opinion is that legislation of this kind is an immediate necessity. The tentative proposal was also submitted to the Con- vention of the American Association of Public Employ- ment Offices, composed of officials in charge of employ- ment offices all over the country, and after thorough dis- cussion this association approved the principles under- lying the proposal and suggested some amendments. A revision of the tentative plan has now been made in the light of the criticisms and suggestions received. The plan proposes to establish a Bureau of Employ- ment in the Department of Labor, which would co-oper- ate with state and municipal employment offices, regulate private agencies doing interstate business, and establish clearing houses for distributing information and uniting all labor exchanges into one national system. How the detailed machinery for organizing such a system of labor exchanges can be worked out, and what methods need to be adopted for distributing labor throughout the country, will be described in the f orthconaing report on this special subject. At the New York hearing, an inquiry was made into the condition of the 40,000 men on the docks of New York City. In this industry, it was developed, workers are hired each day, often several times a day, and by waste- ful, inefficient methods. The system of casual labor by which men are hired for a few hours a day, a few days a week, is filled with menace, not only to industry, but to American institutions. From casual and infrequent labor, it is but a step to practical vagrancy and a general disintegration, and out of these despairs and revolts seri- ous dangers threaten organized society. The Commission is investigating dock work, and has had investigators follow the harvest, studying the irreg- ularity of employment in agriculture. Similar investi- gations are being made iu railroad construction and lum- ber eamps; also in the packing industry, where within 67 comparatively few years the system of hiring has been changed from the week to the day, and from the day to the hour or piece. The Commission is investigating the problem of what is known as the "turnover" of the labor force in order to find why so many employes are hired during the year to maintain the normal working force. We have already largely completed a study of seasonal employment in the clothing trades, and we shall offer suggestions in a later report for regularizing employment. Juvenile employment exchanges in coimection with our school systems are being studied, the feeling being that industrial training and vocational guidance should be sup- plemented by such supervision as will guard youth and inexperience against exploitation, idleness, and "blind- alley" occupations. SOCIAL LEGISLATION. Even granted that an absolute equality in bargaining power be ultimately achieved, it must always remain the case that from unavoidable sickness, injury, orphanage, and other causes, there will be a more or less steady stream of human wreckage. If the term "social insur- ance" has come to be almost a catch- word, it is because the eagerness to serve is very close to the heart of the world. Welfare work is seen on every hand and it is the very extent and sweep of the movement that makes de- mand upon our attention. It is not to be forgotten that while the care of the weak, the sick, the old, and the father- less constitutes an appeal to all the finer qualities of man- kind, there is also a phase of the question that is entirely selfish, and which can be translated into dollars and cents. The workmen's compensation act in the several states where it has been adopted, has proved that humaneness can be made to pay. The whole problem of social legislation as it now presents itself to the Commission divides into two parts : Prevention and insurance. What would be thought of a 58 community that insured against typhoid fever without en- deavoring to discover the source of the poisoned water supply? A necessary preliminary to social insurance is to make every effort to do away with the need of it. Pre- vent the debilitating effects of fatigue and a blow is struck at illness and poor health. Prevent 'accidents, by strict insistence' upon safety appliances and effective in- spection, and there will be an instant lessening of the nec- essity for workmen's compensation, mothers' compensa- tion, and accident insurance. Arrest the deteriorations of sordid poverty, monotony, and despair, and a finer, hap- pier citizenship will result. The Commission, working in conjunction with the United States Public Health Service, is preparing a na- tional sanitation program, and is co-operating with the National Council for Industrial Safety on a national safety program. "We believe both to be measures of great preventive value. Several states have industrial welfare commissions that are completing very thorough studies of many of these questions. This fund of facts is being utilized by the Commission. The regulation of the hours of labor by statute also is being examined in order that a practical report may be made on the effect and scope of legislation. Our investigations are going deeply into the welfare work administered by the national government, states and municipalities, private employers, commercial bodies, labor organizations, fraternal societies, and insurance companies. It is one of the principal functions of this Commission to assemble, in the most convenient form, authoritative statements regarding the character and results of social legislation of all kinds and experiments along these lines, in the United States and in foreign countries. In Europe and Australia there have been many experi- ments with old-age pensions, and insurance against un- employment, sickness and invalidity. The Commission appreciates that industrial conditions in these countries 59 are widely different from those that obtain in the United States, and in all our investigation and analysis their ap- plicability to democratic institutions is borne in mind. In the United States, twenty-five of our states have written into law the principles of workmen's compensa- tion. Without hesitation, upon the evidence already sub- mitted to the Commission, we affirm the beneficent results of such legislation, and believe that such legislation has been effective in bringing about better and more friendly relations between the employer and the worker, and a greater degree of contentment in the family life of the nation. The facts in support of this statement, together with the findings in connection with other forms of pre- ventive legislation and insurance, are being assembled and will be presented to you in due form. INTERSTATE COMPETITION. In connection with its consideration of the develop- ment and possible extension of social and industrial leg- islation, the Commission has been confronted by a funda- mental question, arising out of the fact that practically all such legislation in the United States is enacted by the separate states. It has been repeatedly set forth before the Commission that the employers in states which have adopted advanced social .and industrial standards are seriously hampered in their competition with employers whose plants are located in states which pay little at- tention to the health, safety, and welfare of their workers. It has been urged that this competition has resulted in hampering the industrial development of the states with the highest standards, and that the logical outcome of such a situation is the removal of manufacturing es- tablishments to those states which pay least attention to the welfare of their working population. The serious character of such interstate competition is perhaps best exemplified in the recent petition of the Legislature of the State of Massachusetts to Congress, that the Fed- eral Government should take cognizance of this feature 60 of American industrial life, in order that the manufac- turers of Massachusetts might be placed more nearly on an equal plane with their competitors in other states. The Commission by no means accepts these conclusions, but, appreciating fully their serious and far reaching bearing upon the development of the country, is prose- cuting a searching inquiry to determine their truth. The Commission feels that it must ascertain and inform Con- gress and the country generally, whether or not it is true that the adoption of advanced industrial legisla- tion by a state subjects its manufacturers to ruinous competition from employers in other states. LABOR AND THE LAW. By reason of traditions, deep rooted in reverence and respect, a justifiable hesitation is bound to attend any critical approach to the law of the land, and the admin- istration of law by the courts of our nation. This task, however, is one that the Commission finds inescapable, for not only is it plain that the industrial conflict is inseparably connected with the law and law enforcement, but it is also a fact that both parties to this conflict are coming to be possessed of a very definite distrust, and, at times, positive hostility, to those institutions that should have the respect, support, and confidence of every citizen. The assertion is made repeatedly that property rights have been put above human rights; that labor before the law is treated as a commodity; and that the law and the courts lose sight of the fact that labor "cannot be disassociated from men, women and children. This is summed up in the phrase used by many workers, "There is no justice in our courts for the poor man. ' ' An imposing array of matter has been submitted tend- ing to prove that the right to the writ of habeas corpus has often been denied ; that the freedom of the press and of speech has been restrained and -at times prohibited; and that the courts have sat idle while armed forces 61 stripped the citizens of constitutional guarantees that are presumed to be inalienable. In support of the contention that the workers have borne the brunt of the restrictive attitude of the courts towards legislative activities, is alleged the nullification in recent years of many laws designed to protect the lives and rights of miners, to provide proper compen- sation for industrial injury, to guarantee the right of organization, to forbid the blacklist, to do away with "pluck-me" stores, and to regulate the length of the working day. Another distinct source of bitterness is the conviction that poverty creates inability to enforce undisputed rights. Not only do the processes of the courts, with fre- quent postponement, long delays, intricate technicalities, and numerous appeals, make it impossible for the poor man to pursue his rights, but it is claimed that thou- sands of workers are of necessity ignorant of the law and unable to hire a lawyer, or that the amounts out of which they are swindled are often too small to pay the expense of a suit. Many employers are equally insistent that the law, the police, and the courts have ceased to give them the proper measure of protection in their property interests. The law, they say, is being rapidly shaped to serve the sel- fish interests of the working class; the police, under the alleged domination of the unions, refuse to arrest strikers even when they openly commit crimes; and the courts, moreover, are becoming more and more sub- servient to the workers. The employers, these witnesses have stated, feel no confidence that they will receive jus- tice from those courts whose judges are elected by, and are therefore directly subject to the demands of, the work- ing people, who constitute a majority of the voters. In fact, they say, the employers feel that they uniformly receive a fair measure of justice only in those courts, such as the Federal tribunals, whose judges are ap- pointed for life. 62 Furthermore, in their impatience with the ordinary processes of law, some individuals, employers and em- ployes alike, have asserted publicly their intention to pursue extra-legal or even illegal means to gain their ends, and have professed a contempt for, or hostility to, existing government. As striking instances of the dangers to which such attitudes will inevitably lead, certain incidents which occurred in the hearings deserve mention. In Paterson, New Jersey, for example, one witness speaking for the Industrial Workers of the World, stated that if, in the opinion of his organization, a strike could be won by blowing up a mill, they probably would not hesitate to do it. Balancing this, rich, respectable, and influential citizens of the same city, stated the belief that the authorities were fuUy justified in going beyond the letter of the law in order ot get rid of agitators, and that the good to be gained for the community by stop- ping disorder, and instigation to trouble and stoppage of work, justified this denial of the rights of individual liberty and freedom of speech. Consider also the testimony in New York City of an official representative of the Industrial Workers of the World, that his organization looks upon the Government simply as a committee to look after and police the in- terests of the employing classes, and that his organiza- tion would not hesitate to use violence, wherever they believed it would genuinely advance the interests of the workers. From a different point of view, but in the same spirit, one of the largest shipbuilders on the Pacific Coast, de- nounced the executives, legislators, administrative offi- cers, educators, the pulpit, and the press, declaring that the country is drifting to a state of anarchy compared to which the propaganda of the Industrial Workers of the World is preferable. "We will rise in counter revolu- tion," he said, "we will fight you, we will destroy you if it comes to that. It is coming to civil war, gentle- men, and we will fight. I am ready. ' ' 63 It is obvious, we believe, tbat the growth of such a spirit must be studied and analyzed with a view to its eradication in the interest of society. Is it the case that legal machinery, designed to in- sure equality and justice, is no longer applicable to econ- omic conditions, or does the trouble lie in amazing ignor- ance of the law and failure to understand the meaning of inalienable rights of person and property? Is there need of changes, improvements, and adaptations, or must entirely new legal machinery be devised for the control of industry? The greatest legal minds in the United States are fully conscious that these questions are being asked and must be answered properly, and many have expressed a willing- ness to aid the Commission in every way in their power. ILLEGAL ENTRY OF ASIATICS. The investigation of this subject was made a special feature in the law creating the Commission. A vast amount of work upon this subject has been done by the Commission's investigators and through the medium of executive hearings. This inquiry is almost completed and in a short time the Commission will present its report with such suggestions as are deemed applicable to meet the situation. FUNDAMENTAL PEOBLEMS. Great as is the task of studying the problems already reviewed in this report, they do not exhaust the duties which we feel have been placed upon us by your Hon- orable Body, for underlying all industrial unrest and dis- content there are fundamental causes, which, if ignored in any recommendations which we submit to you, would make our proposals useless and hopeless. Statesmen, economists, sociologists, employers, and workers have been concerned with certain of these underlying causes ever since the industrial reorganization brought us more 64 or less permanently employing and wage earning classes. The experience of these men and women, and their theories as well as the facts, must be studied in order to gain an adequate conception of the causes and effects of such fundamental phenomena of modern economic life, as the changing distribution of wealth, the world-wide rise in prices and the cost of living, the movement of popu- lation from rural to urban centers, the ever-increasing invention of labor-saving machinery, the discovery of new industrial processes, the almost rhythmical recur- rence of prosperity and depression, the development of great industrial and financial corporations, and the in- creasing influence of the working class. What is the meaning of the organized array of em- ployers and workers? Is it a temporary phenomenon, an accidental growth, or does it have its roots in the needs of modern economic life? Must we foster the growth of such organizations in order to insure equal protec- tion of the law, a just distribution" of the product of in- dustry, improved American standards of living, and an equitable division of the benefits and the burdens of government and taxation? Or must we, as some suggest, look to the gradual de- cline of these organizations and to the development of new agencies for maintaining peace and friendly relations between employers and employes, and justice and pros- perity to all classes- of our people? Again, do these unions and employers' associations mean a constant and ever growing industrial war? Are we to have increasing class conflicts, or is the organization of labor and capital to be our armament for insuring industrial peace? These are some of the grave and fundamental ques- tions which have been submitted to us by the act of your Honorable Body. They require the earnest and patient attention of this Commission and the hearty coopera- tion of the American people. 68 SUMMARY AND PROGRESS TOWARD FINAL RECOMMENDATIONS. The foregoing report has considered the work of the Commission separately under the two divisions of Public Hearings and Eesearch and Investigation. Both divisions are directed toward laying foundations for the recom- mendations which the Commission is called upon to make. It remains to summarize, at this point, the progress that has been made, and the present position which the Com- mission has reached in bringing together the two lines of work and formulating recommendations. Different degrees of progress on different subjects have been made in this work, mainly dependent upon the amount of material available and the extent of preced- ing investigations upon which the Commission and its staff have been able to draw. This accounts for the order of arrangement of the several subjects presented in the following pages, not necessarily in the order of their im- portance, but in the order in which the Commission ex- pects to make its recommendations. It is intended to make separate reports on each subject as rapidly as this can be done, consistent with necessary care and caution. In preparing the way for this final result, the Com- mission has taken pains to submit its recommendations to persons throughout the country who are known to have knowledge and experience in the several fields, or who will be affected by any federal or state legislation that might be enacted on the basis of such recommendations. At the beginning of its work, the Commission, with the assistance of its staff, proceeded to make a comparison of laws and practices in this and other countries bearing on industrial relations, and on that basis, after prelim- inary investigation, draw up such tentative recommenda- tions as could be drafted as a preliminary working scheme. These preliminary drafts have been used by the Com- 66 mission in conductiag its hearings and by the investi- gators of the Conunission, and have been submitted to individuals as above stated. In this way, both the hear- ings and the investigations have been gtiided from the first toward the main duty of the Commission in making recommendations that shall be practical, effective and fundamental. 1. Labok Exchanges. , Preliminary draft of measure printed and circulated, many suggestions and criticisms received, designed to build up a uniform system of federal, state, and muni- cipal free employment offices, and a system of supervi- sion of private offices. It is expected to submit this re- port about the first of January, 1915. 2. Ijstdtjsteial Education, Vocational Guidance, Ap- prenticeship, AND COOEDINATION WITH ChILD LaBOB LaWS. These subjects have been prominently before the na- tion for some time, and certain features designed to fur- nish standards and a proper coordination of all agencies dealing with the industrial training of minors, have been brought together by the Commission, with the expectation of submitting recommendations not later than January 1, 1915. 3. Safety, Sanitation, Health of Employes, Admin- ISTEATION OF LaWS EeLATING ThEBETO. These subjects have also become so prominent and their efficient administration is so generally approved that the Commission will be able, after hearings and conferences with the officials concerned, to present recommendations providing for the coordination and cooperation of all agencies, federal, state and private, now dealing with the subjects, and the means for establishing uniform standards. 67 4. Smuggling of Asiatics. The Commission is engaged upon the details of meas- ures and recommendations, as stated in the body of the report. 5. Mediation, Conciliation and Aebiteation. The Commission has sent out a preliminary draft on these subjects and has received almost universal appro- val of certain principles contained therein; but the pro- nounced conflict of interests, the uncertainty of the evi- dence on the details of every measure considered, and the supreme importance of the subject, make it neces- sary for the Commission to devote considerably more time to working out the details of its recommendations. 6. Woman and Child Labor, Minimum Wage, Hours OF Labor. Legislation on these subjects has been adopted in many states, but it is discovered that the serious questions in- volved are the standards, the administrative machinery, and the effect on industries engaged in interstate com- petition. Formulating recommendations on these com- plex subjects will require considerably more time. 7. Agriculture and Farm Labor. The Commission has covered these subjects so far as the question of labor exchanges is concerned, and its recommendations under that subject will include agri- cultural labor. But the fundamental and far-reaching subjects of tenancy, organization of tenants and labor- ers, opportunities for advancement, and generally the measures needed to counteract or change the current of labor movement from the country to the city, will re- quire much further investigation and hearings. 68 8. Social Insueance, Especially Wobkmen's Insxje- ANCE, Sickness and Invalidity Instjeance.. Workmen's insurance has been so widely adopted, but witb such material differences in the laws of different states, that the recommendations of the Commission are based mainly on analysis and comparison of the laws and the discovery of the most effective and economical features that should be adopted in state and federal leg- islation. By means of this study a beginning has been made on the subject of sickness insurance and benefits, as now widely adopted by many corporations, with the view of building recommendations upon existing sys- tems. The United States Public Health Service is co- operating with the Commission. 9. Laboe and the Law. The fundamental rights and duties of employers and employes, whether expressed in the individual labor con- tract or in collective bargaining, whether interpreted by the courts, by martial law, or by police authorities, are so complex that the Conunission, notwithstanding a large amount of work already done, will not be able to make recommendations for some time. Out of a conviction that dispatch is an imperative need, the Commission has decided that its activities can- not be permitted to wait upon some complete and final report. From time to time as our investigations reach the point of findings, we will transmit them, together with our recommendations, to your Honorable Body, for such action as may meet your approval. In conclusion, the Commission feels it right and proper to call attention to the magnitude of the task that has been assigned to them. As has been pointed out, the industrial conflict has a multiplicity of phases, and it cannot be expected that the Commission, a small body of our citizenship, can cover all questions that may be 69 of substantial interest npon this great subject. Tbe original Act of August 23, 1912, established three years as the life of the Commission. By reason of delays, over which we had no control, this time has been cut to one and one-half years. We hope that the record of the operation of the Com- mission for the first year may be taken as an earnest of our faithful endeavors. It must be obvious, however, that the curtailment of our working period has made it im- perative that we concentrate our efforts, employ a more extensive force of technicians, and give practically the full time of the individual members of the Commission to the prosecution of the work. Frank P. Walsh, John R. Commons, Florence J. Harriman, Harris Weinstook, S. Thrxjston Ballard, John B. Lennon, James O'Connell, Austin B. Garretson, October 23, 1914. APPENDIX A. LIST OF ORGANIZATIONS REPRESENTED BEFORE THE COMMISSION. EMPLOYERS' ASSOCIATIONS, American Anti-Boycott Association, American Clothing Manufacturers' Association, New York, Associated Manufacturers of Metal Covered Doors and Windows, Building Construction Employers' Association, Chicago, Building Trades Employers' Association of the City of New York, California Fruit Canners' Association, Chamber of Commerce, Stockton, California, Children's Coat and Reefer Makers' Association, New York, Cloak, Suit and Skirt Manufacturers' Protective Asso- ciation, New York, Dress and Waist Manufacturers' Association, New York, Employers' Association, Portland, Oregon, Employers' Association of Washington, Employers' Association, Chicago, Illinois, Employers' Strike Committee, Stockton, Employment Agents' Protective Association, New York, Illinois Manufacturers' Association, Chicago, Illinois, Lake Carriers' Association, Merchants & Manufacturers' Association, Los Angeles, California, Manufacturers' Association, New York, ^ Manufacturers' Association, Philadelphia, Master Carpenters' Association, New York, Metal Manufacturers ' Association of Philadelphia, Metropolitan Merchant Tailors' Association, National Association of Bottle & Vial Manufacturers, National Association of Manufacturers, National Cut Stone Contractors' Association, National Founders ' Association, 72 National Metal Trades Association, Chicago, New York Clothing Men's Association, Printers' League of America, Puget Sound Salmon Canners' Association, Retail Dry Goods Association, Silk Association of Paterson, Stove Founders' National Defense Association, San Francisco Chamber of Commerce, United Clothing Contractors' Association, United Employment Agents ' Protective Association, United Typothetae and Franklin Clubs of America, Women's Garment Manufacturers' Association of Phila- delphia, LABOR ORGANIZATIONS. Amalgamated Association of Street and Electric Rail- way's Employes, American Federation of Labor, Boot and Shoe Workers' Unioa, Bricklayers' and Masons' International, Brotherhood of Boiler Makers' & Iron Ship-Builders' of America, Brotherhood of Operative Potters, Building Trades Department, American Federation of Labor, Building Trades Council, Los Angeles, California, Building Trades Council, Portland, Oregon, Building Trades Council, San Francisco, Butte Mine Workers ' Union, California State Federation of Labor, Carmen's Association of America, Carpenters' and Joiners' of America, United Brother- hood of, Central Labor Council, Los Angeles, California, Central Labor Council, Seattle, Washington, Chicago Federation of Labor, Cloak and Skirt Makers' Union of New York, Cloak and Skirt Makers ' Union of Philadelphia, Coat Makers ' Union, New York City, Columbia River Fisherman 's Union, Dyers' Union, Skein Dyers & Mercerized, of Philadelphia, Educational Committee, Cloak Makers' Union of New York, 73 Enterprise Association of Plumbers, Gas & Steam Fitters, Glass Bottle Blowers' Association of United States and Canada, Glove Workers' Union, Chicago, Illinois, Goods Weavers' Union, Philadelphia, Pennsylvania, Hod-Carriers, Building & Common Laborers' Union of America, Horizontal Warpers' Benevolent Association, Hosiery Workers' Union, Illinois Federation of Labor, International Association of Machinists, International Association of Marble Workers, New York City, International Brotherhood of Blacksmiths, International Brotherhood of Stationery Firemen, International Ladies' Garment Workers' Union, New York City, International Longshoremen's Association, New York City, International Moulders' Union, International Printing Pressmen's Union, International Typograhpical Union, International Union of Timber Workers, Industrial Workers of the World, Industrial Workers of the World, Detroit Branch, Iron Trades' Council, San Francisco, California, Itinerant Workers' Union, Joint Board, Cloak & Skirt Makers' Union of Philadel- phia, Joint Board of the United Brotherhood of Tailors, Laborers' Union Protective Society. Seamen's Union of America, International, Lathers, International Union of Wood, Wire and Metal, Loom Fixers ' & Twisters ' Association, Metal Trades ' Council, Los Angeles, California, Metal Trades Department, American Federation of La- bor, National Industrial Union oi Textile Workers, Pattern Makers' League of North America, Pennsylvania Federation of Labor, Painters, Decorators and Paperhangers of America, Brotherhood of, Plasterers' Helpers' Protective Association, Plumbers', Gasfitters' & Steamfitters ' Helpers, Plumbers', Gasfitters', and Steamfitters' Union, 74 Eetail Clerks' Union, New York, Silver Bow Trades and Labor Council, San Francisco Labor Council, Sheet Metal Workers' International Alliance, Amalga- mated, Steam Shovelers' Union, Stone Masons' Laborers' International Union, Structural Iron Workers ' Union, Tapestry Carpet Workers ' Union, Tile Layers' and Helpers' International Union, United Board of Business Agents, New York City, United Mine Workers of America, United Textile Workers of America, United Brotberbood of Tailors, United Brotberbood of Carpenters & Joiners of tbe United States, United Garment Workers of America, Washington State Federation of Labor, Waitresses' Union, Western Federation of Miners, Women's Trade Union League, National, CIVIC OEGANIZATIONS. Alliance Employment Bureau, American Association for Labor Legislation, American Institute of Architects, New York, American Institute of Architects, Washington, Associated Charities of San Francisco, Associated Charities of Pottstown, Chamber of Commerce, Portland, Oregon, Church Temperance Society of the United States, Child Labor Committee, New York, City Club of Chicago, Committee on Immediate Action of New York, Committee on Unemployment, State of Washington,' Consumers' League, New York, Cooper Union, New York, Council of Jewish Women, New York, Immigration Bureau and Legal Bureau for Italians, New York, Iromigrants' Protective League, Industrial Eemoval Office, International Child Welfare League, 75 Joint Application Bureau, New York, Joint. Committee on Prison Reform, Legislative Committee of the North American Civic League for Immigrants, National Association of Corporation Schools, National Child Labor Committee, National Civic Federation, National Society for the Promotion of Industrial Edu- cation, New York Milk Commission, Oregon Civic League, Out-Door Meetings Committee, New York, Pennsylvania Child Labor Association, Peoples' Institute, New York, Henry Phipps Institute, Public Educational Association of Philadelphia, Reed College, Seamen's Institute, Students' Aid Committee, New York High School Teach- ers' Association, University of Chicago Settlement, University of Pennsylvania, PUBLIC INSTITUTIONS. Board of Education, New York, Board of Compulsory Education of Pennsylvania, Bureau of Industries and Immigration, New York, Bureau of Statistics and Information, Maryland, Boston Placement Bureau, Boston, Massachusetts, Chicago Tuberculosis Institute, City Health Department, Butte, Montana, Commission on Immigration and Housing, California, Continuation Schools of New York City, Department of Health, Division of Child Hygiene, New York City, Department of Labor, State of New York, Department of Labor, State of California, Department of Labor, State of "Washington, Department of Public Works, Philadelphia, District Attorney's Office, Contra Gosta County, Division of Information Bureau of Immigration, Depart- ment of Labor, Employers' Liability Commission of Ohio, 76 Industrial Commission of Wisconsin, Industrial Insurance Commission, Seattle, Washington, Industrial Welfare Commission, Portland, Oregon, Industrial Welfare Conamission of California, Kansas City Board of Public Welfare, Legislative Eeference Bureau of Wisconsin, Los Angeles Public Schools, Municipal Employment Office, New York, National Council of Industrial Safety, Office of Commissioner of Licenses, New York City, Oak Forest Institution, Chicago, Paterson Police Department, Philadelphia Trade School, Prosecuting Attorney's Office, Paterson, Public Defender, Los Angeles, Society for Italian Emigrants of the Immigration Office — Italian Government, State Conunission of Unemployment, Washington, State Free Employment Office of Massachusetts, State of Colorado, Judge Advocate. State Tuberculosis Sanitarium, Montana, State Workingmen's Compensation Commission of New York, Street Department, Butte, Montana, University of California, University of Oregon, University of Washington, Vocational Bureau of Boston, Vocational Education and Guidance, Department of, Phil- • adelphia, Vocational Schools, New York, Vocational Education Department, Mount Vernon Public Schools, FIRMS AND CORPORATIONS. Anaconda Copper Mining Company, Butte, Montana, B. Altman & Company, New York, N. Y., Atwood's Employment Agency, New York, N. Y., Augusta Silk Mills, Paterson, N. J., Baldwin Locomotive Works, Philadelphia, Pa., Barnard Gloeckler & Company, New York, N. Y., Bloomingdale Bros., New York, N. Y., Bonfilio & Sons, Los Angeles, California, 77 Baker Iron "Works, Los Angeles, California, Broadway Department Store, Los Angeles, California, Brown Knitting Company, Philadelphia, Pennsylvania, Butte Superior Mining Company, Butte, Montana, Henry Doherty & Son, Paterson, N. J., H. W. Caldwell & Sons Company, Chicago, Illinois, California Moline Plow Company, San Francisco, Cali- fornia, E. Clemens Horst Company, Hop Growers, San Fran- cisco, California, CoUingswood Worsted Mills, Philadelphia, Pennsylvania, Commonwealth Edison Company, Chicago, Illinois, Continental & Commercial National Bank, Chicago, 111., Cramp Shipbuilding Company, Philadelphia, Pa., Craig Shipbuilding Company, Los Angeles, California, B. R. Donnelly & Company, Chicago, Illinois, Marc Eidlitz & Son, New York, N. Y., F. 0. Engstrom & Company, Seattle, Washington, The Evening Bulletin, San Francisco, California, John W. Ferguson Company, Paterson, N. J., Marshall Field & Company, Chicago, Illinois, First National Bank, San Francisco, California, Frank & Duggan MiUs, Paterson, New Jersey, General Electric Company, New York, N. Y., Gimbel's Department Store, New York, N. Y., Gray's Harbor Commercial Company, Seattle Washing- ton, Hamburger's Department Store, Los Angeles, California, Hart, Schaffner & Marx, Chicago, 111., Thos. Haverty Company, Los Angeles, California, Hearst Mercantile Company, Lead, South Dakota, T. Hogan & Son, New York, C. M. Holt Manufacturing Company, San Francisco, Cal- ifornia, Homestake Mining Company, Lead, South Dakota, International Mercantile Marine, New York, N. Y., international Paper Company, Industrial Department, New York, James P. Knight, New York, N. Y., Janns Investment Company, Los Angeles, California, Link-Belt Company, Chicago, Illinois, Lord & Taylor's, New York, N. Y., Los Angeles Planing MiU, Los Angeles, California, Los Angeles Street Railway Corporation, Los Angeles, Calif., 78 The McCarthy Company, Los Angeles, California, James McCreery & Company, New York, N. Y., R. H. Macy & Company, New York, N. Y., Mercantile Bond Association, New York, N. Y., Midvale Steel Company, Philadelphia, Pennsylvania, Miners & Merchants Savings Baii, Lead, S. Dakota, Mundell International Detective Agency, San Francisco, California, A. I. Namm Department Store, New York, N. Y., National Bank of San Francisco, San Francisco, Cali- fornia, National Employment Exchange, New York, N. Y., National Silk Dyeing Company, Pater son, N. J., Charles Nelson Company, San Francisco, California, New York, New Haven & Hartford R. R., Washington, D. C, North Butte Mining Company, Butte, Montana, Northwestern Pacific R. R. Co., San Francisco, California, Ogleshy Coal Company, Chicago, Hlinois, Pacific Gas & Electric Company, San Francisco, Cali- fornia, Pacific Printing & Stationery Company, Portland, Ore- gon, Page Lumber Company, Seattle, Washington, Philadelphia Rapid Transit Company, Co-operative Com- mittee, Paterson Daily Issue, Paterson, New Jersey, Paterson Evening News, Paterson, New Jersey, Paterson Press, Paterson, N. J., Philadelphia Rapid Transit Company, Philadelphia, Peimsylvania, Geo. Rice & Sons, Los Angeles, California, Ralph Rosenheim, Paterson, New Jersey, Charles A. Rosenwasser, New York, N. Y., Rucker Bros., Inc., Seattle, Washington, San Francisco CaU & Post, San Francisco, California, Seattle Construction & Dry Docks Company, Seattle, Washington, Seattle Times Company, Seattle, Washington, Seattle Union Record, Seattle, Washington, S. E. Slade Lumber Company, Seattle, Washington, Henry Struble Cut Stone Company, Washington, Simpson-Gray Lumber Company, San Francisco, Cali- fornia, Sperry Flour Company, San Francisco, California, 79 Standard Oil Company, New York, N. Y., James-Starrett Company, New York, N. Y., Steel & Masonry Construction Company, New York, N. Y., Stockton Record, San Francisco, California, Sunmer Iron Works, Seattle Washington, The Survey, Taubel Hosiery Mills, Philadelphia, Pennsylvania, Thompson-Starrett Company, New York, N. Y., Times Publishing Company, Los Angeles, California, Trenton Potteries Company, Philadelphia, Pennsylvania, Troy Laundry Company, Portland, Oregon, Union Iron Works, San Francisco, California, United ^ngineeriug Works, San Francisco, California, United Eailroads of San Francisco, San Francisco, Cali- fornia, Utah Construction Co., San Francisco, California, Wanamaker's, New York, N. Y., and Philadelphia, Pa., The Weed Lumber Company, San Francisco, California, White Star Line, New York, N. Y., Wilcox Motor Company, Washington, Woodward, Clark & Company, Portland, Oregon. Cornell University Library HD8051.C3 1914 First annual report of the Commission on 3 1924 002 404 774