WITHIN t: YORK Aj ITS REOR. Ex ICtbrtH SEYMOUR DURST "^ ' 'Tort nu^iiw ^im/ftr s, cooks, scrub-women and watchmen. A striking example of the wastefulness of countv government, resulting from its decentralization and from its exploitation for partisan purposes, is afforded by the enormous cost of preserving and restoring county records. Tn seventeen years over four and a quarter millions have been expended for that purpose by five separate county departments, three of which have been chiefly useful as affording berths for party henchmen. Again, the average daily cost for guardiag each prisoner in the county jails is $3.21 in Kings County, $3.49 in New York County, and $5.20 in Queens, while the per capita cost of guarding prisoners under the Department of Correction ranges from 7 cents to 37 cents per day. Altogether the antique and wasteful system of county government within the city of New York should be thoroughly reorganized. The constitution should be so amended as to permit the merger of the county governments with the city govern- ment and where that is not practicable, the consolidation of the several county establishments. Such reorganization would be largely the continuation of a process already initiated, since many functions performed " up state " by branches of the county governments have long in this city been performed by municipal officers. Every reason that sustains such earlier combination of county with city government sustains the continuation of the process. Arguments in favor of the retention of the present system can readily be shown to be untenable. Sach reorganization would not, with present transit provisions, inconvenience the public, nor would local autonomy be unduly impaired. Branch offices could be main- tained where necessary. Such reorganization of the forty county departments would co-ordinate service, would centralize authority and responsibility and even on conservative liaes would effect a saving in salaries alone of over a million dollars a year, or thirty per cent, of the present salary cost of those departments, and nineteen per cent, of the total salary cost of county government as provided in the 1915 budget. No particular form is urged as to the details of such a plan of reorganization, but as an indication of what might be effected, the following plan is submitted: /. County Clerk: Unite those forces of each office which serve as clerks of the supreme court into a single office and have the appellate division appoint the head of the new office as " the clerk of courts." Unite the remainder of each office (except the register division in Queens and Richmond) with the city clerk's office and have the mayor appoint the head of the new office as " the city and county clerk," replacing the present counsel to the county clerks by the municipal law department. 2. District Attorney: Replace the existing five offices by one for the whole city and elect the head of it. There would then be a city department for the prosecution of criminal cases comparable with the present law department on the civil side. 3. Register : Replace by a single department the register's office in each of the three counties and the register division of the county clerk's office in the other two counties, and have the mayor appoint the head of the combined office, necessary legal work for the new department to be done by the city law department. 4. Commissioner of Records : Abolish these offices and have the undone portion of their work performed by a small temporary force in the offices of the register, the '* city and county clerk " and the surrogate. 5. Commissioner of Jurors : Replace the five offices by one headed by an appointee of the appellate division. 6. Public Administrator : Abolish these offices and transfer their functions to the city chamberlain. 7. Sheriff: Transfer his functions in all counties as peace officer to the police department, as jailer to the department of correction and as to his remaining duty to execute civil court mandates, unite all the offices into one, have it absorb the city marshals and let it be headed by an appointee of the mayor, necessary legal work to be per- formed by the city law department. 8. County Courts • These should be consolidated with the supreme court, or some other kind of combination should be effected, as for example, with the court of general sessions and the city court. 9. Surrogates' Courts; The five surrogates' courts should be consolidated into one court. Such a reorganization would reduce the present forty county departments to eight, two of which would be merged with city offices, and would result in simplified elections, better official service and economical administration. STUDY OF COUNTY GOVERNMENT WITHIN THE CITY OF NEW YORK AND A PLAN FOR ITS REORGANIZATION Local government in the city of New York comprises, first, the city govern- ment proper, including five borough establishments, which are made integral parts of the city government by representation in the Board of Estimate and Apportionment and in the Board of Aldermen. In addition, side by side with the city and borough governments, there are the five detached county governments, one for each of the counties which lie within the geographical boundaries of the city. Each of these county governments is composed of numerous branches, all co-ordinate and none bearing any relation of control over or responsibility to any other. The combined cost of these county governments assessed upon the taxpayers and reflected in the tax levy for the year 1915 was $7,704,945.79, consisting of $7,033,716.82 (the budget appropriation for the year) and $671,288.97 (county charges and expenses paid during 1914 from proceeds of special revenue bonds). The tax rate exclusively for city purposes in 1915 was $1.78617 per $100 of assessed valuation. The total tax rate for city and county purposes^ was $1.85964 in New York County, 1.94 in Bronx County, 1.90402 in Kings County, 1.88023 in Queens County, and 1.97763 in Richmond County. In other words, in addition to the tax rate for city purposes, taxpayers were compelled, by reason of county expenses^ to pay 7 points in New York County, 15 points in Bronx County, 12 points in Kings County, 10 points in Queens County, and 19 points in Richmond County. What is the purpose of these county governments ? How are they organized ? Are all of them necessary? Are all the branches of all of them necessary? In short, do the county governments present a field for profitable retrenchment? TRANSLATION FROM ENGLISH SYSTEM. The present form of county organization in New York City can be traced directly to the days of William the Conqueror and few changes have been made to adapt it to modern urban development. The county or shire existed in England before the days of King Alfred.^ The shire was then a self-governing community, consisting of an independent tribe. The kingdom of England was not originally divided into shires for administrative convenience ; it was formed by uniting the shires. After the Norman Conquest, shires came to be known as counties and in each there was a county court held by circuit judges, appointed by the king; a sheriff, ^Does not include Borough Special Assessments which when added made the tax rate in New York County. $1.87, in Bronx County 1.94, in Kings County 1.92, in Queens County 1.95 and in Richmond County 2.24. ^Includes expenses of Supreme Court, National Guard and Naval Militia. Charitable Institutions, Law Libraries^ and General and Miscellaneous Countv' expenses such as Fees and Expenses of Jurors. Disbursements and Fees, Stenographers' Fees, Witnesses Fees and Board of City Record. Extra Clerks to Board of County Canvassers, Rent and Contingencies in addition to the aporopriations for the fortv county departments hereafter described. 'Fiske's " Civil Government," pages 4^-50. appointed by the king, whose duty it was to collect taxes and enforce the judg- ments of the courts and keep the peace; an elective coroner, who held inquests in cases of sudden death; and six or more justices of the peace, appointed by the king, who held courts of quarter sessions four times a year, gradually sup- planting the county courts in jurisdiction. ^ This county system was brought to America by the early English settlers, and in 1683 the Colony of New York was divided into counties by act of the colonial legislature. Four of these counties were New York, Kings, Queens and Richmond.2 In each county the colonial governor appointed a sheriff, one or more coroners and several justices of the peace. Before the Revolution there had also been created the offices of county judge, county treasurer, county clerk,^ loan officer,^ boards of supervisors, consisting of a freeholder elected from each town to supervise, levy and assess taxes for county purposes,^ and courts of gen- eral or quarter sessions.^ THE CONSTITUTION OF 1777. The first constitution of the State w^as adopted in 1777. It continued in force the acts of the colonial legislature and left the counties as it found them, except that all county officers were to be appointed by the governor of the State and the council and that the offices of coroner, sheriff, county judge, justice of the peace, county treasurer, loan officer, county supervisor and clerk to the board of super- visors were either expressly continued or otherwise mentioned, thereby making them constitutional officers whose places could not be abolished by the legislature. THE CONSTITUTION OF 1821. In the constitution of 1821 no mention was made of the offices of loan officer, county treasurer or clerk of the board of supervisors, thereby making them no longer constitutional officers and empowering the legislature to abolish them. In addition to repeating the other county officers named in the first constitution, the offices of county clerk, district attorney"^ and the register of New York City and County^ and the courts of general sessions and oyer and terminer for the city and county of New York were either expressly continued or otherwise mentioned, thereby giving them constitutional sanction. Sheriffs, coroners, county clerks and the register of the city and county of New York were made elective officers. District attorneys were to be appointed by the county court. By amendment to the constitution in 1826 justices of the peace were made elective by the people of each town. 'Fiske's "Civil Government," pages 51-53. ^Kings and Queens Counties then included all the territory now constituting Nassau, Queens and Kings Counties. New York County did not extend north of the Harlem River. •Mentioned as existant in L. 1777, C. 7, but not created in that year, hence office existed before Constitution of 1777. *The function of loan officer was to lend on mortgage to citizens the quota of govern- ment money allotted to each county for that purpose. L. 1786 (1 Greenleaf. 242-244). The office was ultimately abolished by L. 1850, C. 532, but " Commissioners for loaning certain moneys of the U. S." succeeded them. See L. 1898 C. 588. "Lincoln's "Constitutional History of New York." pages 2)7 to 42; Fairlie's "Legal Government in Counties, Towns and X'illages." page 28. "Mentioned as existing in 1774 (see L. 1778, C. 12). 'Created as an appointive officer in New York County L. 1815, C. 87 in Kings, Queens and Richmond Counties L. 1818, C. 283; made salaried officer in New York County L. 1821^ C. 97; in Kings L. 1846. C. 31; Queens and Richmond. L. 1852 C. 304. 'Created as an appointive officer L. 1813, C. 86, Sec. 157. THE CONSTITUTION OF 1846. The constitution of 1846 required the election of a county judge in every county except New York, and required him to perform the duties of surrogate ex- cept in counties of over 40,000 population, where the legislature was empowered to provide for a separate surrogate.^ It required each county clerk to act as clerk of the Supreme Court and empowered the legislature to abolish local courts in the city of New York.- District attorneys were made elective officers. .Ml former constitutional officers were continued but the legislature was empowered to devolve the powers of the board of supervisors upon the common council in cities whose boundaries were the same as those of a county. ^ THE PRESENT CONSTITUTION. By the present constitution, adopted in 1894, the register of Kings County* was added to the list of constitutional officers which now include sheriff's,^ county clerks,^ district attorneys, registers, surrogates and county judges. No mention was made of coroners thus empowering the legislature to abolish the office. Courts of sessions were abolished in all counties except New York, where the court of general sessions by inference became again a constitutional court. The superior court and the court of common pleas of the city and county of New York were abolished and their jurisdiction vested in the supreme court.''^ EFFECT OF GREATER NEW YORK CHARTER OF 1897. The Greater New York Charter enacted in 1897 consolidated various mu- nicipalities into the present city of New York. It left the county establishments of New York, Kings, Queens and Richmond as it found them except that (1) it abolished the office of county treasurer for the County of Richmond and de- volved his powers upon the comptroller of the city; (2) it made the public admin- istrator^ of the former city of New York public administrator of the County of New York; (3) it substituted borough coroners for county coroners; (4) it conferred upon the municipal assembly or administrative city officials such powers of local legislation and administration in the counties of New York, Kings and Richmond as were not then vested in the board of supervisors or in other con- stitutional county officers; and (5) it empowered the municipal assembly and board of estimate and apportionment to fix county salaries except where fixed by statute or where the power of fixation had been expressly conferred by law 'L. 1847, C. 276 empowered supervisors in counties having a population over 40.000 (except New York) to provide for election of a separate salaried surrogate. L. 1847, C. 432 and 488 created an elective salaried surrogate in N. Y. County. Previously L. 1787. C. 38 had empowered the governor to appoint a surrogate in every county. ^Except Superior Court and Court of Common Pleas. Constitutional Amendment 1869. Power of board of supervisors for N. Y. County was conferred on Board of Aldermen by L. 1874. C. 304. ^Created as an elective officer L. 1852, C. 82. 'Sheriff made salaried office in Kings, L. 1901, C. 705; in Queens L. 1909. C. 502. Sheriff of N. Y. granted a salary (plus half of his fees) by L. 1890, C. 523. Sheriff of Richmond was granted a salary (plus his fees) by L. 1896. C. 392. ^County Clerk made salaried office in N. Y. Countv L. 1884, C. 299; in Richmond L. 1880. C. 419; in Queens L. 1912, C. 540; in Kings L. 1901, C. 704 Preceding the constitution of 1894 the legislature had created a commissioner of jurors (L. 1858, C. 322) and a public administrator (L. 1871, C. 335) for Kings County. 'Created by L. 1815, C. 157. upon other officials and provided that all county salaries and other expenses for the counties of New York, Kings and Richmond should be audited by the board of estimate and apportionment and paid by the city of New York, but that such expenses for each such county should be collected by levy upon the taxable property of that county. ^ CHARTER AMENDMENTS. The Greater New York Charter was revised in 1901 and the powers formerly exercised by the board of supervisors in any of the counties within the city of New York, not already conferred upon other city officers, were devolved upon the board of aldermen.- The office of county treasurer in Kings and Queens coun- ties was abolished, his functions being transferred to the comptroller. In 1903 these powers were in turn devolved upon the chamberlain, at the same time making a similar transfer of the powers of the former county treasurer of Rich- mond county, which had been devolved upon the comptroller by the original charter of 1897. By chapter 588 of the laws of 1898, the new county of Nassau was created out of the towns of Oyster Bay, North Hempstead and Hempstead, thus changing the boundaries of the county of Queens so that it lay entirely within New York City. The revision of 1901 accordingly amended sections 902 and 1583 by adding Queens County to the list of counties whose expenses must be provided for by the city, and repealed sections 1592 and 1593, which authorized the state comptroller to apportion that part of the annual expenses of Queens county which should be borne by so much of the county as was situated in New York City. In 1906 (Section- 149-a) county as well as city officials were required to 'See sections 1585, 1587, 1570, 1586, 1583. 902, 56 and 233. Not all of the county of Queens was included in the new city but only Long Island City, the towns of Newtown, Flushing and Jamaica and part of the Town of Hempstead (section 1.) The comptroller of the State was authorized to determine annually the proportion of the expenses of Queens county which should be borne by the portion situated within Greater New York, and the municipal assembly was directed to collect such sum by levy upon the taxable property of that portion of the county. (Sections 1592, 1593 and 903.) The state comptroller was directed to determine annually the proportion of the state tax to be paid by the counties of New York, Kings and Richmond and by that portion of Queens County situated in Greater New York, such total amount of state taxes to be levied upon and collected from the entire property within the territorial limits of Greater New York (Section 1594-5). The state comptroller was directed to pay over to the city chamberlain annually all school moneys allotted to the counties of New York. Kings and Rkhmond and to apportion the school moneys allotted to the county of Queens (sections 1596-7). The cit>' of New York was required to assume a proportionate share of the debt of the county of Queens (section 1588). The new city assumed all debts and other liabilities of the counties within its territory and these counties were prohibited from creating any debt binding on property within the new city and from levying any tax or assessment upon such property. (Sections 4. 5, 7.) All public property owned by the counties of New York, Kings and Richmond was transferred to the new city as was a portion of that belonging to the county of Queens (Sections 8, 1536-7). Commissioners of Accounts were given power to examine the accounts and methods of county offices (Section 119). Powers of superintendent and overseers of the poor of the county of Richmond were transferred to the commissioner of public charities for the borough of Richmond. (Sec- tions 662-664.) All powers of taxation and assessment other than for street improvement formerly possessed by county offices were devolved upon the board of taxes and assess- ments of the new city (Section 886), Powers of school trustees for school districts of the county of Richmond and of a portion of the county of Queens were conferred upon the Board of Education (Section 1058). Powers of justices of the peace were devolved upon the courts of special sessions (Section 1406. subdivision 4. and section 1414). 'By constitutional amendment in 1899 the legislature was empowered to confer the powers of county boards of supervisors upon the Board of Aldermen in any city including or^c or more entire counties. report to the cumptroiler such statistical informatiun as he might direct and to maintain statistical records in the form prescribed by the Finance Department. The abolition of the coroner's office in 1915 (to take effect January 1, 1918; marks the culmination of a struggle which has lasted over twenty years to rid the city of this outgrown relic of early English county government. RECENT LEGISLATION OTHER THAN CHARTER AMENDMENTS. In 1897 (C. 526), the office of commissioner of records was established by the legislature for Kings County, and in 1906 (C. 661) a similar office was created for New York county. In 1911 (C. 534) a commissioner of records for the surrogates' court, New York County, was provided for. In 1901 (C. 704-705-706), the off'ices of sheriff', county clerk and register of Kings County were placed upon a salary basis and in 1912 (C. 540) the county clerk of Queens County was also granted a salary in lieu of fees. A salary was provided for the public administrator in New York County in 1898 (C. 230, Sec. 31) and for the public administrator in Kings County in 1911 (C. 774). A salaried public administrator was provided for Queens County in 1900 (C. 501), and in 1899 (C. 486), the office of public administrator for Richmond County was created, which is still a fee office. Commissioners of jurors were provided for in Queens and Richmond in 1899 (C. 441), and in New York County in 1901 (C. 602). i In 1907 (C. 412), the court of general sessions for the city and county of New York was reorganized and the election of seven judges was provided for. Previously, under chapter 259 of the laws of 1875, the court of general sessions had been held by the recorder and the city judge, both of which positions were abolished by the 1907 act. In 1909 by Section 430 of the consolidated election law the board of county canvassers for each county within the city of New Yor]>: was made to consist of the aldermen elected from that county. This function had formerly been performed by the supervisors and there had been some doubt as to whether the function should be performed by the entire board of aldermen or only by those elected from each county. In 1912 the borough of The Bronx was constituted a new county. The new county government commenced operation January 1, 1914. Bronx county has a full set of county officers requiring a budget appropriation for 1915 of $699,- 654.46. Of this sum $432,940.68 was mandatory upon the budget makers under legislation which left them without discretion to reduce that sum by one dollar. Although the creation of these new county officers necessarily reduced the work of county officials in New York County, no commensurate reduction in the ex- pense of operating New York County has resulted. For 1913 the budget allow- ance for the old county of New York was $3,883,271.67. For 1914 the allowance for the new county of New York, reduced in size, was $3,906,164.34, an increase of $23,893.27, where a decrease might have been expected. For 1915, New York County's allowance was $3,815,566.41. Of this sum $2,547,562.04 was included by the budget makers under the compulsion of mandatory legislation. The cre- ation of Bronx County placed an additional annual burden of nearly $700,000 upon taxpayers. ^Laws 1896, chapter 378, provided for a " special commissioner of jurors " for all counties having a population of more than 50,000 inhabitants. 10 FORM OF COUNTY GOVERNMENT IN THE CITY OF NEW YORK IN 1915 As a result of the constitutional and other legal provisions reviewed above, there are now five counties within the City of New York, each having a county clerk, a district attorney, a commissioner of jurors, a public administrator, a sherifif and one or more surrogates. In addition there is a register in the counties of New York, Kings and Bronx, a commissioner of records in New York and Kings counties, and a commissioner of records for the surrogates' court in New York County. There is a county court in each county except New York, where its place is taken by the court of general sessions.^ In Richmond the county court and surrogate's court are combined. 1. County Clerk: The county clerk has charge of the filing and preservation of all county records (except that in New York, Kings and Bronx counties deeds, mortgages, leases and conditional sales of personal property are recorded by the register). He is the keeper of the county seal, issues certificates of appointment to notaries public, registers, physicians and nurses, files certificates of incorporation, records marriage licenses and is empowered to administer oaths and take affidavits. He is also clerk of the county court and supreme court sitting in his countv (except in New York County, where there is no county court). He dockets and indexes judgments, mechanics' liens, lis pendens and assignments and files papers in law and equity actions, taxes costs, prepares judgment rolls, issues executions and per- forms the clerical work of naturalizing foreigners. At the request of any indi- vidual and upon receipt of the statutory fee^ the county clerk searches the docu- ments in his custody and prepares transcripts. The county clerk is elected for four years in New York, Kings and Bronx Counties, and for three years in Queens and Richmond Counties. All fees collected by him are turned over to the city chamberlain except fees in naturalization proceedings, which go into the federal treasury. He may be removed by the governor on charges after a hearing. The county clerk receives a salary of $15,000 in New York, $12,000 in Kings, $10,000 in Bronx, $8,000 in Queens, and S5,000 in Richmond 2. District Attorney: The (Hstrict attorney institutes and conducts criminal prosecutions in the county before the sui)reme court, the county court (in New York County before the court of general sessions), the court of special sessions, the magistrates' courts and the coroners' courts. He subpoenas witnesses to appear and examines them before the grand jury and co-operates with the police department in the investiga- 'Thc court of Kt'iieral sessions takes the i)lace of a county court on the criminal side only. The city court is in effect th.e civil side of a New York county court hut cannot be considered as a county institution because (1) it has jurisdiction in the territory com- prising both New York and Bronx counties (L. 1912, C. 548. Sec. 6); (2) its expenses are not borne by New York County alone but by the entire city; (3) historically it was the city court for the old city of New York and never a county institution. The court of general sessions, however, is a survival of the courts of general or quarter sessions which existed in every county of the state prior to the Revolution and were abolished in counties other than New York by sec. 14. art. 6. of the present constitution. 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(V H 0) 00 00 4- Z O 3 ^ y) O 1 O ^ u k: CO 3^ CC 3 O o o >- 1 ^ c UJ Z 0) c 1 (0 Q O T5 q: i? o c:) 8^ hi ^^ or o o o III C if) q: 6 '- LlI o z o _l Q- 5 <1> 1^ 2 LJ or < 1 5? o o D o UJ 1^ X T3 UJ c D oo -en a u q: o CQ _iu zuJ $^ 5o U-l o5 M- o 1/5 (0 o; (/) -3 c Q "O O c o 5- o X C3 0) l- O -M n 05 (1) L. c <_ 3 10 ', , !■ 5^ m u (J) -t-> (U ..V (\J c rr »fi <+- ~? JC tn o 14- o O O o ^ (D o ■? -M j- o oo oo ^0) ? cv»^ c rn H^^ ? Z l"*^ 2 o 7 ttm (Y o u- o X •o o < UJ c w Q' o o ur H z CJ> u. (/) Q c o z Z < X 0) ^ ? cr -o 9 < c 0) 1 uiO Is 6uj UJ S Lt COMMISSIONER SURROGATES COURT- Or RECORDS NEW YORK COUNTY Regular Employees 50-^46.420 Examining Conditions of Records-, Providing for Restoration amd Preser ration of Same. ADMINISTRATION Commissioner Deputy Commissioner l-*5iOO0 l-$4.000 General Supervision and Pirectibn of the Activities of the Pipartmcnt OmCE or SUPERINTENDENT Superintendent Employees l-*3.500 I0-»!0.520 Supervision of Employees; Examining, Condemning and Repairing Records Purcdasing Equipment, Supplies and Mafenah RECORDING AND INDEXING Chief Recording Clerk Employees l-*l,800 I6-$2L600 Annual Inspection of Oirigmal Records, Recording, Card- ing, Starchmq and Ex^minin^ Condemned Papers in Probak Proctedm^Si Recopy/n^ Condtmntd BooKs; Indtxtnc^ Current Wills, Letters of /Administration, Orders in Proceedin^gs, Pe- crees Im Accouinfmgs and Facers m Ancillary Proceedings X ^- V — C^ % lO <-1 00 q: o 0) > ^ -trt- § <_^ 1 o ^ ^ 1 so o VO c CJ V ; II 1 Lilj cy U- o < fV o iij o 1 c/; 111 v/) C/J )^ I C o >: CL lU o i: o LU O C o o o o o 1 • o o S IT) Q> fe c vi K ;/-> 1 1 c - n ii ^ ^ z: £ —1 UJ - UJ 9S 1^ •sj. CO lu ry' ^> D O LU r^ ■J S^ LU o r ^s O o u o '< I I H^ 5£ i P I 5£ 1 Is !i ii cO o o I o \n 00 "« «vJ -to** 9 ^ 1 1 - >o o /I . 1 O s h ^Ifl -1 O UJ ItJ 1 5£ g 1 o o « lU o ronx and Kings, $3,000 in Queens and $1,500 in Richmond. 6. Public Administrator: The public administrator is empowered to collect, take charge of and administer upon personal property and debts of persons dying intestate and leaving assets within the county where there is no next of kin entitled or willing to administer. He also administers the estates of persons leaving wills with no person competent to probate or act as executor thereunder. The eft'ects of persons dying in charitable institutions are turned over to the public administrator if they are not collected by relatives. The public administrator in Kings, Bronx and Riclimond is a])])ointc(l l)y the surrogate. In New York he is a])pointed- by the two surrogates of that county. In Queens he is appointed by the surrogate, cotmty judge and sherifi". In New York, Kings and Queens the ])ul)lic adminis- trators receive salaries of $10,000, $5,000 and $1,200 respectively, and are re(|uire(l to pay over to the city chamljerlain all fees and commissions received 1)y them. In lironx county the ])ublic administrator receives a salary of $4,000 and is allowed to retain his fees and commissions, but is re(|uire(l lo hire his subordinates out of such moneys. In l\ichmond he receives no salary but retains his fees and commissions. The public administrator in Queens and Richmond counties per- forms all the worls of his office personrdly and has no subordinates. > Ifh •¥»- E'S^T o 00 o ?M^ cO < L f ^ Q^ rr" % U Qr Z C Z U Cl QQ Hi"" lib CD := 5F^ 5^ E ^ « u 3 C O ii D Q «1 .880 "els ~g — ^^1 II""' H^ ss ^^. ^^ct O) ^^ CJ c b > sof Th Ion To 1 Orim 2 O UJ < §»1 O ^?^ cl— +-^ >< 1^ § ^ 0^3 o St>5 Ql CO CQ o.EO Q- <3> i; CS Ll_ a UJ CD iH si QuUJ CO 2 > bJ a: Ills C i- CO >i O ^ ti ^ UJ lij crh- ooo o OO ^c6 UJ U. 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UJ < < u LU S O CS O VD cS o fO -^ o CO TJ- (0 ^ ^ "^ Jo S_ M- CL O O UJ »— lij Q-CT) it 1— -P p O) Z 1 ^ 8 "E^ 1 - § S o QCO -■^^3 ^ q: y oS ^ <^ i- (/) 1, 1 >- •J i^^ > n Ipterpre supervis of cert copies 5'J z o Is X5 o:> CO **? > • 5^ <4- 3 Q Z o UJ £ § § 5 z o ct 1- D C 1-J H ■b^-fe^ D o — CM a .CO a> a: Q: UJ -t-i O -J o e Q. ll 1 Uuj D g h- z: o o o 3 O S90 «o — _ o •^ CO -^0 1^ g z UJ e 3 < 21B O -0 s -o aUJ .£? ^ h- *n S "^ cc *=^ E Z) -0^ o UJ X o Ul _J s CO PLO EM (paid ^^ UJ ^ K ^ ** 2 -J Q. -J ^ in c <: C.2 CD o oc: 0; 3 V Q- ^0 ct: ^ ^ -S -).£ 0^ vn ■P UJ "O uo to-"" ^ Q -«e- Cd Ct e" LJ ^ fe z 1 5:^ i:^ CD ujS - E CO >-< ^ a . > ujtt^ a cn^ s uj<[: UJ 00° —lOLffl _( 9r^ 5: f § ocQ Zuj S Ujh UJ .£? "a CJ :2: m -1- CD CD ;t: cl < 'P 8 00 13 UJ go cU 3 -3 1? h ?. ^1 £? < F ID p ll i-ujQ^t: ."5 5 ^ lij -J :lerk ofgour EMPLOYEES EMPLOYEES (n ?! o §32^ eg a-) di >< UJ 0:9:2: tOUjJ- ■~ H c K S ^ CG £ "^ cc ii id" 1^ ii II e So 1^ 021 i-g ct S I— c\J .TT ^ ii ll 1-0 C3 '^ II ^ 1 VO UJ UJ >- So 3 '^ z a! ^0 Q r o-§ < UJ ct 13 7. Sheriff: The sheriff, on mandates of courts ol record in his county, arrests prisoners on civil processes, levies executions, replevins chattels and serves summonses, cita- tions, subpoenas, writs of habeas corpus and warrants of attachment. He is liable on his bond for the escape of a prisoner or for failure properly to perform his statutory duties. Where there is a contest as to the ownership of property levied upon, he may impanel a sheriff's jury and subpoena and examine witnesses under oath before them. He is the custodian of the county jail, where civil prisoners are confined (in Kings the sheriff' has jurisdiction over a portion of the Brooklyn city prison for this purpose) and is responsible for the transportation of criminal prisoners. In Bronx and Richmond the department of correction has no juris- diction, and hence the sheriff' exercises the function of keeping criminal prisoners, which, in New York, Kings and Queens counties is performed by the department of correction. In Bronx and Richmond criminal prisoners are also confined in the county jail, but criminals sentenced for more than six months are committed to institutions outside of the county under the jurisdiction of the department of correction or to the state prison at Sing Sing, and hence do not come under the sheriff''s jurisdiction. The sheriff* is elected for two years in Xew York and Kings, three years in Queens and Richmond, and four years in Bronx. He may not succeed himself in office and may be removed by the governor on charges after a hearing. The sheriff's of Kings, Queens and Bronx counties receive salaries of $15,000, $10,000 and $10,000, respectively, in heu of all fees received by the office, which must be paid over to the city chamberlain. The sheriff of Xew York county receives a salary of $12,000 and half the fees of his office in addition. The sheriff of Richmond receives a salary of $6,000 and may retain all fees received by his office. 8. County Courts and Court of General Sessions: The county courts in Kings, Queens, Bronx and Richmond and the court of general sessions in New York are courts of record having criminal jurisdiction to inquire by intervention of a grand jury into crimes committed or triable in the county and to try all indictments including those for crimes punishable with death or life imprisonment. They also hear appeals from magistrates' decisions and entertain writs of habeas corpus. In addition the four county courts have original civil jurisdiction in actions for the recovery of money or of chattels where the defendants reside within the county and in which the plaintiff demands judgment for a sum not exceeding $2,000 or where the value of the chattels in- volved is not over $1,000. The county courts also have jurisdiction over actions for partition, dower, specific performance, foreclosure of mortgages and fore- closure of liens of not over $1,000 on chattels within the county. The county courts have concurrent jurisdiction with the supreme court over the property of persons declared incompetent. Judges of general sessions are elected for four- teen years and the county judges are elected for six years. There are seven judges of general sessions, each receiving a salary of $17,500. There are five county judges in Kings, each receiving a salary of $10,000 and additional com- pensation of $2,500 for services in drawing jurors. The county judge of Bronx County receives a salary of $10,000; the county judges in Queens and Richmond counties receive salaries of $10,000 and $7,500 respectively and additional com- pensation of $2,500 each for services in drawing jurors. The county judge of Richmond County is also the surrogate. # 0^fe>'A 14 9. Surrogate's Court: The surrogate's court is a court of record. It has jurisdiction to take proof of wills and to admit them to probate; to grant and revoke letters testamentary and letters of administration; to control the conduct and settle the accounts of executors, administrators and testamentary trustees; to enforce the payment of debts and legacies and the distribution of estates of decedents ; to direct the dis- position of real property of decedents ; to appoint and remove guardians for in- fants, compel delivery by them of property belonging to their wards, direct their conduct and settle their accounts ; to settle the accounts of parents or other relatives having the powers of guardians in socage ; and to determine the validity, construction or efifect of any disposition of property contained in a will. The surrogate may subpoena witnesses to testify, administer oaths and punish for contempt. Wills, letters testamentary, letters of administration and letters of guardianship are recorded in his court with the surrogate's decree concerning them, and he certifies to transcripts thereof. There are two surrogates in New York County, each of whom is elected for fourteen years. In each of the other counties there is one surrogate, elected for six years (the county judge is surro- gate in Richmond). Each surrogate receives a salary of $15,000 in New York and Kings and $10,000 in Bronx and Queens. Recapitulatioti: These forty separate county departments are listed below showing the au- thority under which each exists, how the head of the office is chosen, and what compensation he receives : Office. Exists Under What Authority. Elective or Appointive. Compen- sation. New York County: 1 County Clerk 2 District Attorney 3 Register 4 Commissioner of Records. . . . 5 Commissioner of Records, Surrogates' Court 6 Commissioner of Jurors 7 I^ublic Administrator Sheriff 8 9 Court of General Sessions (7 judgt's) 10 Surrogates' Court (2 surro gates) Bronx Count \: 11 C 449,797 00 22.138 ^7 10.547 36 166,761 72 139.712 32, 25.123 39 1,926 00 $7,348,010 86 $6,630,165 66 $685,858 18 %2%262 71 $3,724 31 New^ York Bronx Kings .... Queens . . . Richmond Total 'For detailed cost of New York County Government see Table 1. For detailed cost of Bronx County Government see Table 2. For detailed cost of Kings County Government see Table 3. For detailed cost of Queens County Government see Table 4. For detailed cost of Richmond County Government see Table 5. 'Additional Supreme Court pensions amounting _to $6,400 are included in the budget allowances for New York County, under L. 1911 C. 855. The total pensions paid to County employees therefore were $10,124.31. 16 EFFECT OF MANDATORY LEGISLATION. The *' Study of the Effect of ^Mandatory Legislation upon the Budget for the Year 1915 " recently published by the office of the Commissioner of Accounts, shows that of the total budget allowance for county purposes for 1915 of $7,033,- 716.82: (a) $4,858,773.47 or 69.1 per cent, represented mandatory appropriations which could not be increased or decreased by the budget makers, either because the exact amount was fixed by law or because the power of fixation was conferred upon officers other than the budget makers. Of this sum : $2,547,562.04 was appropriated for New York County. 432,940.68 was appropriated for Bronx County. 1,520,853.52 was appropriated for Kings County. 283,498.54 was appropriated for Queens County. 73,918.69 was appropriated for Richmond County. $4,858,773.47 (b) $661,785.00 or 9.4 per cent, was appropriated for items as to which any reasonable expense necessarily incurred must be paid, irrespective of the amount of appropriation allowed in the budget. Of this sum: $422,700.00 was appropriated for New York County. 31,500.00 was appropriated for Bronx County. 156,600.00 was appropriated for Kings County. 43,585.00 was appropriated for Queens County. 7,400.00 was appropriated for Richmond County. $661,785.00 (c) Leaving $1,513,158.35 or 21.5 per cent, discretionary with the budget makers, of which sum $845,304.37 was appropriated by New York County. 235,213.78 was appropriated by Bronx County. 229,669 . 00 was appropriated by Kings County. 137,963.20 was appropriated by Queens County. 65,008.00 was appropriated by Richmond (Tounty. $1,513,158.35 It is further shown by the *' Study of the Effects of Mandatory Legislation " that of the $5,809,481.75 appropriated for personal service in county offices for 1915: (a) $4,576,985.75 or 78.78 per cent, was mandatory as above defined (see (a) above). Of this sum: $2,370,808.70 was appropriated for New York County. 397,506.30 was appropriated for Bronx County. 1,462,353.52 was appropriated for Kings County. 274,898.54 was appropriated for Queens County. 71,418.69 was appropriated for Richmond County. $4,576,985.75 ^7,03},7/6.8Z ' Pi/epo5£s w BC£>G£r roe /9/3 - ^5, mm 7^ i 17 (b) $9,650.00 or .01 per cent, was appropriated for items as to which rea- sonable expenses were mandatory, irrespective of the amount appropriated. Of this sum : $6,000.00 was appropriated for New York County. 1,000.00 was appropriated for Bronx County. 1,150.00 was appropriated for Kin^s County. 1,500.00 was appropriated for Queens County. Nothing was appropriated for Richmond County. $9,650.00 (c) Leaving $1,222,846.00, or 21.05 per cent., discretionary with the budget makers, of which sum: $708,582.00 was appropriated for New York County. 193,315.00 was appropriated for Bronx County. 159,767.00 was appropriated for Kings County. 111,864.50 was appropriated for Queens County. 49,317.50 was appropriated for Richmond County. $1,222,846.00 Even as to the amounts here described as discretionary with the budget makers, the discretion is limited by the fact that the law requires that certain functions be performed in each of the five counties. It is the duty of the budget makers to provide the funds necessary to execute these functions, although they may slightly increase or decrease the salaries or the number of positions where those are not fixed by law. It is important to note that the constitution gives the mayor of the city of New York no veto power over bills affecting county offices within the city. In this field, therefore, the greatest number of bills financially burdensome to the city have been enacted by the legislature. Every year the legislature grants salary increases to county officers and employees over the heads of the board of esti- mate in amounts frequently exceeding the value of the service rendered, or confers upon county officers instead of upon the central city administration power to increase salaries. The legislature has left the board of estimate and apportionment and the board of aldermen no power whatever over the payrolls of the following county offices :^ New York County — Commissioner of Records Commissioner of Records for Surrogates' Court Commissioner of Jurors Surrogates' Court Bronx County — Commissioner of Jurors Public Administrator ^See " Study of the Effect of Mandatory Legislation.' 18 Kings County — Commissioner of Records Surrogate's Court Queens County — Public Administrator Richmond County — Commissioner of Jurors ]\Iore than 75 per cent, of the payrolls of the following county oftices is mandatory upon the budget makers: County Clerk's oflice, Kings District Attorney's office, Kings Register's ofifice, Kings Sheriff's office, Kings County Court, Kings District Attorney, Bronx County Clerk, Queens County Court, Queens District Attorney, Richmond Court of General Sessions, New York ^iore than half of the payroll cost of each of the following county offices is mandatory upon the boards of estimate and aldermen: District Attorney, New York Public Administrator, New York Sheriff, New York County Clerk, Bronx Sheriff, Bronx Surrogate's office, Bronx Commissioner of Jurors, Queens Sheriff, Richmond County Court and Surrogate's Court, Richmond The legislature has compelled the city to appropriate annually for the com- missioners of records of New York and Kings Counties an unsegregated amount of $100,000 each, which the commissioners may spend for salaries and expzenses, if they see fit, with no control by the city other than a financial audit. ^ As to the commissioner of jurors for New York County not only the entire payroll allowance is mandatory u])on the city, but the allowance for supplies as well.^ The effect of mandatory s])ecial legislation ui)on the cost of county govern- ment is strikingly shown by the following payroll bills which became law in 1912: Asseml)lyman \\'alker's bill increasing the annual salaries of 9 record clerks in the court of general sessions from $2,000 to $3,000 each; Senator I^Tawley's bill increasing from 11 to 13 the number of deputy clerks to be appointed for the court of general sessions; Assemblyman Ko])p's bill increasing the salaries of ])r()cess servers in district attorney's 'St'L- "Study of tlu- VA'fvci of Mandatorv l.c.uislation." 19 office of New York County; Senator McManus' l)ill increasing from $6,000 to $7,500 the annual salary of the commissioner of records in Xew York County ; Assemblyman Fitzgerald's bill providing for an assistant counsel to the sheriff of New York County at an annual salary of $3,000. In that year also the legislature, while acceding to the demands that the fee office of Queens county clerk be placed upon a salary basis, took occasion to in- clude in the law^ mandatory salary schedules increasing the payroll from $89,000 to $106,000 per annum. The legislature has not confined itself to fixing the salaries of important officers only, but has concerned itself with the number and salary of cooks for the Richmond and Kings county jails and office boys in the Queens county clerk's office. The legislature not only fixed the compensation of the county clerk and deputy in Kings County, but also fixed the following positions and the annual salary for each : *' The expert of records, $3,000; the assistant deputy county clerk, $2,500; chief clerk in charge of law department, $2,500; chief clerk of certificates, satisfactions and mechanics' liens, $2,000; one equity clerk in charge of equity department, $2,000; three equity clerks, each $1,500; one docket clerk in charge of docket department, $2,000; two docket clerks, each $1,500; one secretary, $1,500; one cashier, $2,000; one stenographer, $1,200; one bookkeeper, $2,000; two document searchers, each $1,200; three index clerks, $1,500; chief clerk in charge of marriage license depart- ment, $1,500; four clerks in marriage license department each $1,200; two comparing clerks, $1,000; two messengers, $800; one chief of old records, $1,100; two assistant old record clerks, $1,000; three custodians, each $1,000; one notarial clerk, $2,250.'' INEQUALITIES IN SALARIES. Great inequality has resulted from mandatory salary increases for various county positions granted by the legislature from year to year. For example, the chief clerk of the Kings County Court, with only two court parts and 55 subordi- nates, receives a mandatory salary of $7,500, while the salary of the chief clerk of the court of general sessions (county court. New York County) with six court parts and 113 subordinates, is fixed by the legislature at $5,000. The salary of the warden of the Grand Jury, Kings County, is mandatory at the sum of $3,500, while the salary of the warden of the Grand Jury of New York County, fixed by the Board of Estimate and the Board of Aldermen, is $2,000.^ The stenographers of the Court of General Sessions (six in number for six parts) re- ceive $3,600 as against $4,000 in the Kings County Court where there are four stenographers for only two parts. The salary of secretary to the county judge is $3,000 in Bronx County as compared with $2,000 in Kings and Queens Counties.- In the Kings County Court there is a chief court attendant at $3,500. twelve court attendants at $2,000 and six court attendants at $1,800, while in the other county courts and the court of general sessions no court attendant re- 'There is an additional warden in Xew York County who also receives $2,000. Init there are two grand juries constantly sitting in Xew York while an additional Grand Jury is very rarely called in Kings County. "Called confidential clerks in Kings and Queens Counties. 20 ceives more than $1,800, and there is no other chief court attendant except in Queens where his salary is $1,800. County detectives in Kings County receive $3,000 as compared with $2,000 in Bronx and Queens. The compensation for the position of stenographer and typewriter in Kings County Court is $2,400 while in the Bronx County Court it is $1,200. These inequalities in salaries are due rather to overpayment of the employees receiving the larger sums rather than to underpayment of incumbents receiving the lower figures. The duties of court attendants in the Kings County Court, for example, in maintaining order in the court, while analogous to those of policemen in maintaining the public peace, is far less onerous. The court at- tendant is rarely called upon to perform a duty other than standing in court and preserving order by his mere presence. The qualifications both physical and mental for entrance into the police service are far more rigid than the qualifica- tions for court attendant. The work of the court attendant does not begin until the opening of court at 10 to 10.30 A. AL, and invariably ends when court adjourns, rarely later than 5 P. M. He has the benefit of all court adjournments and an extended vacation of at least four w^eeks when the court is closed in summer, all Sundays and holidays free, besides the relief from duty when calendars break down or the court adjourns before the end of the monthly term. His expense for uniforms is nominal as compared with the policeman's. If it is assumed that the patrolman's salary of $1,000 to $1,400 is a fair return for the service rendered it must be conceded that the salaries of the Kings County Court attendants at $1,800 and $2,000 are grossly excessive. The maximum proper salary for court attendant would appear to be that fixed by the budget makers for attendants in the city magistrates' courts, namely, $1,200. Again, if it is assumed that the salary of $2,250 received by a first grade lieutenant assigned to the detective bureau is a just one, payment of $3,000 per annum to county de- tectives in Kings County who are apparently doing probation officers' work is unquestionably excessive. INCREASE IN COUNTY EXPENSES. Under compulsion of special legislation not subject to the mayor's veto, budget a])propriations for county purposes have steadily increased until they have nearly doubled within the last fifteen years as shown by the following table: Total County lUidgct A])propriations 1 exclusive of State Tax. 1901 $3,701,916 17 1902 3,731,330 13 1903 3.776,266 43 1904 3.762,230 50 1905 4.097,090 81 1906 4.230.775 51 1907 4.740.543 63 1908 5,097,862 28 1909 5.175,796 23 1910 5,355,124 84 1911 5,453.805 25 I CURl/e^ ^HO////VG REL/fT/ON OF BUDGE T /fNO PfU- ENUE 80NO FILLOfy/7A/CE3 TV FEES COL L ECTED. /?^v5 C0/.i.£Cr£-O . w ... s5UMM/9/^Y CURUe^S H A ' V y\ /i ? 2 OfinneiQ ^^ ^ •^ V \ 1 ^ S ^ ? p /SOOOOQ. \ ■vj /oooooo N ^ ^ 2 ►0 c tr N 5 1 sooooo I. '0 5 ■ .. ^. — ■ VI c s N f 1 ^ 4 • ■^ ^ 3 7?^/ J _£ £6 ^^0/y, 1 £6.^rA >r>r /9J/ 7-/V05f CURi/E^ >^0t^JN6/^£L/!ri0N OF BUDG£ Ty9//P R£l/- £NU£BO/VD /riLOM 1 a 1 1 I 8 1 ^ $ ^ 1 1 1 > ^ i i 1 1 I R£0/ sr£R "MF^ VYOJi /r COUNTY zsoooo j ? I 2 2! >0 Jtnnnnn / ? ? S '\4 -V "V K / eooooo.*- /soooo •1 N << 9 "*■• — . /OOOOQ ■5 5? r\ SOOOO 1 1 1 ? ^ V ^ 1j •o V ^ ^ ? CURiy£3 .5H0kY/A/0 REL/fTiON OF BUDGET / R£I/£/VU£ BOND /fLL OyV/^NCE^ TV FEES COL /?.fj COLLECTED . . 9A/0 IECT£ UNTYA a ?.<:rir)n PU£ ^UC /9PM/^/STRy9T0R — Aif/K YO/^K CO 1 ■ ■ ~ A o o o S o 1 1 > — — •-3 (0 7? '^ 1 /SOQO -■ 1 1 1 fi ^ i ^ ^ § 1 s ? 5 5 5 ^ q; >! ^ ^ ? ^ ^ ^ ^ ^ s5HF/?/Ff\- A/EiV YHRK COUNTY 3 /soooo » ^ 5 N f^ > (/■ \ - : ^ § ■' .^^ ^ ^^^^ * '^ rooooo < % -; 4 ° ft - t % I % t>, I 1 % I I I I asooo ---r-" ^ ^ § e e ^ 5 t sooooo^ /SOOOO- "C /ooooo •SOOOO. ^^ ^URROG/JTE- Nt ■ivyt?> ^KCOL WTY Oj 2 "i — c c ^ V ' 5 ^ ^ ':;; <« 5 r * ;^ c ^ ^ « O •^ * ^ VI 3( > ^ ^ S ^ 5 ^ I ^ ^ i 5 5 5^^ 1 i 1 1 I I I $ 5 ^ ^ »S »J O; • i 1 CU/^l/£6 ySM/V/NG /^EL/rr/ON OF BUDGET /FA/0/^£iy£//U£ BOND yfllOJV>9//C£s5 TO £££sS COLUCTED. /.-^nnnn /£S>S C0Ll£CT£-O . „ COUNTY CLERK — K/NG3 COUNTY /a^ooo % \ ^) / / ? /ooooo N o s 1 -^ / to '^ 1/ ^ ^ 1 y 7.nooo * 2 2 «0 ? ? ? *0 5 ? ^ ^ 5^ j 1 1 -"•"" o *0 N O Q 0, ^ a 1 Of s o> ^ 1 >«= £G/3Ti^ r>?— / coum ry. ? 1 o ft. o <\i J 3 COUNTY. /OOOOO S I \^ >»■ jj:rtnn i -^ £ i , »5"a OOO ff? ? ^ o ^ 0) s N *0 * ^ ? § % ^ ?_ ^ — . .— . — • 1 ? 1 1 1 N /^OGA 're — /^ s ? S 3! ? H_._._.^._._.-h.— .:i 1 — ^ 1 ^ ,^ I CURl/S^S ^HOM//N6R£L^T/ON OF BUDGET /fNPReiA EA/U£ 30//0 MLO)y^//C£^ TO F££3 COLLECTED. JfLLO/V^//rF.<^ .'iHaiVAf THUS /"^SyS COLLECTED ■■ FUBUC J9OM/N/3TR/fT0R'--QU££/^3 COUNTY ATnn /nan O O O o o 5j 5, ^ ^v, 5, ^_^ ? ^nn ! s ? Q \ h-.. ? ? % --J \ N ^ 05 ^ «) 1 1 S T.'innn v5A EF/EE- -quEE//^ OU//T Y. \ .nnn ? \ P^OOO 1 o «J ^ ? ^ 5 5 .^ 1 ? ^ 1 1 ^ ^ — 1 » § f 1 \ N N >» ^ JOOOO c OUNT f CLE. 1 '0//DC vu//r < '0 5 1 zoooo \ ^ \ 01 /SOOO 1 /onno « s _ V-.-.3 5! — . \ ! 1 1 : 1 1 21 Total County Uiulget .Appropriations Exclusive of State Tax. 1912 5,915.808 43 1913 6,234,661 86 1914 6,630,165 66 1915 7.033,716 82 Increase 1915 over 1901, $3,331,800.65, or 90 per cent. This increase in county appropriations is not to be explained on the ground of increased business, for in fee earning offices the increase in fees has not kept pace with the increase in appropriations, as shown by the following table and accompanying charts : Comparison Between Budget and Revenue Bond Allowances and Fees Collected BY Fee Earning County Offices and Retained by the City. m m m w no ^11 512 m 914— New York, Kings, Queens and Richmond . Bronx County . . . , Budget Allowances. Revenue Bond Allowances. Total Appropriated. Fees Retained by City (See Table 6), Excess Over Fees. Percentage of Fees Retained by City to Total Appropriations. $1,687,222 50 1.864.844 50 1.908.226 2.012.177 2.022,617 2.145.311 2.298.202 2.444.801 00 00 00 00 75 $204,081 93 132,201 53 114.322 89 74.063 97 116,144 41 73,677 26 73,540 82 63,200 59 $1,891,304 43 1,997,046 03 2.022.548 89 2.086.240 97 2,138,761 41 2.213,988 26 2.371.743 57 2.508.001 84 $623,610 97 554,446 70 518.347 34 577,667 53 577,139 04 548,647 33 563,865 83 CG9,\83 20 $1,267,693 46 1,442.599 33 1.504.201 55 1,508,573 44 1,561,622 37 1,665,340 93 1,807,877 74 1,898,818 64 33% 28% 26% 28% 27% 25% 24% 24% 2,484,276 15 196,998 97 2,681,275 12 547,940 75 2,133,334 37 24% 182.100 00 110.704 98 292,804 98 55.479 37 237.325 61 19% $19,044,778 15 $1,158,937 35 $20,203,715 50 $5,176,328 06 $15,027,387 44 26% 22 INADEQUACY OF FEES. Although the theory underlying the collection of fees is that the fee represents suffiicient payment to defray the cost of rendering the service, none of the fee earning offices is self supporting^ (see accompanying charts and Table 6). This has not always been the case. Twenty years ago most of the county offices were conducted upon the basis that all of the fees received were the property of the incumbent. They were not only self-sustaining, but netted considerable fortunes for the officials. This is evident from the fact that they were much sought after politically and large campaign expenses were incurred with the knowledge that if successful the profits of the office would amply repay the expense. When these offices were successively placed upon a salary basis there was not the same incentive to secure legislative revision of the fee schedules so that they would yield the cost of the service rendered. In consequence fees have long remained unchanged and are to-day in most instances grossly disproportionate to the cost of the service for which they are paid. The commission on new sources of city revenue, in its report submitted to the Mayor under date of January 11, 1913, recommended an increase in the fees of the registers and county clerks and stated : " The fees charged by the registers and county clerks are at present insufficient to defray the expenses incurred by their respective offices. The whole burden of sustaining these offices should be borne by those particularly benefited by their services. * * * /\ public office created and conducted to safeguard property interests should be self-sustaining and the maintenance thereof borne by the individuals most interested. * * * These offices should be self-supporting and that they are not so is due to the present schedule of fees that have remained practically unchanged for many years, until now they are inadequate and unproportionate to the actual cost of the services rendered. * * * By the adoption of the suggestions hereinbefore proposed embodying the revision of fees, etc., it is apparent that the deficiencies now existing in the maintenance of these offices will be eliminated and the cost of sustaining them will thus fall upon those who, in accordance with the principles of equity and justice, can ofifer no valid objection." SHERIFF'S FEES AND EXPENSES. In New York and Richmond Counties the sheriff receives both salary and fees. In Richmond he gets $6,000 and all his fees; in New York $12,000 and half his fees.2 Table 7 shows the results of an examination of the receipts of the New York County sheriff's office and their distribution for the years 1906 to 1914, both inclusive. It appears therefrom that in addition to his annual salary the sheriff of New 'The registers of New York, Kinps and Bronx, and the county clerks of Queens and Richmond collect the mortgage recording tax, half of which goes to the State, but this should not he included in computing the revenue produced by the office as it is not received in r("turn for service rendered. 'L. 1911, C. 701 and L. 1913, C. 373. 23 York County has received as his part of the fees of the office the following sums ; 1906 $29,488.72 1907 35,859.62 1908 45,214.50 1909 40,217.92 1910 48,924.72 1911 44,224.52 1912 ;. 53,184.88 1913 51,505.85 1914 59,703.71 Total $408,324.44 The sheriffs who held office during the period under examination received in addition to their salaries, the following sums as their share of the fees : Nicholas J. Hays (1906-1907) $70,193.91 Thomas F. Foley ( 1908-1909) 92,594.84 John S. Shea (1910-1911) 95,623.91 Julius Harburger (1912-1913) 98,769.24 kax S. Grifenhagen (1914) 45,147.34 $402,329.24 Amounts received during period from January 1, 1906, to December 31, 1914, by ex-sheriffs who held office prior to 1906 5,995.20 $408,324.44 The cost of operation of the sheriff's office. New York County, during the same period was $1,274,797.25, as shown by budget allowances and revenue bond funds allotted. The net fees, interest, etc., received by the city during this period totalled $440,103.44, showing that the net cost of maintenance to the city over and above its share of the fees and receipts from all other sources by the sheriff's office w^as $834,693.81, distributed as follows: 1906 $95,881.80 1907 92,550. 14 1908 86,677.97 1909 93,989. 19 1910 82,478.87 1911 87,637.08 1912 96,371 .90 1913 101,905.13 1914 97,201 .73 Total $834,693.81 In two reports of the commissioners of accounts to the mayor it was recommended that legislation be enacted limiting the compensation of the sheriff 24 to his present salary of $12,000 per annum, and vesting all the fees of the office in the city. The present New York County sheriff has stated his agreement with this recommendation, and recently caused a bill to be introduced in the legislature embodying the suggested legislation, but it failed of passage. It has been urged in opposition to that recommendation that the sheriff's risk of personal Hability for torts "committed by him in good faith, incident to the performance of his official duties, is such as to render inequitable the withdrawal of his participation in the fees of his office. This position appears to be untenable in view of the following: 1. The sheriff" of New York Count}- is provided at city expense with a counsel who receives an annual salary of $6,000 (L. 1890, ch. 523, sec. 1), and with an assistant counsel who receives an annual salary of $3,000 (L. 1912, ch. 500). 2. The sheriff' may and does demand indenniity from parties interested before proceeding in any case in which the possibility of personal liability is present. 3. The sheriff' demands and receives at the city's expense, indemnity from such of his subordinates as can by any possibility subject him to personal lia- bihty in the course of performance of their duties. 4. Inquiry of past incumbents of the office of sheriff" of New York County, as far back as 1900, discloses no instance of personal loss actually sustained. Sheriff Dunn (1898-1899), did sustain liability which probably could have been avoided by the exercise of the greater degree of caution which his successors have manifested. Accordingly it would seem that with the advice of counsel to avoid the in- currence of liability, and with indemnity to cover liability if incurred, there is no justification for the continuance of the New York sheriff"'s participation in the fees of his office. This argument applies with equal force to the Sheriff* of Richmond County. The cost of maintaining five sheriff's' offices, as*shown by the budget for 1915, is $432,913.50, divided as follows: New York County, $159,864.50; Bronx Coimty, $101,600.00; Kings County, $92,827.00; Queens County, $45,947.00; Richmond County, $32,675.00. An examination of the sheriff"'s off"ice of New York County to ascertain the volume of business for the year 1914, showed that during the year a total of 30,127 processes were received and acted upon by that official and his subordinates. The bulk of these were executions against property, which numbered 18,723, or 62.14 per cent, of the total business of the • office. The receipt and entry of these 30,127 processes required the services of eleven employees. The average number of processes received daily was ap- I)roximately 100.42 or about 9 processes per day for each clerk employed to enter them. The su])ervision of this clerical force costs $7,710.00 ])cr annum ; an average of $25.70 per working day. In the execution of these processes there were employed, besides the sheriff, one under sheriff at $6,000 ])cr annum; fourteen deputy sheriffs at $2,500 and fourteen assistant deputy sheriffs at $1,500, making a total in salaries of $62,- 000 per annum, or an average of $2.06 for each process handled. The financial result of the execution of these processes by the above employees was the col- lection of a total of $113,128.02 in fees, at a salary cost of nearly fifty-five cents for each dollar collected. When it is considered, however, that of this total the 25 sheriff received one-half of the fees collected, the salary cost is almost $1.10 for every dollar received. The average number of processes handled by each deputy is 7 1-6 per day. Each deputy, however, has an assistant and a large percent- age of the processes require only nominal action. An examination of the records of the office of the sheriff of Bronx County for 1914, showed that 2,533 processes were received and acted upon during the year, for which the county received in fees the sum of $7,004.91. Of the processes 2,283, or 90 per cent, were executions against property. The receipt and en- try of these 2,533 processes cost, in clerical work alone, the sum of $12,600.00 (the salaries of eight clerks). The average number of processes received daily were less than Sy^, or about one process per day for each clerk employed to enter them. In the execution of the 2,533 processes there were eni])loyed, besides the sheriff*, one under sheriff* at $5,000 per annum ; ten deputy sheriffs at $2,500 and five assistant deputy sheriffs at $1,500, a total of $37,500 per annum in salaries, which was nearly $30,500 in excess of the amount their services pro- duced in collection of fees, viz.: $7,004.91. RESTORING RECORDS AND RECORDING DOCUMENTS. The following table shows the budget and revenue bond allowances for restoring and preserving old county records, all counties, from 1899 to 1915, inclusive : Surrogates, and Commissioner of Commissioner Register. Xew County Records, New of Records, York, Kings Year. Clerks. York Sur- rogate. New York and Kings. and Bronx. Total. 1899 $25,600 00 $11,470 CO $99,500 00 $20,800 00 $157,370 00 1900 46.100 00 16.560 00 100.000 00 50,800 00 213.460 00 1901 56,100 00 14.160 00 100,000 00 50.800 00 221,060 00 1902 47,325 00 11.320 00 100.000 00 39.100 00 197.745 00 1903 49.175 00 14.000 00 100,000 00 33,100 00 196.275 00 1904 49.175 00 14.000 00 45.000 00 30.76() 00 138.935 00 1.905 61,175 00 21.500 00 100.000 00 60.970 00 243.645 00 1906 81,175 00 14000 OO 100.000 00 52.120 OO 247.295 00 1907 81,798 55 16,310 00 M33,000 00 54,280 00 285,388 55 1908 58,100 00 21.380 00 149,150 00 44,680 00 273.310 00 1909 54.500 00 19.400 00 139,610 00 35.900 00 249,410 00 1910 38,700 00 11.400 00 174.842 00 35.500 a) 260.442 00 1911 39.300 00 11.400 00 176,222 00 33,160 00 260.082 00 1912 58,981 00 =50,740 00 184.532 00 33.160 00 327,413 00 1913 43,300 00 =^51.750 00 200.000 00 35.660 00 330.710 00 1914 ^28.200 00 -50.550 00 200.000 00 35.660 00 314,410 00 1915 ^37.952 00 '46,827 00 200.000 00 36.460 00 321.239 00 Total... $856,656 55 $396,767 00 $2,301,856 00 $682,910 00 $4,238,189 55 It will be noted that the cost was $4,238,189.55 for the seventeen years, or an average yearly cost of $249,305.27. Despite the fact that the office of commissioner of records has existed in Kings County since 1897, the register, county clerk and surrogate of that ^Budget allowances for years 1914 and 1915. merged in general appropriation (Admin- istration) New York Countv Clerk and amounts not included. ^The office of Commissioner of Records. Surrogates' Court, was created as a separate department from 1912 (Chap. 827, Laws 1911). 'Office of Commissioner of Records, New York Countv, was created in 1907 by Chap. 661, Laws 1906. 26 county have received annual allowances for the same work. Similarly in New York County, although a commissioner of records was created in 1906 the county clerk still receives an appropriation each year for the preservation of old records. In November, 1913. one of the surrogates of New York County declined to certify to the monthly pay-roll of the commissioner of records for the surrogates' office on the ground that he was not satisfied that the work was being done, and instructed his secretary to make an investigation and report on the condition of the off'ice. This report stated that the oft'ice was doing good work in reindexing certain records, particularly a new directory index to letters of administration, etc., but that the work could be done as effectively with a reduced number of employees. It stated further that the principal duty of the deputy commissioner, who received a salary of $4,000 per annum, was to act in the absence of the commissioner, and that he displayed a lack of knowledge of the functions of the bureau and was unfamiliar with its workings. The report recommended the abolition of the positions of deputy commissioner at $4,000, secretary at $2,000 and 3 laborers at $720 each. Acting on the report of his secretary, the surrogate declined to certify to the pay-roll and it was transmitted to the finance department with the certification of the commissioner of records. The comptroller declined to pay the salaries and mandamus proceedings Avere instituted in the supreme court which resulted in the issuance of a writ compelling the comptroller to pay. In a memorandum accompanying the writ i\Ir. Justice Nathan Bijur stated : '' It may well be that the comptroller is justified in his dissatisfaction with the work of the relator as shown by the examiner's report submitted to me. Relator's position seems also to be quite superfluous. These, how- ever, are not judicial but administrative considerations, relief from which must be sought either from the appointive power or from the legislature. Relator having been duly appointed to a duly established public off'ice, and having been present regularly to perform any work required of him by his superior is entitled to his salary." The same person is still deputy commissioner of records at $4,000 per annum, and no change has been made in the off'ice force. One of the large items of expense in the off'ices of the register, county clerk, surrogate and commissioners of records is the work of recording, in libers, of original documents filed, which require recopying from time to time and when- ever certified copies are requisitioned. An analysis of the cost of this work shows a total annual expenditure of $379,820.73 aj^portioncd as follows: County Clerk, New York County ^ $43,700 00 County Clerk, Bronx County 4,000 00 County Clerk, Kings County 24.458 75 County Clerk, Oueens County 37,200 00 County Clerk, Richmond County 27 222 00 Total for county clerks $116,580 75 'Incliulcs an autliorizaticjn of $32,(XK) si)c-cial rcvciuic bonds by Hoard of Estimate and Apportionir.cnt. March 5. 1915. for 640,000 folios at five cents per folio during 1915. (PaKc 1541. minutes of Pioard.) ■Authorization of special revenue honds l)v Boarrl of Estimate and Apportionment, June 26, 1913. (Page 5221, minutes of Board.) 21 Register, New York County $45,460 00 Register, Bronx County ^ 24,425 00 Register, Kings County 84,200 00 Total for Register $154,085 00 Surrogates, New York County $v33,500 00 Surrogate, Bronx County 2,400 00 Surrogate, Kings County 15,600 00 Surrogate, Queens County 3,000 00 Total for Surrogates $54,500 00 Commissioner of Records, Surrogates' Oltice, New York County $23,400 00 Commissioner of Records, New York County 18,030 00 Commissioner of Records, Kings County 13,225 00 Total for Commissioners of Records $54,655 00 Grand Total S379,320 75 While these large sums of money are expended annually for this class of work little progress has been made toward the introduction of modern and more economical methods in these offices since the first book typewriter was installed in the register's office of New York County sixteen years ago. A recent inquiry conducted by the commissioner of accounts at the request of the register of New York County, indicated that a method for the accurate copying of original documents, having photography for its basic principle, would be peculiarly applicable to the needs of the register's office for the reason that a true copy would be produced which would eliminate the present cost of abstracting and comparing, besides removing the possible element of fraud by forgery or misstatement. Such method probably would be valuable also in other offices performing this class of work and should be promptly adopted. COUNTY JAILS FOR CIVIL PRISONERS. The law requires civil prisoners to be kept separate from criminal offenders. The former are detained in the custody of the sheriff in the county jail in each county. In Kings County the county jail is merely a portion of the Brooklyn City Prison which is set aside for the use of the sheriff'. In Bronx and Rich- mond counties criminal prisoners serving short terms are under the jurisdiction of the sheriff' and are confined in the county jail. The salary cost of maintaining the five county jails as indicated in the budget for 1915 is shown in Table 7a to be $95,044.50, of which $74,180.00 was for guarding prisoners. The average number of prisoners confined in the county jail daily during 1914 was: New York, 20; Kings, 15; Bronx, 85: Queens, 2: Richmond. 45: a total of 167. In Bronx and Richmond Counties the daily average of prisoners ^Includes authorizations of $13,025 special revenue bonds bv Board of Estimate and Apportionment. January 6. 1914, May 28. 1914, and December 23. 1914. (Pages 223, 3475 and 9565, minutes of Board.) 28 arrested by civil process by the sherift' is two per diem. The sheritts of these counties, however, have the custody of witnesses detained by the state and of prisoners awaiting criminal trial or sentence or serving short terms for criminal offenses. On this basis the average daily cost of guarding prisoners per 1915 budget would be per prisoner: Xew York, $3.49; Kings, $3.21; Queens, $5.20; Bronx, 64 cents, and Richmond, 45 cents. In contrast with the preceding, the records in the department of correction show that the cost of guarding prisoners solely is as follows: workhouse, one keeper to 13.5 male prisoners at a cost of about sixteen cents per prisoner per diem, one matron or orderly to 24 female prisoners at a cost of less than seven cents per prisoner per diem; penitentiary, one keeper to 17 male prisoners at less than sixteen cents per prisoner per diem, one matron or orderly to 3 2/3 female prisoners at thirty-seven cents per prisoner per diem. It will be noted that cleaners are paid $900 per annum in Xew York, $750 in Kings and $600 in Bronx County jails, while $360 per annum is the standard lor this work in other branches of the city's service. The commissioners of accounts have heretofore reported on extravagance in the conduct of the county jails and recommended that they be abolished and the custody of prisoners be turned over to the department of correction. In a report to the mayor under date of April 28, 1913, attention was called to the fact that at the New York County jail two engineers were employed at $4.50 per diem each, their duties being confined to the care of a small heating boiler carrying not over ten pounds of steam during the winter months, and of a kitchen range and a water heater during the summer months. The same situation exists to-day except that one of the engineers is employed only for 200 days. DIVERSION OF FEES TO PRIVATE CORPORATIONS. The office of register in the various counties has not been reorganized to keep pace with the rapid growth of real estate interests. This has enabled private persons alive to the possibilities of the situation to organize corporations known as title companies which in a short time have absorbed the functions of the register in the matter of searching titles to real property. These companies utilized the information contained in the county records as the basis of their plants and, by applying modern methods and a competent force of experts, soon made the plants more efficient than the county organization. The consequence has been that the title companies have collected large sums in fees while the county has received comparatively nothing. Measures designed to correct this condition have failed to obtain legislative enactment. An attempt to simplify the registration of title to real estate in the city, by the introduction of the Australian system, was made by the enactment of what is known as the Torrens law. The act, however, was encumbered with such comi)lex conditions that the expense of registering a title made its use pro- hibitive.i Upon the enactment of this law bureaus known as Land Title Regis- tration Bureaus were organized in the oft'ices of the registers of New York and Kings Counties and in the county clerks' offices of Queens and Richmond. A similar bureau was jjrovick'd for in the l>ronx County Register's office in 1914. L. 1908. C. 444, now st-ctions 370 and 435 <.f Rral I'ropcrty Law. 29 But the law has remained practically a '* dead letter." In the register's office of New York County the hoard of estimate and apportionment provided for a diagram and filing clerk at $1,400 and a general clerk and searcher at $1,400, but there have been only thirteen titles presented for registration since the law was enacted, five of which had to be withdrawn because of defects in the appli- cation. The receipts in New York County for 1915 were $11.50, and in 1914, $16. In Bronx County the register has received but one application since he took office. In Kings County in 1914 there was but one notice of pendency of action and three judgments of registrations upon which three certificates were issued. The Real Estate Board recently made an investigation to determine whether the law could be made a practical working instrument. The investigators con- cluded that the Torrens law was sound in principle and ought to be fostered and used to a greater extent. The amendments suggested by them would shorten the pleadings, avoid duplication of papers and lessen expense of guardians; make more definite the manipulation of registered title, provide for administration of the law by judges specially chosen for that purpose ; and give those judges and the Appellate Division (which appoints two official examiners of title), more supervision. The investigators also recommended utilizing locality indexes in the register's office, where such indexes have been completed, and authorizing deputy registers to act as official examiners of title. NECESSITY FOR REORGANIZATION. The foregoing facts constitute a sufffcient indictment of the present system of county government. A form of government that lends itself so readily to abuse is fundamentally unsuited to the needs of the community. County government was first devised for rural districts. It originated in mediaeval England and was carried to this country in the days before the existence of large urban areas. It has not been adaptable to the new conditions. In particular, the development of the greater city of New York, with its complete scheme of municipal gov- ernment, has demonstrated the absurdity of continuing separate and distinct' county organizations, relics of a bygone day. Nevertheless, the old scheme has persisted and the result has been multiplication of elective officers, baffling to the elector; obscurity of many county offices, and the natural consequences thereof. A thorough reorganization of county government is imperative if the ma- chinery of administration is to be adapted to modern needs. Already a degree of centralization has been effected in that there has been a merger of the five county treasurers with a central municipal officer, the city cham- Ijerlain, and a transfer of the powers of the five sets of county supervisors to a central municipal legislative body, the board of aldermen. i The feasibility of further centralization at once suggests itself. It may be urged, however, against any further consolidation of county gov- ernment within New York City and against any further merger with the munic- ipal government : (1) That the antiquity of our present county institutions is proof of their desirability. ^See also p. 30. 30 (2) That county officials perform so-called " state functions," the exercise of which should be entirely separate from municipal activities. (3) That offices located in each county are necessary for the con- venience of the public. (4) That centralization of county functions would unduly impair local autonomy. (5) That centralization would not reduce expenses because the func- tions now performed within each county must continue to be so per- formed, either by the present officers or by high salaried deputies under a higher salaried central officer. These arguments are considered in order: 1. Antiquity of county institutions no reason for their retention: That mediaeval institutions have persisted through habit and inertia will not be regarded by thoughtful persons as proof of their necessity at present. For many years the coroners' office in this city persisted in spite of its obvious super- fluity and its maladministration. Now that provision has been made for its abolition few will contend that it had anything but antiquity to recommend it. 2. No necessity for separation of county and municipal functions: No argument can be advanced in favor of the retention of live county clerks or five district attorneys that will not tend to prove with equal force that there should be five county treasurers and five boards of county supervisors. Many duties are already discharged by the central municipal government, each of which in " up-state " counties devolves upon a separate county officer. In ])lace of county superintendents of the poor there is here the municipal department of public charities. The finance department of the city performs the work else- where done by county comptrollers. County sealers of weights and measures are replaced by the mayor's bureau of weights and measures. The care of criminal prisoners has largely been transferred from the sheriff to the municipal depart- ment of correction. There is a single board of elections for tlie city of New York in place of a commisisoner of elections for each county. In each borough the bureau of public buildings and offices, and not the sheriff, is the custodian of county buildings. The borough bureaus of highways take the place of county superintendents of highways. Many counties have a county attorney. In New York City the corporation counsel represents county officials in civil matters where they are not sui)i)lie(l with special counsel. Finally, a chief medical examiner for the entire city is to perform the work which in other counties is entrusted to the coroners. There appears to be no reason why this reorganization according to modern conditions slujuld not be made com])lete. 3. Centralicatioji would not interfere 7citli convenience to the public: In order to determine what ])ro])()rtion of the ])ersons or corporations doing business with the outlying counties of l?)r()nx, Oueens and Richmond are persons or corporations having offices in New York C ounty, a random test was made in the offices of the sheriff, county clerk and register of IJronx, Queens and Rich- mond counties. The results of this test showed that on March 1, 1915, there were eight ])ai)ers filed in the sheriff's office, Bronx County, six by i)ersons whose addresses were in lower Manliattan. ( )n Marcli 1 and 2. 1915, there were two 31 papers filed in the office of the sheriff of Richmond County, both by persons whose offices were in lower Manhattan. On March 1 and 2, 1915, in the office of the sheriff of Queens County, there were eighteen papers filed — ten from Manhattan addresses, four from Ouecns, three from Kings, and one from out- side the city. In the register's office, Bronx County, on March 1, 1915, 72 papers were tiled — 46 from Manhattan and 26 from Bronx addresses. In the register divi* sion of the county clerk's office of Queens County on March 1 and 3, 1915, 186 papers were filed — 142 from Queens County addresses, 17 from Kings County, 26 from New York County addresses, and one from outside the city. Of the 142 filed with Queens addresses, however, 69 were from title companies whose main offices are in lower Manhattan. - In the county clerk's office of Queens County on March 1 and 2, 1915, 62 papers were filed — 32 from Queens County addresses, 11 from Kings County and 19 from New York County addresses. In the Richmond county clerk's office on February 27, March 1 and 2, 1915, 31 papers were filed — 16 from Richmond addresses, 11 from New York County addresses, and 4 from outside the city. In the Bronx county clerk's office, on March 8 and 9, 1915, 79 papers were filed, of which 71 were from New York County addresses, 6 from Bronx County and 2 from Kings County addresses. The following table summarizes the results of the test: Number of Papers Filed, Per Cent. From New York County addresses, From home county addresses From elsewhere 260 57 157 34 41 9 458 100 With present transit facilities, all parts of Kings County are almost as accessible to lower Manhattan as to the Brooklyn borough hall, and the improved transit facilities now under construction will unite all boroughs to a still greater extent. In cases where it may be found advisable to have local offices in various portions of the city, however, branch offices will adequately serve the needs of the public and will be less costly than the present system, because in most cases it will be unnecessary to continue plant duplication. 4. Centralization zvoitld not nnduly impair local autonoiny: While it is true that the more government is localized the closer it is brought to the people, local autonomy would appear to be sufficiently preserved by the division of the city into boroughs and aldermanic districts and the existence of local school boards and boards of public improvements. There is no argument which can be advanced against consolidating the counties which would not have been equally potent if opposed to the consolidation of municipalities to form Greater New York. There is no sound reason for arresting the process of cen- tralization and maintaining obsolete county lines. 5. Centralization will reduce expenses: Any argument that centralization will not result in a material economy is conclusively disproved by a study of the possible consolidations described in detail in a later section of this report. Z2 As a practical matter, however, the greatest difficulty in the way of the cen- tralization of county government within the city of New York arises from the fact that county offices have long been the favorite field of partisan politics. With few exceptions, the elective offices of sheriff, county clerk and register have for years been considered legitimate rewards for party henchmen, and in the appoint- ment of subordinates patronage has been distributed among the '' deserving." Therefore, any plan tending to eliminate county sinecures may be expected to meet with a storm of protest. CONSOLIDATION AND MERGER. If, then, no good reasons can be urged against the further centralization of county government with the City of New York, how^ far shall it be carried? Substantial progress would be achieved by the mere combination of all similar county offices in the five counties. Such a plan would reduce the number of county departments from forty to nine and would effect a saving in annual salary cost alone of over a million dollars. An indication of what might be accom- plished under such a scheme of consolidation is shown, item by item, with refer- ence to each of the county offices, pages 33 to 40. Shall the reorganization of county government in the city of New York stop with the mere consolidation of like county departments? Much as that would accomplish, it would be but a portion of the improvement attainable by merging county government with municipal government so far as that is practicable. ^ Such a form of municipal organization is not without precedent. The boundaries of the old city and county of New York were identical from 1686 to 1897, and during all that time, except from 1857 to 1874, the government of the city and county of New York was practically a unit. The board of aldermen was also the board of supervisors ; the chamberlain was the county treasurer; the court of general sessions was held by the recorder and the city judge; the sheriff of New York County was also the sheriff of New York City, and the public administrator was distinctly a city officer.^ Indeed, by chapter 304 of the Laws of 1874 it was expressly declared that " the county of New York and the corporation known by the name of the ' mayor, aldermen and commonalty of the city of New York ' shall be one body corporate and politic by the said name; * * * {qj- j^^h j)ur]K)ses the local administration and government of the city and county of New York shall 1)C in and be performed by the one cor- I>oration aforesaid." Thereby complete consolidation was effected so far as the constitution would admit, it being provided that nothing in the act should be construed to affect the election or appointment of county officers whose election or api)ointment was provided for by the constitution, or any other purposes for which the city and county of New York was recognized in the constitution as one of tlic countit's of tlie state.- 11ie city of Brooklyn became coterminous with the county of Kings in 1894 and the following year it was similarly provided that "the county of Kings and the city of Brooklyn shall be one body cor])orate and *'*Tlie relation of rouiitv to city Kovcnitiu'iit in New York" by Arthur Ludington Prooeedinis's of Am. Polit. Sc. .\ss'n, \'ol. 8, p. 76 (1911). *Laws 1874, Chap. 305. 33 politic by the name of the ' City of Brooklyn '; the local administration and gov- ernment of the city of Brooklyn and of the county of Kings shall be vested in and be performed by the one corporation aforesaid * * * "i. Under the present charter of the city and county of San Francisco, the city and county constitute one municipal corporation and all officers thereof are city and county officers — the sheriff, the county clerk, the district attorney and the public administrator being as much city officers as are the mayor, the city at- torney, the auditor and the treasurer. This plan of organization went into effect in 1900 and the city attorney of the city and county of San Francisco declares that "a consolidated city and county government has commended itself to San Francisco as a simple and an efficient form of municipality. '^ * * "- In the case of New York, however, each of 27 elective county officers is a law unto himself. No central authority exercises supervision over his acts or enforces desirable co-operation. Responsibility is so divided that it rests nowhere. Chosen on a long ballot, the voter finds it impossible to pass intelligently on the qualifications of the candidates for all of these offices. Though the constitution confers the power of removal upon the governor, this power constitutes no real control. The abuses which are known to have developed in the coroners' offices are the natural result of the conditions fostered by division of responsibility and lack of supervision under a system of perfunctory popular election on a long ballot. With the possible exception of the district attorney, the functions performed by these elective officers are purely ministerial and involve no matters of public policy. Consequently there is no more reason for choosing them by popular election than for using that method for selecting the heads of administrative city departments. The administrative county offices should be combined, as far as practicable, with the city government and the officers in charge placed under the mayor, thus obtaining all the advantages of the short ballot and at the same time centralizing responsibility and co-ordinating service. The transfer of direct control from the legislature to the central city administration should also in a large measure mitigate the present evils of mandatory legislation. A possible plan for merger is suggested hereafter. The probable economies resulting from mere consolidation, as show^n in Tables 8 to 17, are summarized below, and are now considered : Present total cost for per- Present number of officials and sonal service in the 40 employees 1.921 county departments $3,766.649 96 Possible consolidation (see Number under suggested consolida- Table 8) shows a total cost tion 1,472 of 2,623,485 00 Saving $1,143,164 96 Reduction 449 1. County Clerk: Present total cost for per- Present number of officials and sonal service in the five employees 308 county clerks' offices $495,830 75 Possible consolidation out- Number of employees under sug- lined in Table 9 shows gested consolidation 119 total cost of 291,590 00 Saving $204,240 75 Reduction 189 'Laws 1895, Chap. 954. ""Consolidated city and county government of San Francisco," bv Percv W Long; Proceedings of Amer. Pol. Sc. Ass'n. \^ol. 8, p. 121 (1911). 34 In place of the five county clerks now employed at a combined salary of $50,000, one county clerk is proposed at a salary of $12,000, with one deputy county clerk for each of the five divisions (one for each county) to be established in the proposed consolidated office. For these deputies, salaries are suggested amounting to a total not exceeding the aggregate salaries received by the present five deputies. In place of the present four assistant deputy county clerks at a total cost of $12,500, three are suggested at salaries aggregating $8,500. A chief clerk for each division is retained with an adjustment of salaries affecting a saving of $500. For the four secretaries now employed at an aggregate salary of $8,000, one only should be required at a salary of $3,000. At present the financial branch of the various county clerks' offices is handled by two cashiers, one financial clerk and one deputy financial clerk, whose total salaries amount to $9,000. In one central office this branch could readily and efficiently be administered by one cashier, one assistant cashier, and one financial clerk, at a total salary cost of $6,100. At present there are employed four counsel to the county clerks, two law clerks, and one assistant law clerk, at salaries aggregating $23,000. To advise the county clerk under consolidation one counsel, one assistant counsel and one law clerk at salaries aggregating $10,000 are suggested as sufficient (But see p. 41. In the place of two bookkeepers one is suggested for the consolidated office, the reduction being based, as in the financial branch, upon the volume of work now performed in the office of the county clerk of New York County. Upon the same basis the following further reductions are suggested : Prom To Equity Clerks 6 1 (and 3 assistants ) Certificate Clerks 2 (and 1 assistant) 1 (and 1 assistant) Comparers 8 5 Docket Clerks 9 5 Mechanics' Lien Clerks 2 1 Seachers 7 5 The diversity of titles among the clerks is removed by substituting the title of " general clerk," in line with the policy already adopted by the New York County Clerk. A force of 60 clerks engaged in reindcxing judgment dockets and restoring old and mutilated records has been transferred from the various county clerks' offices to a consolidated commissioner of records office (See Table 12). If, however, the offices of commissioners of records are abolished (See P, 40) at least a portion of this force would probably have to be retained in the consolidated county clerk's office. It is suggested that the notarial clerks in the Kings, Queens and Bronx offices be transferred to the consolidated office at their present salaries. Each county clerk acts as collecting agent for the State for notarial fees. The New York County clerk i)ays the salaries of the notarial clerks in his office from the fees collected, and pays the balance into the state treasury. ^ In Kings, Queens and Bronx Counties the notarial clerks' salaries arc paid by the city and in return the city receives a portion of the fees.- 'Kxecutivc Law. Sec. 104. 'Ilxccutive Law, Sec. 104. aiul Laws 1911. Ch. 641. There is no notarial clerk in Richmond County. 35 It is similarly suggested that the two naturalization clerks employed in the Queens office be transferred to the consolidated oft'ice at their present salaries. The expenses of the naturalization bureaus in other counties are paid out of the fees collected, the county clerk retaining one-half of the fees, and paying the other half into the federal treasury. i The Queens county clerk pays his portion of the fees to the city, and receives an appropriation for naturalization clerks in return.2 Eventually, a uniform plan should be adopted as to the method of paying notarial and naturalization clerks in the consolidated office, either all from the fees or all from appropriation, and thereafter a readjustment of the number and salaries of such clerks might be made. In the counties of Queens and Richmond, where the dual function of county clerk and register is performed by one official, a complement of general clerks sufficient to perform the duties of the register is provided for in the suggested consolidation of the register's office. It has been kept in mind that the miscellaneous functions of the county clerk require an adequate staff of general clerks which could be assigned to all classes of work, much of which is seasonal. The present staffs of general clerks in all counties have, therefore, been left intact, on the assumption that, in the beginning at least, the head of the consolidated office will require much general clerical service and could utilize this force for various classes of work until experience had developed the men best fitted for certain service. Adjustment of organization could then be made by a process of elimination or reassignment. 2. District Attorney: Present total cost for personal Present number of employees 312 service in the five district attorneys' offices ^725,745 00 Present consolidation outlined The number of employees' under con- in Table 10 shows total cost solidation 294 of 658,525 00 Savino- $67,220 00 Reduction 18 The suggested reorganization unites the five offices into a single office under the jurisdiction of one district attorney, at $15,000, eliminating four district attorneys at a saving in salaries of $33,000. In order that the efficiency of this department may not be impaired no reduction is suggested in the present number of assistants to the district attorneys. Instead of two secretaries one is suggested. Consolidation would make possible the elimination of four chief clerks. To the one chief clerk retained are allotted two deputy chief clerks and one auditor, all at present salaries, with a saving of $9,550. No reduction is made in the number of general clerks, stenographers, county detectives, process servers, office boys, or employees of the " Bureau of Special Sessions's Information." The number of messengers is, however, reduced from ten to five and of telephone operators from four to two. 'U. S. Stat. 1906, C. 3592, Sec. 13. 'L. 1912, Ch. 540. 36 3. Register. Present total cost for personal service in the three registers' offices $602,590 00 Possible consolidation out- lined in Table 11 shows total cost of 502.190 00 Present number of employees 429 Number of employees under sug- gested consolidation 2i77 Saving $100,400 00 Reduction 52 The suggested reorganization creates a single office under one register, with a deputy in each of the five counties. In Queens and Richmond the deputies would take over the work of the. present register divisions of the county clerks' offices. Under this plan the register is allowed a law clerk at $3,000 in place of the counsel at $3,500 now in the Kings County office (see also page 41) ; the number of chief clerks is reduced from 4 to 1, with a saving in salaries of $8,200 per annum ; three secretaries at a salary cost of $6,000 per annum are replaced by one at $2,000. Instead of two chiefs and two assistant chiefs, with an aggregate salary of $8,800, one chief at $2,500 and one assistant at $1,800 are provided to supervise the work of block indexing. The work of the executive clerk, two chief index clerks and five satisfaction clerks is taken over by a bookkeeper, one index clerk and three satisfaction clerks, with a resulting economy of $9,100. Furthermore, the number of custodians is reduced from 26 to 20, the messengers from 6 to 1, the telephone operators from 2 to 1, with a proportionate reduction in salary cost. The existing force of 124 clerks, 95 copyists and 78 employees in the reindexing division is retained, though it may be anticipated that experience will prove that the number can be substantially reduced. The force of 27 employees engaged in preserving public records is trans- ferred to the consolidated office of commissioner of records. If, however, the office of commissioner of records is abolished (see page 40), a part of this force at least would probably have to be retained in the consolidated register's office. 4. Commissioner of Records: Present total cost for personal Present number of employees 247 service in the three offices of commissioner of records and for similar work in the three registers' offices and four county clerks' offices^ , $361,738 75 Possible consolidation out- Number of employees under sug- lined in Table 12 shows gested consolidation 120 total cost of 152.820 00 Saving $208,918 75 Reduction \27 1 he following table sliows the ])rescnt wasteful organization under which the ])urclv routine work of ])reserving and restoring county records is performed: 'Richmond County Clerk had a rcvcmu' bond allowance for this work in 1913. The fund is now nearly exhausted. 37 s l-< Ui .2 o O ^ ^ • M :3 > C/) c75 i LO ^ p CO C/) O o c o u r M-i -^ o . o 2^ oJ 9 rt u ^3 Cost Cleri For a Oh M-l 1 • O I- — ■g &-^ o -^ • — U'j-i > O a .2 >-' u o 02 ^ o So. i3 CO o (u (U >> ^ o 3 P p:; 00 CO s 3 CM ^ ^ CO O oq_ ^>r o lO —H TJ- CO ^ o ii > Wl > •^ o . C (u • - P rt 3 rt ^ Www ^ ^ ^ CO On 8 8 8 8 LO LO o o o c^ yz 00 LO CM VO LO ^ Tj- 00 On 0\ LO vo" VO oc O 00 On tT CO rr ^ ^ LO LO o r^ o t^ o ^ CO CvJ vc ^ 8 8 8 8 8 LO r- 1 wT 1 -^ : ^3 i) ^H : O -o o : 8^ : > ■> C^ c ^ ^ : nd Propwtr: $134 93 $25,520 00 Ileilth, 8>nlUtlon mod Care for Dependent: Charitable InititutioDs Fixed Charges 14,2.W 00 CourU: Supreme Court, l>t Department i:(4 9.1 21,004 00 10,004 00 lolooooo 2.50 00 750 00 1,000 00 21,000 00 10,000 00 1 00 1 00 1 00 1 00 1 00 1 00 1 00 1 00 14,326 13 28,015 00 19,100 00 6,339 60 County Court Fec« aoci ExpenMi ot Juror. $10,000 001 250 00 760 00 1,000 ooj witnoL.Fe«. 1 ! ! ! 1 ! 1 ! ! ! ! ! ! ! ! ! ! ' ! ! ! ' ! . ! ! ! ! ! ! Cenlril Purchue, Prinling and Publicity:. 10,200 00 $10,200 00 2,000 00 $1,017 75 lO.II.SI) OU MUcellaneoua: Clerk, to County Cauvawcr., Rent, Coutingencica and 4,417 76 1500 00 $220,099 93 1,763 00 167 00 10,407 00 2,077 00 39.437 75 $219,466 OO $500 00 -$134 93 $1,763 00 $157 00 $207 00 $10,200 00 1: $2,077 00 1 $25,520 00 $1,917 75 $12,000 00 $314,691 10 $273,941 68 $3,414 22 Budget Alio. Revenue Bon Light, Heat a SUMMARY. . . $273,941 68 nd Power 3 414 22 Total, Bronx County ,.(.., _,. 00 TABLE No. 3. COST OF COUNT^ GOVERNMENT, KINGS COUNTY, 1914, BASED UPON BUDGET ALLOWANCES, REVENUE BONDS, AND INCIDENTAL EXPENDITURES. Office, Department ( Regular Employees General Plant Fixed Charges and Contributions. Advertising bounty Court Rent. Incidental Expenditures. -ight. Heat Pensions Employees. Fees anff Commissions . ; and Re-binding Mutilated Records ig and Sorting Records and Book n4 Co Commissioner of Records Commissioner of Jurors Public Administrator Protection of Life and Propertj': Sheriff National Guard and Naval Militia. . Supreme Court, Second Department Supreme Court, Second Department, Appellate Division . Supreme Court, Appellate Term, Second Department . . Surrogate's Court County Court The SuiJreine Court Library . Fees and Expenses of Jurors . Disbursements and Fees 100,000 ( 41.145 ( 12,003 ( 374,850 00 71,375 81 12,400 00 109,730 00 9,800 00 110,000 00 4,000 00 10,000 00 12,300 00 108,686 00 158,100 00 :J:: sadlO npefati Total Personal Service. Total Total Total Contingencies. . Total Contract or Open Order Service . . Total Filed Charges and Contributions. Grand Total Appropriations, 1914 9,315 25 28,527 00 213,729 00 450 00 '36606 '86606 800 00 i.mm $110,000 001 4,000 00 10,000 00 $10,747 35 $2,454 CXPLANATION OF SYMBOLS. Budget Allowances Revenue Bonds Light, Heat and Power. . Pensions to Employees . . Total, Kings County. $1,860,550 31 124,111 22 10,747 35 2,454 16 $1,997,863 04 TABLE No. 4 . ] COST OF COUNTY GOVERNMENT, QUEENS COUNTY, 1914, BASED UPON BUDGET ALLOWANCES, REVENUE BONDS AND INCIDENTAL EXPENDITURES. Budget Allowances. Revenue Bonds. Incidental Expenditures. Office, Department or Bureau. Total. Personal Serv-icc. Supplies. Purchase of Equipment. Contract or Open Order Service. Coitingen- Salaries Regular Employees. Wages 2mX::r. Fee! and Commis- sions. Transporta- Communi- General Repairs. General Plant Service. Charitable Institu- tions. Insurance. Disburse- ments, Fees, &o. Light, Heat and Power. $125,384 00 38,352 00 1,306 00 12,255 00 45,320 00 5,110 00 8,460 00 78,626 04 18,978 96 25,445 00 42,590 00 2,470 00 35,000 00 4,000 00 1,000 00 $116,700 00 33,100 00 1,200 00 11,150 00 •42,200 00 5,110 00 $3,330 00 300 00 $1,793 00 297 00 $2,001 SO 250 00 $225 00 900 00 $200 00 600 00 $500 00 $550 00 $24 50 1,505 00 106 00 19 00 65 00 $4,424 42 2,880 34 $1,400 00 350 00 616 00 "830 00 50 00 1,500 00 70 00 500 00 Protection of Ufe and Properti': Sheriff 225 00 900 00 75 00 $8,4G0 00 Courts: Supreme Court 35,800 00 18,978 96 24,600 00 41,800 00 2,130 00 42,651 04 100 00 Supreme Court, Second Department, Appellate Division 230 00 140 00 300 00 300 00 270 00 200 00 45 00 25 00 240 00 2,325 00 50 00 75 00 $100 00 $35,000 001 t4,000 00 1,000 ooj 10,200 00 Witnesses' Fees $10,547 36 Central Purchase, Printing and Publicity : 4,000 00 1,500 00 4,000 00 Miscellaneous: Clcrlis to County Canvassers, Contingennes, Rente and Premiums on Bonds of Offic.als 500 00 tl.OOO 00 Charged as R 1,409 11 $381,425 00 3,906 00 2,911 50 9,865 00 3,129 50 48,560 00 $332,708 9G $4,605 00 $44,051 04 Total Supplies $3,906 00 $2,911 50 Total Contract or Open Order Sertlcc $2,675 00 $1,840 00 $500 00 $4,850 00 $3,129 50 $8,460 00 $100 00 $40,000 00 $449,797 00 $22,138 87 $10,547 36 1 EXPLANATION OF SYMBOLS. Care of Prisoners (included) Sheriff $3,800 00 Food Supplies for Prisoners (included) Sheriff 620 00 Budget AUowances Revenue Bonds Light, Heat and Power. . $449,797 00 t Contingencies. 22,138 87 Code 3041 was increased by transfer of $1,800 from Code Disb. 10,547 36 Fees 3631. The excess expenditure in Contingencies account amounting to $329.50 was subsequently adjusted when Revenue $482,483 23 Bonds were issued. Code 3631 $4,000 00 Less transfer to Code 3641 1,800 00 I TABLE Xi). S COST OF COUNTY GOVERNMENT, niCHlMOND COUNTY, l!kl4, BASED UPON BUDGET AU.OWANCES, REVENUE BONDS. AXD INCIDENTAI. EXPENDUrURES. Budget Allowances. Protection of Life and Propertf: National Guard and Naval Militia. rourts: Supreme Court Supreme Court — Second Department, Appellate Division County Court and Surrogate's Court Fees and Expenses of Jurors Disburyeinents and Fees. ' Fees. llKht, Heat and Power (All Offices). 1 County Canvassers, Rent, Contingencies, and Total Personal Service. Total Supplies Total Purchase or I Total Contract or ( Total Contingencies Total Filed Charges and I Grand Total Appropriation, 1914. $23,035 00 15,167 00 4,300 00 15,955 95 3,284 38 21,600 00 10,000 00 100 00 2,425 00 $107,960 33 8,657 00 1,545 00 4,615 00 2,410 00 14,525 00 $139,712 33 Fees and Regular Temporary Comi Employees. Employees. $22,400 00 12,650 00 3,900 00 Contract or Open Order Servii Plant $10 ( 700 00 250 00 Disburse- Fees, etc. $10,000 00) 100 001 1,0(K) OOJ S2."i,123 39 $1,920 00 EXPLANATION OF SYMBOLS. Care of Prisoners (Included) Sheriff Care of Prisoners (Physicians) Sheriff Food and Medical Supplies— Prisoners (Included) Sheriff ; Household Equipment, $450.00, and Wearing Apparel, $300.00 . Budget Allowances .... Revenue Bonds Light. Heat and Power. $139,712 33 25,123 39 1,926 00 Total, Richmond County TABLE No. 6. FEES COLLECTED AND BUDGET AND REVENUE BOND ALLOWANCES FOR EACH FEE-EARNING COUNTY OFFICE FROM 1906 TO 1914, INCLUSIVE. ; Purpose, Chnracter of Uevenuc. Yea 1906. Year 1907. Y'ear 1908. Yea rl909. Ye r 1910. Year 1911. Y'e r 1912. Yes r 1913. iYea r 1914. Court. D.-iwrtmenl or Oflk-e. Fees Collected. Appropriation mowed by Board of Estimate and Revenue Bonds. Fees Collect, d. .\pproi)nation Allowed bv Board of Estimate and Revenue Bonds. Fees Collected. Appropriation Allowed bv Board of Estimate and Revenue Bonds. Fees Collected. ■Vllowed by Board of Estimate and Revenue Bonds. Fees Collected. Appropriation Allowed by Board of Estimate and Revenue Bonds. Fees Collected. Appropriation Allowed by Board of Estimate and Revenue Bonds. Fees Collected. AltetB-o'ard of Estimate and Revenue Bonds. Collected. AtelfZrd of Estimate and Revenue Bonds. cISi Appropriation Allowed by Board of Estimate and Revenue Bonds. New York County. County Clerk Sundry Fees $54,.396 63 19,481 57 228,231 11 837 76 11,496 63 •,33,110 20 8,636 45 $124,005 00 315,260 00 255,120 00 51,412 50 24,408 00 1'28,992 00 171,550 00 $51,931 62 $120,030 00 346,673 34 2.55,280 00 48,387 50 25,280 00 130,656 00 181,200 00 $64,683 18 15,914 82 157,548 30 $141,950 00 345,440 00 2.55,280 00 60,370 00 26,130 00 136,192 00 180,140 00 $54,687 11 32,387 18 175,589 61 $144,000 00 371,860 00 245,320 00 54,300 00 26,130 00 137,924 .50 180,120 00 $70,767 69 4,913 35 173,156 79 "l0',067 77 51,980 30 10,946 70 12,665 42 39,803 60 3,.500 00 165,670 90 $1.55,700 00 401,840 00 257,257 IK) 53,300 on 26,280 on 134,4.59 17 179,830 (in 86,580 on 122,715 29 225,713 00 37,590 00 $73,310 02 167,114 08 9,922 (iO 47,5.59 92 11, .582 nil S,(ill7 12 40,989 63 234 24 1.54,476 50 $143,(>00 00 415,890 00 329,100 00 53,300 00 26,330 (HI 135,197 on 179,.335 on iii2,nin 00 131,493 50 218,060 00 37,840 00 8.5,758 50 96.674 00 28,000 00 34,200 00 12,120 00 1,200 00 74,850 00 23,970 00 $76,215 20 308 20 166,250 69 .35 11, ran 24 57,633 68 13,n22 211 14,681 119 43,066 82 431 90 144,735 59 $187,620 00 462,365 56 331,441 00 53,300 00 26,230 00 154,005 .58 172,835 00 $74,100 64 $188,125 Oil 476,410 00 327,968 00 .53,420 00 26,270 00 156,949 00 202,6.50 00 102,042 25 139,8-20 00 245,8-20 00 41,668 75 11,984 50 90,718 00 105,636 00 118,690 00 .35,280 34 12,120 0(1 1,200 00 49,318 00 24,220 00 i $69,882 |r2 $193,865 00 587,709 99 307,763 40 58,300 00 ■27,-200 00 160,422 00 ■209,140 00 146.503 75 1.36,558 50 222,074 00 41,145 00 12,652 04 94,029 83 110,036 00 District .\ttorney Forfeited Recognizances, Interest and .Subpoena Fees Jurors' Fines ^omm..ss,ons.. . I'vl^tCodeCivilPro,..: Sec.' 3321) Forfeited Recognisances, etc..]. Sundry Fees Jurors' Fines negist«r Commissioner of .lurors Public Administrator .Sheriff Surrogates Cimmberlain Kiiies < ouiii). r ly Clerk 198,951! 07 153,285 92 10 00 12,317 83 55,043 87 12,970 70 12,683 49 44,588 26 209 01 133,833 72 102,729 91 40 00 12,095 67 63,220 -27 11,595 96 9,469 51 42,466 ,56 915 ,32 128,585 119 l'o',i36'43 4,375 30 4:5.52 36 67,513 71 !- 5,588 U 270 80 1,596 41 i 11,906 (12 ■ '470'|0 246 B2 0.095 is s,7S9 (-5 39,539 iv N ,„„-J„ 14,776 38,105 9;i92 59 ft 14,272 38 49,514 03 9,844 80 13,154 73 32,996 94 10,119 06 43,935 31 10,754 08 18,906 50 37,279 23 3;839 48 170,827 44 26,472 63 218,6l6'78 108,700 (HI 88,072 10 217,029 83 29,900 00 28,906 1,570 190:482 ■ 16,671 1,935 68 DO 47 u 00 66 120,,S0O (Id 95,200 00 242,005 64 31,000 00 121,460 00 81,640 00 90,100 00 104,000 00 240,620 00 31,500 00 11 2,650 '66 90,510 00 93,120 00 119,839 01 ■229,840 00 .38,990 00 94,808 75 139,249 05 220,010 00 42,440 00 3,920 50 89,019 44 99:848 00 i-irr : iMUbsioner of J""'™ 152,417 73 II Aammistraior 6,675 75 12,522 80 2,624 60 3,446 71 66,034 60 20,147 21 1„89S 00 121,400 00 79,480 00 11,151 60 1,882 60 3,622 03 10,967 00 2,083 20 4,590 79 "40000 i46 .34 99,780 00 92,342 50 11,666 32 2,084 00 4,675 97 ■14973 1,869 91 '1,720 10 11,310 00 92,020 00 94,980 (10 11,783 65 2,401 80 4,774 04 10,991 64 3,173 52 4,724 95 - r aite Fees (Code Civil Proc.. Sec. 3321) Sundry Fees Forfeited Recognizances, etc Jurors' Fines Commissions QiM-eiis $2,500 each. 2 General Clerks @ $2,400. 3 General Clerks @ $2,100 . 2 General Clerks @ $2,000 . , 1 General Clerk 1 General Clerk 17 General Clerks ® $1,500. 1 General Clerk 9 General Clerks @ $1,200. 4 General Clerks® $1,000. 10 Clerks® $300 id Superior Court 720 00 5,000 00 4,800 00 6,300 00 4,000 00 1,800 00 1,600 f 25,500 ( 1 County Clerk 1 Deputy County Clerk 1 Assistant Deputy County Clerk 1 Chief Clerk 1 Secretary 1 Cashier 1 Counsel 1 Notarial Clerk 1 Equity and Law Clerk 1 Certificate Clerk. . 1 Comparing Clerk 3 Docket Clerks @ $1,500 1 Mechanics' Lien and Lis Pendens Clerk 1 Searcher 1 Confidential Stenographer > General Clerks @ $1,000. 2|500 I sioooi 2;oooi Assistant Deputy County Clerk. Satisfaction Clerk (Chief) Law Clerk Notarial Clerk Bookkeeper Equity Clerk (in charge) . Equity Clerks @ $2,000. . 2 Comparers® $1,500.. 2 Document Searchers (m $1 ,500 1 Chief Clerk (Marriage License). . 4 Clerks (Marriage License) @ $l,i $12,000 I 5,000 I 2,500 1 2,000 1 2,500 00 2,250 00 2,000 00 2,000 00 3,000 00 2,000 00 1 County Clerk , 1 Deputy County Clerk , 1 Assistant Deputy County Clerk ; 1 Expert Clerk (Chief) I Private Secretary 1 Financial Clerk 1 Deputy Financial Clerk I Counsel 1 Notarial Clerk . 1 Bookkeeper. , 1 Naturalization Clerk 1 Assistant Na.turalization Clerk . , . . 4 Comparers @ $1,500 . . 2 Docket Clerks (B> $1,500 1 Searcher 1 Searcher 1 Stenographer 1 Map Draftsman I Calendar Clerk 1 Chief Tickler Clerk Clerks (Sundry) & $1,500 1 Chief Clerk (Marriage License). . . . 1 Assistant Clerk (Marriage License), 4 Clerks @ $1,200 1 Clerk I Chief Recording Clerk $8,000 00 4,500 00 3,000 00 3,000 00 2,500 00 2.000 00 3,000 fK) 1,500 00 1,200 00 6,000 00 9,000 00 1,500 00 1,200 00 4,800 00 County Clerk Deputy County Clerk Special Deputy Clerk . Court Clerk $5,000 00 2,500 00 1,500 00 5 County Clerks 5 Deputy County Clerks . . 4 Assistant Deputy Clerks. 1 Court Clerk 5 Chief Clerks 4 Secretaries 1 Auditor 3 Cashiers and Fin. Clerk 1 Deputy Financial Clerk.. 4 Counsels 2 Law Clerks 1 Assistant Law Clerk 3 Notarial Clerks 2 Bookkeepers 6 Equity Clerks 2 Certificate Clerks 1 Assistant Certificate Clei 2 Naturalization Clerks . , 8 Comparers 1 Expert of Records. 9 Docket Clerks 2 Mechanics' Lien Clerks., 7 Searchers 4 Stenographers 1 Custodian 1 Draftsman 1 Telephone Operator 2 Clerks Common Pleas. . . $50,000 00 22,000 00 12,500 00 1,800 00 8,000 00 2,600 00 7,000 00 2,000 00 14,500 00 6,000 00 2,500 00 6,550 00 3,500 00 14,500 00 4,000 00 1,.500 00 2,700 00 12,000 00 3,000 00 15,000 00 2,800 00 12,200 00 4,500 00 1,200 00 1,500 00 720 00 5,000 00 County Clerk Deputy County Clerks @ $5,000 Deputy County Clerks @ $4,000 Asat. Dep. County Clerks @ $3,000 Asst Deputy County Clerk Chief Clerks @ $2,500 Chief Clerk Chief Clerk Secretary Auditor Cashier Asst.Cash'r A Fin.Clk,(S;, $1,S(X) Counsel Assistant Counsel , , Law Clerk Notarial Clerks Bookkeeper Equity Clerk Asst. Equity Clerks ® $2,000 e» Certificate Clerk Assistant Certificate Clerk Naturalization Clerks Comparers® $1,500 ea 1 Docket Clerk m charge. . . 4 Docket Clerks @ $1,500. 1 Mechanics' Lien Clerk ... 1 Searcher 4 Searchers® $1,500 4 Stenographers @ $1,000 1 Copying Clerk 1 Telephone Operator 2 Clerks of Common Pleas, i 102 Clerks at saUries stated (8 clerks less, those doing Regis- ters work in Queens. See Table 11.) 1 TABLE No. 9— Continued. New York County. Bronx County. Kings County. Queens County. Richmond County. Total Number Incumbents. Total Amount of Salaries.. Proposed Reorganization. Incumbents. Total Incumbents. , , rotal iBries. Incumbents. Total Salaries. lncun,bents Total .■Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. $4,500 00 7.200 00 4.500 00 1,200 00 2,400 00 .-i.fiOO 00 3,(KK) 00 .1.040 no ,3,500 00 2,.«K) no •■i.ooo 00 1,500 00 7,000 00 2,000 0(1 3 Index Clerks (B.$l,. 500 3 Custodians (3 $1,200 $4,500 no 3,600 00 1,000 00 000 00 8,640 00 1,500 00 3,000 00 9,000 00 7,958 75 100 00 $1,500 00 1,800 00 3,000 00 1,200 00 1,112 00 2,000 00 1,000 00 1,600 00 720 00 900 00 750 00 480 00 1„500 00 32,400 00 1 Clerk (Messenger) $900 00 1 $5,912 (>n 9,200 010 10,980 00 14,880 00 1,650 00 *78,S58 75 100 00 3 nookbinders,.,® $1,200 2 Assistant Index Clerks @ $1,5(10. . 1 Bookbinder ■i ,400 00 ,2(X) 00 !,880 00 ■' Bookbinders ® $1 200 1 Hookbinder $3,000 00 2,400 00 2000 00 :( Custodians @ tl 200 4 Messengers @ $720 1 Bookbinder @ $4 per day (278 days) 2 Custodians @ $1,000.. . 1 Bank Messci.Kcr 2 Messenei-rs (' ? (..,$4,500 1- , ; - (" $4,000 1 -\ ■ !■:- '.■ (" S.'!,500 Ill -i-> l"-i, ,\ii- (" S3,000 3 A>»l,lj„l.AUj.(<<, $2,500 11 -Viist. Dist. Atty. ® $2,000 7 Asst. Dist. Atty. @ $1,500 2 Secretaries 5 Chief Clerk 1 Deputy Chief Clerk 2 Dep. Chief Clerks and Auditors , , 1 Bail Clerk 39 Clerks 1 Clerk to Grand Jurj- 1 Warden to Grand Jury 2 Interpreters 1 Draftsman , 1 Librarian 4 Telephone Operators 1 Doorkeeper 24 Stenographers 3 Confidential Stenographers 1 Stenographer and Typewriter 5 Stenographers to Grand Jury 5 Stenographers and Private Secy., 1 Stenographer and Indictment Clerk 1 Chief Process Server 63 Process Servers $48,000 00 112,500 00 24,000 00 5,500 00 35,000 00 18,000 00 62,000 00 14,000 00 30,000 00 7,500 00 22,000 00 10,500 OO 5,800 00 16,400 00 3,500 00 5,150 00 2,760 00 1,200 00 33,700 00 4,800 00 1,200 00 9,000 00 7,200 00 1,800 00 TABLE No. 10— Continued. New York County. Bureau of Special Sessions 1 Dep. Asst. District Attorney. 1 Dep. Asst. District Attorney. 1 Clerk 3 Clerks @ $2,000 1 Stenographer 2 Process Servers @ tl,500 2 Process Servers @ $1,350 8 Process Servers @ $1,200 1 Office Boy Temporary Employees. 3 Stenographers to Grand Jury @$li $900 00 1,440 00 2,400 5,000 00 3,500 00 2,600 00 6,000 00 1,200 00 3,000 00 2,700 00 9,000 00 420 00 Temporary Employees. Stenographer to Grand Jury @ $10 per diem Interpreter, 40 days @ $5 Expert Service Official Stenographer, City Magis trate Courts Private Detective Messeng 2 County Detectives @ $1,500. . 2 County Detectives @ $1,350. . 1 County Detective 5 County Detectives ® $1,200. . 2 County Detectives© $1,000. Temporary Employees. Stenographer and Private Secretary @ $1 ,500, 3 months Telephone Operator @ $720, 1 mo. E.vpert Service Official Stenographer, City Magis- tes Court 3,000 00 2,700 00 1,800 00 6,000 00 2,000 00 Temporary Employees. Interpreter, 80 days @ $5 . Expert Service Official Stenographer, Transcripts Richmond County. Temporary Employees. Interpreter, 20 days @ $5. . 21 County Detectives Bureau of Special Sessions 1 Deputy Asst. District Attorney . 1 Deputy Asst. District Attorney . 1 Clerk 3 Clerks @ $2,000 1 Stenographer 2 Process Servers @ $1,500 2 Process Servers @ $1,350 8 Process Servers @ $1,200 1 Office Boy Temporary Employees. 4 Stenographers to Grand Jury ( 1 Stenographer and Private Secretary 3 Interpreters 1 Telephone Operator Expert Service Official Stenographer (City Magii 5,000 00 3,500 00 2,.500 00 3,000 ( 2,700 ( 9,600 ( 8.500 00 375 00 700 00 60 00 Proposed Reorganization. Incumbents. 5 Messengera @ $900 4 Office Boys @ $420 1 Chief County Detective 6 County Detectives @ $1,.500 14 County Detectives @ $1,200 1,800 00 9,000 00 16,800 OO RECAPITULATION. Number of Incumbents. Total Salaries. 312 294 $725,745 00 658,525 00 Economv 18 $67,220 00 1 TABLE No. 11. II REGISTER EXISTING CONDITIONS .JANUARY 1. 1915, IX THE THREE COUNTIES (N^ YORK, BRONX AND KINGS). AND PROPOSED REORGANIZATION SJIOW NO RESULTING ECONOMIES. New York County. Bronx County. Kings County. Total Number of Incumbents. Total Salaries. Proposed Reorganijation. Total Salaries. Total Salaries. 1 j Incumbents. Total Salaries. Incumbents. Embracing Five Counties (See Text). Salaries. 1 Register $12,000 no .i.ooo no 1 Register 1 Deputy Register 1 A.«st. Deputy Register $10,000 00 4.000 00 3,000 00 J Register Il Deputy Register 1 Asst. Deputy liegi.'-ter $12,000 00 5,000 no 2.500 on 3 $34,000 no I4,oon nn 9,600 (in I Rc-gislcr $12 000 00 1 Deputy RcRisler I Asst. Deputy Register 2 Deputy Regi.,ter ® $.5.000 2 Deputy Register (1 Queens) ® S3,.500 . , 1 Deputy Register (Richmond) 10,000 00 7,000 00 2,500 00 I ifexpert Clerk 1 [thief Clerk of Records 3,.ino 00 1 3,500 00 I Law Clerk (Counsel) 3,000 00 1 Chief Clerk 3,400 00 I Chief Clerk 2,.50O 00 3,500 00 1,800 nn 2 1 1 5,900 001 1 Chief Clerk (Expert) 3,000 00 1 Reeretary 2,500 (M 1 Seoretury 2,000 00 1 feeeretary 1,.500 00 3 6,000 00 1 Secretary 2,000 00 1 Chief Block Indexcr 3,000 00 1,500 00 ij Chief Block Index Clerk I Chief Current Index Clerk T.'mHI 00 2 2 5,500 001 3,300 00/ 1 Chief Block Index Clerk 1 Asst. Block Index Clerk 2,500 00 1,800 00 1 Asst. Block Indexer 1 Chief Examiner 2,.5O0 00 1 Examiner 2,000 00 1 2 4,500 00 2 Examiners @ $1,800 . 3,600 00 1 Cashier 1 Cashier 1 Bookkeeper 1 Assistant Bookkeeper 2,500 00 1,500 00 i,(ao 00 1.400 00 i,2(K) no 1 Cashier . 1 Bookkeeper 1 Stenographer 2,500 00 1,200 00 1,200 00 1 Asst. Cashier 1 Bookkeeper 1 Executive Clerk 1 Stenographer 1,3.50 00 1,6.50 no i,(wn (X) 1,500 00 2 3 2 3 5,000 00) 2,850 00/ 4,500 00 3,050 00 3,90n on 1 Cashier 1 Asst. Cashier 1 Bookkeeper 2 Stenographers @ $1,200 2,500 00 1,500 00 1,500 00 7 Comparers ®$1,. 500 10,500 00 7 in,.50n on 8 Comparing Clerks @ $1„500 12,000 00 2 Searcher and Examiner (» S2,nOO. 4,000 00 2 4,oon nn 2 Searchers @ $1,800 3,600 00 1 Superintendent of Indexing 2,.50fl 00 I Chief Index Clerk 2,000 00 2 4,.it*l 01) 1 Chief Index Clerk 2,000 00 1 Satisfaction Clerk 1 Asst. Satisfaction Clerk 3,400 00 2,400 00 I Satisfaction Clerk I Asst. Satisfaction Clerk , I Verification Clerk... 2,000 00 1,.500 00 1,500 00 Satisfaction Clerk 1.650 00 3 7,050 onl 3,900 001 1,500 OOJ 3 .Satisfaction Clerks @ $2,000 6,000 00 1 Chattel Mortgage Clerk 3,000 00 Chattel Mortgage Clerk Asst. Chattel Mortgage Clerk, 1,650 00 1,350 00 2 1 tfdT< 2 Chattel Mortgage Clerks @ $2,000 , . . 4.000 00 2,100 00 1,800 00 1,800 00 16,500 00 1 Clerk (Chief of Records) 4 Clerks @$1,.500 1,800 00 0,000 00 5,000 00 1,800 00 4,950 00 13,500 00 2 1 4 24 5,000 00 2,100 00 5,400 00 6,750 00 36,000 00 124 Clerks 1 Chief Record Clerk 1 Notary Clerk 1 Clerk Clerks @ $1 650 U Clerks Oil, WO Clerks® $1,500 166,050 00 2 Clerks @ »l,3liO 2 Clerks® $1,350 2,720 00 2,700 00 3,780 00 33,000 00 25 Clerks® $1,200 30,000 00 . 16,200 00 14 3 2,720 00 I8,90n 00 3,78(1 00 84,000 00 2,8.50 001 20,400 00 6,800 OOj 2,400 00 3,360 00 1,500 00 42,000 001 65,500 oo) 2.S Clerks® $1,200 1 Custodian 14 Custodians fei)$ 1,200 2 Custodians (ri) $i)IKI 1,500 00 10,800 00 1„S00 00 1 Custodian 3 Custodians® $1,200 1,350 00 3,000 00 Custodians ® $1,000. . . 5 000 00 17 20 Custodians ® $1,200 24,000 00 1 Bookbinder 1,200 00 2,400 00 3 1 Messenger 1 Bookbinder 1 Telephone Operator 800 00 1,200 00 720 00 107,500 00 27,000 00 600 00 12,500 00 35 37 900 00 42,000 00 26,000 00 2 35 60 8 Recording Clerks @ 5 cents per per folio (250,000 folios) per folio (540,000 folio.,) Folio Copyists ® 5 cents per folio (520,000 folios) 5 Laborers @ $720 3,600 00 Laborers ® $720 6,480 00 720 00 14 10,080 001 720 00/ 15 Laborer, .nnd Custodian ® $720 10,800 00 TABLE No. II— Continued. Nen- York County. Bronx County. Kings County. Total Number of Incumbents. Total Salaries. Proposed Reorganization. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbent*. Embracing Five Counties (See Text). Salaries. 1 Chief Clerk,Preserv.of Pub.Records $2,100 00 1,260 00 4,800 00 3,300 00 1,000 00 2,400 00 3,600 00 Preservation of Public Records. 12 Copyists (3) $1, .-,00 SIS.OOO 00 1 1 3 1 i lliiiii 8 S8888JS S 3 Preservation of Public Records. This sum of $36,460 and 27 employees is included and ivill be combined in the reorganization of the Commissioners of Division Supervision of Records in the County Clerk's office. (See Table No. 12.) Reindeilng Department. 1 Special Deputy Register 1 ..W, Deputy Register 3 Clerks (8 $1,100 2 Draftsmen @ »1,200 Total, $18,460. $5,000 00 3.000 00 Relndeilng Department. (Chap. 082, Laws 1910) 1 Special Deputy Register 1 Assistant Deputy Register 5,000 00 3,001) 00 $5,000 00 3,000 00 1 Abstracter in Charge 23 Abstractors fe $1,200 I Examiner in Charge 1 Examiner 1,650 00 27,600 00 1,6.W 00 1,.500 00 5,400 00 23 1,650 00 27,600 00 1,650 00 l,.50O 00 5,400 00 1 Abstractor in Charge 23 Abstractor @ $1,200 I Examiner in Charge . I Examiner 4 Examiners ® $1,360 1,650 00 27,600 00 1,650 00 1,500 00 4 Examiners® $1,350 .9,400 00 8 locators® $1,200 9,600 00 il,(ifW 00 .s Locators (&; $1,200 9,600 00 4 Searchers® $1,050 14 Verifiers® $1,000 4,200 00 14,000 00 14 4,200 00 14.000 00 4 Searchers @ $1,050 14 Verifiers @ $1,000 4,200 00 14,000 00 1 Chief Surveyor 2,100 00 1,500 00 2,100 00 L.'iOO 00 1 Chief Surveyor 1 Assistant Surveyor . . 2,100 00 1,500 00 I .Stenographer 1,200 00 1,200 00 1 Stenographer , . 1,200 00 2 Draftsmen @ $1,350 5 Draftsmen @ $1,200 2,700 00 6,000 OO 2.700 00 6,000 00 2 Draftsmen® $1,350 .1 Draftsmen® $1,200, , 2,700 00 6,000 00 3,120 00 Typevrriter Copyists ® 25 cent* per index page (24,000 pages) Total, $05,020. 0,000 00 O.IKIO IX) H Typewriter Copyists ® 25 cents per index page (24,000 pages) 6 Clerks (Queens) ® $1,500 2 Clerks (Richmond) @ $1,.500 6,000 00 9,000 00 3,000 00 194 t285,630 00 62 $96,050 00 173 $220,910 00 429 S602,.W0 00 377 $502,190 00 fJumber of Incumbents. Total Salaries. Existing Conditions Proposal 429 377 $602,690 00 502,190 OO .52 TABLE No. 12 COMMISSIONER OF RECORDS. EXISTING CONDITIONS, JANUARY 1, 1915, IN THE OFFICE OF COMMISSIONER OF RECORE 'S, NEW YORK COUNTY; COMMISSIONER OF RECORDS. KINGS COUNTY, AND COMMISSIONER OF RECORDS, NEW YORK COUNTY SURROGATES' OFFICE; AND PROPOSED REC- 1 ZATION SHOWING RE.SUL'HNG ECONOMIES. Commissioner of Records New York County. Commissioner of Records Kings County. Com missioner of Records, Surrogates' New York County. Total Number of Incumbents Total Salaries. Proposed Reorganization. 1 Existing Conditio,is: County Clerk's Office. Total Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbents. Number of Incumbents. Salaries. Salaries. i Number of Incumbents. Salaries. $7,500 00 4,000 00 3,600 00 21800 00 2,700 00 2,000 00 2,000 00 3,600 00 1,650 00 7,500 nn 12,000 00 6,480 00 2,700 00 3,600 00 1,080 00 4,320 00 2,400 00 1,800 00 1,800 00 4,800 00 1,360 00 10,080 00 1 C $5,000 00 4 000 00 3,000 00 3,000 00 1,600 00 1,800 00 1,800 00 3,200 00 1,625 00 6,000 00 7,000 00 1,325 00 3,900 00 2,450 00 3,600 00 4,400 00 3,000 00 1,500 00 1,300 00 1,100 00 1,300 00 2,000 00 1,800 00 1,500 00 1,800 00 2,000 00 2,400 00 1,050 00 2,000 00 6,300 00 2,500 00 2,100 00 1,800 00 1,800 00 2,400 00 1,300 00 1,000 00 I Com missioner $5,000 00 4,000 00 3,600 00 2,0(K) 00 1,800 00 12,000 00 S,4(X) 00 l„S0O 00 2,100 00 4.320 00 1,200 00 20 27 74 IncumhcDts, Total Salaries $98,530 $17,.500 00 12,000 00 10,000 00 6,800 00 2,700 00 4,000 00 2,000 00 1,600 00 1,800 00 6,400 00 4,850 00 1,800 00 1,525 00 25,500 00 7,000 00 1,325 OO 3,900 00 2,460 00 24,000 00 4,400 00 6,480 00 3,000 00 1,500 00 1,800 00 4,000 00 1,100 00 3,600 00 1,080 00 4,320 00 1,300 00 2,000 00 6,700 00 3,600 00 3,800 00 9,600 00 1,050 00 3,350 00 20,700 00 2,500 00 2,100 00 1,800 00 1,800 00 2,400 00 1,300 00 2.200 00 $5,000 00 3,000 00 2,500 00 1,800 00 3,600 00 4,.5(10 00 10,800 00 9,000 00 7,000 00 1,000 00 1,440 00 5,400 00 1,800 00 4,500 00 10,800 00 1,000 00 6,480 00 2,100 00 26,600 00 6,000 00 1,300 00 900 00 6,000 00 32,400 00 1 Asst. Supt. of Indexing and Recording' ... $3,.500 00 2,500 00 1,.500 00 3,000 00 1,.500 00 3,000 00 1,500 00 7,000 00 9,000 00 32,400 00 6,000 00 $2,100 00 i;260 00 4,800 00 3,.300 00 1,000 00 ■2,400 00 3,600 00 18,000 00 1 Deputy Commissioner 1 Deputy Commissioner aty Commissioner.... .rintendent 1 Deputy Commissioner of Records 1 Chief Clerk 1 Assistant to Chief Clerk 2 General Clerks @$1,, soil 3 General Clerks ® $l,.50n 9 General Clerks @ $1,200 9 General Clerks® $1,001) 7 General Clerks® $1,000 , 1 Stenographer 2 Stenographers @ $720 3 Indexers of Records @ $1,800. . 4 Chrks @ $1,200' 3 Clerk, @ $1,100' 1 1 Clerk ® $1,000' 2 Draftsmen @ $1,200' 3 Bookbinder® $1,200' 12 Copyists @$1,.500' 1 Assistant Superintendent 1 Assistant Superintendent 1 Chief of Comparing Division . . 1 Chief of Town Records 1 Clerk 2 Assistants to Chief @ $1 5b6» 1 Supervisor of Copying of Mutilated Records' I Seer 7 Index Clerks @ $1 000' 27 Copyists @ $1,200' 6 Typewriter Copyists @ $1.000'' • 5 Copyists® $.05 per folio' 60 1 1 Chie 8Cler f Recording Clerk ... 1 Clerk 4 Clerks @ $1,500 5 CleriM (Index and Record) (w $1,500. $78,858 75 '27 $36,460 00 3 Clerks® $1,300 1 ' 10 Clerlis (Index and Record) @ $1,200. . 3 Clerlis® $1,200 7 Cler iS @ $1 ''00 $246,420 00 152,820 00 6 Clerks (Records) @ $1,080 1 ConI idential Stenographer , 120 Employees, Proposed Reorganizations. . . 40 Employees, ECONOMY 1 Stenographer and Clerk 1 Stenographer $93,600 00 2 Stenographers and Type. @i $1 3.50 3 Stenograpliers and Type, (gi $1,200. . , 1 Stenographer Proposed ConsoUUatlon. Based on Edsting Conditions: 6 Stenographers and Type. ® $720 Present Conditions, Commissioner of Records. $246,420 00 78,858 75 36,460 00 2 Custodians (a $1 (XX) 1 Chief Examiner and Indexer of Records 1 Chief lndc\ Division TOTAL COST 1 Assistant Index Division 1 Chief Clerk of Old Records 1 Super. Copying Mutil. Records. 2 Bookbinders @ $1,200 $361,738 75 152,820 00 1 Superintendent of Repair Old Records 2 Bool :binders(®$l, -200 3 Asst. Clerks in Charge of Old Records ® $1,500. ECONOMY $208,918 75 1 Supervisor of Re-Indexing 1 Chief of Map Division 1 Assistant Chief of Map Division 1 Chief of Locating Division 2 Draftsmen (gl $1 200 1 Chief Draftsman (Map Division) . . 160 1 Mess 17 Copyists @ $1,500 60 247 120 Office Register A TOTAL OF I Tracer Under Proposed Reorganization A TOTAL OF $S9,660 00 $95,550 00 j $46,420 00 $231,630 00 $100,000 00 05 $100,000 00 30 $46,420 00 $246,420 00 120 $152,820 00 NOTE— The positio presented to illustrate the New York County. Kings County. Queens County. Bronx County. TABLE No. 13. COjrMISSIONER OF .ItTRORS. EXISTING CONDITIO?*, JANUARY 1. 1013, IN THE FIVE COUNTIES IN NEW VOHK CITY .\ND I'liOPOSED REOIiGANIZ.\T10N SHOWING RESULTING ECONOMIES. New York County. 1 Commission I Assistant Ci Secretary Clerk and Typewriter. 3 Clerks @$l,riiiO. Clerks® $1,530. Clerks fi;$I,4(}n,. 2 Messengers® $1,400. $8,000 ( 3,000 ( 4,050 00 0,180 00 Assistant Commis Chief Clerk Sciretary Clerk and Stenographei 3 .Iiiry Notife Servers fn ?1,300 . 1 Messenger and Telephone Operator $0,000 00 3,000 00 2,000 1 3,000 1 Kings Coun 1 Commissioner 1 Deputy Commissioner . 1 Clerk 1 Secretary 1 Stenographer 1 Clerk (Fine and Exempt), f. Clerks (H $l,i .lury Notice Servers @ $1,200.. $6,000 00 3,500 00 2,100 00 2,500 00 S-IO 00 Clerk (Exempt and Enroll) . Clerk .lury Notice Server .?3,000 00 2,.50(> 00 Richmond County. 1 Commissioner. I Assistant Comi Total Number of Incumbents. 0,180 00 12,400 00 Proposed Reorganization. Nuniber of Incuin 1 (^ommissfixner of Jurors 2 Dep. Conlmissioners of Jurors (^ $3,0 2 Dep. Commissioners of Jurors ^' $2,0 1 Dep. Commissioner of Jurors I Chief Clerk 1 Secretary. 2 Stenogradhers (a S1,.5(K). , , 2 StenograiiherB (n SniH) . 20 Clerks (ni change) I Jurv Notice Servers (ti 81,200., 0,000 00 4,U00 00 31 Total Personal Service . $22,.500 00 123 76 $130,770 00 84 RECAPITULATION. Number of Incumbents, Salaries, Existing Conditions Proposed ,., 70 07 .OS ) Economy 12 $33,000 00 TABLE No. 14. PUBLIC ADMINISTRATOR.. EXISTING CONDITIONS JANUARY I, 1915, IN THE FIVE COUNTIES IN NEW YORK CITY, AND PROPOSED REORGANIZATION SHOWING RESULTING ECONOMIES. New York County. Bron.\ County. Kings County. Queens County. Richmond County. Incumbenta. Total Salaries. Proposed Reorganization. Licumbents. Total Salaries. Incumbents. Total Salaries. Incumbents! Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. $10,000 00 5,000 00 2,700 00 1,900 00 1,200 00 1,200 00 1,1, W 00 730 00 1.50 00 1,400 00 900 00 300 00 1 Public Administrator. 84,000 00 1 Pul)lic Administrator. 1 Counsel $5,000 00 3,000 00 2,000 00 1,200 00 720 00 600 00 1 Pulilic Administrator., .SI, 200 00 1 Public Administrator. . Fi.cs $20,200 00| 5,000 Oo| 3,000 00 4,700 00 3,100 00 1,200 00 1,200 00 1,150 00 1,470 00 150 00 600 00 1,400 00 900 00 300 00 1 Public Administrator. 1 Chief Clerk (Law) , . . , 1 Cashier . . 1 Amt. Public AdminUtrator $7,500 00 1 Clerk 3,000 00 1 Clerk 1,900 00 1 Stenographer., 1 FUe Clerk.... [ 1 Clerk 1,200 00 1 Steno ra her 1 Stenographer 1 Stenographer 1 Bookkeeper 1 Steno a her 1 Stenographer 1 Stenographer @ J5 per day (30 days) 1,200 00 COO 00 12 Total Personal Service $26,650 00 1 $4,000 00 G $12,520 00 1 $1,200 00 1 Fees 21 $44,370 00 11 $20,200 00 RECAPITULATION. Number of Incumbents. Total Salaries. Existing Conditions 21 11 $44 370 00 20 200 00 ECONOMY 10 $24 170 00 New York County. TABLE No. 15. SHERIFF. EXISTING CONDITIONS, JANfJARY I, 1913, IN THE FIVE COUNTIES IN NEW YORK CITY AND PROPOSED REORGANIZATI Richmond County 1 Sheriff (Sheriff's fees,1914,$59,703.7 1 Counsel 1 Assistant CouiKsfl 1 Under Slicriff 14 Deputy .Slieriffs (a $2,.'i00.. 15 Asst. Dep. Sheriffs (&■ $1,500, 1 Chief Clerk 1 Entry Clerk 1 Asst. Entry Clerk 1 Clerk (Arrest) 1 Clerk 1 Clerk (Jury) 3 Clerks @ $1,200 1 Law Clerk 1 Cleaner 2 Cleaners @ $300 1 Typewriter Copyist 1 Copyist (30 days @ $1.66^). 1 Cashier 1 Asst. Cashier 1 Auditor 1 Asst. Auditor 1 Accountant 1 Messenger 1 Telephone Operator. . . . 1 Stenographer (30 days @ $3) 1 Confidential Stenographer . 58 OFFICE TOTAL riff (Fees, unknown). I Counsel. 2,500 00 1,500 00 1,500 00 1,400 00 2,000 00 3,000 00 1,600 00 1 Under Sheriff 10 Deputy Sheriffs @ $2,500.. 5 Asst. Dep. Sheriffs @ $1,500 2 Clerks @$1,. 500.. 2 Clerks® $1,200.. 5,000 00 26,000 00 7,500 00 3,000 00 2,400 00 1 Under Sheri t. 8 Deputy Sh< 8 Asst. Dep. I 0,000 I 17,()0fl 00 8,000 00 1 Under Sheriff 6 Deputy Sheriffs @ $1,500. Asst. Dep. Sheriffs @ $900. Chief Clerk. . Entry Clerk . 2,500 00 9,000 00 5,400 00 ,500 00 ,200 00 1 Under Sheriff 1 Deputy Sheriff 4 Deputy Sheriffs as Court tendants @ $2.00 per df (1,200 days) SIESULTING ECONOMIES. Clerk— Index. Law Clerk. . . . Stenographer Typist . 1,500 00 90 00 1,080 00 Secretary Stenographer . 2,000 00 1,200 00 Telephone Operator Secretary Fees and Commissions . . Confidential Stenographei OFFICE TOTAL. 27 OFFICE TOTAL. 22 OFFICE TOTAL. 10 OFFICE TOTAL. Total Number of Incumbents. 5 Counsels 1 Assistant Counsel 5 Under Sheriffs 39 Deputy Sheriffs... ^8 Asst. Deputy Sheriffs 4 Chief Clerks.. 1 Asst. Clerk . . 2 Entry Clerks. 1 Asst. Clerk... 13 Clerks 3 Law Clerks. Typewriter Copyists . 1 Auditor 1 Assistant Auditor. 2 Accountants 3 Secretaries Fees and 5 Stenographe Sheriff's Fees (N. Y. County). Proposed Cost . Economy.. 9,000 00 2,000 00 3,700 00 17,800 00 5,100 00 2,860 00 1,350 00 2,100 00 5,000 00 200 00 4,570 00 Proposed Reorganization. Number of Incumbents. 1 Under S 1 Under Sheriff. 1 Under Sheriff. Chief Clerk Asst. Chief Clerk.. Entry Clerk Asst. Entry Clerk. 13 Clerks @ $1,200 1 Clerk I Law Clerk 2 Typewriter Copyists. 1 Secretary 2 Stenographers @ $1,200. . $12,000 00 10,000 00 4,000 00 3,000 00 2,500 00 3,000 00 2,000 00 2,500 00 1,500 00 15,600 00 900 00 2,500 00 1,350 00 2,500 00 3,000 00 2,400 00 Richmond County, Amount unknown. TABLE No. 15— Continued. SHERIFF— COUNTY JAIL DIVISION. New York County. Bronx County. Kings County. Queens County. Richmond County. Existing Conditions. Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Number of Incumbents. Total Salaries. Number of Incumbents. Total Salaries, 1 Warden $3,000 00 11.000 00 600 00 240 00 228 00 264 00 2.700 00 2,542 50 1,000 00 1,200 00 2,500 00 7,200 00 1,800 00 1 Warden $2,000 00 11,000 00 840 00 1,800 00 1,000 00 1,200 00 1,500 00 2,000 00 900 00 900 00 750 00 720 00 600 00 150 00 1 Warden $3,000 00 9,600 00 600 00 1,500 00 1,.500 00 3,000 00 2,000 00 1 Warden $1,200 00 2,000 00 000 00 1 Jailer 1 Cook 1 Physician 4 Prison Guards, »:i.00 per diem 1 Matron 2 Matrons @ $800 .... $900 00 500 00 7.50 00 4,380 00 600 00 1,600 00 480 00 1,200 00 5 Wardens . . $10,100 00 33,600 00 2,540 00 240 00 228 00 264 00 6,000 00 2.5*2 .50 2,750 00 3,900 00 4,000 00 13,580 00 2,700 00 5,100 00 2,350 00 1,200 00 3,200 00 750 00 1 Warden ' $3,000 00 10,000 00 10 Keepers ® 2 Cooks @ d 2 Asst. Cooks 2 Cooks & $300 2 Cooks @ $420. . . ; 2 Cooks ©$300 7 Cooks iCtcVok ..:.::::.::: 1 Laundress 1 Laundress 4 Cleaners @ 2 Engineers ^ I Physician $600 2,400 00 liooooo 1,500 00 1,650 00 2,000 00 17,600 00 2 Engineers® $4.50 per diem. 1 Physician . .... 1 Physician 1 Bookkeeper. 2 Engineers 3 Physicians $4.50 per diem 1 Clerk to Jail 2 Dep.SheriSs and Head Keeper... 2 Clerks-1 6 1 Head Keepa 16 Prison Guar 3 Van Driver 3 Matrons @ $900; 1® $750 6 PrUon Guards® $1,200 iis-8(«Sl,200;8@$l,000 6 Matrons 3 Matrons $900 2,700 00 1 Matron 1 Farm Hand 2 Finger Print Clerk & Dep. Warden 1 Matron (50 days® $3.00)... $34,274 50 $25,360 00 18 JAIL TOT.VL $21,200 00 $3,800 00 $10,410 00 $95,044 50 48,910 00 48 TOTAL. $48,910 00 PROPOSED ECONOMY $46,134 50 EECAPITULATION- EXISTING CONDITIONS. New York County. Bronx County. Kings County. Queens County. Richmond County. All Counties. Incumbents. Total Salaries. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Total Incumbents. Total Salaries. 91 $150,994 50 56 $91,410 00 45 $86,050 00 26 $42,200 00 22 $23,660 00 240 Sheriff's Fees New York County 59 703 71 SUMMARY SHOWING RESULTING ECONOMIES. GRAND TOTAL $237,508 21 Number of Incumbents. Total Salaries. I 145 240 9) 4S ~ 143 I? $299,270 00 .59,703 71 E.xisting conditions Sheriff's Fees $.358 973 71 $167,600 00 48,910 00 95 044 50 Total Existing Conditions $454 018 21 Proposed— Sheriff's Office Economy EXISTING CONDITIONS JANUARY 7 Judges @ »17,50O 1 Clerk 12 Deputy Clerks @ $4,000 2 Deputy Clerks @ »3.000 1 Araiatant Clerk 9 Record Clerks @ $3,000 6 Stenographers @ $3,600 2 Wardens, Grand Jury, © $2,000. 7 Clerks to Judges @ $2,500 5 Interpreters @ $2,500 68 Attendants ® $1,800 5,000 00 48,000 00 6,000 00 4,000 00 27,000 00 21,600 00 4,000 00 17,500 00 12,500 00 122,400 00 1 County Judge 1 Secretary 1 Special Deputy Clerk 2 Aast. Spec. Dep. Clerks (B' $2,500. 4 Attendants (Court) t« $1,500. Temporary Employees. Compensation of visiting Judges, 25 days @ $10 per day Interpreter, 100 days @ $5 per day TABLE No. 10. COUNTY COURTS (COUNTY COURT AND SURROGATE'S COURT COMBINED IN RICHMOND). I, IN THE FIVE COUNTIES IN NEW YORK CITY, SHOWING ECONOMIES WHICH WOULD RESULT FROM A CONSOLIDATION OF CLERICAL AND OTHER SUBORDINATE POSITIONS. Total Number of Incumbents. in it unty Judges @ $10,000 iditional compensation of County Judge ifor services in drawing jurors @ $2,500 Chief Clerk Deputy Chief Clerk Confidential Clerks @ $2,000. Clerk Cerk CBrks@$3,500 CBrka@$3,200 Cark Cerk Cerk Cerk Il terpreter Ii terpreter * Court Attendant. . t Attendants @ $2,0 6 Olurt Attendants ^} $1,8 4 D itectives @i $3,0(M 1 T|iIephone Operator Compensat'nofjudgesfromothercoun Stenographers' Fees R^erees' Fees Niltaries' Fees I Temporary Employees. Interpreter 100 days @ $5 per day . Lffcorer, 600 days @ $2.50 per day. Tfttphone Operator @ 60 c. per lot to exceed $1.50 per day 10,000 00 7,500 00 5,000 00 8,000 ( 4,000 ( 3,800 ( 14,000 ( 6,400 ( 3,000 ( 2,700 ( 2,100 ( 1,800 ( 3,500 00 2,500 00 3,.50O 00 10,8 12,000 00 1,000 00 1,000 00 1,978 00 2,000 00 22 00 County Judge Additional compensation of County Judge for services in drawing jurors 1 Confidential Clei 1 Chief Court Attendant 3 Court Attendants (8; $1,600. . . 1 Court Attendant 1 Court Crier 2 County Detectives @ $2,000. $10,000 00 2,500 00 1,500 00 1,800 00 4.000 00 County Judge and Surrogate Additional compensation of County Judge for services in drawing jurors. . . . Clerk of Surrogate's Court Clerk in Surrogate's Office Confidential Clerk. Court Attendant . Sala $7,500 00 2,500 00 3,000 00 1,800 00 Temporary Employees. Temporarj' Employees. Temporary Employees. Temporary Employees, 3,000 00 15,.500 00 01,900 00 11,000 00 11,800 00 13,000 00 3,800 00 41,000 00 6,400 00 3,000 00 2,700 00 2,100 00 1,800 00 1,500 00 5,300 00 157,200 00 13,800 00 3,800 00 20,000 00 I 00 Proposed Reorganization. Number of Incumbents. 14 Judged. 1 Managing Clerk (office ti.i 10 Clerks (office force) @ $2,000, 10 Clerks (office force) @ $1,500. 5 ClerksKofRce force) @ $1,200. 13 Stenographers (Court furcc) 2 Stenographers and Typewriters (office) @ $1,500. 1 Warden, Cirand Jury (Court force) ardeu, Grand Jury (Court force) 6 Interpreters (Court force) ® $2,000. 2,.500 00 5,000 00 36,000 00 27,300 00 3,000 00 1,500 00 120 Total Personal Service. 210 RECAPITULATION. Number of Incumbents. Total Salaries. 210 145 Proposed 421 020 00 Eco omv 65 $266,950 00 TABLE No. 17. SURROGATE. EXISTING CONDITIONS JANUARY 1, 1915, IN THE FIVE COUNTIES IN NEW YORK CITY AND PROPOSED REORGANIZATION SHOWING RESULTING ECONOMIE New York County. Proposed Reorganization Surrogates @ $15,000 let Law AssisUnt 2nd Law Assistant 3rd Law Assistant 4th Law Assistant Chief Clerk Dep. Chief Clerk .\sst. Dept. Chf. Clk Clerk of Court Dep. Clerk of Court Clerk Additional Part Court 2 Clerks to Surrogates @ t3,C00 1 Bookkeeper 1 Stenographer 1 Stenographer 1 Stenographer 1 Asat. Stenographer 1 Correspond. Searcher I Correspond. Searcher 1 Confid. Stenographer, to th Surrogates 1 Steno. to Surrogates I Interpreter I Supt. of Supplies 1 Special Searcher 1 Probate Clerk I 1st Asst. Probate Clerk 1 2nd Asst. Probate Clerk 1 3rd Asst. Probate Clerk ! -Administration Clerk 1 Asst. Administration Cierk. I 2nd Asst. Administr. Clerk . I 3rd Asst. Administr. Clerk . 1 Guardian Clerk 1 .\s8t. Guardian Clerk 1 Guardian Accounting Clerk. 1 Asst. Guard. Accounting Clk. I Accounting Clerk 1 Asst. Accounting Clerk. . . . 1 Certificate Clerk 1 Subpoena Clerk 1 Requisition Clerk 1 Record Clerk 5 Record Clerks @ $1,500. . 1 Supt. of Recording Clerks . 1 Chief Examiner 1 Asst. Examiner $30,000 00 6,000 00 5,500 ( 4,500 00 4,000 00 10,000 00 5,500 00 2,600 ( 6,000 1 1,800 00 3,250 00 2,750 00 2,400 ( 1,500 ( 5,000 ( 2,400 ( 2,100 ( 1,350 e 3,000 ( 2,100 ( 1,800 ( 1,500 ( 2,100 ( 1,800 C 3,000 I 2,000 1 1,500 I 7,500 00 2,000 00 1,500 00 1,350 00 ^ 1 Chf. Clk. & Clk. of s. c . 1 Clerk & StenO. to Chf. Clerk Telephone 'emtar 1 Chf. Court 4 4 Court Offices® $1,800. 1 Court Office ■ 1 Court Stenographc Confid. Stenographel Guardian Clerk . 1 Chf. of Recof is * Interpret*. 1 Asst. Chief tf' Records 1 Probate Clerk 1 Asst. Probate Clerk 1 Administration Clerk 1 Asst. Adminfs'ration Clerk.. 1 Guardian Acrountine Clerk, 1 Accounting p'erk 1 Asst. Accou*tinB Clerk 1 Certificate ^ Financial C Chief Reconf ing Clerk Clerk .] Clerk Clerk I 9,000 00 l,.'i00 00 900 00 2,300 00 7,200 00 1,500 00 Clerk of Court Clerk & Stenographe: 3,500 00 2,100 00 1,350 00 9,500 001 4,200 00 1,500 00 1,000 00 1,800 00 7,500 00 3,400 00 3,150 001 2,950 00 1,500 ( 5 Surrogates @ $10,000 1 Law Assistant 1 Law Assistant 2 Law Assistants @ $3,0(X) 1 Chief Clerk 1 Chief Clerk 2 Chief Clerks @ $2,500 2 Stenos. and Typewriters @ $1,500 1 Telephone Operator 5 Clerks of Court @ $3,000 6 Court Stenographers @ $2.5(X) 2 Confid. Stenographers ® $1,350. . 2 Interpreters @ $1,800 1 Probate Clerk 2 Probate Clerks @ $3,000 3 Probate Clerks @ $2,100 1 Probate Clerk 1 Administration Clerk 1 Administration Clerk 1 Administration Clerk 3 Asst. Administr. Clerks @ $1,500. 1 Chief Accounting Clerk 2 Guardian Acc'ting Clerks @ $2,000 2 Guardian Clerks @ $1,500 3 Accountants @ $2,100 1 Cashier 1 Bookkeeper 1 Chief Clerk of Records 6 Clerks @ $1,200 1 Chief of Recording Clerks 3 Clerks @ $1,500 TABLE No. 17— Continued. Kew York County. Bron.v County. Kings County. Queens County. Existing Conditions. Proposed Reorganization. Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Incumbents. Total Salaries. Total Salaries. Total Salaries. 22 Recording Clerks® $1.200.. 1 Calendar Clk.&Supt.Copyi.«ts »26,400 00 i,r>oo 00 3,600 00 1,800 00 5,400 00 io.m 00 2 Recording Clerks ((/ $1.2(X), . 1 Attendant and Messenger.. 1 Confidential Attendant $2,400 00 1,2(KI 00 1,500 00 10 Recording Clerks® $1,300.. 1 Comparer 1 Comparer 1 Calendar Clerk 1 Copyists, Type $13,000 00 1,350 00 1.200 00 2,400 00 1,200 00 2.300 00 1,200 00 1,300 OoJ 3,636 00 1 Copyist ... $1,200 00 1,800 00 1,500 00 3,000 00 l,.50O 00 600 00 750 00 750 00 .34 5 $41,800 00 1,350 00 1,200 00 3,900 00 6,000 00 1,800 00 3,800 00 3,000 00 1,800 00 7,800 00 14.400 00 4,750 00 4,386 00 40 Clerks @ $1,200 1 Calendar Clerk & Supt. Copyists. . 5 Copyists @ $1 200 $48,000 00 1,500 00 6 000 00 2 Copyists @ $900 3 Index Clerks @ $1,200 1 Librarian 3,600 00 1 500 00 1 IJbrarian & Chf. Messenger. .•! Messengers© Jl.SOO Court Attendants @$1,S()0.. 2 Asst. Index Clerks fe $1,500. I Chief Custodian 6 Court Attendants (e $1,200 3 Custodians @ $1,000 1 Court Attendant (200 days @$,3) . . 1 Custodian...., 3,000 00 1 Custodian (300 days® $2.50) 1 Watchman(300 days® $2.50) 4 Laborers (303 days® $3)... 88 $200,1.50 00 13 $35,100 00 .50 $10S,.386 00 14 $28,700 00 165 $.378,336 00 129 $262,950 00 RECAPITULATION. Number of Incumbents. Total Salaries. Existine Conditions 165 129 $378 336 00 Proposed.; : :... 262,950 00 Economy .36 $115,386 00 1