JjTORKS PROGRESS ADMINISTRATION
DIVISION OF
RESEARCH, STATISTICS AND RECORDS
PUBLIC ?/E LEAKS ORGANIZATION
IN THE UNITED STATES
A Synopsis of Opinion
March, 1937
¥
RESEARCH LIBRARY
,
n
11514
CONTENTS
Page
Comment and Opinion:
Federal Public Welfare Department 1-26
State and Local Public Welfare
Departments - General ........ 27-43
Alabama 44-47
Arizona 48
Arkansas 49-52
California 52-54
Colorado 54-56
Connecticut 56-59
Delaware 59-63
District of Columbia 64
Florida 64-65
Georgia ..... 65-67
Idaho 68-69
Illinois 69-75
Indiana 76-84
Iowa 84-88
Kansas 89-90
Kentucky 90-95
Louisiana 96-98
Maine 98-100
Maryland ... 101-102
Massachusetts 103-107
Michigan 107-112
Minnesota 113-116
Mississippi 116-117
Missouri 118-123
Montana 123-125
Nebraska 125-126
Nevada 126-128
New Hampshire 128-132
New Jersey 132-147
New Mexico 147-149
New York 149-161
North Carolina 161-167
North Dakota 167-168
Ohio 169-175
Oklahoma 175-179
Oregon 180-182
Pennsylvania 183-193
Rhode Island 193
South Carolina 194
South Dakota 195-197
Tennessee . ' 197-198
Texas 199-203
Utah 203-207
i
Il3l4
WORKS PROGRESS ADMINISTRATION
HARRY L. HOPKINS
Administrator
CORRINGTON GILL
Assistant Administrator
EMERSON ROSS
Director, Division of
Research, Statistics and Records
Prepared by
ADELAIDE R. HASSE
With the assistance of
ELIZABETH KETCHAM
Under the direction of
VIRGINIA BREEN
COMMENT MD OPINION
A
Federal Department of
Public Welfare
11514
General
No. 1-2
COMMENT AND OPINION
(1) THE STATE OP THE NATION. (The Commonwealth Review, vol. 18, Novem¬
ber 1936, pp. 194-195.)
The following is an excerpt from this editorial which concerns
public welfare.
The administration will need the planners more than ever now.
The emergency planning neriod may be considered behind us, but
we shall have to plan more extensively with the long vie", and
in some fields in which planning has been considered unnecessary
until now. Fortimately the planners have accumulated some prac¬
tical e-periences, and their objectives are becoming clearer.
The costs of government will have to be brought down to the
lowest limits compatible with efficiency; end never before has
there been a greater need for efficiency. Much of our govern¬
mental structure Pill hove to be overhauled to obtain these two
important objectives. The same holds true of welfare administra¬
tion. which is to loom larger in the picture with the event of
a well-rounded social-security program and the service programs
"hich are sure to folio". Population problems will press for
solution. With the passing of the frontier and the wide open
spaces, any considerable shifting about of the copulation from
necessity or from choice will involve adjustments on a large
scale which can no longer safely be left to individual choice
or to the free working of so-called economic laws. Planning,
in these fields, is no less vital or pressing than planning to
conserve and moke the most of our physical resources. In the
case of our physical resources, the need for planning is now
conceded insofar as anybody haw, thought about it. Planning for
the solution of human problems cannot as y^t be said to have
captured the popular imagination.
(2) ADIE, DAVID C. The organization of a national welfare program. (The
Social Service Review, vol. 8, Sept. 1934, up. 423-433.)
Paper read at joint session of Division IX (Administration of
Public Social Work) of National Conference of Social 7/ork with
the American Public Welfare Association, Kansas City, Mo.,
May 22, 1934.
"Whether we like it or not, we are being driven by the very
exigencies of time into more and more social planning and the
oroscription of unregulated individualism.
We must accept the newer relationships which involve a public
welfare structure reflecting definite coordination of efforts
on the part of the Federal, State and local governments, as
well as a new relationship, much more closely integrated,
between the public and private social agencies. We have er-
rived at a complicated social order in which we view social
security as necessitating the operation of a variety of social
services.
For some time to come our clients could be classified in gen¬
eral categories, viz:
-1-
11514
COMMENT AND OPINION
General
Tc. co..t' '
ADIE, DAVID C. Organization of a national welfare program, (contfd)
(2 . (l) Those having an inherited deficiency-
cont'd.) (2) Those who face problems of a temporary nature which
are subject to social treatment.
(3) Those who are caught up in an unhealthy environment
and who reflect the effects of such an environment.
(a) (4) The new group which is a result of a labor surplus,
which will increase with greater substitution of mechan¬
ical power.
(b) (5) The development of cooperative adult education and
leisure time programs, run by public and private
organizations, to serve both the socially distressed
and the general citizenry.
We must accept the principle that governments and associations
of private individuals must be responsible for large programs
of social effort. New instruments of taxation must be develop¬
ed to finance these developments, and new forms of contributory
insurance will be called into being. This necessitates federal,
state and local governments working out a coordinated national
welfare program.
(c) Personally, I should like to see within the national government,
the present cabinet position of Secretary of Labor changed to
that of Secretary of Labor and Social Welfare. There could be
established within such an expanded department, new divisions
such as a division of social welfare and a division of social
insurance and employment services directed by an under secretary
or an assistant secretary. Minimum standards would be fixed by
Federal authorities through state machinery, which in turn would
deal with local governments. The Federal agency must avoid the
exercise of a too authoritative central power and secure the de¬
velopment of a wise cooperative relationship allowing for the
exercise of governmental rights within existing political struc¬
tures.
In relation to nonexisting public machinery, can we not conceive
it to be the duty of Federal authorities to assume the respon¬
sibility for securing, as opportunity arises, the rounding out
of permanent social machinery? We could establish that type of
machinery which would more readily meet the changing aspects of
future social life, benefit from the provision of a wall-selected
personnel, establish within this set-up facilities for training
and all the other things which are dynamic in their nature and
free from the entanglements of legalisms and other accretions of
the age. But there must be a very positive relationship on the
part of Federal authorities to the opportunity.
Another feature of Federal action is the necessity for securing
the development of uniform settlement laws and reciprocal agree¬
ments between the states.
There is real need for Federal development of a system of social
research and reporting in order that, upon the factual data, we
may begin to initiate a national social planning program.
-2-
11514
COMMENT AND OPINION
General
No. 2-2a
ADIE, DAVID C. Organization of a national welfare program, (cont'd.)
(2 We must come to a decision in relation to the future relation-
cont'd.) ship between public and private agencies. A partnership rather
than absorption is involved in any concept which I have of a
national welfare program in this respect."
(2a) BANE, FRANK. Public welfare in 1934. (Social Service Review,
vol. 3, Sept., 1934, pp. 408-414.)
Now is certainly the time for the closest kind of coordination
between so-called emergency activities and a continuing program.
Now is the time to fit special and temporary activities into the
regular functions of government. Now is the time to develop a
comprehensive, constructive, long-time plan for combating our
social ills.
The President has announced ... he intends in the near future to
appoint a commission to make a thorough study of relief, unem¬
ployment insurance, old-age assistance and employment exchanges,
among other things. He expects this commission to develop a
continuing plan for submission to the next Congress, meeting in
January.
Many of our troubles and most of our confusion have grown out of
the fact that prior to 1930 there was no federal program in the
field of pdblic welfare, and except for what could be furnished
bv the inadequately financed U. S. Children's Bureau, social
work was without federal leadership. Such leadership is neces¬
sary now and that need is a continuing one.
The commission through its work will have an unparalleled oppor¬
tunity to develop program, to make certain that public welfare in
1944 has definite direction and unified administration, diversi¬
fied and adapted to meet the variety of needs that obtain in the
different states. It will have a.n opportunity, which I trust it
will make the most of, to establish a federal department of public
welfare. to coordinate the now scattered activities that relate to
human welfare, to initiate and promote constructive social planning
and above all to devote itself untiringly to the development of
social and economic security for the men, women and children of
America.
The foregoing is also reprinted in Kurtz, Russell H. Looking toward
a public welfare plan. New York, Charity organization department,
Russell Sage Foundation, 1935. pp. 16-17.
-3-
11514
COMMENT AND OPINION
General
No. 3-4
(3) BOOKMAN, C. M. The Federal Emergency Belief Administration - its
problems and its significance, pp. 29-30 in National Conference of
Socir.l Work. 1934. Proceedings, xi, 621 pp.
"We should plan, for the very near future, an entirely different
and modernized system of relief for this country. It should
"begin with the Federal government in a carefully organized Fed¬
eral department of public welfare, which could wisely plan, skil¬
fully direct, and intelligently coordinate the diverse features
necessarily demanded of any socially valuable national welfare
program.
There rill be a permanent need for the Federal government to re¬
main in the relief field, both in planning and in financing. In
fact it would scarcely be possible to develop a.nd control a sat¬
isfactory permanent national relief program except through Fed¬
eral participation in suoport and in direction.
(a) The Federal department of welfare should operate through an ef¬
ficient system of state welfare departments, which in turn should
work through county departments of welfare set up on an entirely
new basis, eliminating the present scattered local welfare end
relief activities, including the emergency relief set-up in effect
at the present time, a.nd replacing all of these with a. unified,
intelligent and efficient relief and welfare program.
(b) These reasons all point to the necessity for a federal department
of we],fare, with Federal appropriations large enough to make ade¬
quate aid possible for the states on some kind of a matching basis
and always on condition that the states shall establish required
social and political machinery and personnel standards, and shall
maintain acceptable welfare and relief practices."
(4) . Looking ahead at relief. (Public Management. Vol. 16,
no. 12, December, 1934, pp. 392-398.)
"Whatever system of relief we shall finally adopt in this country...
the system should be the product of present foresight rather than
the result of future pressure created by some emergency for which
we may find ourselves avoidably unprepared.
...We are faced on the one hand by a desire to retain unimpaired
our individ\ial initiative... On the other hand we are feeling the
pressure of an apparent necessity for restricting this initiative
through a larger degree of social control and governmental direction
...The social results of unemployment must be met by social action
and this action must be such as to conserve all possible human
values. Unemployment is the greatest of our social wastes and it
carries with it a threat not onjy against our economic orosperity
but against our continued national security. We are challenged by
the most serious condition which has ever confronted us. It can be
met only by intelligent plans courageously administered".
-4-
11514
Go no ral
No. 4-5
COMMENT AND OPINION
BOOKMAN, C.M. Looking ahoad. (cont'd)
(4
cont'd)
Tho author presents the following suggestions:
(1) The federal government be asked to assume financial and
administrative responsibility for unemployment relief.
(2) State and local governmental units to continue to handle
general welfare problems which they have handled in the
past.
(3) That a work program be devised by the Federal government.
(4) That a public works program, local as well as Federal,
be continued as a part of our general recovery plan.
(5) Employment at the type of job to which workers are ac¬
customed. ..
(6) Federal government relief standards,
(a) (7) That a Federal department of welfare be set up in the
Federal government charged with the responsibility of
the administration of the national program and at the
same time coordinating the various relief and social
activities of the Federal government now lodged in
many Federal departments.
(8) That the Federal department of welfare approve minimum
standards of administrative set-up and control to be
adopted by the states. This would include permanent
state departments of welfare, and administrative stan¬
dards for local governmental units for their local pub¬
lic welfare departments. Through this plan we would
secure a centralization of authority and a decentralization
of administration.
(9) Federal government to recommend a sound type of unemployment
insurance.
(5) BRECKENRIDGE, SOPHONISBA P. A national program and proposals for a
Federal department of public welfare, po. 743-770 in her Public
Welfare Administration in the U. S. - selected documents. Chicago:
University of Chicago Press, 1927. xxiii, 786 pp.
Excerpts from the introductory note to the above section:
"Attention was called in earlier sections to the general
acceptance of the principle of parochial responsibility
for the care and treatment of those in distress and to
the local character of the criminal-law administration...
The propriety of attempting to bring Federal resources
to bear on the subject was recognized in an early appeal
by the schools for the deaf to the U. S. Congress, and
by Dorothea Dix's effort to secure Federal lands for the
care and treatment of the insane... That the sources of
destitution or other forms of distress found in the dis-
-5-
11514
COMMENT AND OPINION
General
No, 5 cont'd.
BEECKENRIDGE, SOPEONISBA ?. National program for Federal department
of -Qiiblic welfare, (cont1 d)
(5
cont'd.)
organization of industry or in the retarded condition of
social and political life are national or international
in scope would probably be denied by no one, but the
remedial measures must, r.onc the less, find their origin
in each of the 4-8 states.
... When for uniformity the various agencies are examined
in the light of the great diversity of organization and
when the cost is estimated, it becomes evident that, from
the point of view of need, the - conditions in the country
as a whole calling for the creation of central unifying
and standardizing authorities are similar to those in the
states that led to the creation of the state boards of
charities...
When, however, the development of a national, that is, a
Federal organization is proposed, two objections are met,
viz: constitutional limitations, and the danger of a bureau¬
cratic stifling of state and local initiative.
The subject of constitutional limitations has been widely
(a) discussed in connection with the attempt to secure a nation¬
al minimum in the protection of working children, and in
the extension of the use of the "grant-in-aid" or the policy
of sharing the costs with the states for certain specified
purposes. This latter plan has been that followed in the
recent cooperation between the Federal and State governments
in education, rehabilitation of veterans of the Great War
and the promotion of maternity and infancy care,
... That the bureaucratic stifling of local initiative is
certainly not necessary is shown by the administration of
the Federal Child Labor, and the Maternity and Infancy Acts.
Document 6 in this volume, i.e. the first Federal child-
labor law, gives pictures of stimulated activity, of sym¬
pathetic cooperation, and of variety of treatment that
should convince the most incredulous of the possibility
of fine national service eventually resulting in a minimum
of skill and activity on the part of the State.
Such relationships as these are, however, auite different
from those proposed in certain measures looking to the
creation of a Department of Welfare .in the Federal govern¬
ment,
faring the presidential campaign in 1920, Mr, Harding an¬
nounced the creation of such a department as an item in his
program, and several measures were later introduced both in
the House and in the Senate.
-5-
11514 Gene»*?'i
No. 5 cont'd.
COMMENT AND OPINION
BRECKENRIDGE, SOPHONISBA P. National program for Federal department
of public welfare, (cont'd)
(5
cent'd.)
The bill quoted: ("A Bill to create the department of public
welfare and for other purposes", May 17, 1931, S. 1839, U.S.
67th Congress, 1st session) like all the bills introduced
in either house,contemplated simply the rearrangement under
one administrative division of certain "bureaux, offices and
brances of the public service."
Whether such rearrangements will bring about a more economical
use of Federal resources and a greater efficiency in the Fed¬
eral service is a matter on which no positive word can be
spoken. To the extend to which they ignore the organic rela¬
tionships that have been built up, and manifest a lack of a
"sense of history" they will lead to waste and loss, and they
obviously lack all purpose to make good the deficiency growing
out of the fragmentary, isolated character that must weaken the
public-welfare activities so long as they are regarded as ex¬
clusively matters of State jurisdiction. (pp. 739-742)
Documents presented in Part III, Section 5 trace the develop¬
ment of national social work organizations, and the development
of Federal welfare services which has led to proposals for a
consolidated Federal Department of Public Welfare. The docu¬
ments included are:
(1) Historical sketch of social science - Henry Fillard.
Journal of Sociology. 1869.
(2) The Origin of the National Conference of Social Work,
(b) Journal of Social Science. 1874.
(3) The constitutionality of the Maternity and Infancy
Act. Massachusetts v. Mellon, 1923. U. S. Reports.
(4) The need for uniform juvenile court statistics, Annual
report of the Chief of the Children's Bureau, 1925.
(5) The prospect of better statistics of children under
institutional care. U. S. Bureau of the Census, 1927.
(6) The Federal authority stimulates state activity -
U. S, Children's Bureau.
a. First Federal child labor law, 1921.
b. Promotion of the welfare and hygiene
of maternity and infancy, 1225.
(7) One proposal for a Federal department of public
welfare - S. bill, 1839. U. S. Congress, 1921.
(8) President Harding's plan for the reorganization
of the executive departments. U. S. Senate docu¬
ments, 1923.
(9) A national conference committee proposes a Federal
bureau. National Conference of Charities, 1901."
-7-
11514
COMMENT AND OPINION
General
No. 5-7
(6) CREEL, GEORGE. Unscrambling government. (Colliers, vol. 67, no. 21,
June 25, 1921* p. 5-6-)
The Kenyon Bill (S. 1607, 67th Congress) is a first step in the
process of unscrambling the government. Briefly, it provides
for a Department of Welfare divided as following: A Division
of Education; a Division of Public Health; a Division of Social
Service; a Division of Veteran Service,
The Bureau of Education, the Columbia Institution for the Deaf and
Howard University are transferred to the Division of Public Welfare.
The Division of Health will be built around the present Public
Health Service. This division will contain Federal hospitals
and the National Home for Disabled Volunteer Soldiers.
The Division of Social Service will have as its cornerstone
the Children's Bureau, and the Division of Veteran Service will be
rested on the Bureau of Wa,r Risk Insurance and the Bureau of
Pensions.
A great many bureaus which should be transferred to the new
department have been left untouched by the Kenyon Bill. But
the bill is a good one and ought to be passed. Perhaps further
changes will be made, as the bill provides that the President may
transfer "any educational, health, or social welfare service per¬
formed or conducted by any other office ... of the Federal Govern¬
ment. "
No greater mistake could be made than to continue the Children's
Bureau in the Department of Labor. It should be placed in the
new Department of Public Welfare, not in the Social Service Di¬
vision, but in the Division of Health.
As a matter of fact, the Kenyon bill should be amended so as to
wipe out the Division of Social Service. The idea of the division
was to coordinate and direct the activities now engaged in welfare
and humanizing. It is a hope that could only flourish in an over-
optimistic bosom.
The Kenyon bill ought to be passed, but it will not be passes unless
the men and women of the United States got in touch with their
congressional representatives and give them an injection of public
opinion.
(7) DEVlNE, EDWARD T. The Department of Public Welfare, an appraisal
based on editorial correspondence. (The Survey, Vol. 46, June 4,
1921, pp. 298-300.)
The Kenyon Bill (Probably S. 1607, 67th Congress; see Legislation)
(a) embodying General Sawyer's plan for protecting and promoting the
-8-
11514 General
No. 7 (cont'd.)
COMMENT AND OPINION
DEVINE, EDWARD T. The Department of Public Welfare, (cont'd.)
(7
cont'd.)
(a) health, education and social welfare of the United States, is
officially described, with the usual legislative caution, as one
to establish a department of public welfare "and for other pur¬
poses", Seldom has a bill, which on the face of it has an aim
so laudable, encountered so much challenging inquiry as to what
its "other purposes" may be.
Louis P. Post, former assistant Secretary of Labor, while unwil¬
ling to believe or suspect that Senator Kenyon himself has any
such devasting purpose in mind, writes that it has been ap¬
parent for some time that one of the objectives of the movement
(b) is "to divest the Department of Labor of functions that are in¬
dispensable to it if it is to serve its purpose of representing
the interests of wage-workers, as other Federal departments re¬
present the interests of commerce, agriculture and other employ¬
ing activities." James H. Maurer, president of the Pennsylvania
State Federation of Labor, intimates that if he "knew just what
influences were back of the various public welfare bills, national
and state", he "might be able to give a pretty definite opinion
on the subject." He is suspicious of its Americanization provi¬
sions and fears that it carries the danger of centralized govern-
■ ' ment.
Several organizations have been heard from, all demanding that
(c) educational interests shall not be submerged. While not opposing
the creation of the new Department of Social Welfare, they seem to
see among its "other purposes", the defeat of the plan for a de¬
partment of public welfare. The League of Women Voters at its
Convention in Cleveland, endorses the establishment of a depart¬
ment of public welfare and. also the principle of the Towner bill,
including the plan for a department of education.
Mary Van Kleeck finds in the tendency to transfer to the proposed
department responsibilities properly belonging to the Department
of Labor, an illustration of the danger of so generalized a desig¬
nation as that of "public welfare", and compares the attempt to
(d) discover a secretary of public welfare "equally representative of
educational interests, expert service in public health, social
service and veteran service adninistration" to the "ungraded rural
school with its one teacher for all ages and all subjects".
(b) Professor Win. C. Sagley, editor of the N.E.A. Journal, regards the
inclusion of education in the proposed department as unfortunate.
It could not fail, he thinks to be interpreted as defeat of the
plans of the educational public to secure adequate recognition for
education through establishment of a separate Federal department.
-9.
11514
COMMENT AND OPINION
General
No. 7 (cont'd.)
DEVINE, EDWARD T. The Department of Public Welfare, (cont'd)
(7
cont1d)
The American Medical Association and the American Public Health
Association some months ago agreed upon a joint resolution urging
a special congressional investigation of the health activities of
(f) the government as necessary prior to any legislative project. The
Smoot-Reavis Commission is now making an investigation of all the
executive departments and their subdivisions. The medical and
health associations would appear to be hostile to any plan which
would pre-judge the Smoot-Reavis conclusions.
Another correspondent, speaking from a different experience, recalls
the elimination of Pauline Goldmark from the N. Y. Labor Department
(g) and that of Frances Perkins. Both of these removals were made to
appear to be incidents in a reorganization so large and important
that a mere change in Personnel was a trivial matter. Would this
happen again in the case of Labor Department bureau heads?
Thus from all quarters come doubts, misgivings or indignant protests.
In addition to these objections, there are others. By section 10,
the bill confers extraordinary powers on the President and secretary
in regard to the transfer of "any educational, health or social wel¬
fare service or activity, performed or conducted by any other office,
bureau, board, commission or agency of the Federal government" which
are related to or connected with the functions, powers and duties of
the new department. Perhaps the Smoot-Reavis Commission will find
that this is a wise policy. It is, hov/ever, s. change so sweeping
that it would seem wiser to await the report of the commission before
putting it into effect.
The scheme originally contemplated the transfer of the Women's Bureau
from the Labor Department, as well as the Children's Bureau. The
objection was so prompt that the idea was abandoned. Under the gen¬
eral powers conferred on the President, however, this bureau or the
Bureau, of Labor Statistics or the Bureau of Naturalization, could be
transferred to the Dept. of Public Welfare without legislative con¬
sideration end without any public hearing.
One of the biggest opportunities of the present administration is to
develop constructively that branch of the public welfare already or¬
ganized as the Department of Labor. In-a period when the paramount
issues relate to labor and industry, the first attention of Congress
should be directed toward strengthening the services charged with
responsibility toward labor problems. Aside from education and
health, both of which functions are already lodged elsewhere, the
main needs of children seem to be protection from exploitation and
the right to be born of mothers who are not exhausted and in houses
not impoverished of necessities.
-10-
11514
COMMENT AND OPINION
General
No. 7 (cont'd.)
DEVINE, EDTfAHD T. The Department of'Public Welfare, (cont'd.)
(7
cont'd.)
If in spite of these considerations, it is decided to associate
child welfare with health, education and social service in the
new department, the raid upon the activities of the labor depart¬
ment should stop there.
Such are the arguments against the Kenyon Bill. What is to be said
in its favor?
In the first place it is a recognition of governmental concern and
responsibility for health, education and human welfare. Social
prestige is an advertising asset, and an -undivided fourth interest
in a secretary who is thinking all the time about health, education
and other aspects of social welfare would seem to be better than
a smaller fraction of a secretary who worries mainly about revenues
and the public debt.
A definite organization in 4 divisions leads more easily to sepa¬
rations like that which made 2 departments of Commerce and Labor.
It should be easier to get a hearing for a national educational
or health program for which an assistant secretary speaks.
In the second place there is really need of such coordination among
various health sei'vices, between health and education and in the
veteran services, as the bill makes possible. True, the bill has
somewhat the look of a slapdash measure. Insufficient study has
been given to the inquiry as to what the new department should do.
The sections which give the President broad powers of transfer,
consolidation etc. are necessary unless there is to be much more
consultation with experts. It frees the hands of the President
ana Secretary of bureaucratic limitations and within the limit of
their appropriations they may become as benevolently despotic as
they dare.
One of the subjects which should be incorporated in any legislation
(h) for a new department, and which has apparently been overlooked, is
that of delinquency. The American Prison Association, which has
gone on record as favorable to a Department of Public Nelfare, con¬
siders it highly important that there should be a bureau of delin¬
quency not only to concentrate effort in this field but to stimulate
better methods of dealing with delinquency and crime.
In the third place, the enactment of the Kenyon Bill would relieve
other departments, notably the Treasury and the Interior. The best
arguments for the department are based as much on the relief to old
departments as on the increased consideration which the department
could secure for the interests with which it is charged.
In the fourth place, H. S. Braucher writes, concerning Pres. Harding
favorable attitude toward the bill: "The government is adopting the
-11-
11514
COMMENT AND OPINION
General
No. 7-8
DEVINE, EDWARD T. The Department of Public Welfare, (cont'd.)
(7
cont1d.)
policy of securing such relationships among the nations of the
world as shall permit a very large part of the money which under
the present system must "be spent for... .preparation for possible
future wars to be expended inhelping the men and women of this
country to better their own living conditions."
(8) DUNN, ARTHUR W. General Sawyer explains the Department of Public
Welfare. (Good Housekeeping, vol. 73, no. 1, July, 1921, p. 344
chart.
- U." ,!*j.t
Thought of a department of welfare has ever been in the mind
of President Harding. He believes that his ideas can be carried
out in a Department of Public Welfare which shall be founded
upon the cardinal principles of education, public health, social
service and care of those who have been disabled in the service
of their country.
There will be a new department created, with a Cabinet officer at
its head. Directly under him, and reporting to him will be the
officers of administration, accounting, bureau of statistics, pub¬
lications and publicity. There will be four assistant secretaries
each in charge of a bureau with great responsibilities. Each of
these bureaus will be independent of the other, but each can draw
upon the other for information and data.
The Bureau of Education under the Department of Public Welfare will
become an institution of importance and accomplishment. Included
in the Bureau of Education would be all matters pertaining to
physical development and recreation.
Public health is the most important. Its activities pertain directly
to the welfare of the people.
The social Service Bureau will include the Children's Bureau, the
Women's Bureau, and v/ould have especial charge of maternity and
infancy.
The fourth Bureau is that of Veteran's Service.
President Harding is intensely interested in the creation of a De¬
partment of Welfare and in the various bureaus and activities which
it Will embrace.
-12-
11514
COMMENT AND OPINION
General
No. 9-10
(9) FOR THE SECRETARY OF WELFARE. (Literary Digest. Vol. 69, no. 5,
April 30, 1921, p. 13.)
The most vital asset of the nation, as one writer considers
our health, is to he conserved hy the President himself, if
he can persuade Congress to create a Department of Public
Welfare. "One of the objects of the people of the United
States in establishing the Constitution", says the Washing¬
ton Post, "was to 'promote the general welfare1, and the
time for constructive action in promoting the general wel¬
fare of the people as individuals has now arrived". Presi¬
dent Harding, avers Mr- Will P- Kennedy, now has taken "the
most practical and efficient way to make the program of
social justice and Social Welfare real and functioning.
The,plan, says this writer, is to coordinate such hitherto
disjointed legislative proposals as:
Protection of the motherhood of the nation... Safeguard¬
ing women in industry...
Protection of childhood;., thus exercising economic
thrift by saving the blood, posterity and future strength
of the nation.
Coordination of all public health activities and agencies...
That there is room for improvement and coordination in the
health activities of the Federal Government is generally ad¬
mitted.
(10) FORRES, RUSSELL. Proposed reorganization of Federal Government. (Nation¬
al Municipal Review, vol. 13, Sept., 1924, pp. 481-482.)
"In the mass of unfinished, business at the adjournment of the 68th
Congress was the "Departmental Reorganization Act, 1924", which
was introduced by Senator Smoot on June 3. This measure (S. 3445)
is sponsored by the Joint Committee on Reorganization of the Execu¬
tive Departments, which was appointed during the early days of the
Harding administration.
The committee presented to the 4th session of the 67th Congress in
February, 1923, a prospectus of its plans in the form of a letter
from President Harding to Chairmen Brown accompanied by a chart
which exhibited in detail the present organization of the government
departments and in parallel columns the reorganization suggested
by the President and the members of the cabinet. This report was
presented by Senator Smoot and printed as Senate document no. 302.
-13-
11514
Oc
No. 10-11
COMMENT AND OPINION
FORBES, RUSSELL, Proposed reorganization of Federal Government, (cont'd)
(10
cont'd.)
The reorganization scheme proposed the consolidation of the War and
Navy departments in a Department of national defense, the rechristen-
ing of the Post Office Department as the "Department of Communica¬
tions", the creation of the Department of Education and Welfare and
numerous transfers of "bureaus between departments. The secretary of
the Department of Education and Welfare would be an additional member
of the President's cabinet. The function of the Department would be
divided into 3 major parts each of which would be in direct charge,
of an assistant secretary. The new department would absorb the pres¬
ent Veteran's Bureau, the Public Health Service of the Treasury De¬
partment, and the Bureau of Pensions and Bureau of Education of the
Interior Department. The Federal Board for Vocational Education
and the Office of Commissioner of Education would be abolished.
Although failing of passage at the session of Congress just closed,
S. 3445 will receive attention by the 68th Congress and may yet be
enacted into law."
(11) FOWLER, CEDRIC. In Search of a Plan. (New Outlook, vol. 165, April,
1935, p. 41-44.)
In June, 1934, a meeting of social workers was held under the
auspices of the Great Lakes Institute. This meeting concerned
itself solely with the topic "Social Objectives". The keynote
was given in a statement made early in the course of the meeting,
viz.: "Every resource in the social work field should be directed
toward placing temporary and emergency measures for relieving dis¬
tress, on a secure foundation as a part of the basic Federal,
State and local governments."
Proceeding from this, the conference went on to list the forms of
governmental organization thought most desirable. First, a new
Federal department, to be called the "Federal Department of Public
Welfare." or something of that nature, would be set up. Its primary
function would be one of "standard setting" for state and local
departments of a similar nature. A central bureau for statistical
and other research would be a necessary adjunct. A permanent chief
executive selected by the merit system, would be put in charge. A
board appointed by the President would cooperate with him, this last
perhaps a gesture by the social workers, to the inescapable facts
of political life.
Not only did this meeting condemn outmoded poor laws in states and
communities, but demanded step by step reformation and even abolition
of settlement laws, the end of restrictive pauper legislation, and
the general humanization of relief legislation.
-14-
11514
General
No. 11 (cont'd.)
COMMENT AND OPINION
FOWLER, CEDRIC. In Se- rch of ft Plan. (cont'd)
(11
cont'd.)
Pointing out that many states possessed scores of separate authori¬
ties charged with similar tasks, the social workers recommended con¬
solidation into one central body which, like the main Federal depart¬
ment, would be in a position to guide counties and municipalities.
Here again the merit system would apply to the chief executive, who
would have uower to review all local appointments.
For local responsibility in the planned administration of relief,
the social workers recommended a strict application of the merit
system in selecting all personnel. Combination of local authorities
on the basis of population and presumed community wealth was also
urged.
These workers have come to the conclusion that a plan is needed,
that some effort toward a unified and integrated social welfare
program must be made.
Whether a plan of such a broad nature will be carried through, or
not rests on the knees of the gods. If prosperity returns, there
will be a very natural tendency to forget the crisis that once
existed. The country will be only too glad to slough away the
dismal memory of the struggle with relief and all its problems.
But many gains in the nation's attitude to public welfare have been
made. A few years ago, only the most visionary dared to mention
social insurance on a national scale. According to the latest
New Deal promise, we are to have it as soon as a satisfactory
plan can be found. If this is carried through, it will obviously
require the setting up of new Federal agencies to guide and control
its administration.
Perhaps in those agencies will be found the^gerr. of a national
public y/elfare plan.
-15-
11514
COMMENT AND OPINION
Gene ral
No. lc-13
(12) GIDDINGS, FRANKLIN H. Welfare by 1,-nv. (The Independent. Vol. 105,
Jan. 1, 1921, p. 11.)
"There is every reason to believe that Mr- Harding expresses a
genuine personal interest by his support of a Federal Department
of Public Welfare.
But.when one stops to think about it, what could a national De¬
partment of Public Welfare do by way of actually bettering any¬
thing?
Will it be required to manage mill owners who employ young children?
Will it address itself to the diminishing of crime, including mob
violence? Will it have to "ta^e a stand" on Sunday observance,
prize fighting, horse racing and divorce?
I quite sincerely hope that Mr. Harding's Department of Welfare will
not be asked or permitted to undertake any of these things. They
are not what public welfare needs just now. The present need is
for information. It is not possible to sift out of the great vol¬
ume of publicity given to welfare activities, the true facts about
anything.
As for government reports, there is no reason to suppose that they;
contain deliberate falsifications, but their scientific quality is
low. Departmental organization is clumsy and uncorrelated. Es¬
sential information desired by one department from another is not
always to be had.
I
I entertain no optimistic expectation that any administration will
provide the public with much trustworthy information on matters of
public concern. But I should like to see a beginning made. It
should be made in the Census Office.
The next step will be to develop departmental reports into actual
information upon fundamental economic, moral and educational matters.'
(13) GREAT LAKES INSTITUTE. Proceedings. 1^33. Report of Section 4;
Joanna C. Colcord, chairman. New York; Community Chests and
Councils, Inc., 1933.
"We should be building for the future of public
welfare administration as strongly as possible
since we recognize this problem as a govern¬
mental responsibility requiring Federal, State
and local cooperation.
To complete the picture of coordinated machinery
(Federal, State and local) a Federal department
of •public welfare would be a logical development.
Such a department would help in setting standards
-IS.
11514 General
No. 13-14
COMMENT AND OPINION
GREAT LAKES INSTITUTE. Proceedings. 1933 (cont'd.)
(13
cont1 d.)
and in giving; aid to backward States in a manner
analogous to state assistance to backward, communi¬
ties. It would be advisable to include in this
department a Board with advisory powers. Many
of the functions now carried on by the Federal
government might well be considered for inclu¬
sion in such a department."
Reprinted in Kurtz, Russell H. Looking toward
a public welfare plan, p. 3. New York: Russell Sage
Foundation, 1935. 34 pp.
(14) . Proceedings, 1934. New York: Community
Chests and Councils, Inc., 1934.
At this session the members of the Institute
agreed that:
"For Federal responsibility our objective would
be:
Action by Congress to set up a Federal department
and to place therein what would normally be re¬
garded as all welfare services. 7iTe favor regard¬
ing this department as a standard-setting one,
working through the various states. We believe
in the principle of grants-in-aid to States with
some fixed proportion to state and local expendi¬
tures for the several types of aid. This principle
should be subject to the financial resources of
the States and evidence of satisfactory performance.
The variation of proportion in Federal subsidy might
be flexible, with a higher proportion in categories
not yet popularly understood and with exception
made for emergency need.
In addition, immediate leadership should be exer¬
cised v/orking for: (a) uniform settlement laws
or their possible abolition, by states; (b) abo¬
lition of restrictive pauper legislation and sub¬
stitution of reasonably uniform public assistance
laws, state by state; and (c) we propose that
model statutes be submitted to states and we even
go so far as to propose the withholding of Federal
grants-in-aid where states refuse to act within a
reasonable time.
-17-
11514
COMMENT AND OPINION
G-onp ral
No. 14-16
GREAT LAKES INSTITUTE. Proceedings, 1934 (cont'd.)
(14
cont'd.) There should be a well developed statistics and
research branch of the service from which should
emanate essential facts as a basis of administra¬
tive action.
In principle we want the Federal government to work
through States and to respect their individuality,
permit initiative, allow differences in approach
and action in harmony with broad federal policies
and principles. While we do not want federal cen¬
tralization of administrative action, we do want
the Federal government to exercise its power through
a control of grants-in-aid which will insure proper
standards in Sta.tes.
We believe in a strong federal field staff and the
principle of regional administra.tive offices (not
offices of record) to keep close to state administra¬
tions.
We believe responsibility should be centered in a
chief executive selected by rigid examination through
the merit system for indefinite tenure, and a Federal
board, advisory to the chief welfare executive on matters
of policy, planning and general interpretation. This
board to be appointed by the President."
This agreement is also printed on pp. 14-15 of Kurtz, Russell H.
Looking toward a public welfare plan - a. digest of recent
opinion. New York: Russell Sage foundation, 1935. 34 pp.
(15) A NEW FEDERAL DEPARTMENT. (Today, Dec. 19, 1936, p. 3.)
A new Federal Department of Social Welfare or Public Welfare,
to include social insurance, public health, aid to the handi¬
capped, relief and similar Federal activities, has been on
the cards ever since the early days of the New Deal. If such
a department is created - xvhich doesn't seem improbably - it
will be headed by a cabinet officer.
(16) ODUM, HOWARD W. Federal public welfare, pp. 1254-1255 in vol. 2
Recent Social Trends. New York and London, McGraw-Hill Book Co., Inc.,
1933. 2 v. 1568 p. Advance review copy.
When we come to the picture of public welfare in the Federal govern¬
ment few, if any, trends are in evidence. When it comes to classi-
-18-
11514
General
No. 16 (cont'd.)
COMMENT AND OPINION
ODUM, HOWARD W. Federal public welfare, (cont'd.)
(16
cont'd.) fication and organization, there is .little uniformity either in
functions or in trends. The same general function is sometimes per¬
formed hy more than one bureau or sub-division.
Nor is the general trend toward centralization at the expense of
the states found here. Moreover, there is no special trend toward
Federal sanction or authority over state activities.
There appeared to be a trend toward consolidating the Federal ser¬
vices in public welfare during the early 1920's, when two bills
to this end were introduced!./. One proposed a Federal Department of
Education and Relief, to take effect in 1925 and the other a Depart¬
ment 'of Education and Welfare, to take effect in 1924. These and
otiur efforts to coordinate public welfare services at the national
capitol were beset by such difficulties and limitations of organi¬
zation, political adaptations, morale and social techniques, that
little was effected. No special trend toward such consolidation
since that time seems measurable except as an incident in the general
policy of reorganizing the Federal bureaus and departments. Altogether
the trend appears to be away from, rather than toward, Federal con¬
solidation, centralization and participation in state public welfare.
In addition to the section digested above, Mr. Odum discusses the
following subjects: l) The meaning of public welfare. 2) State
systems of public welfare. 3) Changing concepts and terminology,
(a) 4) The Evolution of public welfare in the U.S. 5) Special trends
in administration. 6) Public welfare in the cities. 7) Federal
public welfare. 8) Cost of public welfare. 9) More recent develop¬
ments in public welfare. 10) Conclusions.
In the last section, Mr- Odum says (p. 1272-3): "Another opportunity
which the present trend suggests is that of a much closer cooperative
arrangement between State public welfare work and the Fed ml .agencies.
In administrative arrangements, functional classifications, integrating
procedures and even the collection of social statistics the Federal
government appears to lag far behind. A movement toward rcorganizatior.
and rovitalization of Federal public welfare services seems to be
gaining headway. A substantial progress in technical public welfare
administration and procedures will offer immediate help in such plans
for consolidation and assist in the elimination of inadequacy and
confusion."
l/- Probably refers to S. 3445 and H.R. 5795, both introduced in
1924, during the 68th Congress.The text of ea.ch of theso. bills
was printed in Odum and Willard. Systems of Public Welfare. For
citation to these and to ten earlier bills, see p. 229 the listing
under "Legislation".
-19-
11514
Gen:rnl
Jo. ±<j— 1/
COMMENT AND OPINION
ODUM, HOWARD W. Federal public welfare, (cont'd.)
(16
cont'd.) A trend toward consolidation end reclassification in public wel¬
fare agencies is evident. "Such a classification might be three¬
fold. The first group of social agencies would include all those
whose primary objective is that of Social Welfare. The second
group would comprehend those agencies whose objective is that
of physical development and planning and operation of the community,
as well as the home and other sub-units of the community. The
third group would comprise all those agencies whose primary purpose
is in the field of education, character, development, research,
promotion and fellowship. This is a challange which present trends
in public welfare seem to offer to private social agencies."
This chapter includes the following tables:
(1) Recent developments in legislation and organization as indicated
by changes in terminology of State public welfare departments and
boards.
(2) Changing concepts, ideals and practices in public welfare ad¬
ministration and procedure, by type of service.
(3) Trends of per capita expenditures for maintenance and operation
of specified social welfare functions, 1903-1928.
(4 and 5) Growth of total expenditures for public welfare compared
with growth of private income and total cost of government, 1903-
1928.
(6) Relative distribution of net social welfare expenditures of Fed¬
eral Government, 1903-1928.
(7) Relative distribution of gross State expenditures for operation
and maintenance of specified social welfare functions, 1915-1928.
(8) Trend of per capita deflated State expenditures for specified
welfare functions, 1915-1928.
(17) and WIILARD,.D. A Federal department of public
welfare, pp. 273-302 in their Systems of public welfare. Chapel Hill:
University of N. C. Press, 1925. 302 pp.
The consideration of the movement for a Federal public welfare
department will prove an important element in discussions of pub¬
lic welfare as related to State and local departments. There have
been many differences of opinion as to the scope and purpose of a
Federal department of public welfare. For the most part, students
of social science and public welfare have shown little interest in
the movement and have troubled little to improve conditions.
-20-
11514 General
No. 17 cont'd.
COMMENT AND OPINION
ODUM, HOWARD W. and WILLARD, D.W. A federal department of public welfare.
(17 (cont'd.)
cont'd.) v Mr. Robert W. Kelso presents the following, arg'iments in favor of
such a department:
(a) Public welfare functions of the federal government are at
present scattered over various departments. Each must wait
for the consideration of its problems until other functions
of the department have been attended to... The various pub¬
lic welfare bureaus now scattered through our Washington
machinery have arisen out of the very fact that charity, in
its social service meaning, has ceased to be local.
... The time has gone by for the old colonial conception of
departmental organization and the time has arrived... for the
arrangement of our government service in the light of present
day national needs... Social work is the business of democracy.
I.lr. Richard K. Conant argues in favor of a Federal department:
(b) "Throughout the nation the cities and the states have their
departments of public welfare but there is no federal depart¬
ment. Agencies are scattered."
...President Warren G. Harding, in his message to Congress early
in 1921, said:
(c) "In the realms of education, public health, sanitation, condi¬
tions of workers in industry, child welfare, proper amusement
and recreation, the elimination of social vice and many other
subjects, the government has already undertaken a considerable
range of activities but these undertakings have been scattered
through many departments and bureaus without coordination and
with much overlapping of function... To bring these activities
together in a single department where their interrelationship
could be properly appraised, would make for increased effective¬
ness, economy and intelligence of direction.
... I can assure you that the 48 states are attacking these
tremendous (public welfare) problems in at least 48 different
ways. There is a crying need for a central federal department
which, while it need not duplicate any of the work of the
separate states, can guide them and make available to them
the experience of all the states and of foreign countries.
Great preventive movements in social service develop from com¬
bined research and combined activity. Such a field is properly
the field of the Federal Government which has for one of the
objects of its constitution 'to promote the general welfare'-
-21-
11514
COMMENT AND OPINION
General
No. 17 cont'd.
ODUM, HO'TARD W. and WILLARD, D.W. A federal department of public welfare.
(17 (cont'd.)
cont'd.) The government should pay as much attention to public welfare
activities as it does to the development of the army and navy
and other activities."
Mr. Sanford Bates presents five arguments against a federal depart¬
ment of public welfare. He says:
(1) "Such a department is unconstitutional... It is common
knowledge to every school boy that the seat of all sover¬
eignty over our people is with the several states, that
(d) the basis of the federal government is a delegation of
certain specified powers by the states to the national
government... The fiscal, commercial, martial and juris¬
dictional limitations of its powers are... enumerated
(in the Constitution) but nowhere does it refer to cha¬
rity, correction or social endeavor of any sort. The
'elastic clause' of the Constitution... which gives Con¬
gress the power to make laws which shall be necessary
and proper for carrying into execution the foregoing
powers can hardly be invoked, to warrant a. federated
government caring for the work of public relief a.nd
rehabilitation.
(2) It follows, therefore that legally as well as logically,
the states should retain the control over concerns of
public welfare... After all, states differ greatly in
population, topography, customs, traditions and tempera¬
ments... Public add and relief, laws governing poverty,
infirmity and delinquency are local in nature, applied
in smaller compass, and can be most efficiently, econo¬
mically and humanely administered by state governments.
(3) The government cannot afford, to take on any extra expen¬
ditures. . .
(4) ... The experience of our government with its Veterans'
Bureau, its prohibition enforcement and. its income tax
collection does not lead us to think that it would be a
howling success in administering the difficult and ar¬
duous humanitarian tasks so admirably handled, by state
and local public welfare departments.
(5) Do we need any more cabinet officers? Departments of
education and transportation have also been advocated.
Public health workers, those interested in delinquency
problems and others have grave doubts as to the ability
of any general 'welfare departments to handle their par¬
ticular problems. Until the need is more definitely
established, we should go slowly with any such propo¬
sition. "
-22-
11514
COMMENT AND OPINION
General
No. 17-18
ODUM, HOWARD W. and WILLARD, D.W. A federal department
welfare, (cont'd)
(17 /
cont'd.) Mr. Herbert H. Parsons presents further arguments against the
department, vi z.:
"There is nothing to indicate that the (various public wel¬
fare functions) are not as well cared for in the departments
(e) to which they a.re now related, as they possibly could be in
one that was even more miscellaneous.
What is proposed is to bring: together bureaus now eminently
serving their objects under directors with expert qualifica¬
tions and rolling them into one department - under what sort
of a secretarial chief? Is there the combination in one per¬
son of expertness in... medicine, in child care, in immigra¬
tion, in conservation, in pure foods, in supervision of the
Indians, in naturalization, in prisons...
...Public welfare so far as it has a distinct meaning, relates
to the extension of relief. To use it in relation to the nation¬
al government is to invite the transfer of the powers reserved
to the states to the nation.
The proposal of such a department is the extreme height of that
plea for bureaucratic government which all the world's exper¬
ience directs the American people to avoid."
In the chapter on a Federal department are included 2 bills which
proposed the establishment of a Federal welfare department.
Texts of two Federal bills for the ..stablishraent of a Department
of Public Welfare, viz. S. 3445, 68th Congress and H. R. 5795, 68th
Congress, are printed on pages 289-302 of this edition of this vol¬
ume. The statement made on p. 302 to a "study of debates" on these
measures is misleading if it refers to debates in Congress. There
was no congressional debate on either of these bills.
(18) PRESIDENT OF THE UNITED STATES, FRANKLIN D. ROOSEVELT. Message to
Congress, January 12, 1937, transmitting report of the Committee on
Administrative Management. 84 pp. Sen. Doc. 8. 75th Congress.
"The committee criticizes the use of boards and commissions in
administration, condemns the careless use of "corporations"
as government instrumentalities, and points out that the prac¬
tice of creating independent regulatory commissions, who per¬
form administrative work in addition to judicial work, threatens
to develop a "fourth branch" of the Government for which there
is no sanction in the Constitution. Nor does the committee spare
the inadequacy of the civil service system.
-23-
11514
General
No, 18-19
COMMENT AND OPINION
PRESIDENT OF THE UNITED STATES, FRANKLIN D. ROOSEVELT, Message to
(18 ' jmarv
cont'd.) To meet this situation and bring our administrative management
up to date, the committee presents an integrated five-point
program which you will find set out in its report. It includes
these major recommendations:
1-3, 5. Not related to subject of public welfare.
4, Overhaul the one hundred independent agencies, ad¬
ministrations, authorities, boards, and commissions,
and place them by Executive order within one or
the ether of the following twelve major departments:
State, Treasury, War, Justice, Post Office, Navy, Con¬
servation, Agriculture, Commerce, Labor, Social Wel¬
fare, and Public Works; and place upon the Executive
continuing responsibility for the maintenance of ef¬
fective organization.
I would not have you adopt this five-point program, however, with¬
out realizing that this represents an important step in American
history. If we d.o this, we reduce from over 100 down to a dozen
the operating executive agencies of the government, and we bring
many little bureaucracies under broad coordinated democratic au¬
thority.
But in so doing, we shall know that we are going back to the Con¬
stitution, and giving to the Executive Branch modern tools of
management and. an uo-to-date organization which will enable the
government to go forward efficiently. We ca.n prove to the -'orld
that American Government is both democratic and effective."
(Congressional Record, daily ed. Jan. 12, 1937, pp. 220-21.)
. Reprinted in Vital Speeches, Feb. 1, 1937.
(19) PRESIDENT'S COMMITTEE ON ADMINISTRATIVE MANAGEMENT. Administrative
Management in the Government of the Unit ;d States. Jan., 1937.
Washington: Govt. Print. Office, 1937. 47 pp.
"An examination of the existing executive departments shows
that there is no adonuatc place in the present structure for
two of those new departments: Public welfare and public works.
We therefore recommend that new departments be set up by law
to cover these two fields, and tlr-t there be assigned to those
departments by the President net only the appropriate new acti¬
vities in these fields but also the old activities related
thereto" (p. 31).
On p. 32 there is an outline of the function
of the proposed now Department.
-24-
No. 20-22
COMMENT AND OPINION
SPRINGER, GERTRUDE. Social relief in the years ahead. (Today, Vol, 1,
June 1954. pp. 9, 22.)
A discussion of the proceedings of and the conclusions reached
in the 1934 meeting of the National Conference on Social Work.
"Even the conservatives among social workers admit that whatever
the future may hold, the voluntary beneficence of private wealth
will not carry the load of dependence which they see as the in¬
evitable aftermath of depression and recovery. The relief of
destitution, from whatever cause, they say, will remain the re¬
sponsibility of government, to be carried through a system of
permanent State and county welfare departments, subsidized for
equalization by Federal funds and to a degree supervised by
Federal agents. The old system of private charity for the poor,
they say, is gone forever.
"Frank Bane and the American Public Welfare Association found
wide approval for their specific proposal for 'the establishment
of a permanent unit of government to coordinate and administer
all mblic welfare activities of the federal government,' 'and,
parallel with it, for the revision of antiquated poor laws in
all the states, to provide the statutory framework in which
modern practices of social work may function. As next steps
they urged the social workers, grateful for any clcar-cut and
'realizable goal' to put thoir knowledge and influence into
community pressures on State legislators to affect those changes
in the laws without which the best laid plans in Washington fall
short in local execution, leaving relief administration at the
mercy of small-time politicians,"
U.S. SENATE, On Aug. 1, 1921, there occurred on the floor of the
Senate an exchange of remarks caused by an article which had appeared
in the Washington Post of the day before, entitled "Acts to unite War
and Navy and. to form a now department - Walter F. Brown announces
Reorganization Committee has agreed to recommend creation of a Cabinet
place for -public welfare."
Senators Harrison, Miss., King, Utah, Sraoot, Utah, Williams,
Miss, spoke repudiating the article on the ground of inac¬
curacy.
WELFARE DEPARTMENT TO DEVELOP RACE. (Playground. Vol. xv, no. 6,
Sept., 1921, pp. 357-358).
Scientific physical and mental training under the federal gov¬
ernment in cooperation with the State government is planned
when the new Welfare Department is established.
11514
General
No. 22 cont'd
COMMENT AND OPINION
(22. WSTJARE DEPARTilENT TO DEVELOP PACE. (cont'd.)
cont1 a)
The "bill creating the Department of Welfare soon to become
a lew, will set up the system which is to upbuild the American
race. The plan will represent the best thought of the most
able physical directors in the country, and the Eedors.1 govern¬
ment will encourage the various states to ad.opt this systematic
plan.
-26-
11514
I
COMMENT AND OPINION II
State and. Local
Organization of Public Welfare
Departments
- General -
11514
State and Local
No. 23
COMMENT AND OPINION
(23) BANE, FRANK. The establishment of satisfactory and permanent State
welfare departments. (National Municipal Review, vol. 24, Nov, 1935,
pp. 635-638.)
Baring the past biennium, commissions or committees have been
established by legislatures in several states, or appointed by
the Governors, to survey the welfare situation and to make
recommendations for legislative and administrative changes.
Daring the legislative sessions in 1935, a large number of bills
were introduced seeking to reorganize state and local public
welfare machinery. A large number of these bills received favor¬
able action. We now have new or revised agencies in Alabama,
Arkansas, Colorado, Connecticut, Florida, Maryland, Montana,
Nevada, New Hampshire, New Mexico, North Dakota, Oklahoma, Oregon,
Rhode Island, South Dakota, Utah, Washington, West Virginia, and
Wyoming.
(a) Alabama has created a new State Department of Public
Welfare which assumes the functions of the Child Welfare
Department and the Relief Administration plus the admin¬
istration of public assistance funds in cooperation with
the Federal government. This new department consists
of a board of 7 members with overlapping terms, a
commissioner to serve as executive officer for the
Department, and a staff. Within the department are
created a Bureau of Family Welfare and Public Assistance,
a bureau of Mental Hygiene, and others. Associated with
the State Department are county departments with similar
functions.
(b) Wisconsin has recently enacted an omnibus bill which
includes provisions for State and local administration
along with legislation for old age assistance, aid to
dependent children and other social security provisions.
(c) Washington State has reorganized all Sta.te departments
and created a State Department of Public Welfare with
3 divisions for relief, child welfare and social security.
(d) Connecticut has integrated all existing State welfare
agencies into a Public Welfare Council with a commissioner
appointed by the Governor.
-27-
11514
State and Local
No. 23 cont'd.
COMMENT AND OPINION
BANE, FRANK. The establishment of satisfactory and permanent State ..wel¬
fare departments. (cont'd.)
(23
cont'd.) With the final passage of the Social Security Act, states are
now anxious to know what action will enaole them to take full
advantage of the act.
In time the tendency toward cooperative administrative activity
reached out beyond the boundaries of local and State government.
With such provisions as those for vocational education and for
maternity and infancy hygiene, and later for unemployment relief,
the Federal government in a fiscal and supervisory function, en¬
tered this partnership. The importance of this trend, which united
all three levels of government in a united attack upon problems of
human misery, can hardly be overestimated.
The time has now come when the development of local public welfare
units on the one hand and permanent grants-in-aid by the Federal
government on the other, have established a clear necessity for
better and stronger supervision of state welfare activities.
What is needed in the way of satisfactory machinery is not diffi¬
cult to describe. The forward looking states have for almost a
generation had such machinery, which needs only to be expanded.
For the other st.ates there are three major problems - the estab¬
lishment of a central welfare authority coordinating the welfare
activities of the state, the grant of sufficient powers to enable
it to supervise local agencies, and safeguards to provide adequate
personnel.
It is clear that every state should have a department of public
welfare. It is not important that these departments should have
an identical structure. In some states the commissioner form is
preferred, in some the "board" form. There is no reason to believe
that there is inherent virtue in either form.
It is important that the department of public welfare should have
clearly defined, bread functions, with power to perform them ade¬
quately. Its functions are usually grouped under certain head-ings,
viz.: mental hygiene, child welfare, corrections, public assis¬
tance. Institutions are frequently managed by the division in
the same field.
In some states there is a characteristic weakness in the powers
granted to the central authority. The statutes are indefinite.
It is important that the department of welfare be given definite
supervisory power. With extensive Federal grants-in-aid there
should be effective standard-setting and correlative service to
maintain them. Nor should these supervisory powers be granted
only in cases of state fiscal aid. They should enable the depart¬
ment to remedy abuses wherever they exist.
-28'
11514
State and Local
No. 23-25
COMMENT AND OPINION
BANE, PRANK. The establishment of satisfactory and permanent State
welfare departments, (cont'd)
(23
cont'd.) The department must have well equipped pereonnel which should "be
obtained by application of a merit service. When setting up a
statutory provision for the local unit the state department should
be granted a definite check on local personnel.
(24-25) . His brother's keeper: through State welfare departments
the American voter cares for his destitute fellow citizen. (State
Government, vol. 8, Jan. 1935, pp. 287-290.)
A public welfare system must do two things: guarantee a proper
service to the individual and give that service so that the general
public will be benefited as well.
What are the functions of state welfare departments? Unemployment
relief, old age assistance, mother's assistance, blind pensions
and all other activities designed and financed by government to
render public assistance to those in need, such as child welfare,
mental hygiene and corrections. These functions should be co¬
ordinated administratively. There should be a certain amount
of centralization. In most states there should be one organiza¬
tion to handle both institutional and extramural programs and to
direct all major welfare functions.
How should a welfare department be set up? There are two schools
of thought on the problem. One holds that the Governor should
appoint department heads to serve at his pleasure. The second is
the "board" form. The Governor appoints a policy-making body
which in turn appoints an administrative official to handle the
job. Our theory is that the welfare department should be geared
to the remainder of the State machinery. Where there is a cabinet
under the Governor, we usually recommend a single commissioner;
where administration is less centralized we recommend unpaid
"boards." Administrative duties should, however, be centered in
one individual - commissioner or a director.
If, from the standpoint of population, the county is large enough
to support a unit, the county should have a public welfare unit.
Otherwise, certain adjoining communities may unite to form a unit.
As to finance, some state funds and state direction should be
provided. Ultimately we are going to pay for these services out
ef taxes.
Personnel for welfare units should be appointed solely on a merit
basis. Such officials should be technically expert, and well
trained, efficient and competent.
-29-
11514 State and Local
Nos. 24-26
COMMENT AND OPINION
BANE, FRANK. His brother's keeper, (cont'd.)
(24-25
cont'd.) Poor relief lawis should be thoroughly revised. In addition,
constructive public assistance laws should be substituted for
the pauper system now in force in many states.
(26) BUCK, ARTHUR EUGENE. Administrative consolidation in State governments.
New York: National Municipal League, 1930. 59 pp. 3 charts. Selected
bibliography, pp. 57-59.
Organization charts of the States of Illinois, New York and Tennessee;
see names of these States.
Through administrative consolidation it is possible to simplify the
machinery of a complicated and disorganized state government and there¬
by aid in eliminating poor and extravagant management. Administra¬
tive consolidation as applied to state governments is not a new idea.
Beginning with Illinois in 1917, the idea has rapidly spread until,
at the present time, some 15 states have actually accepted it in one
form or another.
- Organization standards -
Certain standards in regard to organization and administration have
been developed, supported ty actual practice in several states. These
may be summarized as follows;
1) Functional departmentalization of administrative
agencies. The total number of departments should not
exceed 12 or 15.
2) Fixed and definite lines of responsibility for all de¬
partmental work. Each department should be headed by a
single officer appointed and removable by the governor.
The department heads should constitute a cabinet to ad¬
vise with the governor. Responsibility for the work of
each division should be placed on a single officer directly
accountable to the department head, who should, as a rule,
appoint the bureau heads.
3) Proper coordination of the terms of office of administra¬
tion officials. The term of office of the governor should
not be more than 4 years and terms of department heads
should not exceed the governor's. The number of boards
performing quasi-legislative or quasi-judicial, inspections!
or advisory functions may be appointed for terms longer than
that of the governor.
-30-
11514
State and Local
No. 26-28
COMMENT AND OPINION
BUCK, ARTHUR EUGENE. Administrative consolidation in State governments,
(cont'd.)
(26
cont'd.) Boards undesirable as purely administrative agencies owing to
division of powers and absence of initiative and responsibility.
Those who have made a careful study of state contributions are of
the opinion that the governor should be the only elective adminis¬
trative officer and all administrative machinery should be depart¬
mentalized and placed under his control. They also suggest that there
should be a state auditor appointed by and responsible to the 'state
legislature. Such an organization is recommended in the "Model State
Constitution" published by the National Municipal League.
Mr. Buck classifies his study of consolidation plans into those in
operation and those proposed. In the former class he describes the
plans in operation in 15 States, viz.: 111., Ida., Nebr., Mass., Wash.,
Ohio, Calif., Md., Pa., Tenn., Vt., Minn., S. Dak., N,.Y., and Va.
Proposed consolidation iplans have been under advisement in 18 States,
viz. Ore., Ia., N.J., Colo., N.C., Del., Conn., Mich., Mo., Ariz., Ark.,
Ky., Nev., Okla., Ind., Tex., and Wis. In 8 other States viz.: Ala.,
Ga., Kans., La., Me., N. Mex., S. C. and Utah a re-organization move¬
ment involving public welfare consolidation has been under way. Mr.
Buck's analyses of these plans and movements are summarized below under
the names of the respective States.
(27) BEECKENRIDGE, SOPHONISBA P. Summary of the •present Sta.te systems for
the organization and administration of public welfare, pp. 93-103 in
Public Welfare in the United States. Annals of the American Academy
of Political and. Social Science, vol. 105, Jan., 1923. XI, 282 pp.
Historical sketch of State departments, legislative
objectives, supervision vs. control, problems of departmental
organization, scope of departmental responsibility, central vs.
local are the breakdowns of the summary As u;ual with this
author ample footnote references to authorities accompany the
summary.
(28) COLBY, MARY R., The county as an administrative unit for social work.
Washington: Govt. Print. Office, 1933. 48 pp. 1 table. (U. S. Children's
Bureau. Bureau Pubn. No. 224.)
The following general topics are discussed in the report:
1) Local public social welfare services.
2) Progress in county welfare organization.
-31-
11514
State and Local
No. 28 cont'd.
COMMENT AND OPINION
COLBY, MARY R. The county as an administrative unit for social work.
a) County welfare agencies established by statute.
b) County programs developed without special legislation.
c) Scope of activities of county welfare agencies.
d) State supervision.
4) Summary and conclusions.
The county has been generally accepted as a more practical local
administrative unit than the individual town or township. Counties
throughout the U. S., however, vary widely in area and population,
and financial resources are too limited in some cases to make
some counties effective governmental units. In a few States pro¬
vision has been made whereby a group of counties may combine their
resources and employ a district social worker.
The organization of county welfare services has been accomplished
in most States through legislation authorizing counties to estab¬
lish social welfare agencies.
By the beginning of 1932 about 1/3 of the States had developed a
county welfare program although much variation existed in their
application. In only 4 States, Alabama, California, North Carolina,
and New York, had county social workers been employed in a majority
of the counties. In the remaining States with a county welfare
program, counties were either wholly unorganized or social services
were being carried on by a boad of lay members.
Study of these State programs shows certain of the provisions to
have been of paramount importance in the development of sound local
social services throughout the State. Among them is the quite
generally accepted use of a citizen board as the administrative
body responsible for the activities of the county agency. The
use of such a board is of great value in preventing political
interference with the work of the agency. Some provision for
State participation in local organization is to be found in all
effective county welfare programs. These services are of three
types, viz.: l) Grants-in-aid; 2) Establishment of standards;
3) Assistance in planning; and stimulating interest.
Only a few States have realized the need for State funds to assist
in providing social services. Often areas unable to establish
(cent'd)
(28
cont1d.)
3) County welfare problems in 16 states
-32-
11514 State and Local
No. 28-30
COMMENT AND OPINION
COLBY, MARY R. The county as an administrative unit for social work,
(cont'd)
(28
cont'd.) adequate social service programs have the greatest need for such
service; and if it is to be provided for it will mean a combina¬
tion of resources including county, State and even the Nation.
The necessity for qualified personnel in county social work is
recognized, but relatively few states have set up a satisfactory
system for it. At almost every point the need for State leader¬
ship in county welfare programs is apparent.
) (29) DICKEY, JAMES A. Department of Public Welfare in representative cities.
pp. 149—150 in Public Welfare in the United States. Annals of the American
Academy of Political and Social Science, vol. 105, Jan., 1923. xi, 252 pp.
Two score cities, comprising nearly one third of the population
of the country, have adopted definite departments of public welfare.
Mr. Dickey then lists the organization of such departments in the fol¬
lowing cities, viz: Chicago, Dallas, Dayton, Denver, Detroit, Kansas
City, Los Angeles, Omaha, New York, Norfolk, Philadelphia, Portland,
Oregon, Rochester and St. Louis.
(30) EGKER - R., L. LASZLO. Centripetal force: financial pre ssure compels
shifting of responsibility for social welfare from local to state govern¬
ment. (State Government, vol. 8, May 1935, pp. 113-115.) 1 table.
"Legislative and executive leaders in many of the states are con-
( sidering the possibility of special sessions for the enactment of
old age pension or unemployment insurance measures. Their con¬
sideration is prompted, on the one hand, by the conviction that
the state can no longer ignore its responsibility toward the des¬
titute and on the other hand, resulting from Federal activities,
that welfare is no longer emergency in character.
Until the last six years, public welfare had been considered pri¬
marily a local responsibility, resting with counter, town, township
or municipality. At the end of several years of depression, this
situation remains substantially unchanged. Most of the many welfa.re
measures which have been enacted, have been based, yeo.r after year,
upon the anticipation of prompt business recovery and rapid reabsorp-
tion of unemployed workers.
Sufficient time has now elapsed for all to realize that the problems
of welfare financing and welfare administration in a modern indus¬
trialized community are not of a temporary nature. The present depres¬
sion will leave in its wake a wreckage which will take society a gener;
tion to clear up. There is no doubt but that existing public welfare
organizations will be inadequate to cope with the problems of the fu¬
ture and that more centralized machinery is necessary."
-33-
11514
State and Local
No. co-si
COMMENT AND OPINION
ECKER-R., LASZLO. Centripetal force, (cont'd)
(30
cont'd.) The table on the page following this article attempts to desig¬
nate the statutory placement of financial responsibility for var¬
ious welfare activities in the 48 states. Prior to 1932 the Fed¬
eral government's participation in welfare had been confined to
temporary assistance in times of special calamity.
The difficulties involved in local administration of welfare are
immediately apparent when one recalls that there are in the U. S.
approximately 3,000 counties, 20,000 towns and townships and
16,000 incorporated cities and villages and that on the whole
each community has in the past tackled its welfare problem in its
own particular way without regard for standards observed by the
corresponding governmental units surrounding it. The effects of
this lack of standardization defy description.
The correction of these conditions has engaged the attention of
state and Federal legislators during the past three months, and
Governors throughout the country have concluded that welfare can
no longer be left in the care of lesser political •units. Like
the President, they are demanding "the security of the men, women
and children of the nation against certain hazards and vicissitudes
of life". Several years ago the discussion of welfare in a Gover¬
nor's inaugural address was the exception; today it has become the
rule. Moreover, the tone which runs through all these Executive
Messages of 1935 is indicative of the shift which is taking place
in the bread structure of social welfare.
T he table referred to, and published on p. 115, shows, by States
as of Jan. 1, 1935, the State, county and local financial respon¬
sibility for a) general poor law; b) mothers' aid and care of
children in their own homes; d) care of dependent children; d)
blind pensions; e) old age pensions; f) soldiers' and sailors'
relief.
(31) HOEHLER, FEED K. The effect of the social security -program upon State
welfare administration. (National Municipal Review, vol. 25, April,
1936, pp. 210-214)
Because of the unemployment emergency, the last five years have
seen a great grov/th in public welfare services in this country.
The Federal Social Security Act is evidence that the emergency
is passing and that we are destined to have, as a permanent
feature of government, the administration of large public wel¬
fare services.
How can we secure the best results in serving those who need
security?
-34-
11514
State and. Local
No. 31-32
COMMENT AND OPINION
HOEHLER, FRED K. The effect of the social security program upon State
welfare administration, (cont'd)
(31
cont'd.) "Where welfare departemtns do not exist, they must be created.
No State dare hazard the chance of relating this activity to an
emergency set-up. So far as possible, all functions of State
government in the welfare field, which deal with the Federal
government, should be centered in one department or under ore
administrative head.
More emphasis should be placed on the personnel standards and
administrative procedure than has been the custom in too many
I ' welfare departments. A good civil service or merit system should
be set up. The State administration should prescribe civil ser¬
vice standards, not only for its own personnel, but for that of
local administrations as well.
Good records constitute an important phase of efficient admin¬
istration; carelessness or neglect of forms and procedure may
wreck plans which are otherwise valuable.
The great emphasis among public officials is for local adminis¬
tration of social security funds, under State supervision. This
will provide for better local understanding and support.
With regard to the unit for local administration, both the Sherrill
report in Ohio, and the Governor's commission in New York recom-
mend the county. In states where counties do not exist, for admin-
) istrative purposes the city or town must necessarily be the unit,
however unsatisfactory this may be.
While many of the arguments on behalf of a State board, with ad¬
visory or limited administrative powers, might be advanced in
connection with the local board, it seems to the writer that a
local board close to the task could well have complete administra¬
tive authority, including the appointment of a director-
KELSO, ROBERT W. Organization of departments of public welfare, pp.
125-141 in his: The Science of public welfare. New York: Holt and Co.,
1928. xii, 428 p.
"Since its factual basis is local, the (public welfare services)
must, in the last analysis, be administered locally. This is a
far-reaching fact determining the sound character of the system.
Beyond a certain point, absorption of public welfare functions
by the largest units of government becomes harmful to the public
interest. There grows up in such a system, therefore, a mechan¬
ism of local boards or agencies charged with the actual physical
contact between the community and the individual.
-35-
11514
COMMENT AND OPINION
State and Local
No. 32-33
KELSO, ROBERT W. Organization of departments of public welfare* (cont'd)
(32
pont'd.) 3y this reasoning we reach the basic principle of state board
development, indicating the true line of procedure in the future,
usually, that planning, program building and policy making in
their broader aspects should be centralized in the largest units
of government, but that administration of fxinctions in public
welfare service should be decentralized as far as possible in the
smaller units of government. The consequences of this principle
lead us... to a middle course, constructing that arm of the
executive branch of the government in such fashion that it can
shape and lead without removing from individuals and groups that
sense of responsibility which is alike essential to individual
prowess and to community progress. As an illustration of a
state system attuned to local needs and representing as well,
perhaps, as any such system in America, those elements which are
bound to be developed and extended in the public welfare organ¬
ization of the future, the North Carolina system is explained
somewhat at length."
Mr. Kelso also gives in some detail the history of poor relief
systems in several other states, including Indiana, Massachusetts
and Pennsylvania.
He discusses approved organization for public welfare departments,
and takes up individually each phase of public welfare service.
(33) MANGOLD, EDITH P. AND ROCEWOOD, EDITH. Organization for public welfare.
Washington, D. C., National League of Women Voters, 1935. 32 pp,
1 organization chart.
"There is at present a particular need in most states for the ab¬
sorption of these welfare activities into well organized state
welfare departments and the careful coordination of the services
so that there may not spring up a mushroom growth of state boards
and bureaus, each having a separate function corresponding to the
various beneficiaries under the Social Security Act.
It is properly a function of a State department of public welfare
to prepare plans for cooperation with the Federal government, to
meet Federal standards, and to accept and allot Federal monies.
It is also the duty of the state deuartment to act as a standard-
maker for the local public welfare units which in turn cooperate
with the State on the one hand and on the other, work directly with
needy individuals.
The scope of public welfare set-vices, according to the American
Public Welfare Association, covers, (l) all forms of public assist¬
ance to individuals, (2) all child welfare activities, (3) services
to localities in carrying out welfare functions, (4) all mental
hygiene work, and (5) all correctional activities.
-36-
11514
COMMENT AND OPINION
State and Local
No. 33 cont'd.
MANGOLD, EDITH P. and ROCKWOOD, EDITH. Organization for public wel¬
fare. (cont'd).
(33
cont'd.) Endless differences in State -welfare departments exist. The modern
trenr1, however, is distinctly toward the elimination of an overgrowth
of state boards and commissions and the placing of more and more
welfare activities in the hands of one department.
Various states have tried out different types of set-up for the admin¬
istration of such departments - the single director appointed by the
Governor, and the unpaid board appointed by the Governor with the
board appointing the executive head of the department.
The recent trend appears to be toward the organization of a public
welfare department under a state board which appoints a director or
commissioner as administrative head of the department who, in turn,
appoints the staff heading up the various divisions of the department
and carrying on its work.
The Board should share in making policies and plans for the de¬
partment. It should have the power to select and dismiss the
public welfare director. The Board should be appointed by the
Governor, it should serve without pay, should have overlapping
terms and should be removable for cause. The board should consist
of from 5 to 7 members, serving for terms of from 5 to 7 years.
The commissioner is the chief administrative officer of the depart¬
ment. He shoo.ld be selected by and be answerable to the State board,
and should have a feeling of security in his job. He should not be
removable except for proven cause.
The staff should be appointed under Civil Service and should be
sufficient in number to handle .the work. Their appointment should
be in the hands of the director with the approval of the board,
tenure should continue during good service. Salaries must be com-
mensurate with high quality of service required.
Several considerations must be kept in mind in deciding on divi¬
sional organization, viz: l) Scope of activities in each division
must be sufficiently broad to demand as directors, persons of
equal rank. 2) Wherever direct care or supervision is necessary
the director should be a specialist in each particular line.,
3) Services to local communities should be so coordinated as to
avoid conflicting- contacts between local and State officials.
In a few states, the bureau-of health is included as a division
of the public health and welfare department. Except in excep¬
tional cases, this is not desirable. Medical groups have opposed
iti and it has, been found that where health and welfare are handled
in the same department there is danger of subordinating the wel¬
fare concepts.
-37-
11514
COMMENT AND OPINION
State and Local
No. 33 cont'd.
MANGOLD, EDITH P. and ROCKWOOD, EDITH. Organization for public wel*
fare.(cont1d)
(33
cont'd) Most states will need to make permanent provision tor relief.
Also the operation of state institutions for dependent persons
and supervision of local institutions are functions of this divi¬
sion.
In some states, the child welfare activities constitute the.major
activities of the welfare department. In others, they are handled
by a child welfare division coordinate with other divisions.
In some states mental hygiene service is rendered by a state division
outside the department of public welfare.
The correctional division will have charge of supervision of penal and
correctional institutions and activities including parole and adult .
probation. Juvenile probation sho\ild be in the division of child wel¬
fare.
One of the most important divisions of any state department
of welfare is that which looks toward investigation and re¬
search to find better administrative methods, and to dis¬
cover causes of difficulties necessitating public care.
County welfare supervision as a branch of the service will formulate
and prescribe standards for personnel and procedure for the local
units. In some states, the state department appoints or certifies the
county or district welfare superintendent.
Within the department should be found specialists who, under
a coordinated plan, will supply consultation service to agencies
and to communities and to the various local public welfare units,
and to unorganized areas.
Increasingly, states are giving financial aid to counties or
other local districts for public welfare services. Grants-in-
aid to local units have two very distinct values, they stim¬
ulate organization in areas not able to support their own pub¬
lic welfare work and they provide a basis for enforcing stan¬
dards of public welfare work.
Some local welfare units are county wide, some serve only a city,
some cover a district which may be composed of several counties.
The Children's Bureau says, "For some time leaders in political
science have urged the union of small counties as economically
advisable, and in the present finarcial crisis, union may beoome
a necessity as counties are finding the b\irden of supporting their
local government more than they can carry." However, in most of
the states the county is the logical unit for local public welfare
administration.
Both state and local public welfare administration should be in¬
terdependent, and neither should be built up at the expense of the
other. So the first consideration in an efficient local public
-38-
11514
COMMENT AND OPINION
State and Local
No. 33 cont'd.
MANGOLD, EDITH P. and ROCKWOOD, EDITH. Organization for public welfare.
(cont'd)
(33
cont'd.) welfare unit is an efficient state department, and neither should
be built up at the expense of the other.
Some of the New England states have formed the habit of giving
their counties very limited functions, using the town as the
local state administrative unit. In such states the "towns" are
usually areas including one or more cities and villages, together
with rural territory.
Aifew states handle certain welfare services direct from the state
department with employees sent out from the state office to work
in assigned districts. Probably most states will prefer to retain
or to develop the active sense of local responsibility which goes
with making local appropriations and appointing the board and env-
ploying workers for the department. It is desirable that there
shall be community understanding of the needs to be met and of the
way in which service and care are given.
(a) The American Public Welfare Association recommends that the county de¬
partment shall be headed by a board of public welfare with power
to appoint the director and employees.
The single headed department has been advocated by those who favor
a simpler form of administration with responsibility clearly and
definitely placed. The problem in such cases is how to safeguard
the appointment of the director to make sure that he is selected
because of proved qualifications for public welfare administration,
and how to secure his continued tenure in office. Until the coun¬
ties develop an.effective system of appointment on a merit basis,
or unless a state department of public welfare is give an effective
share in the selection of the county director, the county board of
public welfare seems the best available means of giving strong and
understanding community backing to local public administration.
The county board of public welfare should be composed of representative
citizens from all parts of the locality and one or more public officia.
Since the state is a partner in local public welfare administration, b,
its grants-in-aid, it may well share in the selection of board members.
The two major functions of the county board are the selection of a
qualified director and the consideration of the policies for the
administration of the department.
The greatest success has been attained when the director is appoint¬
ed by the county board with the approval of the state department or
from a list of eligibles submitted by it. He should be chosen from
within or without the local area. He should hold his appointment
during good service and should receive a salary commensurate with
state standards. If the state pays part or all of the director's
salary, the department is in a strong position to guard the selec¬
tion of the county director. The director will appoint employees of
-39-
11514 State and Local
No. 33-34
COMMENT AND OPINION
MANGOLD, EDITH P. and R0CKW00D, EDITH. Organization for public wel¬
fare. (cont'd)
(33
cont',•) the department, and administration of local public welfare activities.
He will also furnish all reports required by the s tate.
What the state can best do and what the local unit can best do de-
pend§ on constantly varying factors. More and more regulation and
supervision has been put in the hands of state administrative agen-
ciesj partly because with the granting of financial aid goes the
privilege of setting standards, partly because better transporta¬
tion and communication make it possible to use larger governmental
units, and partly because modern thought veers toward a larger out¬
look.
The principal public welfare functions to be performed in the local
community are assistance to the needy,child welfare services to
children handicapped physically, socially or mentally, and the
conduct of local public welfare institutions."
(34) ODUM, HOWARD W. Attainable standards for State departments of -public
welfare, pp. 137-143 in Public Welfare in the United States. Annals
of the American Academy of Political and Social Science, vol. 105.
Jan., 1923. xi, 252 up.
Stress is laid on the variation of methods, organization and
scope then existing in State departments of public welfare and
a list of 43 activities then functioning, "sufficient to indicate
the need for further standardization", is given.
Stated positively, Dr. Oduin finds there are certain equally self-
evident considerations upon which there seems to be possible agree¬
ment:
(1) It should include the preventive and constructive work
of public welfare as well as the old charities and cor¬
rections.
(2) It should include education, promotion and publicity
in its program.-
(3) It should provide for trained workers and officials ex¬
perienced in public service.
(4) Its state department should supervise all activities with¬
in the field of public welfare.
(a) (5) Its state department should provide for county units of
administration.
(6) Its state department should oe organized with a view to
guaranteeing uniformity and standardization without cen¬
tralization, either of control of institutions or of pur¬
chasing.
-40-
11514 State and Local
No. 34 cont'd.
COMMENT AND OPINION
ODUM, HOWARD W. Attainable standards for State departments of public
welfare, (cont'd)
(34
cont'd.) (7) Its state department should include certain standard
bureaus or divisions of work.
(8) Its state department should be the actual working adminis¬
trative unit, rather than the state board.
(9) But the state department should be under the general super¬
vision of a non-partisan state board.
(10) The state executive officer should be elected by the state
board and other officials appointed by this officer, with
the approval of the board.
(11) The state department should be so organized as to
adapt itself to the particular state needs and to
conform to the organization of other departments.
(12) The state department should, therefore, vary to the
extent of taking over the miscellaneous public service
and general welfare activities omitted in the other
departments of state.
(13) Within these limits there should be uniformity of
designation, organization and administration that shall
conform to good government.
(14) This designation and organization should include "public
welfare" in the sense designated in this volume; it
should allow for separate departments of public health,
public education, agriculture and the other state depart¬
ments agreed upon; and it should work in close cooperation
and correlation with all such departments.
As to the form and scope of a desired form of department, Dr. Odum
presents this schedule:
(1) Each state should have a State Board of Public Welfare, ap¬
pointed by the Governor of the State.
(2) Each state should have a Department of Public Welfare within
this Board of Public Welfare.
(3) The executive officer of the department of Public Welfare
should be a Commissioner of Public Welfare.
(4) The Commissioner of Public Welfare should be a trained leada
elected by the State Board of Public Welfare.
-41-
11514
COMMENT AND OPINION
State and Local
No. 34-35
ODUM, HOWARD W. Attainable standards for State departments of public
welfare. (cont'd)
(34
cont'd.) (5) Within the State Department of Public Welfare there should
be at least the following bureaus or divisions of work:
a. Bureau of Child Welfare or Children.
b. Bureau of Mental Health or Hygiene.
c. Bureau of Institutional Supervision or Control.
d. Bureau of County or Community Organization.
e. Bureau of Rehabilitation or Restoration.
f. Bureau of Education, Promotion and Publicity.
(6) The heads of these bureaus should be appointed by the
Commissioner of Public Welfare; other members of the
staff should be so appointed.
(7) The county should be the unit of work out in the state
(b) and each county should have a board of public welfare
and an executive officer or staff who shall be .trained
social workers.
(8) Both the state and county plan should provide for close
correlation with voluntary agencies and efforts.
(9) Each state will, therefore, probably need to combine and
reduce and unify certain of its-present boards and de¬
partments, at the same time that it enlarges its total
activities.
(10) The entire plan should provide that the state department
so organized or perfected will conform to the growing
tendency toward better organized central government through
effective departments that permit of greater economy and
of greater local control in all details of democratic ser¬
vice .
(35) . Public welfare activities, pp. 1224-1273 in Recent social
trends in the United States. New York; McCraw Hill Book Co., 1934. 1 vol.
ed. 1568 pp.
Review of state systems of public welfare, discussion of changing
concepts and terminology with a table showing by state, the change
in the terminology of state departments from the period before
1917 to the present form and year of change; the evolution of
public welfare in the United States, with a table showing
the changing concepts and practices in public
On p. 1225 Dr. Odum says that, in point of terminology,
"public welfare" dates from 1917-
"put:
-42-
11514
COMMENT AND OPINION
State and Local
No. 35-36
ODUM, HOWARD W. Public welfare activities. (cont'd)
(35
cont'd.) welfare administration and practice; special trends
in administration; public welfare in the cities' ad-
(a) ministration and cost; Federal public welfare in
which are listed 12 major agencies within which public
welfare procedure is carried on; and, finally cost of
public welfare with statistical tables, none, however,
of later date than 1928.
(36) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Legis¬
lative trends in public relief and assistance. Dec. 31, 1929 to July
1, 1936. Prepared by Robert C. Lowe and John L. Holcombe. 'Washing¬
ton, 1936. 41 pp. tables, charts.
The purpose of this study is to trace the legislative
developments in seven important types of relief and
assistance; poor relief, emergency unemployment relief,
care of dependent and neglected children by agencies
and in institutions, aid to dependent children in their
own homes, old age assistance, blind assistance, and
veteran relief. The amount of new legislation enacted
in these fields is evidence of the increasing invportance
of public assistance and relief during the past five
or six years. In the present study, particular emphasis
is placed upon, first the developments relating to the
incidence of financial and. administrative responsibility,
and. second, the tendency toward the integration of the
a.dmini strati on of these seven welfare functions within
a single State agency.
This study supersedes an ea.rlier similar study covering
the period from Aug. 1, 1934 to Jan. 1, 1936.
The contents of the later study comprises, in addition
to the introduction and the conclusions, a chapter
respectively on the increase in types of relief and
assistance, on shifts in responsibility for relief
and assistance and on the trend toward integration.
On pages 14—15 there is a series of 4 bar graphs show¬
ing the distribution of administrative and financial
responsibility, by number cf States, with specified
types of responsibility, 1929.to 1936.
-43-
11514
I
COMMENT AND OPINION II
State and Local
Organization of Public Welfare
Departments
- Alabama-Wyoming -
11514 State and Local
Alabama
No. 37-38
COMMENT AND OPINION
ALABAMA
(37) BANS, PRANK. Alabama, in hisi The establishment of satisfactory
and permanent State departments. (National Municipal Review,
vol. 24, Nov. 1935, pp. 635-638)
(38) BROOKINGS INSTITUTION. INSTITUTE POR GOVERNMENT RESEARCH. Welfare,
pp. 135-173 in Vol. 2 of Report on a survey of the organization and
administration of the State and county governments of Alabama, sub¬
mitted to Governor B. M. Miller. Washington, D. C.: Brookings
Institution, 1932. 5 Vols.
Alabama's welfare activities may be classified roughly under four
heads, viz.! Child Welfare department. State hospital system.
State prison system. Unrelated agencies.
In the year ending Sept. 31, 1931, the State expended $5,164,524.21
for these activities. Pew states are spending a larger proportion
of income on welfare work than is Alabama, and few states have made
more progress in recent years in the development of its welfare
service.
It does appear, however, that the unmistakable development which
has taken place has not been correlated to the extent necessary in
order to effect a well rounded service which should give better care
and be even more effective in cure and prevention.
Modern State government, to be effective by and economically admin¬
istered, must provide for the close coordination of related activi¬
ties, for continuity in planning and administration, and for compe¬
tent personnel in public office. It is not contended that any ad¬
ministrative changes will make immediate material reduction in state
expenditures. Such savings as are possible are in the future and
are to a large extent dependent upon a program of prevention and
cure which can be developed through the working together of various
welfare agencies and institutions of the State.
Theoretically, the efficient and economical administration of public
welfare functions would indicate that the head of the Department of
Public Welfare should be a single officer, appointed and removable
by the Governor. It is realized, however, that an immediate transi¬
tion from a self perpetuating board to a single-headed administrator
would not be practicable. It is believed, therefore, that a new
Department of Public Welfare should be created, headed by a board,
vested with power to appoint and remove the head of the department.
With the above facts and considerations in mind, it is recommended!
(l) That the State Pardon Board be abolished and its duties and
responsibilities transferred to the Department of Public
-44—
H514 State and Local
Alabama
No. 36 cont'd,
COMMENT AND OPINION
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Welfare, (cont'd.)
(38
cont'd.) Welfare, but that provision be made for cooperation with
the Attorney General in the handling of pardon cases in¬
volving legal and judicial questions.
(S) Seven Specified boards and bureaus to be abolished.
(3) That all welfare powers and duties connected with these
groiips be transferred to the State Board of Public Wel¬
fare, consisting of 7 members appointed by the Governor
subject to the approval of the Senate, originally for 1,
2, 3, 4, 5, 6 and 7 years, all subsequent appointments
to be for a term of 7 years and that members of the board
serve without pay except necessary traveling expenses.
(4) That the Board of Public Welfare be authorized to employ,
to serve at its pleasure, a Commissioner of Public Welfare
who shall be the executive officer of the board.
(5) That the Board or Committees thereof, be required to visit
all State institutions of a welfare nature at least twice
a year, and that it be authorized to make studies or in¬
vestigations in the welfare field, as the Governor may
authorize or as may seem necessary or desirable.
(6) That there be established a Department of Public Welfare
consisting of the Board and all state welfare agencies.
(7) That the control and administration of the State prison
system be transferred to the Department of Welfare.
(8) That the superintendents of the various state institutions
in the department be elected by the State Board of Public
Welfare, upon the nomination of the Commissioner of Public
Welfare.
(9) That there be constituted within the Department a Bureau of
Social Service and a Bureau of Institutional Administration,
with all administrative officials and employees appointed
by the commissioner subject to the approval of the Board of
Public Welfare.
(10) That the off ice of State Prison Inspector be abolished and
the duties and responsibilities incident thereto be trans-'
ferred to the Bureau of Social Service.
(11) That the present Child Welfare Department with such additions
as may be required to handle increased work, be organized
in the Bureau of Social Service.
(12) That a Division of Mental Hygiene be established in the
Bureau of Social Service...
-45-
11514
State and Local
Alabama
No. 38-41
COMMENT AND OPINION
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Welfare, (cont'd.)
(38
cont'd.) (13) That all institutions and agencies within the Department
he operated on a budget basis and that the per capita basis
of appropriating moneys for State institutions be discon¬
tinued.
(14) That social service staffs be organized as soon as finances
will permit at the various State institutions and their
work closely coordinated with county welfare units.
(15) That the County Child Welfare units be expanded into pub¬
lic welfare units, charged with the administration of all
public welfare activities within their respective juris¬
dictions with increased activities provided where necessary.
(39) BU.CK, ARTHUR EUGENE. Consolidation movement in other States, p. 55
in his5 Administrative Consolidation of State Government. 1930. 59 pp.
In 1919 a budget commission and a board of economy and control
were established. The latter board has the supervision of State
institutions and general purchasing.
' /
(40) ECKER-R,, L. LASZLO. Financial responsibility for various welfare
activities - Alabama. Table in his; Centripetal Force. 1935. See
No. 30.
(41) MANGOLD, EDITH P. AND R0CKW00D, EDITH, Alabama; illustrations of state
and local public welfare organization, in their; Organization for. Pub¬
lic Welfare. Washington, D. C., 1936. 32 pp.
Alabama has 20 state agencies performing welfare functions with
one, the Child Welfare Commission, supervising child welfare
boards in all but a few counties.
A new law, passed in 1935, expands the child welfare system into
a public welfare organization. A state department of public
welfare under a state board has been established. The board con¬
sists of the Governor and 6 members appointed by the Governor for
overlapping terms of six years. The board appoints the commis¬
sioner and is required to fix minimum standards of service and
personnel, and the salary schedule for the state and county de¬
partments.
The department is to administer all forms of public assistance, to
perform services to local governments, including organization of
county public welfare agencies, to act as the agent of the Federal
Government in all welfare matters and in administration of Federal
funds, to allot grants-in-aid to the counties and to provide
a mental hygiene program of non-institutional care. The act sets
up a bureau of child welfare, a bureau of mental hygiene, and
authorizes other bureaus as necessary.
Counties are required to have departments of public welfare. The
state board fixes minimum standards of service, personnel and ef-
-46-
ncu State and Local
COMMENT AND OPINION Alabama
/ ,ij \ No• 41-45
MANGOLD, EDITH p. and R0CKW00D, EDITH. Alabama, (cont'd.)
(41
cont'd.) ficiency for county departments. In each county, the board is to
be appointed by tho county governing board with the city commis¬
sioners sharing in tho appointment in cities of 6C,000 or over.
The board is to have 7 members to servo without pay for overlap¬
ping terms of six years. The board appoints the county director
who must have qualifications set by the state board. The director
appoints the staff, subject to the approval of tho state board.
The county department of public welfare administers relief, per¬
forms family welfare services, cares for dependent, neglected
and delinquent children, investigates admission to and discharges
from county institutions for indigents. It may be appointed to
perform investigation and juvenile probation functions for the-'
court, and school attendance services for the schools.
(42) MILLSPAUGH, ARTHUR C, Characteristics of State organization: Alabama,
pp. 148-149 in his Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pp.
In Alabama 20 separate agencies have to do with welfare functions;
and 10 may be classified as predominantly welfare agencies. All
of the 10 are directing and controlling; 8 are boards; and 7 are
exclusively institutional managing boards. The State Board of
administration, classified as a central agency is not a board but
a single-headed agency. It manages the prison system and serves
as the State purchasing office. The two state hospitals are under
a single board, which also serves as the managing board for the
Home for the Feeble minded. This Board, except for its ex-officio
member, the Governor, is self perpetuating. The Child Welfare
Commission is a strong special agency, and it is this body rather
than the Board of Administration or the Hospital Board which re¬
presents the nucleus of all integrating agency. Alabama has been
notable for its attempt to correlate child welfare with education
and public health, the Superintendent of Education and the State
Health officer being ex-officio members of the Child Welfare Com¬
mission.
(43) WORKS PROGRESS ADMINISTRATION. DIVISION OE SOCIAL RESEARCH.
Analysis of constitutional provisions affecting pu":."ic welfare
in the State of Alabama. Nov. 1, 1936. Prepared by Robert C.
Lowe and David S. Lander. 18 pp.
(44) . DIVISION OP SOCIAL RESEARCH. Digest
of public welfare provisions under the laws of the State of Alabama.
Prepared by Robert C. Lowe and Carolyn E. Limbach. Dec. 30, 1936.
PP* (2), 101-176. 1 folding chart.
(45) . DIVISION OF SOCIAL RESEARCH. Organiza¬
tion and procedures of the Alabama Department of Public Welfare. Prepared
by Wilma Van Dusseldorp. July, 1936. Washington, D. C.; W.P.A., 1936.
70 pp. 2 maps, 2 charts.
The 2 maps show resp. the demonstration areas for special child
welfare services. The 2 charts are described on p. 242 under the
group "of "Organization Charts."
-47-
11514 State and Local
Arizona
COMMENT AND OPINION No. 46-49
["Arizona]
(46) BUCK, ARTHUR EUGENE. Proposed consolidation plans, pp. 51-52 in his:
Administrative Consolidation in State Governments. 1930. 59 pp.
In his biennial message to the 1921 Arizona legislature Governor
Campbell recommended administrative reorganization. He secured
a staff member of the N.Y. Bureau of Municipal Research to study
the problem. The plan presented proposed to consolidate almost
40 statutory administrative agencies into 8 departments, viz.:
military affairs, finance, agriculture, public works and buildings,
public welfare, reclamation and irrigation, education and regis¬
tration, and labor and industry. The departments were to be ad¬
ministered by single heads appointed by the Governor and serving
at his pleasure. A bill embodying this plan was introduced, but
it was defeated. Another bill for reorganization was introduced
in 1927 but it was also defeated.
' y
(47) ECKEE—R., L, LASZLO. Financial responsibility for various welfare
activities - Arizona. Table in his: Centripetal Force. 1935. See
No. 30.
(48) MI1LSPAUGH, ARTHUR C. Characteristics of State organization; Arizona,
pp. 153-154 in his: Public Welfare Organization. Washington, D. 0.:
Brookings Institution, 1935. xxv, 700 pp.
Arizona has just 8 predominantly welfare agencies. In 1933, the
legislature established a State Board of Welfare vested with sub¬
stantial functions with respect to dependency and child welfare
and with the appointment of county boards of public welfare. The
State Child Welfare Board was abolished and its functions trans¬
ferred to a new agency. Institutional control, however, is a
function of a separate agency, the Board of Directors of State
Institutions.
One institution, the State Industrial School for Girls, is direct¬
ly under the Board. The other institutions are managed by super¬
intendents responsible to the Governor. In addition there is a
Board of Pardons and Paroles and a Veterans Relief Commission.
The State Board of Education is charged with supervision of the
Colony for Mentally Deficient Children.
(49) W.P.A, DIVISION OF SOCIAL RESEARCH, Digest of "public welfare provisions
under the laws of the State of Arizona. Prepared by Robert C. Lowe and
James S. Queen. Oct. 15, 1935. 2 p.l., pp. 201-236, 1 1. 1 organizac¬
tion chart.
Digest of public welfare provisions, pp. 201-206; digest of ad¬
ministrative divisions, pp. 207-235.
-48-
11514
COMMENT AND OPINION
"ARKANSAS"j
State and Local
Arkansas
No. 50-52
(50) BUCK, ARTHUR EUGENE. Proposed consolidation plans. p. 52 in his Ad¬
ministrative Consolidation in State Governments. 1930. 59 pp.
In 1921, Professor D. Y. Thomas of Arkansas University worked out
a plan of reorganization for the State in which he proposed to
make the Governor the only elective official, and to put the ad¬
ministrative work in 11 departments, viz.: state, taxation and fi¬
nance, justice, education and registration, public health, pub¬
lic works, public welfare, industries, trade and commerce, labor
and military. Each department was to have a single head directly
responsible to the Governor.
The 1923 legislature did nothing with the plan. In 192J Governor
Parnell proposed a survey during 1930 and employed the National
Institute of Public Administration to make it.
/ /
(51) ECKER-R., L, IASZLO. Financial responsibility for various welfare
activities - Arkansas. Table in his: Centripetal Force. 1935. See
No. 30.
(52) GOVERNOR OF ARKANSAS, the Hon. Carl E. Bailey. Message to the legislature
at the regular session, Jan. 12, 1937.
"As a state, we are an integral part of one great nation that is try¬
ing to establish the durability of a democracy on a continental
scale. We can and we must make effective a program of cooperation
with the national government and with other state governments to
help that accomplishment.
Our prison system is a social cancer and a relic of barbarism. The
present buildings are veritable fire traps. There is nothing about
the institution worth- of being dignified by the name "hospital".
Religious services and educational opportunity are not available to
prisoners. Absolutely no effort is made to rehabilitate prisoners,
and it is impossible to segregate the hardened criminals and the first
offenders. Knowingly to permit the condition of our prisons to go
further uncorrected, we needs must murder our consciences and assume
responsibility for the loss of human lives and immortal souls. The
system is vengefully punitive and in no sense corrective or curative
mentally, morally, or physically, I appeal to no misdirected senti¬
ment in saying this, because the present system has never had even
the virtue of being financially profitable.
Based upon a long and careful factual study by agents of the Federal
Prison Industries Reorganization Administration, carefully considered
recommendations have been made to us for the improvement of our prison
system. It is my thoughtful opinion that if we follow these recommen¬
dations the Arkansas prison system in the future will be able to func-
-49.
11514
COMMENT AND OPINION
State and Local
Arkansas
No. 52 cont'd.
GOVEPNOR OR ARKANSAS, the Hon. Carl E. Bailey. Message to the legislature,
(cont* d.)
(52
cont'd.) tion economically as an institution for the punishment of crime, and
as an effective hospital for the morally sick. I do not know that any
legislation will he needed in this regard, hut I urge you to familiar¬
ize yourselves with the PIRA report, if for no other purpose than to
broaden your own fund of valuable information.
The exercise of executive clemency by the governor cannot be made to
fit into the mosaic of civilized war on crime. With two thousand
prisoners in the penitentiary, the governor at all times constructive¬
ly has on his desk two thousand applications for executive clemency.
The sheer volume of such an assignment makes it impossible for him to
know what is best for the individual and for society in each instance.
He acts in each instance upon the promptings of political expediency,
or in response to the impulse of sentiment. If the action taken is
best for the individual and society, that is merely a coincidence.
You should give the people an opportunity to make it impossible to play
politics with the lives and liberties of human beings and the concerns
of society. Those who have transgressed the law should have the
privilege, and be required, to have their right to life or liberty
measured in terms of what is best for the individual and for society
as a whole. Clemency is an effective weapon against crime when wisely
dispensed. There is no wisdom, however, in simply turning a whipped
man out of prison, destitute in a world where the back of every man's
hand is to him.
Parole officers should be provided to guide and advise released
prisoners in an honest effort to become useful members of society.
If additional appropriations were needed for this purpose, they
would be justified. It certainly is cheaper to provide a guiding
supervision for a free man than it is to maintain an imprisoned man.
Much economy also can result from administrative and legislative
changes in institutional management. I am convinced that operation of
state institutions by honorary boards is the perfect method. Operation
by the paid board system, however, is more objectionable. The
principal fault with honorary boards and commissions is lack of co¬
operation and coordination in agricultural and industrial effort.
Such an effort intelligently directed will enoiuously reduce the
amount of money required for efficient operation. It is my sincere
hope that you will give careful consideration to the establishment of
an institutional co-ordinating agency having the responsibility and
authority to study state use of industrial and agricultural products,
and of advising with the various institutions about their production
and uses. Thus, we may avoid surpluses of one item and famine of
another, and avoid the recurrence of the ridiculous condition wherein
one institution has not enough land for its needs, while another has
too much.
I do not urge you to give favorable consideration to measures which
would reward indolence and penalize enterprise. At the same time, I
•50-
11514 State and Local
Arkansas
COMMENT AND OPINION No. 52-54
GOVERNOR OP ARKANSAS, the Hon. Carl E. Bailey. Message to the legislature,
(cont'd.)
(52
cont'd.) insist upon making it clear that I will cooperate with you in penetrat¬
ing the pretenses of the puppets of privilege who would do less than
meet the exactions of the present emergencies. Their objections that
such a program may be subjected to abuses by the unworthy is a
sophistry behind which they attempt to hide their own shortsighted
greed. Everything with which great good can be accomplished may be
perverted in its uses to accomplish great bad. Economic security for
the individual does not mean an interminable program of public aido
Rather, it contemplates temporary aid and ord.erly change in the
economic and political system so that ultimately the system will give
the individ-ual the opportunity to provide security for himself. While
the change is being brought about, government must supply the content
of security to the helpless. In this view of the matter then, we must
give effective consideration to measures which will assure that surgic¬
al science is made available to crippled children, guarantee that
widowed mothers will be placed in position to give their children
opportunity, and assure the indigent aged, and blind co lfort and re¬
spectability. At the same time, we must continue to provide for the
efficient and economical operation and prepetuation of those institut¬
ions which are established to deal with human problems that yield only
to institutional treatment - the tuberculosis sanatoria, the Schools
for the Deaf and the Blind, the Boys' and Girls- Industrial Schools,
and the State Hospital. We are under no less responsibility to give
favorable consideration to practical enactments which will give those
who depend upon their own efforts for a livelihood assurance that want
will not stalk them in periods of unwilling unemployment."
(53) INSTITUTE OF PUBLIC ADMINISTRATION, New York City. Findings and recom¬
mendations on a survey of administrative structure of the State Govern¬
ment of Arkansas: prepared for the Governor. New York City, 1930. 175 pp.
The text is by Arthur E. Buck and Philip H. Cornick.
(54) MILLSPAUGK, ARTHUR C. Characteristics of State organization: Arkansas,
pp. 145-146 in hiss Public Welfare Organization. Washington, D. C.J
Brookings Institution, 1935. xxv, 700 pp.
In Arkansas, there are 22 agencies concerned with welfare functions,
of which 12 are primarily welfare agencies, and 10 have directing
and controlling powers. There is no integrating agency; though
the Board of Control of Penal Institutions has jurisdiction over
the two prisons and serves also as a board of parole. There was,
some years ago, a short-lived Board of Control, which was abolished,
and a Charities and Corrections Commission established, which was
superseded in 1927 by institutional boards. In 1923, when the appro¬
priation for the Charities and Corrections Commission \ is vetoed by
the Governor, the Juvenile Court Department was transferred to the
Attorney General's office.
-31-.
11514
COMMENT ANN OPINION
State and. Local
Arkansas, California
No. 55-56
(55) WORKS PROGRESS ADMINISTRATION. DIVISION OP SOCIAL RESEARCH.
Digest of -public welfare -provisions under the laws of the
State of Arkansas. Prepared by Robert C. Lowe and James
S. Queen, Legal Research Section. Aug. 15, 1936. 2 p.l.,
pp. 301-352. 1 organization chart.
[ cXlifornia"!
(56) BUCK, ARTHUR EUGENE. Administrative consolidation plans in operation,
pp. 21-24 in his: Administrative consolidation in State Governments.
1930. 59 pp.
In July, 1921, an administrative consolidation plan wac enacted by
the legislature. This plan provided for five departments, namely,
finance, education, agriculture, public works and education, Of the
112 existing agencies 58 were consolidated in these departments.
The department of institutions, headed by a director appointed by
the Governor, had charge of the charitable institutions of the State,
the local board of trustees being continued as advisory boards.
This consolidation plan soon proved to be faulty and to fall short of
expectations. Governor Young, in his inaugural, address, Jan. 4,
1927, proposed that the work of consolidation should again be taken
up and carried forward.
The reorganization became effective July 29, 1937. The 9 departments
then created are finance, education, agriculture, public works, in¬
stitutions, industrial relations and social welfare.
Each de-partment except education has as its administrative head a
director appointed by the Governor and serving at his pleasure.
The directors receive $6,000 each, except the director of social
welfare who receives $4,000, and the directors of finance and public
works, tsrho receive $10,000 each. A Governor's Council, consisting
of the heads of departments is req\iired to meet with the Governor
at least once a month.
The departments of education, agriculture and institutions remain
practically as they were when first organized.
-52-
11514
COMMENT AND OPINION
State and Local
California
No. 56-59
BUCK, ARTHUR EUGENE. Administrative consoHdation plans in operation,
(cont'd.)
(56
cont'd.) Both the director of public health and the director of social welfare
have associated with them semi-administrative boards, consisting
of six members each appointed by the Governor for overlapping terms
of four years. These directors may determine the divisions within
their respective departments.
In 1929 four new departments were created, including a department
of penology and a department of military and veteran's affairs*
The department of penology is under a director selected by the Gov¬
ernor from the chiefs of departmental divisions. His salary is
$6,000 a year. Five divisions are required by law, viz.: prisons
and paroles, criminal identification and investigation, pardpns
and commutations, narcotics and criminology. The department of
military and veterans' affairs is headed by a director chosen
from the chiefs of the departmental divisions at a salary of
$6,000 a year. The required divisions are: military affairs,
veterans' welfare, veterans' homes, and athletics (administered
by the State athletic commission.)
/ /
(57) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - California. Table in his Centripetal Force. 1935. See
No. 30.
(58) HASSE, A. R. Maintenance, county, -private and State, of defectives.
delinquents and dependents, pp. 181-205 in Index of Economic Material
in Documents of the State of California. Washington, D. C.: Carnegie
Institution of Washington. 326 pp.
Analysis of reports, Governors' messages, etc., 1850-1904«
history of organization of State and county agencies.
(59) MILLSPAUGH, ARTHUR C0 Characteristics of Ste-te organization: California*
pp. 154-155 in his Public Welfare Organization. Washington, E. C.<
Brookings Institution, 1935. xxv, 700 pp.
California has 15 controlling and directing welfo.re agencies; but
its institutional managing boards have been redneed to two, one for
the Veterans' Home and a second for the Women's Relief Corps Home,
The State makes generous use of boards and commissions, 26 being
located in the welfare field, 10 of these possessing controlling
and directing powers. There is a so-called Board of Managers for
each of the 12 State institutions, but each has supervisory powers
only. Although there were somewhat sweeping reorganizations in
1921 and 192.7, much of the departmentalization is nominal, and
there is no clear-cut segregation of related functions n any one
agency. California appears to have one agency primarily general
and preventive - the Department of Social Welfare, and two that
are apparently central control agencies - the Department of Insti¬
tutions and the State Board of Prison Directors.
•53-
11514
COMMENT AND OPINION
State and Local
California, Colorado
No. 60-63
(60) UORKS PROGRESS ADMINISTRATION. DIVISION OP SOCIAL RESEARCH.
Digest of public welfare provisions und^i' the laws of the state
of California. Prepared by Robert C. Lowe and staff, Legal Re¬
search Section. April 15, 1936. 2 p.l. pp. 401-472. 1 organi¬
zation chart.
[ CALIFORNIA - LOCAL~|
(Los Angeles County)
(61) MARTIN, NORMAN R. Los Angeles County Department of Charities, pp.
156-159 in American Academy of Political and Social Science. Annals#
vol. 105. Jan., 1923. XI, 282 pp.
Outline of the activities of this department since its
inception in 1915 under the charter of June 2, 1913.
I Colorado"i
(62) BUCK, ARTHUR EUGENE. Proposed consolidation plans, p. 47 in his:
Administrative Consolidation in State Governments. 1930. 59 pp.
In December of 1923 Governor-elect Sweet secured the services
of 2 staff members of the New York Bureau of Municipal Research
to make a study of state organization and to propose a plan of
consolidation. This was done and Governor Sweet presented the
plan in the form of a bill to the legislature in January. This
plan proposed to centralize administrative authority and control
in the Governor and to consolidate as far as possible under the
constitution all administrative agencies in 9 departments, viz.:
finance, taxation, agriculture, mines, labor, trade and commerce,
public works, public welfare, and public health. The departments
were to have single heads appointed and removable by the Governor.
Another plan was presented by the opposition, providing for the
creation of a central administrative cabinet. A legislative
fight ensued and no action was taken.
-54-
11514
COMMENT AilD OPINION
State and Local
Colorado
No. 63-63a
' /
(63) ECKER-B.., L. LASZ10. Financial responsibility for various welfa.ro
activities - Colorado. Table in his: Centripetal Force. 1935. See No»30.
(63a) GOVERNOR OF COLORADO, the Hon. Teller Amnions. Message to the
Legislature at the rerular session. Jan. 12. 1937.
"The people of our state have at all times realized
their obligations to care for and help the unfortunate
..As rapidly as has been practicable, these in¬
stitutions have been erected. Home for dependent
and neglected children, school for deaf and blind,
insane asylum, home and training school for mental
defectives, and tne workshop for the blind. The
very mention of the names of these institutions touches
a tender and sympathetic chord in every heart. They
have urgent needs. You will confer with the heads
of these institutions, and you will visit these in¬
stitutions and give them patient and thoughtful con¬
sideration, then you will respond to the wishes of
your constituency and to your own sympathies and
judgment in extending help within the resources of
the state.
As to penitentiary, reformatory Industrial Schools for
Boys and Girls. Environment and heredity have been
determining factors in the wayward careers of many of
the inmates. The heads of our institutions are en¬
deavoring, thru modern scientific procedure, to pro¬
mote the responsibility of the state in these cases.
Imbued with a kindly spirit, they are attempting to set
apart the incorrigibles from those who give promise of
reformation.
They will ask for permanent improvements and necessary
maintenance. This important question deserves serious
consideration and you should visit these institutions
and confer with the responsible authorities to fully
understand their needs.
In this home live those whom the state desires to sur¬
round with every comfort and to whom the state would
do honor. Let us remember that this is their home and
the only one they possess.
-55-
11514
COMMENT AND OPINION
State and Local
Colorado, Connecticut
No. 63a-66
GOVERNOR OP COLORADO, the Hon. Teller Ammons. Message to the Legislature,
(cont'd.)
(65a
cont'd.) Many of them are advanced in yaars, many maimed and
feeble. Their requests are modest but they have
necessary needs. No request that is made of you ap¬
peals more to the chief executive of the state than
the appeal of these heroes of yesterday. Consider
well their request - be generous to this institution."
(64) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Colo¬
rado, p, 146 in his: Fublic Welfare Organization. Washington, D. C..
Brookings Institution, 1955. 'xxv, 700 pp.
In Colorado the trend appears to have been decentralizing rather
than centralizing. A State Board of Charities and Corrections
set uo in 1991 was abolished in 1923 and a new office created,
the Secretary of the Department of Charities and. Corrections. A
Board of Corrections was established in 1915. In 1933, the De¬
partment of Charities and Corrections and the Board, of Corrections
were abolished, and there was created in their stead a Division
of Public Welfare in the Executive Department. Colorado now has
24 agencies concerned with welfare functions of which 13 are pri¬
marily welfare agencies. All have controlling and directing auth¬
ority; 9 are boards; and 5 are institutional managing boards. The
Division of Public Welfare, headed by the Governor, is charged
with the transfer of prisoners and with the supervision of private
eleemosynary institutions. This Division may develop into a real
integrating agency, and at present its functions are duties of the
Governor rather than of a separate welfare agency.
(65) WORKS PROGRESS ADMINISTRATION. DIVISION OF' SOCIAL RESEARCH.
Digest of public welfare Tjrovisicns under the laws of the
State of Colorado. Prepared by Robert C. Lowe and John A.
Hanley. Oct. 15, 1935. 2 p.l., pn. 501-549. 1 organization chart.
Digest of public welfare provisions, p. 501-509. Tigest
of administrative provisions, p. 510-549.
This digest is now in the process of revision.
I CONNECTICUT !
(66) BUCK, ARTHUR EUGENE. Proposed consolidation -plans, p. 43 in his;
Administrative Consolidation in State Governments. 1930. 59 pp.
The 1919 legislature authorized the appointment of a special com¬
mission to investigate and report on a civil administrative
-56.
11514
COMMENT AND OPINION
State and Local
Connecticut
No. 66-68
BUCK, ARTHUR EUGENE. Proposed consolidation plans. (cont'd.)
(66
cont'd.) code. A code based on the suggestions of this commission and
presented to the 1931 legislature was defeated. The code pro¬
posed to cree.te 10 departments, viz.: agriculture, banking, edu¬
cation, insurance, labor and industries, motor vehicles, public
health, public welfare, public works and taxation. These depart¬
ments were to be headed by single commissioners appointed by
the Governor with the Senate's approval, for 4 year terms. Each
department was to have an advisory board attached to it.
The 1927 legislature created a department of finance and control
with a board at its head consisting of 10 members, 6 ex-officio
and 4 appointed by the Governor. The administrative head of the
department is the commissioner of finance and control, appointed
by the Governor with the Senate's approval, for 4 years at an
annual salary of $9,000. The state board of finance, the board
of control snd the commission on state institutions were abolished
and the new department assumed their duties.
/ *
(67) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Connecticut. Table in his Centripetal Force, 1935. See
No. 30.
(63) GOVERNOR OF CONNECTICUT, THE HON. 7/ILBUR L. CROSS. Message to the
regular session of the legislature. Jan. 7, 1937.
"Some part of the emergency legislation, covering several state
agencies, should be continued either permanently or for a time to
meet emergencies as they may arise. Likewise the Emergency Relief
Commission, which ceases as a state agency on the first of February,
should probably be continued until the end of the present fiscal
year when its varied functions may be appropriately transferred to
the Welfare Department, the Public Welfare Council, and the Tax De¬
partment. If such action can be taken earlier, so much the better.
In connection with the transfer, it will be necessary to enact
legislation for the coordination of state and local relief of all
kinds, in a manner that will give to the state sufficient authority
over the administration of town and coxinty relief as may be required
for the state to obtain for itself and its political subdivisions
all Federal funds available for them under the provisions of the
Social Security Act. Enabling legislation for this pxirpose, which
will bring to the state large financial assistance, such as it is
not now receiving, will involve to some extent a readjustment in
the existing relations between the state and its subdivisions.
Various phases of the problem are presented in the report of the
Emergency Relief Commission, in the report of the special commission
appointed two y?ars ago to study out pauper laws, and in the recom¬
mendations of the Commissioner of Welfare. These three agencies
-57-
11514
COMMENT AND OPINION
State and Local
Connecticut
No. 68-69
GOVERNOR OF CONNECTICUT, the Hon 7/ilour L. Cross. Message to the legis¬
lature, (cont'd.)
(63
cont'd.) agree that every effort must be made to prevent the breakup of
distressed families, sometimes occasioned by the ■'uncoordinated
action of several state, county and town agencies. The home,
where possible, should be kept intact.
Legislation for the public welfare is a continuing process 'which
has no end. The^e are always arising new situations which often
evade foresight. Occasionally they may be seen developing. Wisely
the last General Assembly authorized the appointment of severs!
temporary, or semi-temporary, commissions to consider very important
matters and to report them for your consideration. Such, for exampLe
is the commission on our pauper taws, which will advocate a thorough
revision of them.
The most comprehensive commission authorized by the last General
Assembly is one on a complete reorganization of the state government
Eor a full year and a half every part of the present administrative
structure has been subjected to close scrutiny by this commission,
with the view of recommending to your consideration a revised struc¬
ture of the state government in the interest of economy and effi¬
ciency by the elimination of duplicated services and the merging of
related departments. A report presenting a coherent whole should be
in your hands not later than the first of February. The report will
be accompanied, I understand, by a series of bills necessary for
carrying into effect the recommendations of the commission. The
questions involved in these proposals are of so far-reaching inroort
that you will probably find it advisable to create a special commit¬
tee for their consideration. I so recommend."
(69) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Connec-
ticut. pp. 149-150 in his: Public Welfare Organization. Washington,
D. C.: Brookings Institution, 1935. xxv, 700 pp.
In Connecticut, a Board of Charities was established in 1373. The
present State Department of Public Welfare consists of two practi¬
cally separate bureaus under a single beard. The Bureau of Child
Welfare operates substantially as a special agency, end the Bureau
of Adult Welfare as a weak general service agency. The State Agent
of Institutions and Agencies does no inspection or supervisory work.
He is largely concerned with collecting the costs of the care of the
indigent; but he disburses relief for State paupers and administers
mothers' aid. In all, Connecticut has 36 separate agencies exercis¬
ing welfare functions, of which 17 are controlling and directing
welfare agencies, 16 ere boards, and 11 are institutional managing
boards. As in Louisiana, tue mental health function is assigned to
the public health agency-
-58-
11514
State and Local
Connecticut, Delaware
No. 70-71
COMMENT AND OPINION
(70) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the State
of Connecticut. Prepared "by Robert C. Lowe and James S. Queen,
Legal Research Section. Sept. 1, 1936. 2 p.l., PP» 601-675.
1 organization chart.
Digest of public welfare provisions, pp. 601-613; digest of ad¬
ministrative provisions, pp. 615-675.
| DELAWARE j
(71) BUCK, ARTHUR EUGENE. Proposed consolidation plans, pp. 48-49 in his:
Administrative Consolidation in State Governments. 1930. 59 pp.
During the summer of 1918 the Delaware State Council of Defense
engaged the New York Bureau of Municipal Research to make a. sur¬
vey of the State and county governments and of the Wilmington city
government. The report recommended that the Governor should be
the only elective administrative officer.
He should have sole power to appoint and remove all department
heads, and that the work of the 117 existing agencies should be
consolidated into 9 departments, viz.: state, finance, labor and
industry, health, public welfare, highways and drainage, education
and law. Each department was to have a single head appointed by
the Governor and serving at his pleasure. The departments of pub¬
lic health, agriculture and. p'dblic welfare were each to have ad¬
visory councils composed of 6 members appointed by the Governor,
and the commissioner ex-officio.
The 1919 legislature authorized the appointment of a state survely
commission which presented a limited group of recommendations part
of which were enacted by the 1^21 legislature.
The 1923 legislature created a board of state supplies and con¬
solidated the health and welfare agencies under a. state health
and welfare board which it created.
-59-
1153 4. State and Local
Delaware
No. 72-75
COMMENT AND OPINION
(72) ECKED-P.., TJt LASZL6. Financial resoonsibilit'"- for various welfare
activities - Delaware. Table In his: Centripetal Force. 1975.
See" No. 70.
(73) HASSE, A. R. Maintenance, county, private and State, of defectives,
delinquents and dependents, pp. S9-1C3 in Index, of Economic Material
in the Documents of the State of Delaware. Washington, E. C. Carnegie
Institution of Washington. 137 p.
Analysis of reports, Governors' messages, etc., 1789-1904;
history of organization of State and county agencies.
(74) MlLLSPAUGH, ARTHUR C. Characteristics of State organization: Delaware,
pp. 146-147 in his: Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pu.
In Delaware changes in organization have been made from time to
time, but 22 separate agencies seem to be functioning in the
public welfare field. Of these 13 are classed as public welfare
agencies, and all are headed by boards. Emergency relief has its
own beard, as does also (l) old-age pensions, (2) mothers' "oen-
sions, (3) the blind, (4) the granting of paroles and supervision
of paroles, (5) relief of deaf, dumb and blind persons, (6) each
of 5 institutions; and (7) the granting of pardons. The State
Board of Charities is merely a fragment, though it may be the
nucleus, of a nublic welfare department.
(75) TAXPAYERS' LEAGUE OF DELAWARE. Public welfare administration in
Delaware: a discussion of the organization and functions of public
welfare agencies, with a plan for reorganization, and a program of
coordinated, public welfare work. Prepared, for the Governor of
Delaware and the State Board of Charities. Jan. 10, 1931. Wilmington:
the League, 1931, 63 p. 3 fold, tables.
Public welfare administration in Delaware, as in other States,
includes a great variety of special activities having, .in general,
two primary aims, viz.:
(1) Prevention or correction of conditions
which put persons in a position where
the State must provide for their care
or physical restraint.
(2) Care and. custody of those persons who
so become wards of the State.
-60-
11514
State and Local
Delaware
No. 75 cont'd.
COMMENT AND OPINION
TAXPAYERS' LEAGUE OP DELAWARE. Public welfare administration in
Delaware. (co nt' d.)
(75
cont'd.) Considering these two primary purposes of public welfare
administration, three groups of services may be defined,
viz.:
(1) Prevention and relief of dependency.
(2) Prevention and correction of crime
and delinquency.
(3) Prevention and treatment of physical
and mental incompetency.
There is a definite obligation upon government to provide a
system of public welfare administration which is capable of
adjusting each special activity, or activity group, into its
proper place in the public welfare program.
To establish such a system of public welfare administration
requires:
(1) An adequate bo^y of public welfare
law adapted to present day conditions
and needs.
(2) An administrative agency with full
authority, adequately equipped for
the management and control of all
welfare activities.
It is impossible to consider here in detail all the many
handicaps to efficient public welfare services under
present laws. It is clear, however, that control of
the public welfare services of the State is a practical
impossibility under existing conditions. The great
number of individuals concerned with public welfare
administration, their appointment to the various boards
by so many different officers of State, county, and
private corporations, their varying tenure and compen¬
sation, the lack of standards of tneir qualifications,
and. of clear definition of thoir obligations to the
State, end finally, the illogical division of powers
among them, leave the public welfare system without
a head. Even the Governor who in theory is presumed
to be the final source of administrative authority,
is actually powerless to make his leadership felt.
To bring about necessary control and coordination of
State Welfare activities, it is proposed that a Depart¬
ment of Public Welfare be established.
-61-
11514
COMMENT AFD OPINION
State and Local
Delaware
No. 75 cont'd.
TAXPAYERS' LEAGUE OF DELAWARE. Public welfare administration in Delaware.
(coat' d.)
(75
cont'd.) This Department should be under the management of a Board
of Public Welfare of seven members appointed by the Governor
to serve at his pleasure. The appointment of the members
of the Board could be given, as is the custom in Delaware,
to the several counties.
The following existing State boards should be abolished and
their powers and duties transferred to the Department of
Public Welfare, viz.:
(I) State Board of Charities.
(2/ State Board of Trustees of the Delaware
State Hospital.
(3) Delaware Commission for the Feeble
Minded.
('") Trustees for Indigent Imbecile Children.
(5) Delaware Co,omission for the Blind.
(6) Trustees for the Indigent, Deaf, Dumb
and Blind.
(7) Foard of Managers of the Detention Home.
(8) Board of Trustees of the Ferris Indus¬
trial School.
(9) Board of Trustees of the Industrial
School for Colored Girls.
(10) State ""-oard of Parole.
(II) Mothers' Pension Commission.
The State Board of Welfare should function as a board of
managers of each of these agencies, and their superintendents
and executive officers should be directly responsible to the
Department of Public Welfare.
The functions of the proposed Department of Public Welfare
may be briefly summarized as follows:
(1) General management and control cf all
strictly defined public welfare agencies
of the State, the Board of Public Wel¬
fare functioning as a board of managers
of each agency.
(2) The general supervision and control of
all dependent, defective, and delinouert
child wards of the State.
(3) The management and supervision of parole
from all penal and correctional institu¬
tions.
-62-
11514 State and Local
Delaware
No. 75-76
COMMENT AND OPINION
TAXPAYERS' LEAGUE OP DELAWARE. Public Welfare administration in
De lav/are. (cont'd.)
(75
cont'd.) (4) The management and supervision of all
poor relief activities of the State,
the Board of Public Welfare functioning
as a mothers' pension commission, as
trustees of the poor, as an old age
pension commission and as the agent of
any other form of public relief now or
hereafter provided by the State.
(5) The care and supervision of all special
defective classes.
(6) The licensing and supervision of all
charitable, benevolent and. other agencies
in Delaware, having a public welfare
purpose and wnich, for this purpose,
solicit contributions from State, county,
or municipal governments, or from pri¬
vate persons.
(7) The maintenance of an ad.equate, uniform
system of records and statistics of the
activities and finances of all public
and. private welfare agencies, and the
publication of reuorts and. d.ata on
public welfare conditions in the State.
(8) The control of all appropriations for the
State for public welfare purposes, includ.-
ing those made to private agencies.
(9) The development of institutional coopera¬
tion in distribution of their products,
and the elimination of unnecessary dupli¬
cation of institutional production, equip¬
ment, personnel and effort.
(76) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest
of public welfare provisions under the laws of the State of Delaware.
Prepared by Robert C. Lowe and staff, Legal Research Section. April
15, 1S36. 2 P.I., pp. 701-763. 1 organization chart.
Digest of public welfare provisions, pp. 701-710; digest of adminis¬
trative provisions, pp. 712-763.
-63-
11514
COMMENT AID OPINION
State and Local
District of Columbia,
Florida.
Fo. 77-50
f DISTRICT OF COLUMBIA
(77) ADVISORY CQDvIITTEE OF FISCAL RELATIONS STUDY, UNITED STATES AID
DISTRICT OF COLUMBIA. Board of Fhblic Welfare. p. 177 in its re-ort.
Jan. P, 1937, 244 pu."
Xno'"n as "The Jacobs Report"; J. L. Jacobs was director of the
Survey, phe above item is a replica of the set-up only of the
board of Dibble Welfare of the District.
! 'FLORIDA |
(78) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Florida. Table in his; Centripetal Force. 19.35. See
Mo30."
(79) GOVERNOR OF FLORIDA, THE EOF. DAVE SCEOLTZ. Inaugural address. Jan.
5, 1937. 43 pp.
On p. 17 Gov. Scholtz says: "Our State was one of the few states
that accomplished the task of translating the E lergency Relief
Administration into a permanent Department for Social Welfare
without the loss of time, money or experienced staff."
(80) LUNDBEEG, EMMA 0. Organization of county welfare service; state
welfare service, pp. 30-4-3 in her: Social Welfare in Florida.
Tallahassee?, 1934. 219 pp. tables and charts.
Preceded by a general commentary on county and stale boards
resp., and their relationship, the author says of Florida
count-"- boards (p. 35) that "legal orovision is not a new
proposal in Florida." Originating with a. county child welfare
board bill sponsored, by the America;; Legion Department of
Florida and. which was introduced in 1933, but failed of enact¬
ment, the natter of county welfare boards has been expanded
ir. scope. A measure which subsequently became law is re¬
ferred to in the following entry.
Questions relevant tc welfare organization in Florida are touched,
u.ion throughout this monograph.
-64-
State and Local
11514 Florida, Georgia
No. 81-84
COMMENT AND OPINION
(81) LUNDBEDG, EMMA 0. A State plans social welfare reconstruction.
(The Family, vol . 15, March, 1034, pp. 38-42.)
This is a study rather of activity than of administrative
reorganization, and activities especially of the emergency
relief character. Concerning administration, however,
there is a section on the organization of county welfare
services and the County Welfare Board bill. This measure
became law without approval on June 10, 1935^", and it
created a county welfare board in each county having a
population of over 170,000 as of the U. S. Census of 1930.
(82) MILLSPAUGH, ARTHUR C. Characteristics of State institutions: Florida..
t>. 155 in his: Public Welfare Organization. Washington, D. C.: Brook¬
ings Institution, 1935. xxv, 700 pp.
In Florida, welfare functions are shared by at least 23 agencies,
12 of which are primarily in the welfare field. Of these, 8 are
controlling and directing boards; but only 2 are institutional
managing boards. The State has both a general service agency -
the State Board of Public Welfare, created in 1927 - and a cen¬
tral control agency - the Board of Commissioners of State Insti¬
tutions. The latter body is wholly ex-officio.
(83) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest
of nubile welfare provisions under the laws of the State of Florida.
Prepared by Robert C. Lowe and Staff, Legal Research Section. March
30, 1936. 2 p.l., pp. 801-873. 1 organization chart,
Digest of public welfare provisions, pp. 801-811; digest of ad¬
ministrative provisions, pp. 814-873.
1Florida Laws of 1935, ch. 17480.
! GEORGIA
(84) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Georgia. Table in his: Centripetal Force. 1935. See
No. 30.
-65-
11514 State and Local
Georgian
No. 85-86
COMMENT AND OPINION
(85) GOVERNOR OF GEORGIA, THE HON. E. D. RI TORS. In^igural Mr a sago to the
legislature a.t the regular session, Jan. 12, 1937.
"The poorhouse method of caring for our dependent aged
must go, as must the potters' fields. We must provide
for our old people with adequate, dignified subsistence
curing their declining years. In 1850 only one person
in every 35 was over 65. Today one person out of every
14 is past 65. Medical science has prolonged the life of
old people. No longer is ripe old age a blessing bestowed
only upon persons with wrought-iron constitutions. Even
in boom times less than half of our elderly persons can
find employment, and very few of that half can find em¬
ployment at manual labor. The advent of the machine and
the large increase in our population have served to make
the solution of this problem more difficult. The only
satisfactory answer to it is old age pensions.
Every eleemosynary institution of the state is crowded
beyond capacity, in need of repairs and stands as a
challenge to the humanitarian purposes of Georgia's
people. This challenge will be met whole-heartedly
and fully. We must not permit our tubercular peoole
to languish and die for lack of facilities at Alto.
We must not confine our insane in firetraps and. in
Jails. We must not permit unfortunate children to
remain on waiting lists because of lack of facilities
at Gracewcod.
Our schools for the deaf, our girls' and boys' train¬
ing schools, our academy for the blind., and all of our
other eleemosynary institutions must be adequately sup¬
ported and. properly erparded."
(3°) , THE HON. E. D. RIVERS. Message to the legis¬
lature at the regular session. January 27. 1937.
"In this connection, I recommend, that the department of Public
Welfare be given sufficient latitude to enable it to co-ordinate
the administration of the various eleemosynary institutions with
other departments of the state government peculiarly fitted to
administer, wholly or partially, any given institution. For ex¬
ample: At least a part--if not all —of the administration of the
state sanitorium at Alto can, in my opinion, best be handled, by
the Department of Health and so on with the various institutions
and other departments of the government. Therefore, latitude
should be given to the transfer of the eleemosynary institutions
to the Department of Public Welfare, so that the Department of
-66-
11514
COMMENT AND OPINION
State and Local
Georgia
No. 86-89
GOVERNOR OP GEORGIA, THE HON. E. D. RIVERS. Message, (cont'd.)
(86
cont'd.) Public Welfare can co-operate with and delegate to any other ap¬
propriate department of the government the whole or a part of the
administrative activities of these various eleemosynary institu¬
tions. It may later, based in our experience, be proper to trans¬
fer entirely some of these institutions, including especially the
sanatorium at Alto, the sanitarium at Milledgeville and the insti¬
tution at Gracewood, directly to the State Board of Health. Never¬
theless, it will probably be better at this time to let the whole
activity of the Board of Control be transferred, to the Department
of Public Welfare and then with the latitude, as I have recommended,
based on the experience of that operation, cLetermine whether a full
and complete transfer of administration elsewhere should be made
safe.
In giving the Department of Public Welfare authority to administer
old-age pensions and other forms of social security, as well as
the eleemosynary institutions, it will, of course, be necessary to
revise the laws with reference to the Department of Public Welfare.
I recommend that this revision be made immediately. The federal
government, in some instances, furnishes the total amount of admin¬
istrative cost of this activity by the Department of Public Welfare,
and in some instances furnishes a mart of the administrative costs.
So that, while the Denartment of Public Welfare will of necessity be
somewhe.t expanded in its activities, by reason of these recommenda¬
tions, the expense of such expansion will be largely, and probably
almost completely, borne by the federal government. It will be the
purpose of trais administration, when so authorized by a. revision of
the laws as recommended, to secure to the utmost all possible ad¬
ministrative costs available from the federal government."
(87) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Georgia,
p. 165 in his: Public Welfare Organization. Washington, D. C.: Brookings
Institution, 1935. xxv, 700 pp.
In Georgia, sweeping consolidations of State agencies were ap¬
proved by the legislature in 1930. Only 8 separate agencies
participate in welfare functions; and only 3 are primarily wel¬
fare agencies, viz.: the Board of Control of Eleemosynary Insti-
trtions, the Prison Commission and the State Service Officer.
(88) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Analysis
of constitutional provisions affecting public welfare in the State of
Georgia. Oct. 1, 1936. Prepared by Robert C. Lowe and Helen R. Sherfey.
20 pp.
(89) Digest of public welfare provisions under the laws of the State of
Georgia. Prepared by Robert C. Lowe and James S. Queen. December 1,
1935. 2 p.l., pp. 901-949. 1 organization chart.
-67-
11514
State and Local
Idaho
No. 90-92
COMMENT AND OPINION
I IDAHO I
(90) BUCK, ARTHUR EUGENE. Administrative consolidation plans in operation,
pp. 11-12 in his: Administrative Consolidation in State Governments.
1930. 59 pp.
"Without a preliminary survey, "but with the backing of Governor
Davis, the 1919 Idaho legislature passed as an emergency measure
an administrative consolidation a.ct. The act abolished some 50
offices, boards and commissions and consolidated their functions
into 9 departments. These were: agriculture, commerce and indus¬
try, finance, immigration, labor and statistics, law enforcement,
public investments, public welfare, public works, and reclamation.
In 1921 the department of finance was abolished and its work trans¬
ferred to the department of finance.
Each department has a single head. These commissions except the
commissioner of immigration, labor and statistics are appointed by
the governor and removable by him at his pleasure. Each commissioner
receives an annual salary of $^600. The commissioners with the ap¬
proval of the Governor, fix all other salaries, but not to exceed
the amount appropriated by the legislature. Twelve subordinate
officers specifically provided for in the act are appointed by the
Governor and placed under the control of the commissioners. However,
the internal organization of each department is left largely to the
discretion of the commissioner.
The department of public welfare directs the State sanitorium and
the soldiers' borne. It also exercises functions in connection with
public health and food inspection.
Governor Davis said in connection with the plan: "Greater efficiency,
increased revenue and reduced expenditures have justified the changes
made."
, , / /
(91) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Idaho. Table in his: Centripetal Force. 1935. See
No. 30.
(92) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Idaho,
pp. 165 in his: Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pp.
Idaho, which reorganized, consolidated and centralized in 1919,
has a single headed Department of Welfare and an ex-officio
Board of Prison Commissioners. The Department of Public Welfare,
like the Board of Public Welfare in New Mexico, exercises both
public health ana public welfare functions. Besides acting as
a health office, it directs, controls and supervises the State
hospitals, the schools and Colony for the Mentally Deficient,
-68-
11514
COMMENT AND OPINION
State and Local
Idaho, Illinois
No. 92-94
MILLSPAUGH, ARTHUR C. Characteristics of State organization; Idaho,
(cont1d)
(92
cont'd.) and the Soldiers' Home, provides for treatment of the tubercu¬
lous, licenses lying-in hospitals, arid prescribes forms for
administration of old-age pensions. The Penitentiary, however,
is administered by the Board of Prison Commissioners. In Idaho,
the Training school for Juvenile Delinquents is managed by the
State Board of Education, which is also the Board of Regents
of the University.
(93) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest
of public welfare provision under the laws of the State of Idaho.
Prepared by Robert C. Lowe and James S. Queen, Legal Research Section.
July 15, 1936. 2 p.l., pp. 1001-1064. 1 organization chart.
Digest of public welfare provisions, pp. 1001-1012; digest of
administrative provisions, pp. 1014-1064.
| ILLINOIS
(94) BUCK, ARTHUR EUGENE. Administrative consolidation plan in operation.
pp. 7-<ll in'his: Administrative consolidation in State governments.
1930. 59 pp.
The first comprehensive plan of administrative consolidation was
adopted in Illinois in 1917. An act ca]led the civil administrative
code was drafted and passed the 1917 legislature. The civil admin¬
istrative code abolished more than 100 statutory offices, departments,
boards and agencies and consolidated their functions under 9 depart¬
ments, namely finance, agriculture, labor, mines and minerals, public
works and buildings, public welfare, public health, trade and com¬
merce and registration and education. In 1925 two additional depart¬
ments were created, those of purchases and construction, and con¬
servation.
Each department has a director appointed by the governor with the
approval of the Senate. Originally the term of each director was
4 years, but in 1929 it was changed to 2 years. The subordinate
officers are appointed by the governor with the Senate's approval
but they are under the control of their respective department heads.
Each department is empowered to appoint its employees subject to
the civil service regulations of the state.
Whenever quasi-judicial or quasi-legislative functions arc included
in the work of the code departments, boards are provided to perform
such functions. A parole board is provided for the department of
public welfare. The members of the boards are appointed by the
Governor with the Senate's approval. The parole board serves for a
term of 2 years.
-69-
11514 State and Local
Illinois
No. 94-96
COMMENT AND OPINION
BUCK, ARTHUR EUGENE. Administrative consolidation plan in operation.
(94 (cont'd.)
cont'd.) An advisory board is attached to the department of public welfare to
assist the director and the governor in determining policies. The
department of public welfare has jurisdiction over all charitable,
penal and reformatory institutions in the State.
The Illinois system has been-in operation over 12 years. During
most of this time it has been administered by a governor to whom
political patronage loomed large, but it has not failed as many
thought it would. That it has given the people of Illinois better
service than they formerly got and at less cost, there can be little
doubt.
✓ /
(95) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Illinois. Table in his: Centripetal Force. 1935. See
No. 30.
(96) GOVERNOR OF ILLINOIS, THE HON. HENRY HORNER. Message to the legis¬
lature at the regular session Jan. 11, 1937.
"The furnishing of assistance to needy blind persons and to
dependent children are not new activities of government in this
State. Our present law in relation to the administration of
such assistance should be changed to comply with the National
"Social Security Act." By doing so, Illinois will receive from
the Federal treasury one-half of the amount expended by us for
aid to the blind and one-third of the amount expended by us for
aid to dependent children. I urged the 59th General Assembly
at its first special session to make these changes in the law,
but without success.
Many qualified blind oersons and needy mothers with minor
children have been denied assistance because of Illinois'
failure to embrace the opportunity for this aid from the Fed¬
eral government. The acceptance of the terms of the Federal
government will enable us to provide for assistance to many
blind persons and dependent minor children in addition to
those we are caring for. I recommend that legislation along
these lines be enacted without delay as emergency measures to
take effect immediately upon their passage.
The fiscal years of 1935-1936 will be a memorable period in
the history of Illinois charitable and penal institutions
and its welfare services. The State through its Department
of Public Welfare has zealously responded to its responsibili¬
ties to the wards of our State, in and out of our welfare
-70-
11514 State and Local
Illinois
No. 96-97
COMMENT AND OPINION
GOVERNOR OF ILLINOIS, the Eon. Henry Horner- Message to the legislature.
(95 (cont'd.)
cont'd.). institutions. Our extensive building program to rehabilitate
and enlarge our State institutions has proceeded with speed
and along sound lines. Lack of permanent improvements in
recent years, coupled with a constantly increasing population
in the State hospitals and welfare institutions, had created
a lamentable condition of over-crowding by January 1, 1933,
which demanded summary action on a large scale. The Fifty-
ninth General Assembly accordingly appropriated for ? building
program the sum of fourteen million dollars, to which was
added approximately $5,500,000 of Federal PWA grants. Some
of these projects are now completed and practically all of
this appropriation is now under contract, and work is under
way. These improvements will provide a total of more than
10,000 beds with the result that for the first time probably
in the entire history of Illinois, every one of its wards
will have a bed and a decent standard of floor and air space.
We have made great improvements in bookkeeping,' record keep¬
ing and accounting in our institutions and in the care given
the charges of the State.
The organizations of the State division for administering old
age assistance and the one hundred and two county units, was
a tremendous task. It was a new field and we had no pattern
to follow. Yet, within a few months, the division of Old
Age Assistance was fully and effectively organized and has
now placed upon the assistance rolls of this State approxi¬
mately 100,000 names of needy, aged citizens. This number
is larger than the number thus assisted in any State of the
Union.
We would do well to consider again the very practical recom¬
mendation made by the excellent commission of which Mr.
Otto Doering was the chairman, submitted to a prior General
Assembly, for a single agency of the State, cooperating
with like single agencies or units in each of the counties
of the State, for the administration o-p all forms of public
assistance outside of institutions."
(97) HASSE, A. R. Maintenance, city, county, -private and State, of de¬
fectives, delinquents and dependents, pp. 267-297 in Index of
Economic Material in Documents of the State of Illinois. Washing¬
ton, D. C., Carnegie Institution of Washington. 393 p.
Analysis of reports, Governors' messages, etc., 1809-1904;
history of organization of state and county agencies.
-71-
11514
COMMENT AND OPINION
State and Local
Illinois
No. 98
(98) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Illinois,
pp. 170-171, 509-510 in his: Public Welfare Organization. Washington,
D. C.: Brookings Institution, 1935 xxv, 700 pp.
"Illinois, in 1917, was the first State to carry out comprehensive
reorganization with drastic consolidations. Institutional develop¬
ment had begun with the establishment of a penitentiary in 1827.
As each new institution was constructed, it was given a separate
managing board. Without abolishing these boards, there was estab¬
lished in 1869, a supervisory Board of Commissioners of Public
Charities. This Board, in 1900, recommended its own abolition
as well as the elimination of 15 boards of trustees, suggesting
the transfer of their functions to a Board of Control. A cam¬
paign for reorganization, followed by factional agitation, re¬
sulted in the establishment in 1909 of a Board of Administration
a.nd the abolition of 17 managing boards of charitable institutions.
The Board of Commissioners of Public Charities was, at the same
time, changed to a Charities Commission possessing visitorial
duties. Up to 1917, correctional administration was differentiated
from other parts of the welfare field.
A comprehensive reorganization was effected through enactment of
the Civil Administrative Codes in 1917. The apparent intention
was to obtain uniformity in all fields of administration, simplic¬
ity, integration, and definite concentration of authority and
responsibility in the Governor. All institutional managing boards
were abolished and all institutions were brought under the control
of a Department of Public Welfa.re, headed by a Director appointed
by the Governor, but with the advice and consent of the Senate.
Although most of the welfare field is ostensibly integrated under
the Department of Public Welfa.re, it is possible for this agency
to experience a serious measure of disintegration. This is due
to the fact that, while the Director of Public Welfare is appointed
by the Governor with the Senate's approval, 6 other principal
officials of the department are appointed in the same manner. At
least one of these officials now functions in effect independently
of the Director of Public Welfare. Technically, Illinois has at
present 21 separate agencies exercising welfare functions and 11
primarily in the welfare field.
Illinois has had for a number of years an approximately single-
headed and a substantially integrated public welfare organization,
as well as a civil service system; yet the Committee on Child Wel¬
fare Legislation remarked in 1931, with respect to the staff of the
Department of Public Welfare: 'Some states can be found with stan¬
dards no higher than Illinois, but it would be difficult to find
many with lower standards.' The same Committee declared that 'the
scope of the child welfare activities of the Illinois Department
Public Welfare are decidedly limited when compared with those of
other states.'"
-72-
11514
COMMENT AND OPINION
State and Local
Illinois
No. 9j
(99) STAFFORD, PAUL T. Illinois welfare administration, pp. 31-32 in his:
State Welfare Administration in New Jersey. Trenton, 1934. 136 pp.
"Illinois established in 1917 a Department of Public Welfare under
the control of a director appointed by the Governor for a term
coterminous with that of the Governor. Except for the purchasing
of supplies, the construction and repair of the institutions and
the supervision of power plants, the control of all State welfare
work and State welfare institutions was placed in the director.
The institutional heads and chief assistants to the director
became appointees of the Governor for the same term of office as
the director. The law further provided for a board of welfare
commissioners appointed by the Governor to serve at his pleasure
and to advise the director on departmental policy.
Until 1909 each State institution had been controlled by a board
of trustees, the only central supervision being the inspectional
work of the State Board of Charities. In 1909 the separate boards
for all the institutions, except the correctional, were abolished
and their functions transferred to a Board of Administration com¬
posed of 5 salaried members, appointed by the Governor with the
consent of the Senate for a term of six years. The penal institu¬
tions continued to be controlled by a separate board of trustees.
The State Board of Public Charities was replaced by a Charities
Commission, an inspection agency for the charitable institutions.
Under this plan some improvement was made in the standards of
treatment in the charitable institutions but the administration
of the central board was influenced by partisan politics. The
reorganization act in 1S17 abolished the board, the commission
and the boards of trustees of the correctional institutions.
In 1920 an impartial observer reported that the new system was
operating with considerable success. Two organizational defects
were noted, however. In the first place the 3oard of Welfare
Commissioners was not in a position to give the director impartial
advice because it was controlled by the Governor; and secondly,
the system gave no security of tenure to the chief administrative
officers of the department.
Governor Lew Small, who replaced Governor Lowden in 1921, appointed
a new director of the department, displaced four superintendents
of state mental hospitals with four doctors who had no great ex¬
perience in the treatment of mental disen.se, removed expert heads
of 4 other state institutions p,nd put in their places laymen.
In 1929 when Governor Louis E. Emmerson succeeded Governor Small,
a new director was appointed as well as several of the chief
assistants in the central office. A constructive program could
hardly oe planned and followed with a change in manager every few
years."
-73-
11514
COMMENT AND OPINION
State and Local
Illinois
No. 100
(100) TIMMONS, B. P. Experience in county public welfare organization
and administration as a basis for planning in Illinois. Social
Forces. Dec., 1936, pp. 048-254.
"While some 20 States have tried the county plan in some form,
including North Carolina, Minnesota, Alabama, Pennsylvania
and California, and have experimented over a fairly long
period in large proportions of their areas with results that
recommend the plan, Illinois is not altogether lacking in
actual experience with county-wide welfare administration.
Practically one half the population of the State has been meet¬
ing its welfare problems since 1925 through the administra¬
tive machinery provided by the Cook County Bureau of Public
Welfare. Relief to the indigent has been included in the
responsibilities of this county wide organization. While
the problems of organization and administration in a county
with nearly 4,000,000 people must necessarily differ some-
what from the problems in smaller and more rural counties,
the advantages of the principle of coordination are equally
important in each type of county.
Several other Illinois counties besides Cook County have ex¬
perimented with administrative organization which ha.s par¬
taken of some of the features of the county welfare unit.
The writer ha.s attempted to collect factual information re¬
garding these experiments, the most salient features of which
are reviewed in the following paragraphs. While only four
counties will be included in this summary, experiments of
similar nature may have been carried on in other counties of
the state which it was not possible to discover because of
lack of time and means available for the study.
In the four counties chosen, viz.: DeWitt, Tazewell, Logan
and Sangamon, the county plan vras evidently set up with special
reference to relief for the poor- In DeWitt county the unified
administration was in force for only a very short period, 4
months, in Tazewell County from July, 1929 to Dec., 1930, in
Logan County since 1926, in Sangamon County since 1921. The
.tf'inn Law, effective June 1931, turned relief administration and
financing back to the several tomships, making county-wide re¬
lief administration very difficult, if not impossible, as
long as this statute was in force. On July 1, 1935, relief
responsibility was again transferred to the county board, only
to be returned to townships on July 1, 1936.
If greater efficiency and economy have been effected by sub¬
stituting county wide administration of poor relief for the
less integrated administration of the supervisors, as illus¬
trated by the four counties reviewed, it is believed that still
-74-
11514
COMMENT AND OPINION
State and Local
Illinois
No. 100 cont'd.
TIMMONS, B. F. Experience in county public welfare organization and ad¬
ministration. (cont'd.)
(100
cont'd.) further advantages could be secured by coordinating all the
welfare services of a county in one integrated county ad¬
ministration of welfare. Previous to the enactment of the
provisions for administering old age assistance through county
and district welfare departments in counties of less than 500,000
there have existed laws in Illinois permitting a number of
county wide administered welfare services functioning inde¬
pendently of each other. A comprehensive plan of coordinating
all these services, along with the new services of the social
security legislation as they become effective in the state,
under one county welfare department properly related to the
state Department of Public Welfare for insuring standards and
making reports would, have a great deal to commend it to the
citizens of the state. Such a plan would not necessitate
the displacement of the regularly elected officers of the
county or the county commissioners or supervisors.
The commissioners or supervisors would still have the power
of appropriation. The judge of the Juvenile Court would still
have all his present functions. But these officials would
have the aid of the county welfare board, representing the
best intelligence and public spirit of the county, in attempt¬
ing the solution of the welfare problems of the county.
Legislation passed by the 59th General Assembly (Jan.-Je., 1935)
providing for county boards of public welfare commissioners and
county superintendents of public welfare with the county and
state cooperating with the federal government in financing and
setting standards for old age assistance, represents the largest
step forward yet taken in the direction of a county welfare unit
in Illinois. If a number of counties will take advantage of the
opportunity permitted by this legislation and will extend the
administrative control of the county board of welfare commissioners
to include all the county welfare services possible, a fine ex¬
perimental trial of the county unit plan will thereby be provided
as a criterion for further development of coiuity welfa,re practice
in this state. Such experimentation would seem to be greatly
desirable unless and until more definite leg:" slation is enacted
toward, this goal, and in any case experience will prove valuable
in sha,ping necessary legislation and in its practical adminis¬
tration."
-75-
11514
I INDIANA
State and Local
Indiana
No. 101-102
(101) BUCK, ARTHUR EUGENE. Proposed consolidation plans. pp. 53-54 in
his: Administrative Consolidation of State Government. 1930. 59 pp.
Governor Jackson, following his election in November, 1924,
appointed a committee to survey State administrative organiza¬
tion and to determine possible consolidation. The committee,
in its report, made in January, 1925, recommended few changes.
It would not even entertain the idea of single board control,
to say nothing of single individual control for the charitable
and reformatory institutions of the State. It recommended that
the existing arrangement, under which each institution is gov¬
erned by a bipartisan board of control, should be continued.
No consolidation of note was recommended.
(102) BUTLER, AMOS W. The Indiana plan of supervision, pp. 122-24 in
Annals. American Academy of Political and Social Science, vol.
105, Jan., 1923. Philadelphia; The Academy, 1923. vi, 282 p.
"A board of state charities or of public welfare, is a non¬
partisan board, created by the legislature, appointed by the
Governor, to have supervision of the whole system of public
charities of the State. The ideal board would have no ad¬
ministrative functions. Such a board would have an executive
secretary, trained and experienced in social work.
The Indiana Board was created in 1889 and when it came into
existence the conditions in the state were in some cases
very regrettable.
Conditions at the time were as follows:
In State Charities:
Institutions under political control.
No statutory authority for their supervision and inspection.
Frequent sc?-mdals.
Institutions often in turmoil.
The legislature, meeting biennially, was the only means for
investigation.
No uniformity in accounting.
No standardization of work or methods.
In Local Charities:
Expenditure for outdoor relief enormous.
Many county institutions in deplorable condition.
Number of dependents increasing steadily.
Indiana a dumping ground for dependents in other states.
-76-
11514
COMMENT AND OPINION
State and Local
Indiana
No. 102 (cont'd.)
BUTLER, AMOS W. The Indiana ulan of supervision, (cont'd.)
(102
cont'd.) At this time the institutions were managed by boards having
varying membership, condition and rates of compensation, op¬
erating under different laws and having different duties.
There was no authority for supervision or investigation except
such as might come out of the biennial sessions of the legis¬
lature. Now the institutions are all on a non-partisan basis.
They operate, with one or two exceptions, under the Uniform
State Institution law.
Some of the results in Indiana since the creation of the State
Board of Charities, are summed up as follows:
In State Charities:
Non-partisan administration under a Uniform State Law.
All appointments on the merit system.
Improved records and uniform methods of accounting.
Continuous supervision.
Frequent inspection.
All complaints promptly investigated.
Improved institutional methods.
Better standards of administration and of care of
inmates.
A number of measures for prison reform adopted.
In Local Charities:
Official poor relief better administered and greatly
reduced.
The number of dependents proportionately lessened.
Better standards in orphan's homes, poor asylums
and jails.
All dependent and neglected children, public charges,
wards of the State, under the oversight of the Board
of State Charities.
Family homes for a large number of dependent children.
The law regulating the importation of dependent chil¬
dren enforced.
All child-caring institutions and associations and
maternity hospitals required to have an annual
license.
Compulsory school attendance.
An aroused public interest.
The confidence of the neople and the support of the
press secured.
In Indiana, the effort has been to build and improve upon the
foundation we have. There have been no revolutionary movements
or overturning of the entire system. Everything sought has
not been accomplished; but on the whole satisfactory progress
has been made."
-77-
11514
State and Local
Indiana
No. 103-104
COMMENT AND OPINION
(103) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Indiana. Table in his: Centripetal Force. 1935. See
No. 30.
(104) GOVERNOR OF INDIANA, THE HON. M. CLIFFORD TOWNSEND. Message to
the legislature at the regular session, Jan. 12, 1937-
"And now I would draw your attention to the institutional
and public welfare problems of our state government,
Through the depression we v/ere not financially able to
do much toimrd the improvement of our state penal and
benevolent institutions. We have done only th-~t which
we had thought to be absolutely necessary for the peace
and safety of our citizenry. We were not financially
able to keep abreast of the needs of the times either in
the matter of adequate housing or scientific administration.
Bear in mind that four years ago we inherited nineteen
state institutions upon which a urogram of false economy
had been practiced for sixteen years. In most of these
institutions both the housing and the administrative
methods were sadly in need of repair and modernization.
The retiring administration has made a beginning in both
directions. The housing problem has been tackled and es¬
sential repairs made, but new buildings are needed.
The administrative problem has been approached, on the in¬
vitation of Governor McNutt, by nationally known experts.
The program has been outlined and we know what we should
do, but we need the support and understanding of the public
and of our legislators. For example, one study of our
prison reform and probationary system already has been
made by such eminent authorities as Warden Lewis E. Lawes
of New York, Sanford Bates, director of the United States
Bureau of Prisons, .and others. They have recommended
central supervision of prison management, with classifica¬
tion and transfer of prisoners according to case records.
That power was written into law in the special session
of 1936, which consolidated all welfare and institutional
supervision under the State Department of Public Welfare.
Just now another survey of our penal and correctional in¬
stitutions is being started by the Federal prison indus¬
tries reorganization administration for the purpose of
finding a solution of our Prison labor problems.
-78-
11514
COMMENT AND OPINION
State and Local
Indiana
No. 104 (cont'd.)
GOVERNOR OF INDIANA, THE HON. M. CLIFFORD TOWNSEND.
Message to the Legislature. (cont'd.)
(104
cont'd.) As I have indicated the Department of Public Nelfare has
been established as the ninth principal department of our
state government. Into this department have been grouped
all the public welfare responsibilities of the state. The
work of various former boards and commissions which, al¬
though alike in character and purpose and serving the same
ends, was unrelated in administration, now has been inte¬
grated into one department.
One nonpartisan board is the administrative head of the
new department and the personnel is being selected upon
the merit system. The function of the Welfare Department
is supervisory, and it exercises this single-headed super¬
vision with planned economy and social purpose over the
institutions and agencies which have the care of our un¬
fortunate and neglected children, the crippled children,
dependent children, needy aged, needy blind, inmates of
hospitals for the insane, the feebleminded, the epileptic.
It might be said that our new State Department of Public
Welfare is a consolidation of the social administrative
problems with which our state government had many expe¬
riences through the emergency relief period. It is not
only a vital part of our social security program in
Indiana, in so far as it concerns the distribution of
public assistance to the needy aged, the blind end the
dependent children, with help of Federal grants in aid,
but it also consolidates into a workable, humane and
intelligently constructed organization, Indiana's own
program for the care of her dependents, unfortunates
and wards.
Here we have an opportunity for Indiana to give new
leadership in the field of institutional management;
an opportunity to enhance the glory of the name of
Indiana, which, in years past has stood for progress
in the treatment of public social problems. Indiana
has become a leader in public education, bank super¬
vision, conservation, highway construction, and in many
other ways these past four years with the help of the
majority of your members of the Legislature here before
me. It is now time that our state takes the leadership
in the advancement of social security, public welfare
and public safety.
Our social security program in Indiana is complete in
so far as it bears cooperative relation to the national
social security program. Under the Indiana Unemploy¬
ment Compensation Law we participate fully in the
-79-
11514 State and Local
Indiana
No. 104-105
COMMENT AND OPINION
GOVERNOR OF INDIANA, THE HON. M. CLIFFORD TOWNSEND. Message to the
legislature, (cont'd)
(104
cont'd.) phases of the Federal law regarding aid to jobless
individuals. We are participating with matched dollars
in the granting of assistance to the aged, the blind
and the dependent children.
We have a program under way for the extension of child
health and maternal welfare programs into the rural
areas, which is being administered by the State Division
of Public Health. We have Federal-state participation in
vocational training for adults, We have a state plan
for extension of services to crippled children. There
is no phase of the Federal Social Security program in
which we are not interested and doing our part as a state
to bring lasting and worthwhile benefits to our people.
I would urge that this legislative Assembly give eapnest
consideration and thought to methods by which we can make
the most of our social security and welfare programs
for the benefit of all of the people of Indiana. It is
a great new venture in the social responsibilities of
government. It promises untold security, benefits and
happiness to our people. The electorate of Indiana
has given its unqualified sanction to the program's aims
and purposes. It is our duty to hold those objectives
constantly in mind and to work together for the ultimate
sanction to the program'£ aims and purposes. It is our
duty to hold those objectives constantly in mind and to
work together for the ultimate and finest success we
can make out of it. Let's do so without petty partisan
jealousies. If there be need for additional legislation,
let's legislate deliberately and wisely."
(105) INDIANA. STATE COMMITTEE ON GOVERNMENTAL ECONOMY. Public welfare
organization, pp. 198-283 in its Report. Indianapolis, 1935.
743 pp. 16 organization charts, tables, maps.
Indiana has a gread variety of tax supported activities which
are called public welfare work, but it does not have and never
has had, a public welfare system. The General Assembly created
the position of Purchasing agent in 1933, and the Governor ap¬
pointed a committee to increase the sale of institution made
goods to State agencies. These two steps mark the beginning of
a much needed organization.
Local public welfare activities are also unorganized. Until
the advent of the Governor's Commission on Unemployment Relief
and the F. E. R. A., the 1016 township trustees administered
relief according to their several ideas.
-80-
11514
COMMENT AND OPINION
State and Local
Ind iana
No. 105 cont'd.
INDIANA. STATE COMMITTEE ON GOVERNMENTAL ECONOMY. Fublic welfare
organization, (cont'd.)
(105
cont'd.) The present department of welfare was known until 1933 as the
Indiana Board of State Charities and Corrections. After the
change in name, no changes in its duties were made, pending
a study of the several welfare institutions and agencies. The
department, as now organized, carries on the following activi¬
ties:
1) Publication of welfare statistics, State and local
2) Placement and visiting of children.
3) Licensing children's institutional, homes.
4) Licensing maternity hospitals.
5) Inspection of county poor asylums and jails.
6) Enforcement of domestic deportation law.
7) Investigations of institutions and agencies,
and reports to Governor.
In contrast to these functions is the actual range of public wel¬
fare functions carried on in the State. These include:
Hospitals for the insane
Colony for epileptics
Institutions for feeble minded
Penal and correctional institutions
Tuberculosis Sanitarium
State General Hospitals
1, Schools for Deaf and Blind
Soldiers and Sailors orphan asylum
Agencies for dependent and neglected children
Poor asylums
Township trustees
County jails
Probation and parole agencies.
All of the public welfare activities, whether State or local,
should be organized into a closely knit system so that the
maximum opportunity is presented for care and rehabilitation.
- County "Welfare Organization -
(a) The present law provides for the appointment of 6 perse s by the
judge of the circuit court to be the county board of charities
and corrections. They serve 3 years. They must visit all chari¬
table and correctional institutions in the county once each quar¬
ter, and submit a report to the county commissioners. These boards
have no administrative authority and no power to appoint qualified
supervisors for welfare work.
—81—
11514
COMMENT AND OPINION
State and Local
Indiana
No. 105 cont'd.
INDIANA. STATE COMMITTEE ON GOVERNMENTAL ECONOMY. Public welfare
organization, (cont'd.)
(105
cont'd.) Efficiency and economy would be served by rewriting the law con¬
cerning the county board of charities and corrections.
The name should be changed to county board of public welfare, and it
should be given the responsibility for carrying on all the isolated
public welfare activities. It should remain an unpaid board but
should have responsibility for appointing a competent welfare direct¬
or of public welfare, subject to the approval of the State Depart¬
ment of welfare, and the method of appointing board members should
be changed to get a better public representation.
The Committee recommends the following general organization of pub¬
lic welfare work for Indiana:
Indiana State department of public welfare. This department
should be headed by a board of 9 members, appointed for 4
year overlapping terms. Powers of the board should be: l) Ap¬
pointment of a director, with the approval of the Governor.
2) Review of budget of each institution as prepared by each
superintendent. 3) A budget for the executive department
should be prepared by the director and submitted to the board
for presentation to the General Assembly. 4) Control over
capital expenditures in institutions. 5) Responsibility for
the conduct of the institutions. 6) Plan future construction-
of institutions. 7) Power to transfer inimates from one in¬
stitution to another. 8) Power to remove and appoint offi¬
cials in institutions and department office on recommendation
of the director, except in certain cases. 9) Board should
meet bi-monthly. 10) The director should have complete auth¬
ority in all matters of administration on which the board has
adopted policies.
The State department office should be divided into the following
bureaus: l) Bureau of Classification, Education and Rehabili¬
tation. 2) Bureau of Business management, statistics and accounts,
3) Bureau of Probation, Pardon and Parole. 4) Bureau of Physical
and Mental Health. 5) Bureau of Child Welfare. 6) Bureau of
Relief.
The law should provide for the selection of personnel in the
department according to a merit plan.
The retirement age of all employees, including executives for the
state department and institutions should be 65 years, A pension
plan, actuarially determined, should be set up for the retirement
of employees into which both state and employers would put speci¬
fied amounts based on annual salary.
-82-
11514
COMMENT AND OPINION
State and Local
Indiana
No. 105-106
INDIANA. STATE COMMITTEE ON GOVERNMENTAL ECONOMY. Public welfare
organization, (cont'd)
(105
cont'd.) The county board of public welfare should consist of 7 members
(b) with overlapping terms of 4 years. The board should be appointed
by the county council and should serve without compensation, but
should receive travel expenses.
The powers of the board should be: l) Selection of director from
an elgible list set up by the state department. 2) Approval of
budget prepared by director, and presentation of it to county
council. 3) Supervision of expenditures for institutions. 4)
Approval of apnointments to the staff, according to a merit system.
The activities of the Department should be: l) Operation of a
county.social service exchange. 2) Granting and supervision of
mother's aid and old age pensions. 3) Administration of outdoor
relief. 4) Supervision of poor asylums, jails and hospitals.
5) Supervision of dependent and neglected children. 6) Pro¬
bation and parole.
(106) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Indiana.
pp. 150-151 in his: Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pp.
"Indiana's organization is difficult either to classify or de¬
scribe, since it is at the moment in the r>rocess of reorganization.
The State Executive-Administrative Act of 1933 established 8
departments, viz.: The Executive Department and the Department
of State, Audit and Control, Treasury, law, Education, Public
Works and Commerce and Industries. Public Welfare is assigned
to a division of the Executive Department. The entire adminis¬
trative personnel of the State has been placed under the control
of the Governor. Technically, the administrative organization
has become, by that fact, the most disintegrated in the country,
although from the Governor's point of view it might be interpret¬
ed as a completely centralized organization. Prior to the re¬
organization of 1933, Indiana had a separate bi-partisan board
for each of the institutions. General central supervision was
provided by the Board of State Charities, organized in 1889.
As a result of the reorganization the Board of State Charities,
all of the institutional trustees, as well as the Board of In¬
dustrial Aid for the Blind, have become, in effect, purely
supervisory bodies. The only directing and controlling board
that remains is the State Probation Commission. Public welfare
functions, except those exercised by related agencies and by
the Probation Commission, are now ostensubly concentrated in the
head of the Division of Public Welfare of the Executive Depart¬
ment, but in reality the State continues to possess a multiplic¬
ity of separate welfare agencies - individuals, now instead of
boards. Indiana differs from most states in having made a sharp,
sudden and somewhat arbitrary break with its past, which in pub¬
lic welfare administration was not altogether inglorious."
-83-
11514
COMMENT ANT OPINION
State and Local
Indiana, Iowa
No. 107-109
(107) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Analysis
of Constitutional provisions affecting public welfare in the State of
Indiana, Dec. 31, 1936, Prepared by Robert C. Lowe and David S.
Lander. 11 pp.
(L108) Digest of -public welfare -provisions under the laws of the State
of Indiana. Prepared by Robert C. Lowe and John A, Hanley, Legal
Research Section. June 30, 1936. 2 p.l., pp. 1201-1233. 1 organiza¬
tion chart.
Digest of public welfare provisions, pp. 1201-1212; digest of ad¬
ministrative provisions, pp. 1214-1283.
IOWA
(109) BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public
welfare in Iowa, pp. 219-247 in Report on a survey of Adminis¬
tration in Iowa. Des Moines, 1933. xiii, 653,170 pp. tables.
2 vols.
"Iowa is a state of interesting contrasts in the matter of
her welfare organization. There is a centralized system of
institutional management and control, but a glaring lack of
coordination of related welfare services; a reasonably adequate
system of institutions, but very little provision for pre-
institutional ca.re and prevention; an excellent hospital and
clinic service for children at the University, but a poorly
staffed entirely inadequate children's bureau for general child-
caring work; and an elaborate system for paroling prisoners,
with entirely inadequate provision for either investigation or
supervision.
Welfare expenditures constitute approximately 26fo of the operat¬
ing expenses of the State, exclusive of high-way costs, and ap¬
proximately 186,o of gross county governmental costs according to
the latest available figures.
The welfare agencies and institutions consist of:
(l) Board of Control of State Institutions.
84-
11514 State and Local
Iowa
No. 109 cont'd.
COMMENT AND OPINION
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public
welfare in Iowa, (cont'd)
(109
cont'd) (2) State Board of Eugenics.
(3) Board of Parole
(4) State Commission for the Blind
(5) University of Iowa Research and Hospital Units
(6) Employment services
(7) State Relief Commission
The following recommendations are made:
A. "Department of public welfare should be created for the management
and control of all state welfare institutions and agencies. The
Department should be headed by a Board of Public Welfare of 3 mem¬
bers, appointed by the Governor, subject to the approval of the
Senate, initially for 2, 4 and 6 years respectively. All subse¬
quent appointments should be selected from the State at large and
not more than two should be of the sane political party. The mem¬
bers should serve without pay except for necessary traveling ex¬
penses. Four regular meetings should be held each year and the
Board should meet on call of the chairman.
The Board of Public Welfare should appoint a Director of Public
Welfare who should serve at the pleasure of the board and who should
be a person trained and having at least 5 years experience in public
welfare administration.
The Director should be executive officer of the Department and in¬
direct charge of all executive and administrative -work of the De¬
partment.
All the powers and duties of the Board of Control should be trans¬
ferred to the Department of Public Welfare.
The activities of the Department should be distributed among seven
divisions, viz.:
(1) Bureau of County Welfare and Relief
(2) Bureau of Child Welfare
(3) Bureau of Mental Hygiene
(4) Bureau of Correction
(5) Bureau of the Handicapped
(6) Bureau of Industries and Equipment
(7) Bureau of Research and Statistics
(8) An Advisory Committee
-85-
21514 State and Local
Iowa
No. 109 cont'd.
COMMENT ANT OPINION
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public
welfare in Iowa, (cont'd.)
(109.
cont'd.) This latter should consist of a district judge designated by the
Governor, the head of the Bureau of Mental Hygiene, and the super*-,
intendent of the institution having charge of the patient or innate
under consideration, to advise with the Director of Public Welfare
in the administration of the parole and eugenics laws of the State.
The State Board of Eugenics should be abolished and its duties
transferred to the Department of Public Welfare.
The State Board of Parole, the Commission for the Blind and the State
Relief Committee should be abolished and their duties transferred to
the Department of Public Welfare.
The duties pertaining to the operation and supervision of county wel¬
fare units should be transferred to the Department. They are now ex¬
ercised by the Social Welfare Bureau of the University of Iowa.
- Local welfare activities and organization -
The welfare activities of the local subdivision of Iowa fall under 3
heads - relief, child welfare and crime and care of the criminal.
The welfare functions of local government in Iowa are administered
in many ways; by boards of supervisors, by township trustees, by
overseers, by special committees,by courts, etc. Coordination of
activities to a large extent has been effected in 28 counties of
the state. In these 28 counties, welfare units have been es¬
tablished and the value of such organization under trained direc¬
tion has been clearly demonstrated. The work even in these places,
however, has suffered because of its voluntary nature, and the
lack of a definite connection with the state's welfare institu¬
tions and agencies.
Recommendations for reorganization of local activities are the
following:
County welfare units should be established in all the counties
of the state. Two or more counties should be enabled to combine,
however, if conditions warrant. The board of supervisors should
appoint the superintendent of public welfare upon nomination of
the State Department of Public Welfare, and the State should re¬
imburse the county for one-half of the administrative expenses
of the county welfare unit, not to exceed $100 per thousand popu¬
lation of the county or counties.
(a) The duties and responsibilities of the county welfare unit should
be the following:
(l) To have charge of the administration of all
public relief in the county.
-86-
11514 State and Local
Iowa
No. 109-112
COMMENT AND OPINION
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public welfare
in Iowa, (cont'd)
(109
cont'd) (2) To act as agent of the State Department of
Public Welfare in all matters pertaining to
the child welfare program.
(3) To provide probation service for the juvenile
and district courts in the county and to super¬
vise all patients or inmates paroled from
state institutions and residing in the county.
(4) In cooperation with the State Bureau of Labor,
to issue labor permits and operate an employment
bureau.
(5) To furnish the State Department of Welfare with
information necessary for the proper operation
of these agencies.
(6) Coordinate the work of the public and private
welfare agencies of the county.
The state use prison system should be extended."
(110) BUCK, ARTHUR EUGENE. Proposed consolidation plans. p?46 in his:
Administrative Consolidation in State Governments. 1930. 59 pp.
In 1913 the Governor of Iowa appointed a committee which engaged
a firm of efficiency engineers to survey the State administra¬
tion. The final report of this form was submitted to the^ com¬
mittee late in 1913. It proposed the establishment of 7 departments,
viz.: agriculture, commerce and industries, public works, public
health, public safety, education and charities and corrections.
The Governor was to be head of the department of public safety and
the heads of the remaining departments were to be appointed by the
Governor with the Senate's approval.
Almost a year after this report was submitted to the committee it
in turn submitted a report to the 1915,legislature. The committee's
report recommended the establishment of 3 departments, viz.: social
progress, industries and public safety. Each department was to
be under the control of a single head appointed by the Governor.
No legislation resulted from the reconmvendations of either report.
(111) ECKER-R., L. L/CsZL(5. Finarrjp.l responsibility for various welfare
activities - Iowa. Table in his: Centripetal Force. 1935. See No. 30.
(112) GOVERNOR OF IOWA, THE HON. NELSON G. KRASCHSL. Message to the legis¬
lature at the regular session, Jan. 14, 1937.
"The State of Iowa maintains fifteen institutions under the
Board of Control. They consist of juvenile homes, hospitals,
penitentiaries and reformatories for the care of our unfor¬
tunate citizens. Most of these institutions operate large
farms in an attempt to produce food requirements at the
lowest possible cost. There are approximately fifteen
-87-
11514 State and Local
Iowa
COMMENT AND OPINION No. 112-115
GOVERNOR OF IOWA, THE HON. NELSON G. KRASCHEL. Message to the legislature.
(cont'd.)
(112
cont'd.) thousand (15,000) people in these institutions. The in¬
creasing cost of living will necessitate an increased "budget
for operating expenses. Iowa owes proper and considerate
care to the unfortunate citizens whose lives must be spent
in these institutions.
For many years prior to the depression most of these institu¬
tions were badly in need of repair, replacement, or enlarge¬
ment, Many of them are not only unsanitary but veritable
firetraps. It would seem desirable now to start a carefully
planned building program that would in a few years completely
rehabilitate these buildings and bring them to the high
standards where they belong.
The trend of government today is to extend assistance to those
in need. If that philosophy of government is correct, it is
proper that those who are able should pay for the service of
government. There are many people treated in certain state
institutions capable of paying and whs are paying for their
care. Others just as capable are not and should be required
to do so. Law violators committed to our penitentiaries and
reformatories, if able, should also be required to pay the
cost heretofore borne by the state. There are many cases in
which proper action accompanying the arrest and prosecution
would produce revenue sufficient to pay for their stay in
our institutions without injustice to their families. If a
law violator possesses wealth, there is no sound reason why
Iowa should bear the expense."
(113) MILLSPAUGH, ARTHUR G. Characteristics of State organizations Iowa.
p. 159 in his: Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pp.
Iowa in 1898 did away with all separate institutional managing
agencies and concentrated direction, control and supervision
in the Board of Control of State Institutions. There are,
however, four other boards having primarily welfare functions:
the Board of Parole, the State Board of Eugenics, the Iowa
Commission for the Blind, and the recently created Old Age
Assistance Commission. A significant feature is the develop¬
ment at the State University of research, leadership, and pro¬
motion in the field of child, welfare,
(114) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Analysis of constitutional provisions affecting -public welfare
in the State of Iowa. Nov. 15, 1936. Prepared by Robert C.
Lowe and Helen R. Sherfey. 13 pp.
(115) . Digest of -public welfare provisions under the
laws of the State of Iowa. Prepared by Robert C. Lowe and Mary
Flug, Legal Research Section. Nov. 15, 1936. 2 p.l., pp. 1301-
1397, 1303a, 1305a, 1307a, 1308a, 1 organization chart.
-38-
11514
COMMENT AND OPINION
State and Local
Kansas
No. 116-118
KANSAS
(116) BUCK, ARTHUR EUGENE. Consolidation movement in other States, p. 55 in
his: Administrative Consolidation in State Government. 1930. 59 pp.
In 1915 the Kansas legislature.authorized a committee to investi¬
gate the business management of the State government, which re¬
ported to the 1917 legislature. This committee recommended a budget
system, unified institutional management under a board of control,
and consolidation of agricultural agencies. The first two of these
recommendations were adopted by the legislature.
ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Kansas. Table in his: Centripetal Force. 1935. See No. 30.
(118) GOVERNOR OF KANSAS, THE HON. WALTER A. HUXMAN. Message to the legis¬
lature at the regular session, Jan. 13, 1937.
"I am convinced that a substantial reduction in state
expenses could be made if we had a careful reorganiza¬
tion of our various state governmental functions and
that a considerable saving would be accomplished by
so doing without sacrificing a single, essential govern¬
mental function.
The tendencies of all departments whether local, state,
or national are to multiply and become fruitful and it
takes the closest legislative supervision to keep them
within reasonable bounds and limits. In Kansas we have
gone on from year to year, adding on here, and subtract¬
ing there, without any very scientific plan in mind.
From this has resulted a structure which, to say the
least, has not been designed very carefully.
Frankly, any effort along this line should be made upon
a proper business basis. A thorough investigation should
be made by a competent authority which/ of necessity, must
be nonpolitical, and a. report should be prepared and
submitted for the consideration and action of the Legis¬
lature. I would like to have from the Legislature an
appropriation authorizing such a study to be made. If
this is done, and if the study is made and the report
filed, it shall be my intention to call in a special
session of this Legislature to act upon the report.
There is no need to expend this money merely to give
someone a joy ride unless we intend to do something
about it."
-89-
11514
COMMENT AND OPINION
State and Local
Kansas, Kentucky-
No. 119-121
(119) MILLSPAUGH, ARTHUR C. Characteristics of State organization; Kansas,
p. 159 in his: Public Welfare Organization. Washington, D. 0.:
Brookings Institution, 1935. xxv, 700 pp.
"Although 12 separate agencies function in Kansas in the welfare
field, only 4, which possess controlling and directing authority,
are primarily concerned with public welfare. Three of these
are boards, but there is only one managing board. Institutional
control, therefore, is pretty thoroughly concentrated in the
Board of Administration.
In 1873 Kansas established a Board of Trustees of the State Chari¬
table Institutions. At that tine, 3 institutional managing boards
were eliminated. Subsequently, additional institutions were estab¬
lished and the jurisdiction of the Board extended to them. The
Board of Administration created in 1917 had control of all insti¬
tutions including the educational. In 1925 the educational insti¬
tutions were transferred to a, 3oard of Regents."
(120) WORKS PROGRESS ADMINISTRATION. DIVISION OP SOCIAL RESEARCH.
Analysis of constitutional provisions affecting public welfare
in the State of Kansas. Nov. 15, 1936. Prepared by Robert
C. Lowe and David S. Lander. 12 pp.
KENTUCKY
(121) AMERICAN PUBLIC WELPARE ASSOCIATION. Kentucky emergency relief admini¬
stration. relief and a long time program of public welfare. 1934.
109 1. tables.
"The State Department of Welfare is a hydra-headed administra¬
tive board with the responsibility for managing seven of the
twelve State institutions. There are eight or nine other
State activities in the field of public welfare which are
carried out by independent State agencies, with no coordina¬
tion.
State responsibility for the sponsorship and development
of social welfare facilities, although recognized to some
extent in the law, has not been projected into actual
practice. Such laws as have been enacted to define local
jurisdiction in this field are usually permissive.
-90-
11514
COMMENT AND OPINION
State and Local
Kentucky-
No. 121 cont'd.
AMERICAN PUBLIC WELFARE ASSOCIATION. Kentucky emergency relief adMllin-
tration. (cont'd)
(121
cont'd.) Financial aid to counties is given only in connection with
pensions to pauper idiots. This is apparently also the
only kind of aid to individuals in their homes which the
law requires the county to render.
State subsidies to private agencies have not been as ex¬
tensive in Kentucky as in some other Southern States.
They should be brought \mder centralized control as long
as they are continued.
Extensive change in state governmental organization and
method is indispensable to any fundamental improvement in
public welfare in Kentucky. The State system of fi¬
nancial accounting and control must be revised. Efficiency
in the administration of public welfare in the counties is
defeated by their very number and size. Many are not ca¬
pable of supporting effective units, and practically all
are too small to be used as a branch of any State program.
The Relief Administration, in the reorganized form proposed
in this report, represents the best instrument by which
the foundation can be laid for the development of sound
local public welfare in Kentucky.
All the independent functions related to the public welfare
field, including the activities of private organizations
insofar as the exercise of State functions is concerned,
should be consolidated with the present departmental func¬
tions into a well-rounded public welfare organization,
having direct responsibility for the administration of
State activities, supervisional responsibility over private
and local activities and responsibility for the promotion
of preventive end educational work.
Codification of all laws relating to institutions is recom¬
mended, and the following set-up is suggested:
(1) A Commissioner of Public Welfare, ap¬
pointed by the Covernor from a list of
nominees of the Board, to be executive
head of the department, responsible
for the management of all activities
in accordance with policies established
by the Board.
(2) A Board of Public Welfare of three to
six members should be appointed by the
Governor for overlapping terms of six
years. This would be the policy-deter¬
mining and rule-making advisory board.
It should also act as a parole board.
-91-
11514
COMMENT AND OPINION
State and Local
Kentucky
No. 121-125
AMERICAN PUDLIC TCLFARE ASSOCIATION. Kentucky emergency relief administra¬
tion. (cont'd.)
(121
cont'd.) The following divisions are suggested:
Division of Administration
Division of Social Service
Division of Mental Hygiene
Division of Corrections
Division of Industries and Farms
Division of Plant and Equipment
It is difficult to generalize about local public welfare admini¬
stration in Kentucky except to say that it is for the most part
extremely inadequate."
(122) BUCK, ARTHUR EUGENE. Proposed consolidation plans, p. 52 in his:
Administrative Consolidation in State Governments. 1930. 59 pp.
The 1922 legislature created an efficiency commission of 4 mem¬
bers appointed by the Governor. This commission engaged Griffen-
hagen and Associates to make a general survey of the State govern¬
ment, The report proposed 2 reorganization plans, one for immediate
action and the other requiring constitutional amendments. The plan
requiring constitutional changes proposed 11 departments, namely:
executive, finance, law, welfare, health, education, agriculture,
highways, business regulation, labor and military affairs.
In his message to the 1924 legislature, Governor Fields made no
recommendations for reorganization nor did the legislature take
any action.
/ /
(123) ECKER~H., L. LASZLO. Financial responsibility for various welfare
activities — Kentucky. Table in his Centripetal Force. 1935, See
No. 30.
(124) HASSE, A. R. Maintenance, county, private and State, of defectives.
delinquents and dependents, pp. 243-293 in Index of the Economic
Material in Documents of the State of Kentucky. Washington, D. C.,
Carnegie Institution of Washington. 452 p.
Analysis of reports, Governors' messages, etc., 1792-1904;
history of organization of state and county agencies.
(125) KENTUCKY. EFFICIENCY COMMISSION OF KENTUCKY. Public welfare agencies,
pp. 41-241 in its Reports. Frankfort: State Journal Co., 1924. 2 vols.
"The Kentucky State Board of Charities and Corrections was created
by the General Assembly in 1920. Its duties include general atten¬
tion to all problems of crime, delinquency, and dependency, super¬
vision of State-supported and State-aided institutions of a benevo¬
lent, charitable or correctional nature, and direct control and
-92-
11514
COMMENT AND OPINION
State and Local
Kentucky-
No. 125
KENTUCKY. EFFICIENCY COMMISSION OF KENTUCKY. Public welfare agencies,
(cont'd)
(125
cont'd.) management of eight institutions. The law specifically requires
the Board to call upon other departments of the government for
assistance, and.to give its assistance to other government depart¬
ments when necessary. This cooperation between departments has
been successful.
The Board is required to make rules and regulations for non-parti¬
san administration of institutions, to required budgets to be sub¬
mitted by them, to control expenditures of the institutions and
in other ways to attend to problems of their management.
The Board consists of eight members appointed by the Governor with
the consent of the Senate, for terms of four years, two being ap¬
pointed each year. Members serve without compensation except
traveling expenses.
The Board selects a Commissioner of Public Institutions who acts
as its principal officer and has general supervision of all insti¬
tutions. He is subject to removal by the Board at any time. He
recommends institution superintendents, and upon these recommenda¬
tions the Board makes appointments and fixes the salaries.
In addition to paid employees, there is an unpaid medical advisory
staff. An important feature of its work has been the appointment
of local consulting medical staffs for each instituion.
The State Board of Charities and Corrections determines the number
of positions and the rates of pay for each. This is done on the
basis of an attempt to standardize positions and rates of pay
i throughout the department.
The selection of employees of each institution is the duty of the
Superintendent. There is every reason to believe that they have
been selected on a merit basis.
The jurisdiction of the Board should be extended to include state-
aided charitable institutions in addition to those institutions for
the mentally delinquent. Placing them -under the central Board
will enable it to deal with social welfare problems of the state
as a whole.
The authority of the Board should also be broadened to include
active supervision of county jails, almshouses and other county
charities. In the report of the Commission of County Government
in Kentucky it is recommended that the Board not only proscribe
the form and require reports from jailers and poorhouse commis¬
sioners, but have power to recommend to the Governor the removal
of any such officers. As an adjunct to present local charitable
agencies the Fiscal Courts should be authorized to appoint a
board of 5 persons interested in public welfare to serve without
-93-
11514 State and Local
Kentucky
No. 125 cont'd.
COMMENT AND OPINION
KENTUCKY. EFFICIENCY COMMISSION OF KENTUCKY. Public welfare agencies,
(cont'd.)
(125
cont'd.) pay and to act as "visitors" of the local institutions. In
counties or districts able to defray the expense, local directors
or supervisors of public welfare should be authorized under the
local boards of public welfare. These officials could, if desired,
serve as local representatives of the State Board of public welfare.
Coincident to the broadening of the Board's powers, its name should
be changed to State Board of Welfare.
The following recommendations are made in regard to staff organiza^-
tion:
1) More extensive use of trained nurses in hospitals and more
extensive use of women nurses in male wards of the hospitals.
2) Establishment of training schools in each of the institutions
for instruction of attendants.
3) Promulgation of written rules for hours of work, vacations
etc. of employees.
4) Encouragement of employees to live outside institutions.
1 The following recommendations are made in regard to technical meth¬
ods and services:
1) Establishment of mental clinics.
2) Employment of occupational therapists.
' 3) Exact classification of cases in institutions.
4) Purchase of hydro-therapy equipment.
5) Extension of system of hospital extension work of insane
patients, and employment of social workers to take care of
this service,
6) Revision of laws for commitment of insane.
Recommendations in regard to fiscal procedure:
1) Centralization of purchasing for institutions in the State
Board.
2) Increase of storage facilities at institutions.
3) Amendment of law, to permit independent receivers in each
institution to be placed uuider the Superintendents.
4) Placement of control of miscellaneous receipts more directly
under State Board.
-94-
11514 State and Local
COMMENT AND OPINION Kentucky
No. 125-127
KENTUCKY. EFFICIENCY COMMISSION OF KENTUCKY. Public welfare agencies,
(cont'd)
(125
cont'd.) 5) Payment of salaries by treasurer's or other check from
state headquarters.
In addition to the recommendations indicated above, the following
suggestions are made:
1) That a central staff of technicians in the various phases of
institutional work be gradually developed, particular atten¬
tion being given to the appointment of an industrial super¬
visor.
2) That a field organization coordinating the work of parole of
prisoners, hospital extension, placement of orphas children,
and possibly other types of welfare work be deve1 oped; such
field agents to be trained social workers.
3) That the Board make a study of the possibilities of manufac¬
ture of various articles, for consumption primarily by the
State's agencies, by the inmates of the various State insti¬
tutions ."
(126) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Ken¬
tucky. pp. 173-174 in his: Public Welfare Organization. Washington,
D. C.: Brookings Institution, 1935. xxv, 700 pp.
Kentucky established a Board of Trustees of the State House of
Reform in 1896, a State Board of Penitentiary Commissioners in
1898, and a State Board of Control for Charitable Institutions
in 1906. The institutions for the mentally diseased and de¬
ficient were placed under a single board in 1908. In 1918,
a State Board of Control was created which was succeeded in
1920 by a State Board of Charities and Corrections, which in
turn, was replaced in 1932 by the Department of Public Welfare.
A general reorganization law was enacted in 1934; but many of
the consolidations and much of the departmentalization provided
for in this act are specious, former separate agencies remaining
in fact as separate as before. In the public welfare field,
however, real integration in organization is closed approached,
though one minor institutional board remains.
(127) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest of
the -public welfare urovi-sions under the laws of the State of Kentucky.
Prepared by Robert C. Lowe and staff, Legal Research Division,
Jan, 1, 1936. 2 p.l., p. 1501-1563. 1 organization chart.
Digest of public welfare provisions, p. 1501-1507; digest
of administrative provisions, p. 1510-1563.
This digest is now in the process of revision.
-95-
11514
LOUISIANA
State and Local
Louisiana
No. 128-130
✓ ✓
(128) ECKER-R,, L. LASZLO. Financial responsibility for various welfare
activities - Louisiana. Table in his: Centripetal Force. 1935.
See No. 30.
(129) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Louisiana,
p. 147 in his: Public Welfare Organization. Washington, D. C.: Brook¬
ings Institution, 1935. xxv, 700 pp.
Louisiana provides perhaps the most interesting illustration of a
state with rudimentary and lopsided functional development, highly
decentralized administration both of service functions and of in¬
stitutions, predominance of boards, and the absence of any agency
which can be classified with any assurance either as a general
service or central agency. At least 31 separate agencies seem to
be concerned with welfare functions; no less than 22 appear to be
primarily welfare agencies; 21 of these have controlling and di¬
recting powers; and 19 are boards. Service to veterans appears
to be the chief preoccupation of at least 5 separate agencies;
and criminal identification, investigation, and statistics.* seem
to be distributed among 3 others. Incidentally it is interesting
to note that the State Industrial School for Girls was placed by
an Act of 1918 under the State Board of Education; and community
mental health work is established as a public health function.
(130) WISNER, ELIZABETH. Central control and the -public institutions,
pp. 178—186 in her; Public welfare administration in Louisiana.
Chicago: University of Chicago Press, 1930. XVII, 239 p.
tables. Bibliography pp. 205-211.
"While it has been the main purpose of this study to
set forth, historically, the problems incident to
the care of the poor citizen, the sick stranger,
the insane and the offender, a brief consideration
of those inspectional and control powers which the
legislature has developed over all State institutions
seems important.
From the beginning the legislature recognized the
need for supervision over the State institutions.
Gradually a standing Committee on Charities was
evolved. This Committee was expected to visit the
institutions and report back to the legislature.
But the membership of the Committee was a constantly
shifting one and usually when a special problem arose
a new Committee was appointed.
-96.
11514
COMMENT AND OPINION
State and Local
Louisiana
No. 130 cont'd.
WISNEB, ELIZABETH. Central control and the public institutions, (contfd)
(130
cont'd.) After the Civil War the Committee on Charitable
Institutions became the Committee on Charitable
and Public Institutions. Later this Committee and
the Committee on Quarantine were combined into the
Committee on Health, Quarantine, Drainage and Char¬
itable Institutions.
. (a) A bill introduced into the legislature of 1894- for
the organization of a Board of State Charities had
been referred to this committee to which it was
referred and was favorably received.
(b) Finally the new constitution of 1898 provided for
the creation of a State Eoard of Charities and
Corrections, and in 1904 an act carried this pro¬
vision into effect. A revolving board of six
members, with the Governor as ex-officio chairman,
was created, to serve without compensation. The
duties of the board were to be strictly visitorial
and included State, parish, or municipal institutions
of a charitable, eleemosynary, correctional or re¬
formatory character. The provision that the Board
was to have the concurrence of the majority of
members in boards of control for various institutions
in making recommendations to the Governor, indicates
how hesitant the legislature was to delegate authority
to a central body.
In 1921 a new constitutional convention again pro¬
vided for a Board, the duties of which were: sup¬
ervision over all State, parochial and municipal
institutions of a, penal or charitable nature, and
visitation of all private orphan asylums, hospitals
and charitable institutions in the State. The
Board was to report annually to the Governor and
the legislature.
That a staff consisting of a. part-time secretary
and field agent with limited clerical assistance
should perform duties and exercise the responsi¬
bilities imposed on the Board is obviously out of
the question. The Board has repeatedly urged
larger appropriations in its reports.
There are in Louisiana, aside from the State Board
of Health and Charities and Corrections, a paid
Board of Parole, an unpaid Tuberculosis Commission
and the newly enacted Commission for the Blind,
whose members are also unpaid.
-97-
11514
(WENT AND OPINION
State and Local
Louisiana, Maine
No. 130-133
WISNER, ELIZABETH. Central control and the public institutions, (cont'd.)
(130
cont'd.) The State has remained urxrtil recently, outside the
so called "economy and efficiency" movement, which,
in many States, has led to a reorganization of the
State government, increasing the power of the chief
executive, centralizing the administration, and
inaugurating more rigid fiscal control over all
operations. Centralized purchasing and superintendence
over buildings are lacking. However, since 1920 the
Louisiana Tax Commission has brought about a special
scrutiny of budgets submitted by the Boards of the
various institutions, and in a sense a new supervising
influence has become active.
An act of 1928 requiring all State institutions to
file with the Secretary of the State and State
Auditor, at fixed periods, certain reports showing
in detail receipts and expenditures of all funds,
together with the names of all employees and the
salaries and compensation paid, indicates further
effort at control and possibly at standardization."
MAINE
(131) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Maine. Table in his: Centripetal Force. 1935. See No. 30.
(132) HASSE, A. R. Maintenance; county, private and State, of defectives,
delinquents and dependents, pp. 64—71 in Index of Economic Material
in Documents of the State of Maine. Washington, D. C.; Carnegie
Institution of Washington. 95 pp.
Analysis of reports, Governors' messages, etc., 1822-1904;
history of organization of State and county agencies.
(133) MILLSPAtTGH, ARTHUR C. Characteristics of State organization: Maine,
p. 171 in his: Public Welfare Organization. Washington, D. C.: Brook¬
ings Institution, 1935. xxv, 700 pp.
Before 1931 Maine had a Department of Public Welfare Commissioners,
7 institutional managing boards, a World War Relief Commission,
and 2 visiting committees. In that year, public health and public
welfare functions were, for the most part, brought together in a
■98-
11514
COMMENT AND OPINION
State and Local
Maine
No. 133-134
MILLSPAUGHj ARTHUR C. Characteristics of State organization; Maine,
(cont'd.)
(133
cont'd.) Department of Health and Welfare, headed by a Commissioner appointed
bythe Governor with the consent of the Council. Nevertheless, the
director of each of the three bureaus in the Department, and the
executive officer of each institution, is appointed by the Commis¬
sioner with the approval of the Governor and Council. Thus, depart¬
mental unity may be at times seriously compromised.
(134) NATIONAL INSTITUTE FOR PUBLIC ADMINISTRATION. State administrative
consolidation in Maine: public welfare activities, pp. 106-115 in its
Report on a survey of the State government, conducted for Governor
William Tudor Gardiner, New York: The Institute, 1930. 214 pp. 1
organization chart.
"Considering non-institutional relief and other State u .blic welfare
activities we find administrative difficulties, namely, division of
responsibility among several welfare agencies and the assumption by
the State of responsibilities which ought to be carried more largely
by local governments. Maine's public welfare work has been directed,
and necessarily so, chiefly to administering relief rather than to a
comprehensive program of preventing the necessity for such relief.
The above statement of defects in Maine's public welfare program
suggests the remedies, which are, in our opinion, the following:
(l) The incorporation in the bureau of welfare of the proposed
department of health and welfare of the following public welfare
activities now distributed among the several existing agencies,
viz.:
(a)
(b)
Administration of mother's aid, care of dependent
and neglected children and licensing of those who
solicit funds for welfare purposes outside of
localities in which they are located. These
activities are now carried on by the Department
of TJelfare and Welfare Commission.
Administration of appropriations for the following
relief purposes: Care of State paupers, pension
for Civil and Spanish war veterans, pensions for
blind, education of blind children in out-of-state
institutions, commitment of insane State benefi¬
ciaries, burial of soldiers and their widows,
pensions for State employees and other speci:i
pension allowances. These administrative duties
are now performed by the Governor's messenger
acting for the Governor and Council.
-99-
11514
COMMENT A1ID OPINION
State and Local
Maine
No. 134 cont'd.
NATIONAL INSTITUTE FOR PUBLIC ADMINISTRATION. State administrative
consolidation in Maine. (cont1d.)
(134
cont'd.) (c) Administration of aid to wives, children under 16, and
infirm and dependent parents of skilled or disabled
soldiers or sailors on active duty during the World
War now provided by the 7/orld War Relief Commission.
(d) Promotion of welfare of Penobscot and Passamaquoddy
Indian tribes, now a responsibility of the Forest Com¬
missioner acting through an Indian agent.
Wo propose for the coordinate administration of three related
activities - health, social welfare, and institutional activity
- the creation of a department of health and welfare, with a
major bureau for each of those activities.
At the head of this department there should be a commissioner
appointed by the Governor and directl:/ responsible to him. Ap¬
pointed by and under the general supervision of the commissioner,
there should be a director of health and. a director of welfare.
No director of institutional supervision would be needed, as the
commissioner himself could well serve in that capacity. Each
institutional superintendent should be appointed by and. made
directly responsible to the commissioner of the Department.
It should be the commissioner's task primarily to coordinate the
efforts of the 3 bureaus so that the highest degree of efficiency
might be maintained. The responsibility of the commissioner for
the control and use of his personnel should be as comp"ote as
possible.
As an aid to the commission an ad.visory council of health and wel¬
fare, consisting of 6 members and the commissioner ex-officio,
should be established. These members should bo chosen by the
Governor from among the best qualified men and women of the State
regardless of residence or political leanings. Terms should be
six years, overlapping. This council should have no administrative
duties whatsoever, but should prepare and promulgate departmental
policy and procedure for the development of cooperative relations
between State and private agencies, etc.
A local board of 5 visitors should be appointed for each of the
State institutions. The members should have terms of one year.
They should have no direct authority in any matter except that of
reporting their observations to the Governor.
No general reduction of the cost of health, welfare and institu¬
tional services can be expected. The savings made by better or¬
ganization will in all probability be offset by increased expendi¬
tures for central supervisory activities now badly needed. Savings
will be the result, rather, of more productive service."
11514 State and Local
Maryland
No. 135-137
COMMENT AND OPINION
MARYLAND
(135) BUCK, ARTHUR EUGENE. Administrative consolidat: on plans in operation,
pp. 24-25 in his: Administrative consolidation in State governments.
1930. 59 pp.
"Early in his administration, Governor Ritchie secured Griffenhagen
and Associates to make a report on the organization and administration
of the State government. Shortly after this report was submitted., the
Governor appointed a reorganization commission whose report was
adopted on September 14, 1921. The commission stated that it had
examined the plans in Illinois, Idaho and Nebraska. It considered
these plans radical. The Griffenhagen plan was objected to because
"it did not take sufficient account of the experience, conditions
and usages of the State." The fconsolidation plan proposed by this
commission became effective Jan. 1, 1923. The reorganization act
places practically all the administrative agencies of the State
government, both constitutional and statutory, in 19 groups as fol¬
lows: executive department, finance department, department of law,
department of education, state board of agriculture and the regents
of the University of Maryland, department of militia, department of
welfare, department of charities, dej'artment of health, department
of public works, commissioner of motor vehicles, conservation de¬
partment, department of public utilities, state industrial accident
commission, commissioner of labor and statistics, department of
state employment and registration, inspector of tobacco, Maryland
state board of censors, and Maryland racing commission.
Nine of these groups are headed, by single persons; others are either
administered by commissions or more than one executive. The Governor
has only partial control of appointments. On the whole, the plan
appears to be only a means of corralling existing agencies into 19
groups."
/ /
(136) ECKER-R., L. LASZLO. Financial responsibility for various welfare acti-
vities - Maryland. Table in his: Centripetal Force. 1935. See No. 30.
(l3?) MAi-iGOLD, EDITH P. AND R0CXW00D, EDITH. Maryland; illustrat j ons of State
and local public welfare organization, in their: Organization for Public
Welfare. Washington, D. C., 1336. 32 pp.
"Maryland, in 1935, passed a new law defining the powers and respon¬
sibilities of its Board of State Aid and Charities and providing for
county welfare boards.
The state board consists of 8 persons, 6 appointed by the Governor,
and the Governor and director of health, ex-officio. The six mem¬
bers serve without pay for 4 years with overlapping terms. The
Board of State Aid and Charities is the central, coordinating and
directing agency of welfare activities. It supervises all county
and Baltimore activities financed in part by the State. It in-
-101-
State and Local
Maryland
No, 137-140
MANGOLD, EDITH P. and R0CKW00D, EDITH. Maryland; illustrations of State
and local public welfare organization, (cont'd.)
(137
cont'd.) vestigates all public and private charitable institutions which
receive part of their income from the State.
The board, subject to the civil service law, appoints the staff
including an executive secretary trained and experienced in social
welfare and relief work. The board is authorized to prescribe the
number, salaries and minimum qualifications of the personnel under
local boards financed in part by the state.
The state board may create in each county a welfare board with
authority to administer public assistance of all types. The county
board consists of 7 persons including one commissioner. The six
members, who serve for four years with overlapping terms, are ap¬
pointed by the county commissioners from a list submitted by the
Board of State Aid and Charities and containing the names of twice
the number to be appointed. The county welfare boards appoint the
personnel necessary for their work meeting the state requirements
in making their selections."
(138) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Maryland,
p. 151 in his: Public Welfare Organization. Washington, D. C.t Brook¬
ings Institution, 1935. xxv, 700 pp.
"Of Maryland's 19 welfare agencies, 16 are boards, 15 have control¬
ling and directing powers, and 11 are institutional managing boards.
While the State seems committed to the board type of organization,
it has made especially interesting departures from it in providing
for one-man personnel administration. The Board of Welfare seems
to have some of the characteristics of a central control agency,
since it manages the State penal and correctional institutions in
addition to supervising the State hospitals and training schools.
The latter, however, have retained their separate boards of mana¬
gers; and. they are also under the supervision of the Board of
Mental Hygiene and the Commissioner of Mental Hygiene. On the
other hand., the Board of Mental Hygiene reports to the Board of
Welfare as well as to the Governor. The Board of State Aid and
Charities, having dependency and child welfare within its juris¬
diction, seems to be the closest approximation of a general ser¬
vice agency."
(139) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest
of Public Welfare provisions under the laws of the State of Maryland.
Prepared by Robert C. Lowe and. James S. Qpeen, Legal Research Section.
July 15, 1936. 2 p.l., pp. 1801-1876. 1 organization chart.
(140) Organization and procedures of the Maryland Board of State Aid and
Charities. Prepared by Elizabeth McCord. July, 1936. Washington,
D. C.: W.P.A., 1936. 44 pp. 1 chart.
11514
COMMENT AND OPINION
-102-
11514
COMMENT AND OPINION
State and Local
Massachusetts
No. 141
j MASSACHUSETTS
(141) BUCk, ART HUB, EUGENE Administrative consolidation elans in operation.
•op. 14-17 in his: Administrative consolidation in State governments.
1930. 59 pp.
"The constitutional convention which held its concluding sessions
during the summer of 1918, took up the subject of administrative
consolidation with the result that an amendment was adopted oy the
convention and ratified by the people on Nov. 5, 1918. This amend¬
ment provided that all the executive and administrative work of the
Stale government must be organized on or before Jan. 1, 1921, into
not more than 20 departments.
Several surveys were made and a number of proposals for consolidatic
were presented to the General Court. It was decided to frame a sing
bill which would present the plan as a whole. The bill, kmrwn as th
"Administrative Consolidation Act," was passed with a few minor char
and became effective Dec. 1, 1919.
The act grouped the executive and administrative functions of the
State, except those directly under the Governor or the Governor and
council, into the departments of the secretary of the commonwealth,
and the attorney general, headed by constitutional elective officers
and the following IS departments created by the act: agriculture,
conservation, banking and insurance, corporations and taxation, edu¬
cation, civil service and registration, industrial .accidents, labor
and industries, mental diseases, correction, public welfare, public
health, public safety, public works, public utilities, and metropoli
tan district commission. Sorno of the departments, including public
welfare, have single heads called commissioners, appointed by the
Governor with the council's approval. The commissioners receive
salaries varying from $5,000 to $7,500 per year. Those of the de¬
partments of agriculture, education and public welfare have advisory
boards appointed by the Governor with, the council's approval, for
overlapping terms of 3 years.
All appointments made by the Governor must have the approval of the
council, an independent elective body of 9 members. The administra¬
tive officers arc in nearly all cases appointed for terms of from
3 to 5 years and board members arc appointed for overlapping terms
varying from 3 to 5 years. In all cases except those of the elects
constitutional officers, the terms of the principal administrative
officers arc lorger than that of the Governor, his term being fixed
by the constitution at 2 years.
By 1921 it was evident that the consolidation plan was not very
successful. In accordance with the Governor's recommendation, the
General Court authorized the appointment of a commission headed "by
Edwin S. Webster, to study the plan. The report of this commission
was filed with the General Court on January 4, 1922. The report
estimated that a. reduction of approximately $10 million per year in
general State taxation could he made if the recommendations of the
-103-
11514
COMMENT AND OPINION
State and Local
Massachusetts
No. 141-144
BUCK, ARTHUR EUGENE. Administrative consolidation plans in operation,
(cont'd.)
(141
cont'd.) Webster commission were carried out, principally with reference to
further reorganization, consolidation, abandonment of activities,
and better methods. It recommended that the State activities, ex¬
cluding the constitutional officers, be consolidated into 9 major
departments, namely: administration and finance, oublic welfare,
public safety, corporate activities, public works, agriculture and
conservation, public health, labor and industries and education. It
was proposed that the nine departments have single administrative
heads appointed by the Governor and council for the same term as the
Governor and that these heads constitute the Governor's cabinet.
The 1922 cabinet saw fit to adopt only one of the resolutions of the
committee. It passed a law establishing a commission on administra¬
tion and finance."
(142) CONANT, RICHARD K. The Massachusetts Department of Public Welfare. pp.
119-121 in Public Welfare in the United States. Annals of the American
Academy of Political and Social Science, vol. 105. Jan., 1923. XI,
252 pp.
Outline of the organization of the Department and of the activities
of the divisions of which it is composed, by the State commissioner
of public welfare.
r-r-i— / ^
(143) ECKER-R,, L. LAsZLO. Financial responsibility for various welfare acti¬
vities - Massachusetts. Table in his: Centripetal Force. 1935. See
No. 30. *
(144) GOVERNOR OF MASSACHUSETTS, THE HON. CHARLES F. HURLEY. Message to the
General Court at the regular session, Jan. 7, 1937.
"There is an important phase of administration which has seriously
disturbed the Governors of Massachusetts for many years. I refer
to the problem of the mentally diseased. I would, first of all,
call to your attention that the care of those unfortunately thus
afflicted has normally absorbed about one quarter of the active
income of the state.
I think it is only fair to say that none of my predecessors has
ever begrudged the spending of this large proportion of our
revenue. Certainly, I am, and shall continue to be, in entire
sympathy with every reasonable request for appropriations toward
this eminently worthy cause.
However, there has been, for some years, a definite sentiment in
administrative circles that there should be instituted some form
of legalized review and analysis of the affairs and of the plans
of the Department, of Mental Diseases. Let me say at once, for the
benefit of those who may have relatives or friends in our state
hospitals, that the sentiment has not been engendered by reports
of any physical abuse of the inmates of these institutions. On
the contrary, our traditions in this regard are very high and very
sound.
-104-
1151*1
COMMENT AND OPINION
State and Local
Massachusetts
No. 144-146
GCVERNOE 0? MASSACHUSETTS, THE HON. CHARLES F. HURLEY. Message to the
General Court, (cont'd.)
(144
cont'd.) Specifically, there is reason to believe that the proper care of
the mentally sick, for which the Commonwealth holds itself duly
responsible, is gradually being extended into fields where we can¬
not sensibly assume responsibility. There is in the public mind
an ever-growing tendency, which has been deliberately fostered
and directed, to throw upon the care of the Commonwealth many wno
should and could be cared for at home. The practical distinctions
between the insane, the neurotic, the moronic, and. the retarded
are being obscured, to all intents and purposes, so as to favor the
shifting of humane responsibility for the care and the upbringing
of all these types from the home to state institutions. Theory and
practice are being most plausibly confused in the elusive name of
science.
These constantly expanding operations of the Department of Mental
Diseases are supported, by what are practically the police powers
of the state. As you can all see, we must be correspond-ingly on
our guard against the possibility of officious error and injustice.
Already this department has tremend.ous authority over the lives of
25,000 of our people. Without a scientifically limited and publicly
approved program, it is quite possible that, at some future day,
the department may come under the control of a politically power¬
ful group who may love theory because it is novel, and who may de¬
fine efficiency in terms of numbers of inmates and of unlimited
extension of building operations and of personnel."
(145) BASSE, A. R. Maintenance, city, county, private and State, of defec¬
tives, delinquents and dependents, pp. 163-202 in Index to Economic
Material in the Documents of the State of Massachusetts. Washington,
D. C., Carnegie Institution of Washington. 310 p.
Analysis of reports, Governors' messages, etc., 1789-1904;
history of organization of state and county agencies.
(146) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Massa¬
chusetts. pp. 161-163 in his: Public Welfare Organization. Washington,
D. C.: Brookings Institution, 1935. xxv, 700 pp.
"From the standpoint of public welfare organization, Massachusetts
is one of the most interesting and instructive of states. It was
the first to establish an integrating agency. It has tried numerous
and varied attacks on the problem of organization. Its organization
is a product of evolution rather than a full-blown creation, but it
has attained a high degree of stability, reflecting in its present
forms the urgent pressure of conditions and needs and of advanced
social thinking, balanced by intelligent conservatism. It is not,
however, a highly integrated organization. It is based on a divi¬
sion of the public welfare field into three major subjects dealing
in the main with, l) dependency and child welfare, 2) mental health,
-105-
11514
COMMENT AND OPINION
State and Local
Massachusetts
No. 146-147
MILLSPAUGK, ARTHUR C. Characteristics of State organization: Mass. (cont'd,
(146
cont'd.) and 3) adult delinquency, each sub-field dominated by a strong
general control agency but with a measure of decentralization,
especially with respect to institutional management.
Massachusetts' first integrating welfare agency was the Board of
State Charities which began operations in 1864. A State Board
of Health was created in 1869 and 10 years later was merged with
the Board of State Charities to form the Board of Health, Lunacy
and Charity. With the allocation of public health to a separate
agency, the Board became in 1886 the State Board of Lunacy and
Charity. With the appearance of the State Board of Insanity in
1898, the Board of Lunacy and Charity became the State Board of
Charity. In 1914 the unpaid Board of Insanity of 5 members was
replaced by a paid board of 3 members, this agency being super¬
seded in 1916 by the Massachusetts Commission on Mental Diseases.
In connection with a general administrative reorganization in
1919, the Board of Charity became the present Department of Pub¬
lic Welfare and the Commission on Mental Diseases became the
Department of Mental Diseases, each of the two new departments
being given a single executive head. As institutions were built,
they were placed under separate boards of trustees; but the power
of the central agencies over the institutions were steadily en¬
larged while those of the boards of trustees were reduced.
Massachusetts has perhaps 43 separate agencies exercising public
welfare functions. Nevertheless, the primary welfare functions
of a substantial nature are largely concentrated in the Commis¬
sion of Public Welfare, the Commissioner of Mental Diseases, the
Commissioner of Correction and in 2 special agencies - the Board
of Parole and the Board of Probation. There are 19 institutional
boards, 3 connected with the Department of Public Welfare and 16
with the Department of Mental Diseases. Each board of trustees
under the Department of Public Welfare appoints the executive
head of the institution which it controls. Like authority is
possessed by the boards under the Department of Mental Diseases,
but in their case it is exercised with the approval of the Com¬
missioner. In the Department of Public Welfare, particularly,
decentralization of institutional control is the traditional
and apparently the settled policy. The function of the Depart¬
ment with respect to the institution is viewed a.s one mainly of
supervision and coordination."
(147) STAFFORD, PAUL T. Administration of State welfare work in Massachu¬
setts. pp. 37-38 in his: State Welfare Administration in New Jersey.
Trenton, 1934. 136 pp.
"The distinguishing feature of one-man control in the administra¬
tion of State welfare work in Massachusetts is that the department
heads have longer terras of office than the Governor, who is elected
for a two year term. The commissioner of corrections serves three
-106-
11514
COMMENT AND OPINION
State and Local
Massachusetts, Midigan
No. 147-149
STAFFORD, PAUL T. Administration of State welfare work in ivlas.sachusett_s.
(cont1d.)
(147
cont'd.) years; the commissioners of mental diseases and public v/elfare
have 5 year terms. They are appointed by the Governor and his
Council. The Department of Corrections has administrative control
of the si:: Sta.te correctional institutions for adults through
superintendents directly responsible to the commissioner- The
Department of Mental Diseases has supervisory control over 15
State institutions for mental defectives. The administrative
control of each institution is placed in a lay board appointed
by the Governor and Council. The Department of Public Welfare
has supervisory control over 5 State institutions. The manage¬
ment of the three industrial training schools for .juvenile de¬
linquents is placed in one lay board of trustees. The State
Infirmary and the Massachusetts Hospital School each ha,re a lay
board. These are appointed by the Governor and his Council.
The commissioner of mental diseases receives advice and criticism
from an advisory commission, composed of 4 unpa.id associate
commissioners appointed, by the Governor and Council for five
year terms. The unpaid advisory board of public welfare, con¬
sisting of 6 members appointed by the Governor and. Council to
serve 3 years, has a veto power over the rules and regulations
of the Department. In practice, this power has given the board
considerable control of the policies of the Department.
Since the creation of these 3 departments in 1919, a remarkable
degree of continuity of tenure has been secured for the Depart¬
ment heads. While tradition of office plays a part, the pro¬
vision whereby the terms of the commissioners overlap that of
the Governor are largely responsible for a security of tenure
in this State unusual in other systems of one-man control."
(148) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Analysis
of constitutional provisions affecting public welfare in the State of
Massachusetts. Dec. 1, 1936. Prepared by Robert C. Lowe and David S.
Lander. 13 up.
i MICHIGAN !
(149) BUCK, ARTHUR EUGENE. Proposed consolidation plans, up. 49-50 in his:
Administrative Consolidation in State Governments. 1930. 59 pp.
"The 1919 legislature created the community council commission
and authorized it to study the State government. The Institute
-107-
11514
C0MI/EE1TT AND OPINION
State and Local
Michigan
No. 149-151
BUCK, ARTHUR EUGENE. Proposed consolidation plans, (cont'd)
(149
cont'd.) for Public Service was selected to make the study, and a report
was submitted to the legislature in Jan. 1921. There were pro¬
vided 2 elective officials, the C-ovrrnor and the auditor, each
serving for four years. There were to be 10 single headed de¬
partments directly responsible to the Governor, viz.: education,
agriculture, finance, law, public works, safety, health, labor,
trade and commerce, and welfare.
Uhen Governor Groesbeck came into office in 1921 he suggested a
reorganization plan of his own. The Governor's pro grain, as finally
passed by the legislature, created a state administrative board
and five departments. The departments are: agriculture, conser¬
vation, labor and industry, public safety and state welfare. The
last department has 4 boards associated with it which control the
institutions separated into 4 groups."
(150) ECKER-R., ju. LASZLO. Financial responsibility for various welfare
activities - Michigan. Table in his: Centripetal Force. 1935.
(151) GOVERNOR OF MICHIGAN, TEE HON. FRANK MURPHY. Message to the Legislature,
Jan. 7, 1937.
One section of this message is concerned with administrative
reorganization in the State. In regard to reorganization of
welfare agencies the Governor says in substance:
"Not less than 11 departments are in existence for the perform¬
ance of welfare functions. These departments have little legal
connection and are administered independently.
Prior to the depression a tendency to seek subsidies from the
state for financing of local public welfare services was evi¬
dent, and since 1932 the state has boen called upon for many
millions of additional subsidies.
The present complicated structure of welfare administration is
highly specialized, uncoordinated and inefficient. The welfare
services should be combined into 3 state departments, a Public
Uelfare Department, a Mental Hygiene department and a Corrections
department. Each of these departments should be controlled by a
separate commission appointed by the Governor with overlapping
terms, ana should have a trained executive director. All appoint¬
ments should be made under civil service.
The numerous county departments dealing with relief and dependency
should be united into a single county welfare department. Since
the state, aided by the federal government must for the time being
supply these local units with the largest share of the funds they
will use, a reasonable state supervisory control should be provided.
-108-
11514
COMMENT AND OPINION
State and Local
Michigan
No. 151-152
GOVERNOR OF MICHIGAN, THE HON. FRANK MURPHY. Message to the Legislature,
(cont'd)
(151
cont'd.) There should be a county department of welfare in each county. Pro¬
vision should be made for the exemption of large cities to refiain
a limited degree of local responsibilities, and for combination of
adjacent small counties into district departments.
(1) Local departments should be managed by a local voluntary board
with 3 members, 2 appointed by the local Board of Supervisors and 1
by the state welfare department.
(2) They should have charge of all federal, state and local funds
for relief purposes in the county.
(3) They should take over all county welfare functions.
(4) A local director and other employees should be appointed under
the merit system.
The new laws for this consolidation should be written with
regard for federal requirements under the Social Security Act and
further possible grants for unemployment relief. Political patrion-
age should be eliminated and the merit system should be established."
(152) MICHIGAN. WELFARE AND RELIEF STUDY COMMISSION. Report, Lansing, 1936.
43 pp. tables. 4 organization charts.
A summary of recommendations presented is included in the report.
That summary is as follows:
"(l) State Welfare Organization. It is proposed
(a) that six different commissions be abolished...
(b) that one bureau be abolished...
(c) that the offices of two Executives appointed
by the Governor, namely; the commissioner of
pardons and paroles, and the director of the
state welfare department, be abolished
(d) that a new state public welfare commission
and -under it a state department of public
welfare, be created,
(e) that a state mental hygiene commission and,
under it, a state department of mental hygiene,
be created to administer the 9 state institu¬
tions for the insane, mentally defective and
epileptic, and to administer the state mental
hygiene program,
(f) that a Michigan corrections commission and under
it a corrections department be created, to have
jurisdiction over the present functions of the
state prison commission and of the commissioner
of pardons and paroles
-109-
11514
State and Local
Michigan
No. 152 cont'd.
COMMENT AND OPINION
MICHIGAN. WELFARE AND BELIEF STUDY COMMISSION. Renort. (cont'd.)
(152
cont'd.) (g) that a crippled children's "bureau with an advisory
committee, be created within the state department
of public welfare as of Jan. 1, 1940 and that' the
Michigan crippled children commission be simultan¬
eously abolished and
(h) that the 2 state institutions for the blind and
the one institution for the deaf be transferred to
the... state board of education.
On the basis of the above, 13 different state authorities would
be abolished and for them would be substituted 3 new departments,
except that until Jan. 1, 1940, the cripnled children commission
would operate as a 4th independent body.
It is further proposed,
(i) that the state department of public welfare be
headed by a public welfare commission of 5 uncom¬
pensated members appointed by the governor without
regard to political belief or affiliation,
(j) that this department administer on benalf of the
state, all forms of public assistance and also the
girls' training school, the boys vocational school
and the Michigan children's institute,
(k) that the public welfare commission select an execu¬
tive and that such executive select, subject to the
approval of the state welfare commission and subject
to the provisions of a civil service merit system,
the heads of institutions and of the Michigan children's
institute and all officials and employees of the depart¬
ment, provided: that the executive head of each insti¬
tution and of the Michigan children's institute shall
appoint all of the employees thereof,
(l) that the state department of mental hygiene be headed
by a commission of 7 members appointed by the governor
for overlapping terms of six years,
(m) that such commission select a qualified executive who
shall, in turn, select personnel in the manner set forth
above,
(n) that the state department of corrections be headed by
a commission of seven unsalaried persons appointed for
overlapping terms of six years from among pe^ons having
an interest in, and knowledge of, prisons, and penal and
correctional problems, and without regard to political
belief or affiliation,
(o) that this commission select a qualified executive of the
department and the wardens of each of the prisons and
further that such commission appoint a director of paroles
and probation to serve for a 3 year term and to be re¬
movable by the Supreme Court only, and,
-110-
State and Local
Michigan
No. 152 cont'd.
MICHIGAN. WELFARE AND RELIEF STUDY COMMISSION. Report, (cont'd)
(152
cont'd.) (p) that all personnel of the corrections department "be em¬
ployed upon a merit system basis.
2) Local Welfare Organization.
With respect to local public welfare organization and services,
the recommendations provide
(q) that there be established in each county a department of
public welfare, headed by a board of 3 members, the
chairman thereof being appointed by the proposed state
department of public welfare and the remaining 2 mem¬
bers by the local board of supervisors, except in certain
cases when a city may appoint one member,
(r) that the county emergency welfare relief commission,
soldiers' and sailors' relief commission, superintendents
of the poor, county old age assistance board... and
county agents be abolished,
(s) that all of the functions of these authorities be assum¬
ed by the proposed county department of public welfare
and, in addition, the administration of mothers' pensions,
now performed by the Probate Court,
(t) that any two or more adjoining counties may form
a district department of public welfare,
(u) that any city having a population of over 300,000
inhabitants may operate its own department in a
manner similar to a county department of public
welfare,
(v) that the county public welfare board employ an ex¬
ecutive officer who shall be charged with the ex¬
ecution and actual administration of the... depart¬
ment,
(w) that the personnel of the county department of wel¬
fare be chosen by a civil service merit system set
up in conformity with standards prescribed by the
state department of public welfare, and
(x) that there be created in each county a public wel¬
fare fund into which shall be deposited all money
raised and received for the public welfare activi¬
ties administered by the proposed department and out
of which all claims appropriate thereto shall be
paid exclusively.
3) Financing of Public Welfare Activities.
It is suggested
(y) that the state, with federal aid, finance wholly old
age assistance, aid to dependent children,relief for
blind, hospitalization of crippled children and hos¬
pitalization of afflicted children,
(z) that the county governments finance exclusively county
infirmaries, hospitalization r,f afflicted adults, mis-
11514
COMMENT AND OPINION
-111-
11514 State and Local
Michigan
COMMENT AND OPINION No. 152-154
MICHIGAN. WELFARE AND RELIEF STUDY COMMISSION. Report, (cont'd.)
(152
cont'd.) cella.neous relief charges not otherwise provided for,
and transportation of indigents, and that the State
(A) and co\inties jointly finance relief for the un¬
employed and other needy persons who do not fall
into ... specific categories.
Finally, in order to place the state in a position to "benefit more
fully under the federal Social Security Act it is proposed
(B) that the State make suitable appropriations for old
age assistance, relief for the blind and aid to de¬
pendent children, and
(C) that the eligibility for old age assistance be extend¬
ed to include persons who are not citizens but who are
otherwise eligible."
(153) MILLSPAUGH, ARTHUR C. Characteristics of State organization? Michigan,
pp. 155-156 in his: Public Welfare Organization. Washington, D. C.*
Brookings Institution, 1935. xxv, 700 pp.
"Michigan has not lacked reorganizations. There are now at least
35 State agencies concerned with welfare functions, and 25 are
squarely in the welfare field. Boards in this field are rel¬
atively few, numbering only 8 compared with 17 single-headed
agencies. Michigan has established a considerable number of
special agencies, all of them boards, and has largely decentral¬
ized institutional management, but in most cases under single
heads. The immediate direction of each institution is, with
the exception of the State Psychopathic Hospital, in the hands
of a superintendent or warden. There are 15 separate institu¬
tional heads. The institutions with the exception of the tuber¬
culosis sanatoria, are segregated into 4 groups, under the par¬
tial control of the Prison, Hospital, Corrections, and Institution¬
al Commissions. In addition there is a Welfare Commission, a
weak general service agency. An attempt has been made to coor¬
dinate and partially consolidate these five commissions by placing
them under the supervision of a Director of Welfare, heading the
Department of Welfare. The heads of the various welfare institu¬
tions are appointed, not by the Director of Welfare but by the
Governor, with the approval of the Hospital, Prison, Corrections
or Institutional Commissions, as the case may be. This approval,
however, is nominal. The institution heads are, in effect, the
Governor's appointees. The Department of Welfare represents,
perhaps, the tenuous beginnings of a general service and control
agency, but the organization as a whole is loose; functions are
scattered and coordination and supervision are duplicated."
(154) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare -provisions under the laws of the State
of Michigan. Prepared by Robert C, Lowe and L. T, Bennett, Jr.,
Legal Research Section. July 1, 1936. 2 p.l., pp. 2001-2086.
1 organization chart.
-112-
11514 State and Local
Minnesota
No. 155-157
COMMENT AND OPINION
MINNESOTA
(155) BUCK, ARTHUR EUGENE. Administrative consolidation plans in operation*
pp. 31-34 in his Administrative consolidation in State governments.
1930. 59 pp.
The Minnesota legislature of 1923 created an interim commission
of five members to investigate State activities and report to
the next session. The report of the commission provided for ap
executive council and 10 departments, viz.: administration and
finance, conservation, agriculture, highways, education, health,
commerce, labor and industry, welfare and taxation. The exist¬
ing organization of departments administering health, welfare,
education, highways, and taxation were not to be appreciably changed.
The plan as adopted establishes an executive council and 13 de¬
partments as follows: administration and finance, conservation,
dairy and food, agriculture, highways, education, health, commerce,
labor and industry, public institutions, taxation, rural credit,
and drainage and waters. The department of institutions is under
the supervision of the State board of control.
Further changes are needed in the reorganization, but those pro¬
posed have not been authorized by the legislature.
(156) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Minnesota. Table in his Centripetal Force. 1935. See
No. 30.
(157) GOVERNOR OF MINNESOTA, THE HON. ELMER A. BENSON. Message to the
Legislature. Jan. 5, 1937.
"The state is lacking in administrative machinery to properly
handle the work of public welfare. All public welfare services,
with the exception of supervision of public institutions now
under the state board of control, should be centered in a new
department of public welfare. This would include administration
of federal aids under the social security act, such as old age
assistance, assistance to dependent children, aid to the blind,
as well as general home relief. It would call for the co-opera¬
tion of the various counties through establishment of county
welfare boards which would administer social assistance and
treatment under the supervision of the state department.
The various forms of veterans relief now are scattered in a
number of agencies. Though it maybe said that it is in the
best interests of the veterans that they should avail themselves
of needed services as set up in the state agencies, nevertheless
as a group they themselves have felt the need of a special pro¬
gram to meet their special circumstances.
-113-
11514
Stale and Local
Minnesota
No. 157-158
COMMENT AND OPINION
GOVERNOR OF MINNESOTA, THE HON. ELMER A. BENSON. Message to the Legis¬
lature. (cont'd.)
(157
cont'd.) I recommend, therefore, that you establish a veterans bureau
which would have the function of supervising the soldiers home
and organizing general home relief and assistance to veterans
and their families. This would mean consolidation of several
state activities now separately organized or within other de¬
partments, such as: War veterans relief agency; Soldiers Home
Board; division of soldiers welfare; and veterans claims handled
in the Adjutant General's office."
(158) LA DU, MRS. BLANCHE L. Coordination of State and local units for wel¬
fare administration, pp. 494-505 in National Conference of Social
Work. Proceedings, 1933. Chicago: University of Chicago Press, 1933.
xii, 751 p.
"Like most States, Minnesota was not prepared to meet the ■unemploy¬
ment relief situation. This has made us aware of some of the weak¬
nesses of our State welfare program. We are coming to recognize
that the taxing power of the Government is the fairest and surest
method of securing funds for poor relief and other social welfare
needs. This public responsibility has been recognized in Minnesota
to some extent in state aid to public schools, public health ser¬
vice, the Workmen's Compensation Act, Mothers' Assistance, direct
poor-relief to families, special aid for the blind, for the ex-
service man and his family, for institutional care of State wards,
and for county poor farms and hospitals.
A law of 1917 charged the State Board of Control with the adminis¬
tration of the laws for the protection of the handicapped children
of the State. The Board was authorized, when requested to do so
by the county board, to appoint a county child welfare board, and,
when requested by the county board, may perform the duties of pro¬
bation and school attendance officers, may assist in the adminis¬
tration of mothers' pensions and of poor relief. Of Minnesota's
87 counties, 80 have child welfare boards.
It has been recognized that the county is the most practical area
for the administration of general welfare laws. Clearly the town¬
ship is too small a unit for social service administration as the
basis of taxation is too limited to meet the necessary costs of
service,
A bill for the establishment of county welfare boards was introduced
in the 1933 legislature, the object of which was to create a county
welfare board in those counties receiving Federal or State funds
which would ^ake the place of the two boards now functioning in
those counties; namely the county emergency relief committee and
the child welfare board. The bill attempted to establish the county
as the local area for the administration of poor relief and general
welfare service in all counties receiving either state or Federal
relief funds except in counties containing cities of the first class,
and made this form of organization permissive in all counties.
-114-
State and Local
Minnesota
No. 158-159
LA. DU, MRS. BLANCHE L. Coordination of State and local units for wel¬
fare administration. (cont'd.)
(158
cont'd.) The bill further provided that the county board of welfare shall
appoint an executive secretary with the approval of the State Board
of Control, or from a list prepared by the State Board, on the basis
of experience, training, etc.; also that the county welfare board
shall be the child welfare board of the county. In the stress of an
unusual number of other bills, the county welfare board bill failed
to come up for a vote.
We are trying to build a permanent, progressive welfare program
for the State. No doubt an attempt to secure the passage of this,
or a similar, bill will be made at the next session of the legis¬
lature ."
(159) Minnesota. Reorganization of administration to simplify, correlate
and consolidate the administration of aids, social security problems
and relief in the State and county agencies, pp. 16-18. in Report
of the Interim committee on social legislation and relief. 1937.
29 p.
"The Committee finds that there are many agencies administering
various aids in Minnesota, and feels that these should be con¬
solidated in the counties and the State for administration.
Aid to dependent children is administered by the juvenile courts
and the child welfare Board in counties where both exist; Old
Age Assistance is administered by the County Board of Commissioners,
and relief by an extra legal board called the Relief or Welfare
Board in the counties. Urban and rural counties differ in their
administrative set-up for welfare.
It is recommended that administration of Social Security grants-
in-aid and county welfare activities should be reorganized under
(a) a County Board of Public Welfare charged with administration of
all welfare activities in the county. Such a board should be es¬
tablished in each county. This board should consist of five
members, residents of the county, three to be chosen by the Coun¬
ty Board of Commissioners; not loss than one or more than two
should be members of the County Board of Commissioners. Two
members should be chosen by the State Board of Control. Members
should serve for overlapping terms; they should receive $3.00 per
day for actual time spent on business of the board, with a maxi¬
mum of 25 days per year, and should receive in addition travel¬
ing expenses incurred in performance of their duties for the
board. The Board should choose the county director of public
welfare and should fix his salary, subject to the approval of
the County Board of Commissioners. The County Board of Public
Welfare shall fix the term of the director, employ other help
needed to administer public welfare, and shall fix their salaries,
subject to the approval of the County Board of Commissioners.
The County Board of Public Welfare shall administer all forms
11514
COMMENT AND OPINION
-115-
I1 h"1 1
COMMENT AND OPINION
State and Local
Minnesota, Mississippi
No. 159-161
Minnesota. Reorganization of administration, (cont'd.)
(159
cont'd.) of public assistance in the county; the Board shall have charge
of investigation and supervision of county institutions for indi¬
gents, and shall pass on application for admission to such insti¬
tutions.
In Minnesota the State Board of control administers Old Age Assis¬
tance, aid to the blind, social security grants-in-aid and relief,
with the exception of work relief. To promote efficiency in ad¬
ministration, a Division of Relief should be established under
the State Board of Control, to be in charge of a director chosen
by the Board to hold office at the will of the Board; other em¬
ployees necessary to the administration of relief may be hired
by the Board. The Division of Relief shall have charge of all
direct relief and work relief carried on by the State.
All matters of relief and soldier's welfare should be handled
under a division of the State Board of Control.
The abolition of public welfare and relief activities under
the State Board of Control is recommended to eliminate dupli¬
cation. There should be a single correlated staff for all
welfare activities administered by the Board."
(160) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the State
of Minnesota. Prepared by Robert C. Lowe and Staff, Legal Re¬
search Section. March 1, 1936. 2 p.l., pp. 2101-2183.
1 organization chart.
•MISSISSIPPI'
(161) BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public
welfare, pp. 555-561 in Report on a survey of the organization and
administration of State and comity government in Mississippi. Jack¬
son, Miss.; Research Commission of the State of Mississippi, 1933.
971 pp.
"Mississippi's outstanding welfare problem is one of coordination.
Each institution and agency is under separate and distinct control,
operating in its own field exclusively.
Mississippi, in common with most other states, handles the problem
of poor relief through local almshouses and county outdoor relief.
-116-
State and Local
Mississippi
No. 161-164
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public
welfare, (cont'd.)
(161
cont'd.) The care of the dependent and delinquent in Mississippi needs super¬
vision and direction. Little, if anything, can be done along this
line however, until there is a State organization for guidance.
The chief recommendations presented are:
The establishinent of a State Department of Public Welfare.
Without a. central welfare organization, progress in welfare
work will be impossible. This board should consist of five
members appointed by the Governor for a terra of 10 years.
(Initially for 2, 4, 6, 8 and 10 years.) The members of the
board should be unpaid except for expenses. The board or a
committee thereof should be required to visit all welfare in¬
stitutions twice a year, and file reports of those visits.
They should also be required to investigate charges and com¬
plaints filed vith them.
The Board should appoint the Commissioner of Public Welfare.
The Board should be authorized to fix his salary and appro¬
priate funds for department administration.
The superintendent of all welfare institutions should be
elected by the Board upon nomination by the Commissioner.
The Department of Welfare should study the needs of the State,
visit the various institutions and, from time to time, sug¬
gest improvements to the legislature."
(16?) ECKER-R., L. L&SZLO. Financial responsibility for various welfare
activities - Mississippi. Table in his: Centripetal Force. 1935.
See No. 30.
(163) MILLSFAUGH, ARTHUR C. Characteristics of State organization: Mis¬
sissippi. pp. 147-148 in his; Public Welfare Organization. Washing¬
ton, D. C.: Brookings Institution, 1935. xxv, 700 pp.
In Mississippi we find 28 separate agencies, partly or wholly,
in the welfare field; 21 of them are strictly welfare agencies;
11 are institutional managing boards and seven are superinten¬
dents of institutions. The only specialized central agencies
are the State Board of Public Welfare, a non-statutory and
presumably temporary agency concerned chiefly with emergency
relief, the State Commission for the Blind, and the State Ser¬
vice Commissioner. There is no labor department, but the state
has an outstanding public health service.
(164) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the State
of Mississippi. Prepared by Robert C. Lowe and Staff. January
1, 1936. 2 p.l., pp. 2201-2270. 1 organization chart.
11514
COMMENT AND OPINION
-117-
11514 State and Local
Missouri
No. 165-167
I MISSOURI !
(165) BUCK, ARTHUR EUGENE. Proposed consolidation plans, pp. 50-51 in his:
Administrative Consolidation in State Governments. 1930. 59 pp.
Governor Hyde emphasized in his message to the 1921 legislature,
the need for administrative consolidation. Seven bills relating
to departmental consolidation were passed, and 6 new departments
were created, viz.: agriculture, budget, finance, public welfare,
labor and penal institutions. A single board of managers for
the 6 state charitable institutions was also created.
After the measures had been passed, referendum petitions were
filed in sufficient number to prevent all of them except those
creating the departments of finance and penal institution from
becoming operative until voted on by the people at the 1922 elec¬
tion. All measures failed at the election.
In 1927 a bill was introduced in the legislature providing for
the reorganization of the government. It proposed to create 9
departments: agriculture, conservation and development, taxation,
revenue and disbursement, health, industry and labor, trade and
commerce, public welfare, highways and military. In addition
there was to be an administrative board. The various departments
with the exception of the department of highways, were to have
single heads appointed in most cases by the Governor with the
Senate's approval, for 4 years. The plan was defeated.
(166) ECKER-R. L. LASZLO. Financial responsibility for various welfare
activities - Missouri. Table in his: Centripetal Force. 1935.
See Ho. 30.
(167) GOVERNOR OF MISSOURI, THE HON. LLOYD C. STARK. Me ssage to the legis¬
lature at the regular session, Jan. 11, 1937.
"I further recommend that the Legislature provide for a
Committee to be composed of three members from the
Senate, three members from the House, the Chairman of
the Eleemosynary 3oard, ana three members to be named
by the Governor, to investigate the desirability of
and present a plan to the General Assembly for the
creation of a Department of Public Welfare to have
charge of the administration of all of the Social
Security Laws, and to direct the activities of all
other public welfare agencies."
-118-
11514 State and Local
Missouri
No. 168-171
COMMENT AND OPINION
(168) MILLSPAUOH, ARTHUR C. Characteristics of State organization: Missouri,
pp. 165-166 in his Public Welfare Organization. Washington, D.C.:
Brookings Institution, 1935. xxv, 700 pp.
In Missouri, prior to 1921, each of the State eleemosynary insti¬
tutions had a separate board of managers. These were abolished in
that year and their duties transferred to a single Board of Managers
of Eleemosynary Institutions. There was created, however, in the
same year, a Board of Commissioners of Penal Institutions, in charge
of the correctional institutions for adults and the Training School
for Juveniles. There is also a separate board for the State Federal
Soldiers' Home and one for the Confederate Home. In all, only 16
agencies have been located dealing primarily v?ith welfare functions;
all have controlling and directing authority; and 5 are boards.
(169) MISSOURI ASSOCIATION FOR SOCIAL WELFARE. Official welfare services
in Missouri. Their development and correction 1821 to 1936. Jefferson
City, Mo.: The Association, n.d. 36 pp. 4 charts. Mimeographed.
A brief historical review of the development and correlation
of official welfare services in Missouri. The conclusions
reached by the Association are succinctly stated on page 27,
viz. "The preceding historical sketches have revealed the
following trends, each of which is a corallary of the other:
(1) An increasing inadequacy of the county as a
planning, administering and financing unit.
t
(2) An increasing need for administrative cor¬
relation, supervision, standardization, and
financial aid by the State.
(170) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Analysis of constitutional provisions affecting public welfare
in the State of Missouri. Oct. 1, 1936. Prepared by Robert
C. Lowe and David S. Lander. 17 pp.
(171) Digest of Public welfa.ro provisions under the laws of the State
of Missouri. Prepared by Robert C. Lowe and Donna Scare Adams,
Legal Research Section. October 15, 1936. 2 p.l., pp. 2301-2367.
1 organization chart.
-119-
11514
COMMENT AND OPINION
State and Local
Missouri - Local
No. 172
i MISSOURI - LOCAL j
(172) KUHLMAN, A. F. The development of county public welfare work in
Missouri, pp. 130-136 Public Welfare in the United States.
Annals of the American Academy of Political and Social Science,
vol. 105. Jan., 1923. XI, 282 pp.
In 1908 the Beard of Pardons and Paroles of Kansas City,
of which L. A, Halbert was secretary, found that condi¬
tions which affected the discharged offender needed to
be supervised. In addition to this, there was much un¬
employment, and problems presented by the dependent, de¬
fective and delinquent classes came into the foreground.
Because of this situation, Major T. T. Crittenden ap¬
pointed a committee of three to draw up recommendations
for improvement.
This committee recommended the appointment of a large
representative committee to make a study of the city's
responsibility to the socially inadequate classes.
This committee recommended the establishment, in
Kansas City, of a Board of Public Welfare to have
general supervision of all welfare work among socially
inadequate classes. On April 11, 1910, an ordinance
created this board and Mr. Halbert was made superin¬
tendent.
At the request of Mr. A. W. McAlister of the North
Carolina Board of Public Welfare Mr. Halbert drew
up an outline in which he mo.de the county the adminis¬
trative unit in public welfare work, which was em¬
bodied in subsequent legislation in North Carolina.
In 1915, Mr. Halbort drew up a bill for the State of
Missouri which provided that county boards of public
welfare should be appointed by the judge of the Cir¬
cuit Court, and for the appointment of county super¬
intendents of public welfare. This bill was intro¬
duced in the 1915 session, but was defeated, chiefly
for these reasons:
(1) County courts objected to appointments
of boards by the Curcuit Court, as a judge
of the Circuit Court often -would not be a
representative of a given county. It was
feared that thus outsiders might control ap¬
pointments of these boards.
(2) In 1915, prior to the establishment of
the Children's Code Commission so effective
in promoting special legislation in Missouri,
there was no special organization to sponsor
the bill.
-120-
11514
COMMENT AND OPINION
State and Local
Missouri - Local
No. 172 cont'd.
KUHLMAN, A. P. The development of county public welfare work. (cont'd.)
(172
cont'd.) In 1917, the Children's Code Commission again introduced
the bill, somewhat modified, in that it provided that
county boards were to be appointed by the County Court;
and also for a civil service examination to be conducted
by the State Board of Charities and Corrections. This
latter feature of the law proved especially objectionable
to county authorities. They feared it would give too
much control to the state board and the bill V7as again
defeated.
In 1919 the bill failed for the third time.
The Children's Code Commission once more introduced legis¬
lation providing for county welfare work in 1921. The
bill which now provided for county superintendents of
public welfare was adopted, but the companion bill pro¬
viding for county boards of public welfare was again
defeated.
The law adopted in 1921, delegates the following
responsibilities to county superintendents of public
welfare:
(a) Constructive relief of poverty,
(b) Proper care and placing of homeless,
orphaned and neglected children.
(c) Effective enumeration, education
and physical treatment of every
handicapped child, including deaf,
blind, crippled and feeble-minded.
(d) Modern treatment of delinquency.
(e) Strict enforcement of child labor
and school attendance laws.
(f) Intelligent care of mental defectives.
(g) Promotion of wholesome recreation
and elimination of undesirable in¬
fluences in public amusements.
(h) Organization of community resources
for public health, etc.
(i) Study of causes of social problems
and institution of programs of
education and prevention.
The Missouri law is optional, while the North Carolina law
is mandatory.
At the time of writing, 13 counties had appointed superin¬
tendents of public welfare. In many cases they are those
who formerly served as school attendance officers or pro¬
bation officers. In the counties in which appointments
have been effected, excellent progress is being made.
-121-
llnll
COGENT AND OPINION
State and Local
Missouri - Local
No. 172 cont'd.
KUHL1JAN, A. F. The development of county public welfare work. (cont'd.)
(172
cont'd.) The problems that confront Missouri in the development of
county welfare work may be approached from three stand¬
points, viz:
(1) From the standpoint of existing machinery
which will be supplanted by the new work.
(2) From the standpoint of the State Board of
Charities, which will have to open up this
field of work in many counties through
educational work, and will have to develop
standards and supervise the work.
(3) From the standpoint of counties the work
is pioneer work in view of the fact that
in most instances they have never come
into contact with social work worthy of
the name.
There must be a unity of purpose among three organizations,
viz: the State Board of Charities, the State Department
of Education and the Organization of Circuit Judges of
Missouri.
Two factors have handicapped the State Board of Charities
in developing this work. First, shortly after the law
went into effect, the political change in the executive
of the State led to a reorganization of the personnel
of the Board. Four new members were appointed to suc¬
ceed persons who had given years of service to the Board.
It has required time for the new members to become familiar
with the program which the old boarb vas carrying on.
Second, developmental work was delayeo because of a change
in the executive secretaryship of the Board.
Third, appropriations were insufficient to provide an ade¬
quate field staff to carry on the work.
The real problem in local communities is to develop an
intelligent constituency for county public welfare work.
The influence of the counties that have made appointments,
that of the State Board of Charities and Corrections and
the University of Missouri will, in a reasonably short time
build up an intelligent constituency.
The following points arc coming into clear relief:
(l) The Legislation of Missouri, and the develop¬
ment that is following, is helping to define
the field of Social work in rural communities.
Many realize that public welfare activities
constitute just as definite a county function
as public construction or as the function of
a county farm agent.
-122-
11514 State and Local
Missouri-Local, Montana
No. 172-174
COMMENT AND OPINION
KUHLMAN, A. F. The development of county public welfare work. (cont'd.)
(172
cont'd.) (2) The introduction of this local agent to carry
on social work provides an effective connecting
link between state agencies and local problems.
(3) The now plan of public welfare work introduces
economy into county expenditures for the poor.
(4) Publ ic welfare work means preventive work.
(5) The new plan of welfare work distributes
equally the expenditures for social betterment.
(6) The new legislation provides an effective
unit for the administration of welfare
activities,
(7) The nev7 law provides an active agent, a direct¬
ing head for social work in the rural community.
(8) The no?/ law effects coordination of all the
agencies for social betterment.
I MISSOURI - LOCALl
(ST. LOUIS)
.(17-3) CUNLIFF, NELSON. De-nartmont of Public Welfare, St. Louis, pp. 160-
161 in Public Welfare in the United States. Annals of the American
Academy of Political and Social Science, vol. 105, Jan., 1923.
XI, 282 pp.
Brief outline of the origin of the Department under the
charter of 1914 and its subsequent activities.
1 MONTANAj
(174) ECKER-R., L, LASZLO. Financial responsibility for various welfare
activities - Montana. Table in his: Centripetal Force. 1935. See
No. 30.
-123-
11514 State and Local
Montana
No. 175-176
COMMENT AND OPINION
(175) GOVERNOR OF MONTANA, THE HON. ROY E. AYERS. Message to the Legislature.
Jan. 4, 1937,
"The tendency, which has long been noted, toward the decentrali¬
zation of our sta.te government, through che creation of new boards,
bureaus and commissions, has resulted in many needless duplications
of services, all of which call for unnecessary expenditure of public
funds. Some of these activities duplicate or impinge upon services
rendered by the federal government, and of which we have the full
benefit. At an appropriate time I shall call to your attention in¬
stances of duplicating services and would respectfully urge that
whenever, in the course of your own inquiries, you discover such
cases, action be taken to eliminate and co-ordinate them. I suggest,
also, an inquiry into those agencies which should be self-sustaining
and should not, for that reason, ask for or receive appropriations
from the general fund."
(176) MILLSPAUGH, ARTHUR C„ Characteristics of State organization: Montana.
pp. 151-152 in his: Public Welfare Organization. Washington, D.C.:
Brookings Institution, 1935. xxv, 700 pp.
In Montana the primarily welfare agencies number 15, 12 are boards
and 5 are institutional managing boards. Consolidation of special¬
ized agencies has been effected, not through the abolition of agen¬
cies, but through giving to several agencies the same directing head.
The Governor, the Secretary of State and the Attorney General
comprise the State Board of Examiners, also the State Board of
Prison Commissioners and the State Board of Commissioners for the
Insane. As a State Board of Prison Commissioners, they also con¬
stitute the Parole Board.
The State Board of Charities and Reform, a supervisory agency con¬
nected with dependency, may provide the starting point for a gen¬
eral service agency. Montana recognizes the interest of educa¬
tional agencies in the welfare field, and the State is making, con¬
sciously or unconsciously, some interesting experiments in the allo¬
cation of functions and the coordination of agencies. The School
for the Deaf, Blind and Feeble-minded, the Industrial School, the
Orphans' Home and the Vocational School for Girls are each managed
by a board of 3 members. The presidents of the 3 institutions first
named are selected by the State Board of Education, while the presi-
dnet of the Vocational School for Girls is named by the Executive
Board of the School, with the approval of the Governor and the State
Board of Education.
-124-
11514
COMMENT AND OPINION
State and Local
Montana, Nebraska
No. 177-178
(177) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest
of "public welfare provisions under the laws of the State of Montana.
Prepared by Robert C. Lowe and staff. Dec. 30, 1936. p. 2401-2418.
1 organization chart.
NEBRASKA
(178) BUCK, ARTHUR EUGENE. Administrative consolidation plan in operation.
pp. 12-14 in his: Administrative consolidation in State governments.
1930. 59 up.
The 1919 legislature under the leadership of Governor McKelvie
passed a law known as the "Civil Administrative Code", which pro¬
vided for the consolidation of most of the statutory administra¬
tive agencies of the State. It created 6 departments, as follows:
finance, agriculture, labor, trade and commerce, public welfare,
and public works. Upon the recommendation of Governor Weaver,
the civil administrative code was amended in 1929 to provide for
5 administrative departments instead of six, the department of fi¬
nance being eliminated. The head of the department of labor was
assigned to serve also as head of the department of public welfare,
a curious arrangement evidently aimed at economy. The four depart¬
ment heads, called secretaries, are appointed by the Governor,
with the legislature's approval, for terms of 2 years. The sub¬
ordinate officers and employees are appointed by the department
heads with the Governor's approval.
The department of labor administers the workmen's compensation,
the child labor law, the health and sanitary inspection, and the
safety regulation of factories and other places of employment.
The department of public welfare executes and enforces the laws
relating to food inspection,weights and measures, sanitation, and
the prevention of contagious and communicable diseases. It con¬
ducts examinations for the licensing of all medical practitioners,
embalmers and veterinary surgeons. It directs the State Depart¬
ment of Charities and Corrections and regulates maternity homes
and the placing of dependent children. The secretary of labor
and public welfare receives a salary of $5000 a year.
There has been some difficulty in the operation of tho plan, and
some changes have been made, notably the abolishing of the depart¬
ment of finance.
-125-
11514
State and Local
Nebraska, Nevada
No. 179-182
COMMENT AND OPINION
(179) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities.- Nebraska. Table in his! Centripetal Force. 1935. See
No. 30.
(180) MILLSPAUGH, ARTHUR C. Characteristics of State organization! Nebraska,
pp. 159-150 in his! Public Welfare Organization. Washington, D. C.!
Brookings Institution, 1935, xxv, 700 pp.
Nebraska lias enjoyed both piecemeal and general reorganizations.
It has eliminated all purely supervisory and all separate
managing agencies. The predominantly public welfare agencies
number only 4, of which 3 are boards. By far the most important
agency is the Board of Control. There is, however, a single-
headed Bureau of Child Welfare, nominally under the Governor.
Mei) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of -public welfare provisions under the laws of the State
of Nebraska. Prepared by Robert C. Lowe and L. T. Bennett, Jr.,
Legal Research Section. Dec. 15, 1936. 2 p.l., pp. 2501-2582.
1 organization chart.
Digest of public welfare provisions, pp. 2501-2517; digest of
administrative provisions, pp. 2518-2582.
NEVADA
(182) BUCK, ARTHUR EUGENE. Pro-posed consolidation -plans, p. 53 in his!
Administrative Consolidation in State Government. 1930. 59 pp.
A commission to study State activities was created by the 1923
legislature. This commission secured the services of the N. Y.
Bureau of Municipal Research to assist it. In the report a com¬
plete plan for reorganization was proposed for consolidating the
functions of the 78 existing agencies. Although a number of bills
were introduced in the legislature to carry out the recommendations
of the commission, fow of them passed and those that did were of
minor importance.
-126-
11514 State and Local
Nevada
No. 183-185
COMMENT AND OPINION
(183) ECEER-R., L. LASZLO. Financial responsibility for various welfare acn
tivities - Nevada. Ta"b].e in his: Centripetal Force. 1935. See No. 30.
(184) GOVERNOR OF NEVADA, THE HON. RICHARD KIRMAN, SR. Message to the legisla¬
ture in regular session, Jan. 18, 1937.
"In my message to the Legislature of 1935, there was set forth
a copy of a letter from the State Tax Commission to the Chairman
of the Charities and Public Welfare Board, which set forth certain
sums due with interest from eleven counties of the State for re¬
payment of moneys advanced to such counties in the total of $93,000.
The Legislature of 1933 had authorized a bond issue of $100,000 to be
loaned by a board designated as "The State Board of Charities and
Public Welfare," appointed by the Governor, to counties for relief
purposes, and to be repaid to the State with interest.
Under this Act $93.,000 was borrowed by eleven of our counties, and
on December 31, 1934, there had been repaid $26,000, leaving principal
balance due of $67,000.
I am glad to report that of this amount there has been repaid to
the State Treasurer, in accordance with the terms of the agreement
entered into early in 1933, the sum of $57,000, leaving a balance of
$10,000 due from Clark County. When this sum is finally repaid, the
Charity and Public Welfare bond account of the State can be balanced,
and the surplus, if any, shall be refunded to the participating
counties in the proportion of their contributions, and no more, as
provided by statute."
(185) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Nevada..
pp. 152-153 in his Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pp.
While Nevada has at least 16 agencies exercising welfare functions,
only 5 are squarely in the public welfare field. All of the wel¬
fare agencies are controlling and directing boards and 3 are in¬
stitutional managing bodies. Each of .these is wholly ex-officio.
In the State Board of Charities and Public Welfare, Nevada seems
to be developing a general service agency of broad jurisdiction.
-127-
11514
Stnt.? and. Local
Nevada, New Hampshire
No. 136-187
COMMENT AND OPINION
(186) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public wolfarc provisious under the laws of the Stato
of Nevada. Prepared "by Robert C, Lowe and Donna Scare, Legal
Research Section. July 15, 1935. 2 p.l., pp. 2601-2635.
Digest of public welfare provisions, pp. 2601-2610; digest of
administrative provisions, pp. 2611-2635. 1 organization chart.
| NEW HAMPSHIRE
(187) BROOKINGS INSTITUTION. INSTITUTE FOR GOVERN TENT RESEARCH. Welfare,
pp. 225—233 in Report on a survey of the organization and adminis¬
tration of the State, county ana town governments of New Hampshire,
submitted to Governor John G. Winant. Washington: Brookings Insti¬
tution, 1932. xxiv, 533 p.
In summarizing public welfare conditions in New Hampshire,
the report has this to say (p. 7):
"Public welfare activities, costing during the last fiscal year
(1931-32) $3,991,203.72, are administered by eight State agencies
and institutions by the counties, and by the towns. State agencies
and institutions have been reasonably well administered, but re¬
quire better coordination. Progress has been made in the counties;
but methods of outdoor poor relief in counties have been inadequate,
outworn and inefficient and for these a modern plan and program should
be substituted. In this field of welfare work, numerous small and
diversified units make effective operation impossible. The county
is the appropriate unit for local welfare administration, and it
is recommended that all local functions having to do with the desti¬
tute, the handicapped and the delinquent be transferred to the -
county, to be exercised there by a superintendent of public welfare.
A number of detailed recommendations are made, designed to promote
efficiency and economy."
The State Board of Public Welfare consists of the Governor and the
Secretary of the State, Board of Health, ex-officio, and 5 others,
one of whom is appointed every year for a term of 5 years by the
Governor and Council. The board may appoint an executive secretary
and such assistants and agents as may be necessary. The appointments
-128-
11514
COMMENT AND OPINION
State and Local
New Hampshire
No. 187 cont'd.
BROOKINGS INSTITUTION. INSTITU3 FOR GOVERNMENT RESEARCH. Welfare, (cont'd)
(187
cont'd.) are suhject to the approval of the Governor and the Council. The
Board is charged with:
Administration of Mother's Aid
Inspection of public institutions,both State and local.
Inspection and supervision of lying in hospitals and
children's institutions.
Care of dependent and neglected children.
Cripnled children.
Admission of indigent tubercular to public institutions
and care of them in private institutions.
Education and treatment of adult blind.
Education of deaf and blind children.
The survey points out the following needed improvements:
1) Coordination.
This can be obtained in one of three ways:
a) All state welfare agencies and institu¬
tions can be placed directly under a
commissioner of Public Welfare
appointed by and responsible to the
Governor.
b) The agencies and institutions can be
placed under the control of a State
Board of Public Welfare constituted
as at present, the board in turn to
have the power to elect or anpoint
a commissioner or director as its
executive officer in charge of admin¬
istration.
c) The individual boards of control of the
several agencies and institutions can
be retained and the Secretary of the
State Board of Public Welfare made chair¬
man or a member ex-officio of the board
of all state institutions and agencies
of a welfare nature. The secretary should
then be required to approve and submit
all budgets of such agencies to the Ex¬
ecutive Department.
2) The third plan is recommended as most efficient for New
Hampshire.
3) In order to locate responsibility and at the same time to
relieve the Governor and Councilors of direct administra-
-129-
11514
COMMENT AND OPINION
State and Local
New Hampshire
No. 187 cont'd.
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Welfare, (cont'd)
(187 _ _ -
cont'd.) tive duties, it is suggested that each of the institutional
boards should have ex-officio members other than the secre¬
tary of the State Board of Public Welfare. If this sug¬
gestion is adopted the number of appointive members might
well be increased from 5 to 6.
4) The Cancer Commission should be abolished and its func¬
tions, so far as they lie in the welfare field, be trans¬
ferred to the Department of Public Welfare.
5) If the proposed plan is adopted the administrative machinery
of the State Board of Public Welfare must be ..eorganized.
Its duties and responsibilities will fall largely under 3
heads!
a) Administration of a child welfare program.
b) Organization and supervision of local units
that will concern themselves primarily with
individual problems.
c) Inspection and supervision of welfare
institutions, both public and private.
Three bureaus, therefore, should be established: child
welfare, county and city organization and institutional
inspection and supervision.
6) The chief outstanding weakness in the State's welfare pro¬
gram is local administration. It is recommended that all
governmental functions having to do with the care of the
(a) destitute, the care and treatment of the handicapped, and
the care and custody of the delinquent, be transferred to
the county.
This will require a county administrative unit. Such a
unit should be under the direction of a county superin¬
tendent of welfare, qualified by training and experience
for the post. He should be appointed by the county com¬
missioners from a list furnished by the State Board of
Public Welfare. Assistants" should be appointed by the
superintendent. Costs of administration should be borne
entirely by the county, or shared by the State.
The duties of the superintendent should be:
Administration of funds having to do with the
destitute.
Admissions to county farm.
-130-
11514
COMMENT ANN OPINION
State and Local
New Hampshire
No. 187-139
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Welfare,
(cont'd.)
(197
cont'd.) Administration of child welfare laws.
Inspection of Institutions.
Administration of probation and parole
statutes. The superintendent of
public welfare should be the chief
probation officer of the county.
To supervise patients from institutions,
on parole or furlough.
To correlate welfare institutions and
agencies to secure effective service.
/ ✓
(188) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - New Hampshire. Table in his: Centripetal Force. 1935.
See No. 30.
(139) GOVERNOR OF NEW HAMPSHIRE, THE HON. FRANCIS P. MURPHY. Message to the
Legislature. Jan, 6, 1937.
"On June 30, the Board of Welfare and Relief will cease to exist.
Since its establishment by the last General Court, it has performed
a necessary function and the law which created it must be extended,
or amended, or a substitute provided. Unless action is taken, the
old Board of Public Welfare will automatically be restored but the
state will be left without a means for conducting relief operations.
It is essential that the state maintain such an agency if it is to
continue to receive certain Federal grants. The four programs in
which the national government cooperates — Old Age Assistance, Aid
to Dependent Children (or Mother's Aid, as it is known under the
New Hampshire lav/) Aid to the Needy Blind, and the Child Welfare
Services in the rural areas, are types of relief which are steadily
growing in importance. If we are to take advantage of the funds
which are available for these purposes the state must provide a
channel through which the national government can cooperate because
this cannot be done directly with sub-divisions within the state.
It is now generally admitted that actual administration of relief
should be entrusted to local officials and that, so long as the state
contributes to the support of local relief, it must maintain an agency
which can establish standards and supervise operations in order to
secure efficient administration.
In planning to meet our relief needs we should endeavor to so co¬
ordinate the various means available and the ways in which relief
is administered on different levels of government that those in need
may receive the greatest possible benefit with a minimum of red tape
and overhead expense.
A relief program should not only set up the machinery for co-operation
with the federal government, for state assistance in the supervision
of local relief, but it should also include provision for an even
more important relief function, that of creating or maintaining
employment."
-131-
11514
COMMENT AND OPINION
State and Local
New Hampshire, New Jersey-
No. 190-193
(190) HASSE, A.R. Maintenance, county and State, of defectives, delin¬
quents and dependents, pp. 38-44 in Index of Economic Material
in Documents of the State of New Hampshire. Washington, D. C.;
Carnegie Institution of Washington. 66 pp.
Analysis of reports, Governors' messages, etc., 1810-1904;
history of organization of State and county agencies.
(191) MILLSPAUGH, ARTHUR C. Characteristics of State organization:
New Hampshire, p. 158 in his; Public Welfare Organization.
Washington, D. C.; Brookings Institution, 1935. XXV, 700 pp.
New Hampshire has a Sta,te Board of Public Welfare, 16
institutional agencies and no permanent special agency.
(19.8) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the sta.to
of New Hampshire. Prepared by Robert C. Lowe and staff, Dec.
15, 1936. 2 p.l., pp. 2701-2759. 1 organization chart.
Digest of public welfare provisions, up. 2701-2714; digest of
administrative provisions, pp. 2717-2759.
HEW JERSEY ]
(193) BUCK, ARTHUR EUGENE. Proposed consolidation plans, pp. 46-47 in his;
Administrative Consolidation in State Governments. 1930. 59 pp.
The New Jersey legislature of 1912 created a "commission on the
reorganization and consolidation of different departments of the
State government whose functions are interelated". The plan of
consolidation was largely adopted by the 1°15 legislature. The
1918 legislature created a department of charities and corrections
(institutions and agencies) under which are grouped all the chari¬
table and penal institutions of the State. Most of these new de¬
partments are administered by boards rather than by single heads.
The members of these boards usually have long and overlapping terms,
thus making the administration of the departments practically in¬
dependent of the control of any one Governor. Recommendations for
further reorganization will be made to the 1930 legislature.
-132-
11514 State and Local
New Jersey
No. 194-196
COMMENT AND OPINION
(194) ECKER-R., L. LASZLC. Financial responsibility for various welfare ac¬
tivities - New Jersey. Table in his: Centripetal Force. 1935.
«
(195) ELLIS, WILLIAM J. Next stems in coordinating -public and private, local
and state social welfare effort a. (Social Service Review. Vol. 8.
March, 1934, pp. 50-57.)
The genius of the New Jersey plan of welfare organization may be
summed up as a combination of (l), The establishment of a central
state administration and policy making agency for the coordination
of local and state units; (2) A decentralization of administrative
detail, for the purpose of carrying out policies, built upon the
development of local citizen planning and support of an official and
advisory nature. This has utilized effectively the unsalaried Su¬
pervisory boards.
The next major step is the provision of the county welfare board
and welfare units.
The organization of county welfare services has been generally accept¬
ed as a more practical administrative unit than any individual town or
township plan.
(196) GOVERNOR OF NEW JERSEY, THE HON. HAROLD G. HOFFMAN. Message to the legis¬
lature at the regular session, Jan. 13, 1937,
"The aid available for dependent children has freed the State from
some of the limiting restrictions formerly imposed upon this kind of
assistance. We now have more than 31,000 children, the wards of the
State Board of Children's Guardians, receiving support and care in
homes of widowed mothers or in suitable foster homes. By June this
number is expected to increase by several thousand, and the expendi¬
ture for this particular service will rise to approximately six mil¬
lion dollars annually. Of this amount, the Federal government will
pay something less than one-third. The State find the several counties
will share the remaining cost equally. The required State appropria¬
tion in the next fiscal year will be $2,253,874.
Within the few short months since this enlarged public welfare program
became law, old age assistance has become effective in thousands of
homes where restrictions theretofore had barred such aid. The age of
beneficiaries was reduced from seventy to sixty-five years within the
last nine. The number of aged persons receiving assistance has increased
-133-
11514 State and. Local
New Jersey-
No. 196-198
COMMENT AND OPINION
GOVERNOR OF NEW JERSEY, THE HON. HAROLD G. HOFFMAN. Message to the
legislature, (cont'd.)
(196
cont'd.) from 15,904 as of June last, to approximately 23,000. This
number will continue to increase during the coming months,
and it is anticipated that 30,000 of our aged people will
be receiving assistance by the end of the present fiscal
year, at a total annual expenditure of $7,782,000. Of each
dollar spent for old age assistance, the Federal government
will provide 50 cents, the State 37-g- cents:, and the counties
12-|- cents. Our required State appropriation for the next
fiscal year will be $2,918,532, and the Federal contribution
is estimated at $3,891,376.
The law respecting aid to the needy blind and to crippled
children was likewise liberalized,, and the number of per¬
sons aided has been substantially increased. This is
especially the case with respect to crippled children,
since much needed treatment will be henceforth available
for older crippled children who were ineligible under the
old law. Four hundred and sixty-six blind persons are
receiving assistance, and 15,557 crippled children are
under the care of the Crippled Children's Commission."
(197) HASSE, A. R. Maintenance, county, private and State, of defectives.
delinquents and dependents, pp. 455-502 in Index of the Economic
Material in the Documents of the State of New Jersey. Washington,
D. G., Carnegie Institution of Washington. 705 p.
Analysis of reports, Governors' messages, etc., 1792-1904;
history of organization of State and county agencies.
(198) INSTITUTE OF PUBLIC ADMINISTRATION, NET YORK. Report on a survey of
the organization and administration of the state government of New
Jersey made for the Governor and the State Audit and Finance Commis¬
sion. Trenton: Natl. Institute of Public Administration of N. Y.,
1930. 381 pp. tables. 1 organization chart. Chapter x. Public
welfare organization, pp, 164-184.
The present plan of organization of the New Jersey Department
of Institutions and Agencies represents a compromise between
indenendent administration and control of the various insti¬
tutions and agencies by special boards in each, and central
administration and control by a single board. The enactment
of the law of 1918 is a recognition of the need for a central
controlling body which should be responsible for general policy
in the care of State wards and the development of cooperation
between the special services concerned. The question to be
here discussed is whether or not a further step toward central
control is desirable.
There are now 19 local administrative boards in addition to the
central board. There is little to criticize and much to com¬
mend in the activities of the local boards in so far as the wel-
-134-
11514
COMMENT AND OPINION
State and Local
New Jersey-
No. 198 cont'd.
INSTITUTE OF PUBLIC ADMINISTRATION, NEW YORK. Report on a survey,
(con^d.)
(198
cont'd.) fare of the state wards is concerned, but our study has convinced
us that the present divided responsibility between the central
board and its subordinate local board tends to an expenditure in
State institutional service which is all out of proportion to need.
The centralization of all authority for administration of State
institutions and agencies in the board of cohtrol and the com¬
missioner is fundamental. The department should then be known
as the department of public welfare and the board as the board
of public welfare.
Uniformity of policy and method in institutional matters can be
more satisfactorily maintained if a central board is the sole
authority in these matters.
Efficient and economical expansion of institutional plants and
construction of new ones calls for the elimination of all possible
influences which would tend to overemphasize the needs of any in¬
dividual institution. More boards of managers mean even greater
difficulty in adapting State resources and a statewide program to
the more or less local interests of individual boards. The
present central office contains the following bureaus:
Division of Administration
Division of Classification and Parole
Division of Medicine
Division of Inspection and Legal Settlement
Division of State Use and Institutional Employment
Division of Research
Division of Architecture.
The chief changes recommended are:
1) The consolidation in a single child welfare bureau of
the work of the present central bureau of children and
the work of the Board of Children's Guardians,
2) The transfer of the division of architecture to the pro¬
posed Department of Public Works.
3) The transfer of the director of rehabilitation clinics
from the commissioner of labor to the Commission of Pub¬
lic Welfare.
4) The removal of the Keeper of the State Prison from the
constitution. . .
-135-
11514 State and local
New Jersey
No. 199-300
COMMENT AND OPINION
(199) MILLSPAUGH, ARTHUR C. Characteristics of State organization: New Jersey
pp. 167-169 in his: Public Welfare Organization. Washington, D.C.:
Brookings Institution, 1935, xxv, 700 pp.
New Jersey provides an interesting illustration of the evolution
of public welfare organization; and it retains, with an integrated
and strong central organization, a measure of institutional de¬
centralization.
In 1917, two investigating commissions were appointed and both
recommended the creation of a strongly centralized Board of Control
Accordingly, the legislature set up the State Board of Control
of Institutions and Agencies and the Commissioner of Institutions
and Agencies, the two to constitute the Department of Institutions
and Agencies.
The public welfare law of New Jersey, the basic portions of which
were enacted in 1918, represents an integrating effort which was
practical rather than theoretical, constructive rather than de¬
structive, conservative rather than abolitionary and natural
rather than forced. The several institutional boards were placed
definitely under the orders of the State Board, which was made
the sole agency for the transmission to the Governor of the
budgetary requests of institutions. Prevention, restoration and
institutional cocrdina;ion bulk large among the activities of the
Department. The fields of relief, child welfare, mental hygiene,
adult delinquency, paroling in part, and parole supervision wholly
are unified in one agency.
The Board of Control of Institutions and Agencies composed of 9
members serving 8 year terms, is practicrlly removed from the con¬
trol of any one Governor. The Board apooints the Commissioner.
Each institution has a Board of Managers appointed by the State
Board with the approval of the Governor. The executive heads of
the institutions are appointed in general by the Boards of Managers
with the approval of the State Board, the Boards of Managers have the
immediate direction and control of institutions. The State Prison,
however, is managed by a principal keeper, a constitutional officer
who is independent of the Department of Institutions and Agencies.
There is, however, provided for this insitution a supervisory board
appointed in the same manner as the boards of other institutions.
(200) NEW JERSEY. DEPARTMENT 05* INSTITUTIONS AND AGENCIES. Summary report
of the Department of Institutions and Agencies, 1923-1933, and Handbook
of institutions and agencies. Trenton, 1934, ix, 129 pp. 1 organization
chart, tables (Publication no. 25)
136-
11514 State and Local
New Jersey
No. 200-201
COMMENT AND OPINION
NEW JERSEY. DEPARTMENT OF INSTITUTIONS AND AGENCIES. Summary report,
(cont'd.)
(200
cont'd.) With the creation of the Department of Institutions and Agencies
inl918, the charitable as well as the correctional institutions
in New Jersey were "brought under a single unified management.
The law creating the State Board of Institutions and Agencies pro¬
vides that it shall have power to determine all matters relating
to the unified and continuous development of all institutions and
non-institutional agencies within its jurisdiction; it shall de¬
termine all matters of policy and have power to regulate the admin-
istra.tion of any of the institutions and non-institutional agencies
within its jurisdiction, correct and adjust the same so that each
institution and agency shall perform its proper function.
The Board of Control, composed of 9 members serving without salary,
holding office for terras of 8 years, is appointed by the Governor
with the consent of the Senate.
The State board appoints members of local boards subject to the
approval of the Governor. These members serve for 3 years each;
terms of 2 members expire each year. The local boards (usually
of 7 members) their chief executive officers, the superintendents,
subject to approval of the State board. All other employees are
under Civil Service.
The State board appoints its chief executive officer, the Commis¬
sioner, who, in turn appoints members of the Central Department
staff from Civil Service eligibles, subject to approval of the
State Board.
The divisions of the department are: administration and accounts;
statistics and research; classification and education; parole,
medicine; inspection; state use; old age relief; architecture
and construction.
(201) POTTER, ELLEN C. Coordination of State and local units for welfare
units. p;a. 481-493 in: National Conference of Social Work. Pro¬
ceedings, 1933. Chicago: Univ. of Chicago Press, 1933. XII,
751 pp.
The establishment of the State.Board of Charities by Massachu¬
setts was the first official effort at coordination of welfare
services on a state-wide basis. Sta.te departments of welfare
and State boards of control represent the modern development
in this field.
In 1911 the old policy of direct grants without standard's or
supervision was abandoned, and the method of matched grants
under specified standards, with Federal supervision, opened
-137-
State and Local
COMMENT AND OPINION New Jersey
No. 201 cont'd.
Coordination of State and local units for welfare units.*
(201
cont'd.) a new era of social development over the wide area of the
United States. In so short a period as 10 months, all the
states had accepted Federal standards, financial grants, and
supervision in regard to various proposals. The Sheppard-
Towner Maternity and Infancy Welfare Acti/was accepted by 43
states within four years. No social worker, public or private,
needs to be reminded of the results obtained in improved child
care as a result of this legislation.
Turning from the field of Federal attempts at coordination, let
us look at one State considering various attempts to coordinate
and develop standards of work in the State.
The State of New Jersey, over a period of 34 years, has under¬
taken to adjust its public welfare machinery to meet the needs
of changing times.
- Experiment No. I -
The Act of 1899 creating the Board of Children's Guardians
was the outgrowth of an investigation which disclosed a large
number of children in New Jersey almshouses. This Act created
an official body empowered to accept the guardianship of de¬
pendent and neglected children.
The various acts under which it functioned were mandatory upon
the counties. With the increasing number of children to be
cared for, the county officials became critical of the central
administrative authority. The Board of Guardians was dependent
on the legislature for funds.
Upon the creation of the Department of Institutions and Agencies
the Board of Children's Guardians became a unit in this central
body but retained very largely its own independent powers.
Conclusions to be drawn from this social experiment are:
1) A central State administrative and policy-making body
is essential to the development of a coordination of
State and local units in the field of social work.
2) Mandatory legislation providing for the same tyc and.
relative amount of service available to all parts of
the state is preferable to permissive legislation.
3) Decentralization of administration and the development
of local citizen understanding and support is valuable.
1/.Approved Nov. 23, 1921. 42 Stat., 224.
11514
POTTER, ELLEN C.
(cont'd.)
-138-
11614
COMMENT AND OPINION
State and Local
New Jersey-
No. 201 cont'd.
POTTER, ELLEN C. Coordination of State and local units for welfare units,
(cont'd.)
(201
cont'd.) 4) The policy of direct appropriation for administrative
purposes is not likely to orovide flexible increase or
decrease of funds to meet changing demands.
The establishment of the principle of setting aside a definite
percentage of the total funds to be spent for administrative
purposes will more nearly meet the need.
- Experiment No. II -
The creation of a Department of Instructions and Agencies in
1918 set up a milestone.
The strength of this body lies in the fact ^hat it is com¬
posed of 9 public spirited citizens, serving without pay, organ¬
ized as the State Board of Control appointed for overlapping
terms of 8 years.
The powers vested in the Board to appoint members of local boards
of institutions with the approval of the Governor, their powers
in relation to budget and policy making, to which the insti¬
tutional and agency boards must conform, make for a coordina¬
tion and standardization of program and for a progressive develop¬
ment.
The social and statistical research work carried on by the De¬
partment makes it possible to detect social trends and to make
plans to meet indicated needs.
r» f y* •
The supervisory powers vested in the Department in relation to
county, municipal, and private institutional work, provides a
means by which local units may be lured toward a unity of effort.
The conclusions to be drawn from this second social experiment
seem to be:
1) A central official State body of interested citizens ap¬
pointed without political considerations, with a min¬
imum of change each year is essential to a. continuing,
progressive and coordinated program of public welfare.
2) A non-salaried board removes the appointment from the
category of "political alums".
3) Power vested in the central authority to aopoint local
officials leads to coordination.
4) Control of the budget by the central body is essential.
5) Social research must be a part of a long term planning
program.
-139-
11514 State and Local
COMMENT AND OPINION New Jersey
No. 201 cont'd.
POTTER, ELLEN C. Coordination of State and local units for welfare
units, (cont'd.)
(201
cont'd.) 6) Supervisory powers over local, public and private
social agencies must be mandatory.
- Experiment No. Ill -
The 1924 Act for the Settlement and Relief of the Poor revised
the ancient poor law. However, it left in the hands of the 563
Overseers of the Poor their function of outdoor relief completely
decentralized, while it added a permissive power of which the
county might avail itself.
The County Freeholders were empowered by this Act to establish
a county welfare house and to appoint a welfare board for its
administration.
The Act permitted set-up of district welfare boards if adjacent
counties did not find individual boards practical.
The conclusions which can be drawn from this 3rd experiment are*
1) Permissive legislation provides a slow process for bring¬
ing about change in government, but it does have an ed¬
ucational value,
2) A welfare board created for the purpose of administering
a county welfare program is a long step forward, and
correlation of outdoor and institutional relief is sound
policy.
3) Recognition of welfare houses not as operating a farm but
of conducting an infirmary, and the appointment of a
graduate nurse as head of the institution, indicates re¬
sponse on the part of the public official to social change,
4) Consultation and advisory service of the Central Department
providing the local official group with needed aid in
planning.
- Experiment No. IV -
The Old Age Assistance Act of 1931 was mandatory in its provi¬
sions upon all counties. It provides for a central policy¬
making and supervisory authority vested in the Department, and
for unpaid county welfare boards for decentralized administration
in all counties. The executive of these boards is to be a county
welfare director paid from county funds.
-14C-
11514
COMMENT AND OPINION
State and Local
New Jersey-
No, 201 cont'd.
POTTER, ELLEN C. Coordination of State and local units for welfare units,
(cont'd.)
(201
cont'd.) The funds for grants to the aged under the Act are provided in the
ratio of 75$ "by the state and 25$ by the county, the county to
provide for the cost of administration of the county unit. The
State Division of Old Age Relief to prescribe a uniform system of
accounts and to supervise administration of old age relief through¬
out the State.
- Experiment No. V -
A companion bill permitting any county by referendum to establish
its outdoor relief on a county, instead of a township, basis, thus
integrating the whole relief system under a county welfare board,
was passed.
Conclusions to be drawn from the fourth and fifth social experi¬
ments are:
1) A mandatory act wisely conceived and accompanied by finan¬
cial assistance from the larger to the smaller governmental
unit, will bo readily acoepted.
2) The principle of State supervision with local administra¬
tion proves sound and effective.
3) Combined administration of outdoor and institutional relief
under one county welfare board is within the capacity of
that agency to perform if properly staffed.
4) The local agency accepts State standards with little con¬
troversy if a financial grant accompanies the regulation.
5) Direct appropriation for the purpose of administration of
social services which tend to fluctuate in volume is un¬
likely to meet the needs.
- Experiment No. VI -
The collapse of the antiquated system of poor relief and the ex¬
haustion of local funds resulted in the passage of emergency relief
acts. The administration of relief funds is completely decentral¬
ized, under close supervision, except in bankrupt communities, in
which case the central State agency takes charge.
Costs of administration #re paid out of total funds appropriated
for relief at the discretion of the director, but no percentage
is fixed.
-141-
11514 State and. Local
New Jersey
No. 201-202
COMMENT AND OPINION
POTTER, ELLEN C. Coordination of State end local units for welfare
units, (cont'd.)
(201
cont'd.) Research is carried on in various fields by the central staff of
the Emergency Relief Administration.
The conclusions that may be drawn from this sixth Social Experiment
are:
(1) A centralized, policy-making, standardizing and adminis¬
trative body is necessary to bring about correlation of
social effort.
(2) A dictatorship should be modified by an advisory body.
(3) Mandatory law in line with good social practice will be
accepted.
(4) This acceptance is accelerated if funds from a central
source are made available.
(5) Decentralized, administration, under supervision, gives
the most satisfactory and stable method of service com¬
bined with a local sense of responsibility.
(6) The principle of paying for costs of administration out
of funds that are to be administered, either on a per¬
centage basis or on a discretionary basis, is sound and
effective, if wisely administered.
(?) A central system of education of the decentralized admin¬
istrative units is an essential part of such program.
This implies, for its successful accomplishment, a pro¬
fessionally trained supervisory staff.
(8) Carefully prepared memoranda on rules, regulations, in¬
formation, etc. and consultation service on request will
be an effective way to improve local work.
(9) Consolidated reports covering the entire state submitted
to local units will have a beneficial effect.
When the people have at last learned that public welfare is a pro¬
fessional function of government, they will insist upon coordination.
(202) STAFFORD, PAUL T. State welfare administration in New Jersey. Trenton,
N.J.: Department of Institutions and Agencies, 1934. 136 pp. tables.
1 organization chart.
At the present time, responsibility for State welfare administra¬
tion is placed in four general types of State agencies, viz.: the
-142-
11514
COMMENT AND OPINION
State and Local
New Jersey
No. 202 cont'd.
STAFFORD, PAUL T. State welfare administration in New Jersey, (cont'd)
(202
cont'd.) lay board, the paid or professional board, the ex-officio board and
the single-headed department. In December, 1930, 23 states had
unpaid lay boards. Paid boards are now being used in 9 states for
the administration of state charitable and correctional institutions,
while three states entrust this responsibility to an ex-of1icio board,
and 11 states have placed the control of public welfare administra¬
tion in one or more deoartnents under a director appointed by the
Governor and responsible to hin. All but five states have created
central agencies with broad powers of control over the wide range
of modern state welfare activities.
The evaluation of State public welfare administration in New Jersey
parallels the general growth throughout the country. The original
policy was to place the administration of State institutions under
the guidance of separate boards of trustees, or managers, the members
cf which were appointed by the Governor with the consent of the
Senate-, . These boards appointed the chief executive officers of the
institutions, removed them at will, appointed subordinate officers
end submitted annual reports to the legislature.
A movement for centralization of welfare agencies gained headway
as social problems developed, and various experiments in centrali¬
zation were tried. In 1918 an'act was passed creating a Department
of Gharities and Corrections under the general direction of a State
Board of Control. The institutional heads were retained but were
made subordinate to the State Boa.rd which was authorized, and given
ample power, to control and direct all the state correctional
and charitable institutions.
The primary objective in the reorganization of 1918 was to create
a central agency of control, and, at the same time, to retain
initiative and responsibility in the component parts of the con¬
stantly expanding system of State welfare administration. To
realize this purpose, powers of ultimate control were placed in a
non-partisan, non-salaried central board while the traditional
boards of managers of the institutions were continued as subsidiary
and subordinate units of control. Since these boards, the central
and local, have become the pivotal .agencies around which the present
administration operates, an appraisal of the system must direct
special attention to them and to the organizational needs they serve.
There are four main arguments advanced in favcr of a board of con¬
trol, viz.:
(1) It assures continuity of policy.
(2) The board is a defense against political interference.
It serves as a buffer against political interference.
-143-
11514 State and Local
New Jersey
No. 202 cont'd.
COMMENT AND OPINION
STAFFORD, PAUL T. State welfare administration in New Jersey, (cont'd.)
(202
cont'd.) (3) It provides a ceuncil of minds essential in dealing
properly vrith problems of public welfare, which re¬
quire application of quite different administrative con¬
trol than do most branches of State administration.
(4) Since the general public is not yet oreparea to exer¬
cise sound judgement on public welfare problems a wel¬
fare department needs special machinery for its defense
and for the interpretation of its work. This machinery
is provided by a well-constituted board.
The advocates of one-man control, who believe that economy and ef¬
ficiency are the primary objectives in State administration, urge
the centralization of administrative responsibility in the Governor.
They believe that the Governor must have direct control of the work
of various administrative departments by means of the power of ap¬
pointment and removal of his chief administrators. Adequate guber¬
natorial responsibility is held unattainable if the welfare depart¬
ment and its administrative head are controlled by a board inde¬
pendent of the Governor.
Among students of public administration the prevailing opinion fa¬
vors single executive control, while those with practical experience
in social welfare administration generally prefer board control.
This disagreement arises from the fact that the welfare adminis¬
trator is primarily interested in solving the problems of one field
of governmental administration and permanency of tenure in the
agency of control is therefore essential, while the student of
public administration views the department of public welfare as a
unit in general organization of all departments of State adminis¬
tration in which responsibility should center in the Governor,
At the head of the Now Jersey Department of Institutions and Agen¬
cies is the State 3card of Control, an unpaid, non-partisan group
of laymen. There are 10 members consisting of tho Governor ex-
officio and 9 others, at least one of whom must be a woman, ap¬
pointed by the Governor with the consent of tho Senate for eight
year terms.
In this board rests the final and ultimate authority for the ad¬
ministration of the State welfare program. To conduct the adr-
ministrative work of the department the State board appoints a
commissioner to serve at its pleasure. This officer appoints the
employees in the contr-al office from civil service oliglbles and
-144-
11514
CO! "ENT AND OPINION
State and Local
New Jersey
No. 202 cont'd.
STAFFORD, PAUL T. State welfare administration in New Jersey, (cont1d.)
(202
cont'd.) makes all rules and regulations for administrative procedure, sub¬
ject to the approval of the board. The internal organization
is left to the discretion of the board and the commissioner.
Complete control of the State institutions and agencies is placed
in the State Board, including the power of appointing their boards
of managers and establishing the general rules for directing their
work.
In addition, t" e State Board controls institutional budgeting and
accounting, the state use system, institutional designing and con¬
struction. The Board has the responsibility for supervising all
welfare institutions other than the State institutions and may
enforce its recommendations by court order.
The members of the boards of managers of the State institutions
and the 2 non-institutional agencies are appointed by the State
Board and the Governor for overlapping terms of 3 years. The
boards consist of not less than five or more than seven members
who serve without pay.
Each institutional board has the power, subject to the general
rules of the State Board, to determine the number, qualifications.
compensation, powers and duties of the officers and employees of
the institution coiunitted to its charge. It appoints the chief
executive of'icer with the approval of the State Board, and ho ap¬
points the officers and employees of tho institution from civil
service cligiblcs with the approval of the institutional board.
The immediate responsibility for th>; general management of each
institution is placed in its board of managers.
Now Jersey has now had 15 years of experience with this system of
control. During this period, remarkable progress has been made
in the problems of institutional planning and. construction, in
curative and preventive work. Many of the State institutions are
considered the best of their type in the country and the training
programs which the department directs throughout the institutions
are based upon a comprehensive system of classification which might
well serve as a model for other states.
When the Department of Institutions and Agencies was created in 1918,
the legislature granted the State Board of Control wide powers
for the establishment of an organization through which the functions
of administration were to be exercised.
Acting under its authority the State Board has created the following
administrative divisions, each of which is supervised by a director
immediately responsible to tho commissioner:
(1) Division of Administration and Accounts.
(2) Division of Inspection and Legal Settlement.
-145-
11514 State and Local
New Jersey
COMMENT AND OPERATION No. 002 cont'd.
STAFF0RDx PAUL T. State welfare administration in New Jersey. (cont'd.)
(202
cont'd.)
(3)
Division of
Old Age Relief.
(4)
Division of
Architecture and Construction
(5)
Division of
Employment.
State Use and Institutional
(6)
Division of
Classification and Education.
(?)
Division of
Parole.
(8)
Division of
Medicine.
(9)
Division of
Statistics and Research.
At the present time the central office of the Department directs
and coordinates the activities of 21 institutions and agencies which
may he grouped as follows;
A. Penal and correctional institutions.
33. Mental disease hospitals.
C. Institutions for the feeble-minded and epileptics.
E. Institution for tuberculous patients.
E. Soldiers' Homes.
F. Non-institutional agencies.
With the passage of the old age relief act in 1931, the Department
was authorized to supervise the allocation of state funds to the
several counties, to establish rules and regulations governing the
procedure for granting relief and to determine the rates of relief
in disputed cases.
When the legislature abolished the D ;partmcnt of Architecture in
1921, most of the functions of that department were transferred to
the Department of Institutions and Agencies. With the exception
of public schools, the department now has supervision of the design¬
ing, construction and repair of all State buildings.
One essential in the proper administrative functioning of the Depart*-
mont is that ther"• be cooperative effort among th^ several divisions.
The ultimate resoonsibility for effecting this necessary correlation
of divisional activities r^sts largely upon the departmental head, who,
by individual as well as joint conferences with the several divisional
heads, at whica time problems relating to specific divisions or to the
department as a whole are reviewed, has developed a high degree of
unity within the present organization.
-146.
11514
comment and opinion
State and Local
New Jersey, New Mexico
No. 203 - 205
(203) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Analysis
of constitutional provisions affecting public welfare in the State of
New Jersey. Jan. 1, 1937. Prepared by Robert C. Lowe and Helen R. Sherfey.
11 pp.
j new Mexico!
(204) ECKER-R., L. LASZL0. Financial responsibility for various welfare activi¬
ties - New Mexico. Table in his: Centripetal Force. 1935. See No. 30.
(205) GOVERNOR OF nsw MEXICO, THE HON. CLYDE TINGLEY. Message to the legislature
at the regular session, Jan. 12, 1937.
"In line with coordinating the administration of public
affairs, I recommend for your consideration the estab¬
lishment of a new Department of Public Welfare, which will
embrace all phases of social and public service to needy
and indigent. The 1935 Session of the Legislature estab¬
lished the New Mexico Relief and Security Authority for
the purpose of having an agency to cooper.ate with the
Federal Government under the Federal Social Security Act.
This agency has become an extremely important one and has
served its purpose well in the past two years. At the time
the state law was passed the Federal Congress had not as
yet passed the Federal Social Security Act. It is now de¬
sirable that the welfare agency of the state, which will
carry on the work now handled by the New Mexico Relief
and Security Authority, have more specific powers and
duties in order to comply more fully wit a the Social
Security Act. I therefore recommend that a new public
welfare act be adopted. The department established by
this act should, I believe, include the existing New
Mexico Relief and Security Authority as well as the
Child Welfare services to be rendered by the State. The
personnel administering the work of such a department
should be carefully chosen end efficiently trained for
their positions. This is also true of the personnel of
the newly established Unemployment Compensation Commission,
created by the Act passed at a special session of the last
Legislature less than a month ago. I therefore recommend
for your consideration the enactment of a merit system
-147-
11514
COMMENT AND OPINION
State and Local
New Mexico
No. 205~°06
GOVERNOR 0? NSW MEXICO, THE HON. CLYDE TIdGLEY. Message to the
legislature, (cont'd.)
(205
cont'd.) bill for these two agencies, to establish qualifications
for all employees in these two departments, the giving
of competitive examinations to applicants for positions
possessing the necessary qualifications as shown by the
competitive examinations.
New Mexico has in the past cooperated to the fullest
extent with all Federal agencies in connection with as¬
sistance to Disabled Veterans. I believe that such co¬
operation should be continued and encouraged so that all
Disabled Veterans in this state will be properly and
adequately provided for.
As you know, there has been erected at Hot Springs, Sierra
County, New Mexico, a hospital for crippled children. This
building is now being completed; it has been built and
will be furnished and equipped by the Federal Government,
but will be the property of the State of New Mexico.
The hospital and equipment are second to none in the
United States and it is designed to meet the acute need
in this state. Surveys have shown that more than 1,050
crippled children in New Mexico are in need of the ser¬
vices that can and will be rendered in this institution.
Many of these children can be entirely cured and all can
be greatly benefited by the treatment that they will re¬
ceive there. I ask that you enact legislation, creating
necessary authority in this state to take over and ad¬
minister this hospital and to make available funds for
its upkeep and administration."
(206) MILLSPAUGH, ARTHUR C. Characteristics of State organization: New
Mexico, p. 153 in his: Public Welfare Organization. Washington,
D. C„.S Brookings Institution, 1935. xxv. 700 pp.
While New Mexico has 19 agencies interested in the public wel¬
fare field, only 10 are primarily welfare agencies. All of
these, with the exception of the superintendent of the Peni¬
tentiary, are boards. There are 6 institutional boards. One
consolidation in the past gave to the State Department of Pub¬
lic Welfare the powers of the State Department of Health, the
Child Welfare Service, and the Child Welfare Board., Thus
"public welfare" in New Mexico comprehends both health and
child welfare. The Department of Public Welfare also admin¬
isters the Child labor law. Although actually the Bureau of
Child Welfare functions quite separately from the Bureau of
Public Health, yet the Bureau of Child Welfare has administered
emergency relief and it seems fair to classify this state as
one with an embryonic general service agency.
-148-
11514 State and Local
New Mexico, New York Stat
No. 207-208
COMMENT AND OPINION
(207) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest of
public welfare provisions cinder the laws of the State of New Mexico.
Prepared by Robert C. Lowe and Donna S. Adams, legal Research Section.
November 15, 1936. 2 p.l., pp. 2901-2910.
Digest of public welfare provisions, pp. 2901-2909; digest of administra¬
tive provisions, pp. 2910-2946. 1 organization chart.
i NEW YORK STATE
(208) AD IE, DAVID C. A state handles its public welfa.re problems, pp. 516-
533 in Proceedings, 1933, National Conference of Social Work. Chicago;
University of Chicago Press, 1933, xii, 751 pp.
After some introductory remarks on the disruption in social
welfare procedures occasioned by the recent unprecedented crisis,
Mr. Adie says: "I shall devote considerable attention to develop¬
ments in New York State because New York displays the full gamut of
social welfare trends."
New York State early in the 19th century was a commonwealth
dominated by small freeholders and merchants; and those who
could not make a go of it were considered a blot and
a drag upon the community. The indigent were stowed away
in city , town or county poorhouses, indiscriminately.
In 1823 the legislature had ordered the first State-wide
survey of poor relief methods. From then on the State
took increasing interest in the administration of relief,
but progress was slow.
In the train of the Civil War followed a swarm of ills.
The State had to contritute larger and larger subsidies
to private institutions and the extent of the State's
participation in welfare activities had now grown to
such proportions that the need for a St.ate supervisory
body was acutely evident. This led to the establishment
of the State Board of Charities in 1867, As yet, how¬
ever,, it resisted the assumption of any sizable degree
of control. Among the first important achievements in
-149-
11514
COMMENT AND OPINION
State and Local
New York State
No. 208 cont'd.
ABIE, DAVID C. A state handles its public welfare -problems. (cont'd.)
(208
cont'd.) New York was the passage in 1875 of a law prohibiting
the retention of children between 2 and 16 years of age
in the public almshouse.
The poorhouse had been the catch basin into which all
classes in need of relief were thrown. The first suc¬
cessful assault on this lack of discrimination culminated
in the Child Aid Act of 1875, mentioned above. Next
followed a wholesale exodus of other groups from the
almshouse; the insane, the feeble-minded, the epileptic.
This movement away from indiscriminate herding toward
classification and segregation coincided with the
adoption of a new curative attitude of the State toward
its wards. In 1894 the State undertook complete respon¬
sibility for the care of the insane.
The first great step of the State centered about the
child, crystallized in the Child Welfare Act of 1915,
which established boards of child welfare in the State
for the purpose of distributing mothers' allowances.
A series of reorganizations culminated in constituting the
Board of Charities in 1929 as the Department of Social
Welfare.
Then came the depression.
New York's relief experience is only indicative of that
of other states, and it is precisely because of the failure
of these lesser measures that we now face a new national
program.
Above all we must get away from the despotic influence of
an all persuading material relief program. The provision
of emergency relief is but one aspect of the state's social
program of the future and should by no means remain the
all-dominant factor it is today.
What, then, is the basis for the reorganization of a State
Department of Social Welfare and the development of a»
comprehensive program?
First of all, the reorganization must be in line with the
new responsibility which motivates our national recon¬
struction policy.
Second, and more concretely, it must be our aim gradually
to weave into the fabric of our society a compilete set
of guarantees against the periodic economic paralysis
-150-
11514
COMMENT ANT OPINION
State and Lccal
New York State
No. 208-209
ADI/Ss PAY ID C. A state handles its public welfare problems. (cont'd.)
(208
cont'd.) inherent in modern society. This calls for a practical
administrative reorganization in cooperation with existing
private and public agencies, so that the State will be
assured of a modern and well-rounded social service in
family welfare, child care, medical aid, prevention of
delinquency, old age support, etc.
Third, but still of prime importance, is the problem of
recruiting and training an adequate personnel for the
new program.
The most effective instruments of this threefold program
must be knowledge, and public opinion created by its
dissemination. Any long-term planning or any forward-
looking preventive program is inconceivable without
complete statistical data concerning our population,
its mode of life and its needs. The data thus obtained
must be constantly and intelligently presented to the
general citizenry so that there will be no cultural
lag behind social trends."
(209) BUCK, ARTHUR EUGENE. Consolidation plans in operation, pp. 35-42 in
his: Administrative Consolidation in State Governments. 1930. 59 pp.
Agitation for reorganization of the New York State government
began in 1915. Surveys were made and several bills were presented
to the legislature. In 1925 a reorganization amendment was passed,
providing for 20 departments, viz.: executive, audit and control,
taxation and finance, law, state public works, architecture, conser¬
vation, agriculture and markets,labor, education, health, mental
hygiene, charities, corrections, public service, banking, insurance,
civil service, and military and naval affairs. The heads of all the
departments except law, education, audit and control and agriculture
and markets are appointed by the Governor with the advice and con¬
sent of the Senate.
The reorganization amendment provided that the legislature follow¬
ing its adoption should provide by law for the appropriate assign¬
ment of functions to the departments. This was done by the 1926
legislature. Some minor changes were made by the 1927 legislature.
Also the number of departments was reduced to 18, eliminating the
departments of architecture and military and naval affairs.
The annual salary of each of the department heads except the com¬
missioner of education, is $12,000. The department heads in prac¬
tically every instance appoint their own subordinates.
The department of mental hygiene has supervision over the custody,
care and treatment of the insane, mental defectives and epileptics.
-151-
11514
COMMENT AND OPINION
State and Local
New York State
No. 209-210
BUCK, ARTHUR EUGENE. Consolidation plans in operation, (cont'd.)
(209
cont'd.) The state schools for mental defectives and the state hospitals for
the insane except Matteawan and Dannemora are under its control.
Each institution has an advisory visiting "board of seven members
appointed by the Governor for 7 year terms.
The department of charities is headed by a board of 12 members ap¬
pointed by the Governor, one from each of the judicial districts
of the State and 3 additional from New York City. The members have
8 year terms and receive a per diem compensation. The board appoints
the director of charities who is the chief executive of the depart¬
ment. Under the department are the state charitable institutions,
the Indian school, and the institutions for the deaf, dumb and the
blind.
In connection with the department there is a commission for the blind
consisting of 5 members appointed by the Governor for 5 year terms.
A 1929 law designated this the department of social welfare.
The department of correction has control of all state prisons and
reformatories, and the hospitals at Matteawan and Nannemora for
the criminal insane. The department has 5 divisions, viz.J ad¬
ministration, prison industries, parole, probation, and criminal
identification. Under the division of parole is a board consist¬
ing of 3 ex-officio members. The division of probation has a board
of 7 non-salaried members. There is also a state commission of
correction attached to the department, which is composed of 7 mem¬
bers appointed by the Governor for 4 years and the commissioner ex-
officio. Its duties are largely of an investigational character.
(210) BUREAU OP MUNICIPAL RESEARCH, N.Y.CITY. Organization for administra¬
tion of State institutions for the care of delinquents and dependents,
pp. 145-158 in Constitution and government of the State of New York -
an appraisal. Transmitted to the New York State Constitutional Con¬
vention by the N. Y. State Constitutional Convention Commission. Albany:
The Bureau, 1915. xii, 246 pp. 5 organization charts.
In New York, as in other American states, the State is assuming an
increasing responsibility for the support and custodial care of
delinquents, defectives and dependents. The work of all institu¬
tions providing for these wards of the State is brought under some
measure of supervisory control and public accountability through
the activities of a formidable array of boards, commissions and
state officers, but for the efficient administration of most of
them there is no direct responsibility assumed by the state, nor
is the effort of the State looking to their efficient performance
of a public service concentrated in any single department of the
State government.
The chief financial burden far the care of delinquents, defectives
and dependents, rests on the local government of the villages, towns,
-152-
11514
COMMENT AND OPINION
State and Local
New York State
No. 210 cont'd.
BUREAU OF MUNICIPAL RESEARCH, N.Y. CITY. Organization for administration
of State institutions, (cont'd.)
(210
cont'd.) cities and counties. Partly on account of economic and social con¬
ditions, "but chiefly for financial reasons, there is a growing ten¬
dency here as elsewhere, for the State to assume an increasing
share of this burden through the provision of State custodial care.
Economic and social development has made dependency no longer local
with respect to its causes or the measures necessary for its pre¬
vention. This fact makes it all the more desirable that the State
should set up a suitable and clearly defined department of govern¬
ment for the exercise of functions destined to assume greater magni¬
tude.
Of the 44 institutions, for whose management and support nearly l/3
of the estimated revenues of the State was appropriated, 8 are admin¬
istered by the State superintendent of prisons, and the remaining
36 are administered by 36 separate boards of managers.
The following institutions and agencies are included in the govern¬
ment:
8 penal institutions.
State Commission of Prisons.
State Superintendent of Prisons.
Commission on New Prisons.
State Board of Classification.
Board of Parole of State Prisons.
Board of Examiners of Feeble-minded.
Criminals and other Defectives.
Prison Association of New York
Charitable institutions and reformatories.
State Board of Charities.
Fiscal Supervisor of State Charities.
Building Improvement Commission.
Salary Classification Commission.
State Charities Aid Association.
Commission on Sites, Grounds and Buildings.
Joint Purchasing Committee
State Hospitals for the Insane
State Hospital Commission
Recommendations:
If the head of each of the three main services, i.e.; Superintendent
of Prisons, State Hospital Commission and Fiscal Supervisor, were
brought into close personal contact through one departmental head,
with the Governor, the necessary coordination of activities and the
consequent elimination of some friction, much duplication and un¬
necessary cost could be accomplished without serious disturbance
in the existing classification of public institutions which has
seemed to work very well in this State.
-153-
11514
COMMENT AND OPINION
State and Local
New York State
No. 210-212
BUREAU OF MUNICIPAL RESEARCH, N.Y. CITY. Organization for administration
of State institutions. (cont'd.)
(210
cont'd.) The weight of evidence is in favor of greater centralization in the
management of State institutions provided local boards of manage¬
ment can be retained to perform subordinate functions and to hold
and increase the popular interest and participation in the affairs
of institutions."
(211) ECKER-R., L. LAS2L0. Financial responsibility for various welfare
activities - New York. Table in his: Centripetal Force. 1935. See
No. 30.
(212) GOVERNOR OF THE STATE OF NEW YORK, THE HON. HERBERT H. LEHMAN. Message
to the Legislature. Jan. 7, 1937.
"On no subject has there been closer co-operation between the Legis¬
lature and the Executive than on -unemployment relief. Last year we
jointly enunciated the permanent policy that the state should parti¬
cipate in alleviating the hardships of the jobless. Together we
formulated a plan for the transfer of the functions of the Temporary
Emergency Relief Administration to the Department of Social Welfare.
Civil Service in Unemployment Relief. In establishing a permanent
agency, the Legislature declared that the fundamental principles of
competitive civil service shall be respected. We are proud of the
fine record the state has made in civil service. And I am confident
that it will not be the intention of the Legislature to relinquish
our adherence to those high standards. The transfer of relief from
a temporary to a permanent agency will be made gradually so as not
to impair the service, and it will be completed by July 1 of this year.
New Legislation. The Board of Social Welfare and the Temporary Emer¬
gency Relief Administration have prepared additional legislation which
they believe necessary for the effective handling of relief on a per¬
manent basis. Among other things they recommend:
Inclusion as state poor of all persons having no settlement in any
town or city of the state.
Prohibition of garnishment of wages received within the first three
months by former relief recipients.
Authorization to state and local agencies to carry on work relief.
Provision for the transformation of local relief bureaus onto a per¬
manent basis.
—154—
11514
COMMENT ANT OPINION
State and Local
New York State
No. 212-214.
GOVERNOR OF NEW YORK, THE HON. HERRERT LEHMAN. Message to the Legis¬
lature. (cont'd.)
(212
cont'd.) Extension for another year of the power conferred upon local govern¬
ment to issue bonds for relief. Thereafter local financing by bonds
should be gradually tapered off so that it will be done entirely from
current revenue.
These and other suggestions of the Board of Social Welfare should
receive your careful consideration..."
(213) HASSE, A. R. Maintenance, city, county, private and State, of de¬
fectives. delinquents and dependents, pp. 356-409 in Index to
Economic Material in the Documents of the State of New York. Wash¬
ington, D. C.j Carnegie Institution of Washington. 553 pp.
Analysis of reports, Governors' messages, etc., 1798-1904;
history of organization of State and county agencies.
(214) MANGOLD, EDITH P. AND R0CXW00D, EDITH. New York: illustrations of
state and local public Welfare organization in theiri Organization for
Public Welfare. Washington, D.C., 1936. 32 pp.
New York has several state agencies in the welfare field, the
most important of which are the Department of Social Welfare,
the Department of Mental Hygiene, the Department of Correction and
the Temporary Emergency Relief Commission. The latter temporary
agency is closely associated with the Department of Social Welfare
since one member of the Board of Social Welfare serves on the com¬
mission, and the commissioner of social welfare participates in
the commission meetings without a vote. It is these two agencies
which work with the local public welfare districts.
The Department of Social Welfare is headed by a board of social wel¬
fare consisting of 12 members, appointed by the Governor and who
receives per diem pay for attendance at meetings.
The Board appoints the commissioner of social welfare (the chief
executive and administrative head of the department), the secretary
and the heads of the divisions. Other appointments are made by
the commissioner, subject to civil service rules.
The divisions of the department are; (l) Division of Old Age Se¬
curity, (2) Division of Child Welfare, (3) Division of Medical
Care, (4) Division of State Aid (Indian and State poor), (5)
Division of Research, (6) Division of State Institutions, (7)
Division for the Blind.
-155-
11514
COMMENT AND OPINION
State and. Local
New York State
No• 214—215
MANGOLD, EDITH P. and ROCKWOOD, EDITH. New York, (cont'd.)
(214
cont'd.) In 1929 New York passed a "public welfare law" to set up public
welfare districts which were ready to be used when it became nec¬
essary to administer unemployment relief. The county is the
public welfare district, with some exceptions.
The county commissioner of oublic welfare is appointed by the county
board of supervisors unless he is elected under a law governing the
selection of the county officer responsible for the poor. He ap¬
points his own staff. The great amount of state aid given the
counties during recent years has made it possible for the state to
ask and insist on the appointment of qualified personnel.
Thd county public welfare commissioner is responsible for adminis¬
tering all the public relief and care for which the county is re¬
sponsible. This may mean all public relief and care given in the
county, or the cities and towns may carry a share of the responsi¬
bility. The public welfare district also provides medical care
for those unable to secure it; maintains a county home for persons
in need of instituional care; is responsible for the welfare of
children in need of support, reports the names of blind persons to
the state commission and grants allowances to those in need; provides
relief for needy veterans and their families; and administers
old age pensions. County boards of Child Welfare composed of
the county commissioner of public welfare and six members ap¬
pointed by the county judge, grant mothers' allowances.
(215) MILLSPAUGH, ARTHUR C. Characteristic of State organization: New York.
pp. 163-164 in his Public Welfare Organization. Washington, D. C.: Brook¬
ings Institution, 1935. XXY, 700 pp.
In 1919 there were over 20 state agencies charged with the visita¬
tion inspection, supervision or administration of welfare insti¬
tutions, and 18 boards for hospitals, homes and training schools.
The 6 State prisons had already been brought under a Superintendent
of Prisons, a State Commission,of Prisons, a Board of Parole, a
Probation Commission and a Board of Classification.
A constitutional amendment consolidating the State administrative
agencies into 20 departments was apnroved in 1925. By this re¬
organization, the field of public welfare was apportioned among 3
departments, viz.: Mental Hygiene, Corrections, and Charities,
the latter agency becoming in 1929 the Department of Socia,l Welfare.
The Departments of Mental Hygiene and Corrections axe single headed;
but the Department of Social Welfare, unlike the corresponding agency
in Massachusetts, is under a board.
Altogether, New York appears to have about 50 separate agencies ex¬
ercising welfare functions, 38 of these being predominantly welfare
agencies. Of the latter, 36 are boards and commissions, but only
-156-
11514
COMMENT AND OPINION
State and Local
New York Stato
No. 215-216
MILLSPAUGH, ARTHUR C. Characteristics of State organization, (cont'd.)
(21.5
cont'd,) 4 have directing and controlling powers, the remainder■being boards
of visitors with almost exclusively supervisory duties. There are no
boards for the penal institutions, which are inspected by a Central
Commission of Correction.
(216) NEW YORK STATS. GOVERNOR'S COMMISSION ON UNEMPLOYMENT RELIEF. State
and local welfare organization in the State of New Ycrkf a summary
report upon the administration of public relief services with recom¬
mendations, submitted to Governor Herbert H. Lehman, December 28, 1935,
Albany: J. B. Lyon, 1936. 1 organization chart. 97 pp. (Legislative
Documents 1936, no. 56.)
A. Recommendations regarding State welfare organization and policy.
(1) State supervision and State financial participation with
the local units of government should be established as
a continuing and permanent policy for home relief.
(2) The allotment and control of the funds so furnished
should be placed in a reorganized permanent State welfare
agency having the power (a) to supervise local welfare
departments, (b) to pay part of the salary of qualified
local personnel and to assist local welfare authorities
in the recruiting of staff members, (c) to establish
rules and regulations for the local administration of
relief and (d) to withhold state funds in the event that
local authorities fail to comply with such rules and
regulations,
(3) The Commissioner of Social Welfare should be appointed
by the Governor and should be directly responsible to
him. All administrative functions and duties imposed
upon the Department of Social Welfare should be placed
under the control and supervision of the Commissioner of
Social Welfare. This recommendation should become
effective July 1, 1936.
(4) Effective July 1, 1936, the Board of Social Welfare
should consist of 8 members to be appointed by the
Governor, by and with the advice and consent of the
Senate. The members of this board should be appointed
for overlapping terms of four years, the terms of "
members expiring each year.
(5) The Board of Social Welfare should be given the power to
determine general policies relating to all forms of
public assistance which are administered under the super¬
vision of the Department of Social Welfare and to make
rules and regulations in respect thereto:
establish rules and regulations for all private
institutions and agencies which are now controlled
-157-
11514 State and local
COMMENT AND OPINION New York State
No. 216 cont'd.
NEW-YORK STATE. GOVERNOR'S COMMISSION ON UNEMPLOYMENT RELIEF. State and
local welfare organization, (cont'd.)
(216
cont'd.) by the Board of Social Welfare; inspect all welfare
institutions; serve as a board of review to decide
appeals by institutions and agencies under the Department
of Social Welfare, which protest decisions or rulings of the
Commissioner; concern itself with questions of policy; and
be an advisory, planning and interpretive body.
(6) The powers and duties of the Temporary Emergency Relief
Commission with regard to home relief should be trans¬
ferred to the State Board and State Department of Social
Welfare, effective Jan. 1, 1937. The life of the T.E.R.A.,
however, should be extended to Feb. 15, 1937.
(7) Administrative functions of the Department of Social
Welfare should be reorganized to integrate the addition¬
al functioning of home relief and so that activities
relating to a single field of social welfare may be
grouped in one division. The reorganization should be
left to the Commissioner of Social Welfare with the
advice of the Board.
(8) Consideration should be given to a revision of the plan
for State reimbursement now provided for home relief and
old age security in order to allow the State to make
advance grants to local communities for that portion of
relief grants to be met out of State funds. If a system
of advance grants is established, a post audit should be made.
(9) Division heads in the Department of Social Welfare should
be responsible only to the Commissioner. We recommend
that the Commission for the Blind be made an advisory
body and that the head of Commission be directly respon¬
sible to the Commissioner of Social Welfare.
(10) The Board of Social Welfare in consultation with the
State Civil Service Commission should establish minimum
qualifications for positions in local welfare departments.
(11) During the calendar year 19-36 the State should reimburse
the municipalities for at least 40^ of their home relief
expenditures. The State should thereafter continue to
provide a substantial share of the home relief costs.
The percentage to be borne in future years should be
determined from time to time by the Legislature.
(12) Financial assistance to localities for the various forms of
relief administered in the homes of the recipients, whether
provided by State funds or by State and Federal funds, should
be adjusted to eliminate inducement for local government to
shift persons from one relief category to another as a means
for securing additional State and Federal aid,
-158-
11514 kjvn -o cu-iA - --.via—
New York State
COMMENT AND OPINION No> 216 cont»a.
NEW YORK STATE. GOVERNOR'S COMMISSION ON UNEMPLOYMENT RELIEF. State and
local welfare organization. (cont'd.)
(216
cont'd) (15) The salaries for positions in the Department of Social
Welfare should be made such that adequately qualified
personnel may be secured.
B. Recommendations regarding local welfare organization:
(14) The Public Welfare Law should be amended to abolish the
present system of administering and financing home relief
on a town basis. Administration of all home relief and
medical care, outside of incorporated cities should be
centralized in the hands of the county commissioners
of public welfare and the cost of all such relief should
be paid from county funds collected from a tax area
identical with the area of administration.
Cities should be allowed to join in the county unit of
welfare administration, but only when both the city
council and the county board of supervisors have formally
approved such action.
(15) Other forms of public aid which are already administered
and paid for in the first instance by the county, but
the cost of which is, in some cases, charged back to the
respective towns or cities, should in the future be
financed by county funds, collected as indicated above.
(16) The Commissioner of Public Welfare should ultimately be
empowered to administer all types of public assistance
available in the district which he serves.
(17) The election of county commissioners of public welfare
should be discontinued. They should be appointed by a
majority vote of the county board of supervisors, for a
tern of 4 years. In counties having an administrative
head, the county commissioner should be appointed by
him, to serve at his pleasure.
(18) City commissioners of public welfare should be appointed
by the mayor. Administrative boards of public welfare
should be abolished.
(19) County commissioners should be provided with offices at
the most accessible olace in the county or at the county
seat or both. A superintend nt should be a oointed to
manage the county home in each county.
(20) Salaries of the commissioners should be adequate to
attract persons qualified for the job.
(21) The Wicks Act—/ should be amended to permit the dissolu¬
tion of emergency relief bureaus by a procedure similar
to that now existing for the establishment of such bureaus,
the act should be further amended to provide for the
djssqlntiQn Of nil emergency relief bureaus by Dec. 51. 19.78.
1/ Ch. 798, Laws of 1931. -159-
11514
COHl'ENT AND opinion
State and Local
Hew York State
Ho. 217-213
(21?) NEW YORK STATE. STATE DEPARTMENT OF EFFICIENCY AND ECONOMY AND NEW
YORK BUREAU OF MUNICIPAL RESEARCH. Government of the State of New
York: a description of its organization and functions, prepared for
the N. Y. State Constitutional Convention Commission. Jan. 1, 1915.
768 pp.
The "book is conroosed of organization charts for the "bureaus,
offices, etc., and the departments of the State government with
"brief explanatory text. Tables showing salary scales and func¬
tion of oersonnel are included.
The section on the care of delinquents, defectives and dependents,
up. 407-647, contains a large number of organization charts.
*218) STAFFORD, PAUL T. The New York system of public welfare administration,
pp. 35-36 in his: State Welfare Administration in New Jersey. Trenton,
1934. 136 pp.
New York has 3 departments for the administration of public wel¬
fare, viz.: Correction, Mental Hygiene and Social Welfare. The
first two are under the direction of a commissioner responsible
to the Governor, but the Department of Social Welfare is control¬
led by an unpe.id lay board. The commissioners of correction and
mental hygiene o,re appointed by the Governor and Senate to serve
during the two year term of the Governor. Complete control is
vested in the commissioners who appoint the institutional super¬
intendents from civil service eligibles. Unpaid boards of visi¬
tors, appointed by the Governor and Senate for seven years are
maintained for the reformatories in the Department of Correction
and for all institutions in the Department of Mental Hygiene.
A Commission of Correction, consisting of the commissioner and
seven persons appointed by the Governor and Senate for four years,
has power to inspect all correctional institutions in the State
and elvise the commissioner and the superintendents.
At the head of the Department of Social Welfare is a board of 12
members representing each judicial district of the State and ap¬
pointed by the Governor and the Senate for 8 year terms. The
administrative duties of the department, including jurisdiction,
supervision and control of 5 stale institutions, are conducted
by the commissioner selected by the board to sorve at its plea¬
sure. The institutional superintendents appointed by the hoard
from the competitive class of the civil service receive advice
and criticism from hoevds of visitors, each consisting of 7 mem¬
bers appointed jy the Governor and the Senate for 7 year terms.
Long tenure of office for the executive head and his chief assis¬
tants is a striking feature of the Department of Social Welfare.
The executive, appointed in 1896, except for a four year interval
when ho was commissioner of public charities, served until 1916.
His successor, except for a one year interval in 1925, remained
in office until 1932.
-ISO-
11514 State and Local
Few York State, New York City,
North Carolina
No. 218-221
COMMENT ANN OPINION
(218
cont' d.)
STANFORD, PAUL T. The New York system of public welfare administration.
(cont'd.)
A tradition of office for the commissioner of mental hygiene may
now be in the orocess of development. The present commissioner,
one of the 3 state hospital commissioners whose offices were
abolished in the 1926 reorganization of the State administrative
structure, has held office since 1927, having been reappointed
three times. The fa.ct remains, however, that the tenure of these
officials is assured for only 2 years, .and with a change in the
control of the State administration, there is no certainty that
the commissioners will retain their positions.
(219) WALLACE, RICHARD W. The New York State system and its problem of re¬
organization. pp. 113-118 in Public Welfare in the United States.
Annals of the American Academy of Political and Social Science, vol.
105. Jan., 1923. XI, 252 pp.
This is an outline of the functions of the several State welfare
agencies then operating, by the superintendent of Inspection of
the State Board of Charities. Mr. Wallace directs especial atten¬
tion to the State supervisory agencies and to efforts at reorgani-.
zation of State departments.
! NEW YORK STATE - LOCAL I
(NEW YORK CITY)
(220) RANKIN, REBECCA P. Department of Public Welfare in the City of New York.
pp. 151-155 in American Academy of Political and Social Science. Annals,
vol. 105, Jan., 1923. XI, 232 pp.
Traces the history of public welfare in New York City
from 1695 ana includes a set-up of the Department of
Public Welfare as functioning in 1919.
I NORTH CAROLINA
)
(221) BROOKINGS INSTITUTION. Institute for Government Research. Public
welfare. pp. 274-297 in Report on a survey of the organization and
administration of North Carolina. Washington, D. C.: Brookings In¬
stitution, 1930. xlviii, 323 pp.
A number of recommendations are presented for improvement in the
public welfare agencies of North Carolina, viz.:
-161-
11514
State and Local
North Carolina
Ho. 221 (cont'd.)
COMMENT AND OPINION
(221
cont1d.)
BROONINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public
Welfare. (cont'd.)
The independent boards of directors for the various in¬
stitutions should be abolished.
A department of institutions headed by a commissioner ap¬
pointed by the Governor should be created and the manage¬
ment of these institutions should be vested in the Com¬
missioner.
The State Board of Charities and Public Welfare should be
retained in a, visitorial capacity over all State institu¬
tions .
Certain administrative activities should be transferred to
the Department of Institutions.
A Bureau of Pardon and Parole should be created.
All purchases of the Department of Institutions should be
made thru the Bureau of Purchase and Contract.
In regard to the advantages of a central Department of Institu¬
tions, the reocrt says in substance:
Through establishment of this department, costs should be
lowered .and benefits to institutional inmates increased.
The Budget 3ureau could dead directly with the department.
A central staff would be equipped to advise on problems
in the various institutions.
The department should be headed by a Commissioner appointed
by and responsible to the Governor. He should be a member of
the Governor's cabinet.
The State Board of Charities should be retained. It would
have few administrative duties, but would be concerned with
visitation and investigation of work being carried on.
The following outlines indicate the government units now engaged
in welfare work and the manner in which they will be reorganized
if the recommendations herein contained are adopted. (p. 297)
-162-
11514 State and Local
North Carolina
COMMENT AMD OPINION No. 221 - 223
(221
cont1d.)
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public
welfare, (cont'd.)
- Present organization -
State Board of Charities and Public Welfare
(elected by General Assembly. Boa1"! Ap¬
points Commissioner.)
Division cf County Organization
Division of Institutional Supervision
Division of Mental Health and Hygiene
Division of Work among Negroes.
Division of School Attendance
State Hospital at Raleigh
State Hospital at Goldsboro
Caswell Training School
State Prison
Central Prison (Raleigh)
Carey Farm
Caledonia Farm
Prison Camps
Bureau of Identification
Industrial Farm
Colony for Women
Easter Carolina
Training School
Stonewall Jackson-
Training School
Morrison Training Schoc
State Home and Industr:
School for Girls
Soldier's Home
Confederate Women's
Home
- Proposed organization -
Department of Institutions
Office of the Commissioner
(appointed by the Governor)
Bureau of Institutional Super¬
vision. (Supervises all
state institutions)
Bureau of Pardons and Parole
Bureau of Mental Hygiene
Bureau of Children
Bureau of City and County
Organization
State Board of Charities and
Public Welfare (Visitorial,
elected by General Assembly)
Office of the Board
Bureau of Supervision
(222) BUCK, ARTHUR EUGENE. Proposed corsolidatir i -plans; N.C. p. 47-48 in
his:-. Administrative Consolidation in State Governments. "930. 59 pp.
By authority of the state auditor, a. plan of reorganization was
prepared end submitted to the 1923 legislature. Later a bill was
introduced to carry the plan into effect. It was proposed to
establish IS deportments, viz.: administrative, state, audit and
control, treasury, education, law, agriculture, health, natural
resources, labor and industry, banking and insurance, taxation and
revenue, highways and public works, welfare, military affairs, and
public utilities. All departments, except the department of pub¬
lic utilities, <-ere to have single heads. The plan has not been
acted on by the legislature.
(223) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - North Caroline. Table in his: Centripetal Force. 1935.
See No. 30.
-163-
11514
com!!ent and opinion
State and Local
North Carolina
No. 224
(224) JOHNSON, I LIS. KATE BURR. The North Carol Una plan of Public welfare.
In Annals of the American Academy of Political and Social Science,
vol. 105, pp. 125-129.
The North Carolina Board of Public Welfare is composed of 7
members, 2 of whose terms expire each 2 years, and who serve
without pay. They are appointed by the Oovernor and confirmed
by the Legislature. This board in turns appoints a Commissioner
of Public Welfare who is an executive officer of the Board.
The work of the Board has been divided into 5 bureaus to carry
out the duties and requirements of the Board under the law.
The bureaus are, resp.: County Organization, Child Welfare,
Industrial Supervision, Mental Health and Hygiene, and Promotion
and Publicity. The work of each of the bareaus includes the
following subdivisions:
A. County Organization*
B. Inetitutiona.l Supervision:
0. Child Welfare:
D. Mental Health ana Hygiene:
E. Promotion and Publicity:
The State Superintendent of Public Instruction, the State
Health Officer, and the Commissioner of Public Weifa -e, form
a Child Welfare Commission whose duty it is to enforce the
child labor laws. The County Superintendent of Public Welfare
is the authorized agent of the Commission. Almost coincident
with the establishment of the North Carolina Board of Public
Officials. At these special public welfare institutes, the
subjects are Aiviled into 5 classes, viz.:
1). These having to do with general problems and policies.
2). Those having to do with State and county policy and
public welfare administration.
3). Those having to do with specific problems and methods
of work.
Another difficulty to overcome is the necessity for shattering
pleasant traditions and to force people from old accustomed
methods to new ones.
Then there is the ever p vsent danger and justifiable fear on
the part of the public of centralization of power. We believe
that we are overcoming this difficulty to some extent in North
Carolina through the plan of county units of public welfare.
The State acts only in a supervisory capacity.
-164-
1151
COKLENT AND OPINION
State and. Local
North Carolina
No. 224-225
(224
cont'd.)
JOHNSON, L.IRS. KATE BURR. Tho North Carolina plan of public welfare.
(cont'd.)
The last difficulty to be mentioned and. probably the most
serious one, is the need for trained workers to carry out the
program and plan of the department, and overcoming this difficulty
will very largely solve all the others. That such workers are
more successful if familiar with local conditions and if they
have a local background is also true. To take highly trained
workers, accustomed to city work, where adeciuate facilities
are available to handle any social uroblem, and put them in
small towns and communities where the worker has not only to
solve the problems but be ingenious enough to provide the
facilities, is exceedingly discouraging to the worker and un¬
satisfactory to the client. The School of Public Welfare at
the State University is rendering a great service to social
progress not only in North Carolina, but in the South as a
whole, by training workers to meet the situation as it exists
in the South today.
One, two and four year courses of professional training are
given in the School of Public Welfare, and in addition to this,
summer institutes are held under the joint direction of the
State 3onrd of Charities and Public Welfare a.nd the University
for superintendents of public welfare and institutional
Welfare was the establishment of the School of Public Welfare
at the University. The Director of this school serves as
consul.tant to the Board of Public Welfare.
The first thing to bo encountered is the attitude of a great
number of people who see in every public office created an
extra burden to them as taxpayers. Frequently people are
indifferent and really antagonistic to social work because
they arc uninformed as to the extent of our social disabilities.
In order to prove that such work is needed, surveys must be
made and statistics gathered that will bring to light conditions
as they actually exist.
(225) KELSO, ROBERT W. The North Carolina system, pp. 134-138 in his:
The Science of Public Welfare. New fork: Holt and Co., 1928.
428 pp.
-165-
11514 State and. Local
North Carolina
No. 226-227
COiliENT AND OPINION
(206) MILLSPAUGH, ART !UP. C. CharatcrIstics of State organization; North
Carolina. p. 156 in h* s: Public "/elfare Organization. Washington, D.C.:
Brooi ings Institution, 1955. x:cv, 700 pp.
North Carolina established a Board, of Pi'blic Charities in 1869; and
replaced it in 1917 by the present State Board of Charities and
Public Welfare. The State now has 16 controlling and directing
welfare agencies, of which all but one a.re headed by boards. There
are not less than 11 institutional managing boards. The North
Carolina, organization has one unioue feature; the .allocation of
prison administration to a rela.ted agency - t-"e High'"ay and Public
Works Commission. With reference to the institutions, the Depart¬
ment of Charities and Public Welfare is supervisory; it emphasizes
prevention, promotion and local organization; and, in the main, it
is based on a broad conception of public welfare functions.
(227) ODUM, HOWARD W. AND WILLARD, D. W. The North Carolina plan, pp. 172-
211 in their: Systems of public welfare. Chapel Hill: University of
N. C Press, 1925. 302 op.
The state-wide public welfare act was passed in Forth Carolina,
in 1917. The State Board of Charities and Public Welfare was
created. The county commissioners were given power to create
county boards of public welfare and also to elect a ccanty
superintendent of public welfare. The law at that time was
purely permissive. In 1919 the mandatory act was passed which
caused the organization of every county in the state for public
welfare. A 3 member board of public welfare was appointed in
every county. In counties of over 32,000, a. superintendent of
public welfare is required.
A. The K. C. Board of Charities of Public Welfare is composed of
7 members, 2 of whose terms expire each 2 years, and who serve
without pay. They .are appointed by the Governor and confirmed
by the legislature. 'This Board in turn appoints a Commissioner
of Public Welfare '-ho is The Executive officer of the board.
The work of the board is divided into five bureaus, viz.:
(1) County omnization
(2) Institutional supervision
(3) Child wolf . -re
(4) Mental health and hygiene
(5) Promotion and publicity.
The State superintendent of Public Instruction, the State Health
Officer, and the Commissioner of Public Welfare form a State Child
Welfare Commission.
B. Each county in North Carolina has a public welfare unit performing
similar definite functions. If we classify its duties as we did
the above bureau division, we have the following:
-156-
11514 State and Loccl
North Carolina,
North Dakota
No. 227-229
CON, SKT AND 0PI1TI0N
(227
cont1d .)
ODID.:, HOWARD -7. and WILLARD, D. W. The. North Carolina plan. (cont'd.)
1) County administration and state cooperation.
2) General child welfare work.
(3>) Relief
(4) Probation and juvenile court work.
(5) School attendance work.
(6) C ommun i t y or gar. izatio n.
C. The following recommendations for improvement in the North Carolina
system are made:
1) Trained workers.
2) Cooperation with other agencies, state and local.
(3) County Boards of Public Welfare. Their powers should
be enlarged so that their members may have some voice in
the appointment of the county superintendent of public
welfare.
(4) Prison conditions. There should be a continuing board
of directors for the State Prison.
(5) Women should be placed in charge of women prisoners.
(6) A Whole-t ime superintendent of public welfare in every
county and in the larger counties additional officers to
assist him.
(7) A bett er understanding of public welfare.
(228) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the State
of North Carolina. Prepared by Robert C. Lowe and staff, Legal
Research Unit. April 15, 1936. 2p.l., pp. 3101-3175. 1 or-
ganization chart.
Digest of public welfare provisions, pp. 3101-3106; digest of
administrative provisions, pp. 3109-3175.
! north dakota]
I j
(229) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - North Dakota. Table in his: Centripetal Force. 1935
See No. 30.
-167-
11514
State and. Local
North Dakota
No. 230-233
COMMENT AND OPINION
(230) GOVERNOR OF NORTH DAKOTA, THE HON. WILLIAM LANGER. Message to the
Legislature. Jan. 6, 1937.
"I recommend that you utilize the information gathered "by the tax
commission and that you give serious consideration to its proposals
and counsel; that you devise and formulate plans for a complete re¬
vision of our system of state and local governments with the ulti¬
mate aim to simplify and clarify our whole suner-structure of govern¬
ment; to eliminate every office, bureau and commission not essential
to the maintenance of the primary functions of government that are
essential, so as to reduce the'cost of their maintenance; to place
every office, bureau and coiomission which you determine to retain,
upon a self-sustaining basis, insofar as it is possible, by the
charging of reasonable fees for all services rendered, .and to re¬
organize and reform our system of the administration of affairs of
government so as to conform to scientific methods of business
management and promote the maximum degree of efficiency in the ad¬
ministration of all governmental affairs...
I recommend that at least half the revenue on beer shall be turned
over to the State Welfare Board, to be used for relief purposes, es¬
pecially for the support of dependent children, the blind and the
aged."
(231) MILLSPAUGH, AR.THUR. C. Characteristics of State organize!ions; North
Dakota, pp. 174-175 in his Public Welfare Organization. Washington,
D. C.: Brookings Institution, 1935. xxv, 700 pp.
North D \kota established a Boa.rd of Control in 1911 and abolished
the separate institutional managing agencies. In 1919, the present
Board of Administration was created, merging the Board of Control,
the 3oard of Regents, and the Board of Education. The new Board
was provided with a Children's Bureau in 1925. In addition to
the control of institutions the Board of Administration has broad
functions in the child welfare field. It is charged with the en¬
forcement of the child labor .and compulsory education laws, it has
some supervision over the State Superintendent of Public Instruc¬
tion, it administers vocational education and rehabilitation, and,
in the field of mental health, it is charged with the encouragement
of scientific investigation. Though the 3oard may not be in practic
much more than an agency for controlling the business management of
institutions, its statutory jurisdiction entitles it to be grouped
with the most highly integrating .agencies.
(232) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Analysis of constitutional provisions affecting public welfare
in the State of North Dakota. Dec. 1, 193S. Prepared hy Robert
C. Lowe and David S. Lander. 13 pp.
(233) Digest of public welfare provisions under the laws of the State
of North Dakota. Prepared by Robert C. Lowe and staff, Legal
Research Unit. January 1, 1936. 2 p.l., pp, 3201-3259. 1 or¬
gan! za,t i on cha.rt.
-168-
11514 State and Local
Ohio
COMMENT AND OPINION No. 234
OHIO j
;
(234) BUCK, ARTHUR EUGENE. Administrs.tive consolidation plans in operation.
pp.'19-21 in his: Administrative consolidation in State governments.
1930. 59 pp.
In 1919 a joing legislative committee on administrative reorgani¬
zation was established in Ohio. This committee recommended a
reorganization of the State administration involving both statutory
and constitutional changes. The Governor, Lieutenant Governor and
auditor were to be the only elective officers, and the Governor's
term was to be made four years. In addition there were to be 10
major departments under the control and direction of the Governor.
The code abolished most of the statutory administrative agencies
and consolidated their work in 8 departments, viz.: finance, com¬
merce, highways and public works, agriculture, health, industrial
relations, education and. public welfare. In 1927 the department
of highways and public works was split into 2 departments.
The departments were all administered by single heads called di¬
rectors, appointed by the Governor with the Senate's approval.
They serve at the pleasure of the Governor except in the case of
the directors of education and of public works. The Governor's
term of office is only two years. Each director receives a
salary of $GpOO. All subordinate officers in the departments are
appointed by the directors so that direct lines of responsibility
are fixed. The only exception is the superintendent of banks who
is appointed, by the Governor. The salaries of the subordinates
range from $2500 to $5000 a year. The departmental employees are
selected und.er civil service regulations.
The department of public welfare supervises the management of the
state's charitable and pena.1 institutions.
Since its adoption the Ohio plan has been severely criticized.
Some criticisms come from groups interested in particular state
activities, such as health, public welfare, and education, which
think tiiat these activities would be better administered if the
directors were appointed by bipartisan boards rather than by the
Governor. Their views, however, are likely to be myopic and
hence cannot be entirely depended upon in a general reorganization
of the State government which seeks structural unity and effective
exe cutive control.
The 1927 legislature thought that a sufficient time had elapsed for
an appraisal of the system so it created an interim legislative
committee for this purpose. The report proposed to substitute
boards for single heads in the departments of education, public
welfare, health and commerce. None of these changes were adopted
by the 1929 legislative.
-169-
St rite and Local
Ohio
Ho. 235-239
(235) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Ohio. Table in his: Centripetal Force. 1935. See No. 30
(236) GOVERNOR 0? OHIO, THE HON. MARTIN L. DAVEY. Message to the Legislature,
Jan. 6, 1957.
"Some important constructive things clamor for attention, such as...
reorganization of many branches of the government to produce grea.ter
efficiency and economy (and) placing the various charitable enter¬
prises on a more businesslike and humane basis..."
(237) HASSE, A. R. Maintenance, county, private and State, of defectives,
delinquents and dependents, pp. 784-852 in Index to the Economic
Material in the Documents of the State of Ohio, Ft. 2. Washington,
D. C., Carnegie Institution of Washington. 2 v. 1136 p. Paged
continuously.
Analysis of reports, Governors' messages etc., 1787-19C4;
history of organization of State and county agencies.
(238) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Ohio
pp. 171-172 in his: Public Welfare Organization. Washington, D. C.J
Brookings Institution, 1935. XXV, 700 pp.
Ohio established a Board of State Charities in 1867. In 1911,
a Board of Administration superseded 19 boards of trustees.
Finally a general reorganization law in 1921 transferred to a
single-headed Department of Welfare all the functions of the
Board of Administration and the Board of State Charities as well
as those of the Board of Clemency. Preventive functions and
institutional management are largely concentrated in the Director
of Public Welfare who is appointed by the Governor with the ad¬
vice and consent of the Senate. While the institutional heads are
appointed by the Director, some of the departmental officers can
be appointed by him only with the approval of the Governor.
(239) OHIO. JOINT LEGISLATIVE COMMITTEE ON ECONOMY IN THE PUBLIC SERVICE.
Public welfare and health. 144 pp. Tables. Part V of its Report.
1929. 7 vols.
The administrative code of 1921 created the State Department of
Public Welfare under a director appointed by the Governor, end
transferred to it the duties of the Ohio Board of Administration,
the Board of State Charities, the State Board of Clemency, and the
Administrative Commission for the Blind. The intention was to
place in the hands of one executive the administrative responsi¬
bilities carried by several boards and the many board members.
The present director, who has held the office for six years,
maintains that it is too great a, load for any one man and has
11514
COMMENT AND OPINION
-170-
11514
COMMENT AND OPINION
State and. Local
Ohio
No. 239-340
OHIO. JOINT LEGISLATIVE COMMITTEE ON ECONOMY IN THE PUBLIC SERVICE.
Public welfare and health, (cont'd.)
(239
cont'd.) consistently gone on record as favoring a return to the plan of
administration by a bi-partisan board, composed of members with
overlapping terms.
There are too many units for one man to administer directly.
There is Lack of coordination between like branches. The remedy
to be first■applied should be an internal reorganization of the
department into a few large divisions headed by capable experts.
An additional provision needed is a permanent general assistant
department head.
There are advantages in an alternative plan by which a lay board
is substituted for the appointed director and a technical execu¬
tive as commissioner is to be selected by the board.
Divisions of the Department should be:
(1) Administration
(2) Mental Hygiene
(3) Corrections
(4) Charities and Child Care.
Consideration should be given to the desirability- of creating
an unsalaried non-partisan board of public welfare of five members
serving for overlapping terms, to control the activities of this
department through an executive chosen i\y it and responsible to
it, the chairman of the board, chosen by the board, to sit in the
Governor's cabinet.
Heads of the new divisions should be selected solely on the basis
of training and fitness for the position.
(240) THE OSBORNE ASSOCIATION INC. The report of a survey on correctional
institutions, parole and probation, made by the Osborne Association,
Inc., for the Sherrill Commission Survey of Ohio State Government.
New York: The Association, (1935). 48 p.
"It is not impossible to devise a system which is at once
responsive to the people and yet one which will permit of
a continuity of purpose and. policy which the taxpayers can
control, and one which will eliminate political influence
by the simple expedient of appointing a non-salaried, non¬
partisan board having power to appoint a director of public
welfare to execute its policies. Such a plan overcomes
the serious objections to present methods in Ohio, where
the administrator is appointed for a short term coinciding
with that of the Governor. The board scheme, slightly
varied in detail, works well in a number of states in¬
cluding New Jersey, Connecticut. Texas, California,
Minnesota, Wisconsin and others. States like Pennsylvania,
-171-
1151^ State and Local
Ohio
COMMENT AND OPINION No. 240-241
THE OSBORNE ASSOCIATION INC. The report of a survey on correctional insti¬
tutions, parole and probation. (cont'd.)
(240
cont'd.) Illinois, Michigan and Indiana where single executives
or boards of control having terms of office coinciding
with that of the Governor are turning to the non-partisan
type of board made up of members with long, overlapping
terms of office.
We, therefore, recommend that the Governor be authorized
to appoint a non-partisan, non-salaried.board of seven
with overlapping terms of office to control the welfare
and institutional policies of the State. The board
should have the sole power to appoint a.nd remove an
executive director of welfare, and should also have
under its jurisdiction every state penal, correctional
and charitable institution. Adequate provision should
be made in the department for divisions of : a) Admini¬
stration and Fiscal Affairs, b) Institutional employment,
c) Medicine and Sanitation, d) Classification, Social
Service and Education, e) Inspections, f) Research and
Statistics."
(.241) SHERRILL, COL. C. 0., director. Ohio Government Survey, 1935. Report
to the Governor of Ohio. Columbus, 0., 1936. 302 pp. organization
chart s.
Department of Welfare, pp. 145-295. Ohio Soldiers' and Sailors'
Home, pp. 295-302.
The Ohio Deportment of Welfare is headed by a director appointed
by the Governor. The director is a political appointee who is
displaced with every change of Governor. The Department is
composed of 13 divisions, boards, etc., and 21 instit' Gions. It
is difficult for the director to administer these many divisions
efficiently, and in addition the maintenance cost for this
type of organization is very high. Recommendations for re¬
organisation have therefore been made. They are as follows:
(l) That the head of the Department of Welfare continue to be
appointed by the Governor.
The director and assistant director should have had wide
and successful experience as an executive in the field of
public welfare. The committee is fully in accord with
the viewpoint that the head of the Department should be
appointed, and have tenure of office, on a merit rather
than a political basis.
To overcome this political exploitation of the office,
many well informed persons hold that a board, rather
than the Governor, should be given the power of appoint-
-172-
11514 State and Local
Ohio
COMMENT AMD OPINION No. 241 cont'd.
SHERRILL, COL. C. 0., director. Ohio Government Survey. 11r-5. (cont'd.)
(241
cont'd.) ment. This place has proven successful in some cases as
a bulwark against politics. However, it is quite possible
to get a poorly qualified board. In such a case, a
Governor is handicapped in replacing an incompetent head.
The board plan, furthermore, while it may succeed in
keeping a good department head in office, may handicap the
department in securing a fair consideration of budget
requirements. After careful consideration, therefore, the
committee has hesitated to recommend a board having
appointive power.
(2) There should be an unpaid Advisory Board consisting of 7
members appointed by the Governor, one each year for over¬
lapping terms of 7 years.
The Advisory Board would be in a position to advise the
Governor against changing directors if the opinion of the
board was that the present director was competent.
Such a board would be valuable in counseling with the
director concerning problems and policies. It could
represent to the Department the points of view of various
public groups, and could represent the Department in
dealing with the public.
The Board should appoint standing committees to serve in
connection with the inspection divisions of the D -partment.
These, as well as the board itself, might well include rep¬
resentations of prominent organizations interested in various
phases of the Department's work.
(3) The Department should be divided into four divisions:
(a) The Division of Administration.
(b) The Division of Corrections.
(c) The Division of Mental Hygiene.
(d) The Division of Public Assistance.
The head of the Division of Administration would be
appointed under civil service by the director of the Depart¬
ment, with the approval of the Advisory Board. The
heads of the remaining three divisions should be appointed
in the seme way, with the additional sanction of the
-173-
11514 State and Local
Ohio
COMMENT AND OPINION No. 241-242
SHERMLL, COL. C. 0., director. Ohio Government Survey. 1935. (cont'd.)
(241
cont'd.) assistant director. Terms end salaries should be such
that highly qualified persons may be secured for these
posts.
(4) A new civil service classification known as the administra¬
tive classification, should be established.
Examinations for these positions should be unassembled,
and ratings should be free from special advantages
such as military preference. Better facilities for dis¬
charge in case of incompetence should be provided.
The master recommendations of the entire survey of the
Welfare Department in order of importance are:
(1) Qualified leadership and personnel with security
of tenure under Civil Service as long as efficient
service is rendered.
(2) Proper reorganization of the departments.
(3) Adequate appropriations to make possible a con¬
structive program which in the end would mean
large savings to the State.
The work of the Survey was done without cost to the State as
a voluntary contribution of about 130 business executives and
professional men of Ohio. - Foreword.
(242) STAFFORD, PAUL T. The Ohio system of welfare administration, pp. 32-33
in his: State Welfare Administration in New Jersey. Trenton, 1934. 136 pp.
Ohio established a one man control system in 1921. The supervisory
Board of State Charities and. the Board of Administration which con¬
trolled the management of all Sta+e welfare institutions were abol¬
ished and their functions transferred to a Department of Public Wel¬
fare appointed by the Governor for a two year term. The chief as¬
sistants to the director ere appointed by the Governor and director.
The management of each institution is under the immediate direction
of a superintendent appointed by the Governor and director, under
civil service regulations, for an indefinite term. There are no
institutional boards of trustees, these having been abolished when
the Board of Administration was established in 1911. Advisory
boards may be appointed by the Governor and director.
The director himself called attention to the overburdening of re¬
sponsibility in the 1923 and 1924 reports of the department. In
1925 the superintendents of the State institutions petitioned the
Onio general assembly to abolish one-man control and return to a
-174-
11514
COMMENT AND OPINION
State and Local
Ohio, Oklahoma
No. 242-24-3
STAFFORD, PAUL T. The Ohio system of welfare administration. (cont'd.)
(242
cont't.) paid hoard of administration. Their opinion, based upon the ex¬
perience of 3 years operation of the department, "as that the control
was distinctly and unfortunately political in character and that
too much responsibility was placed in one man.
For several years welfare groups in Ohio have been urging the sub¬
stitution of an unpaid lay board which would appoint the director
of the department. In 1929, a joint investigating committee of the
legislature supported the control plan.
A recent observation says: "In Ohio, the Director of Public b'elfare
has 22 State institutions in his department. He is required by
law to visit each of these institutions monthly. Their superin¬
tendents report directly to hirn. He comes into office entirely
ignorant of the department and its work. He scarcely comes to under¬
stand the department's problems before his term is up. Even if he
is able to work out constructive policies of his own, he is not
able to put them into practice."
The Ohio experiment with one-man control, then, has not secured
continuity of direction and control. The tenure of the director
is short. No adequate provision for lay advice and criticism has
been made. Furthermore, the wisdom of placing in one man the re¬
sponsibility for the entire State program of public welfare ma.y be
seriously questioned.
|__0KLAH0MA_ j
^,243) 3LACHL i, FREDERICK F. AND OATMAN, MI P.I AM E. Government of Oklahoma.
Oklahoma City: Harlow Pub. Co., 1924. 668 pp.
"It will be seen that the Commissioner of Ohe.rities and Cor¬
rections has a very wide investigational and supervisory power.
In the hands of an energetic commissioner it could be made a
very effective weapon of State control especially over local and
private institutions.
Care of special classes in Oklahoma is divided among a grea.t many
independent agencies. This diffusion of responsibility is very
bad from an administrative point of view and my proposed plan of
reorganization ... should include a concentration of power over
these institutions into fewer hands than at present."
-175-
11514
cogent and opinion
State and Local
Oklahoma
No. 244 cont'd.
(244) BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT IE SEARCH, Public
welfare, pp. 73-93 in Report on a survey of organization and admin¬
istration of Oklahoma, submitted to Gov, E. W. Marland. Oklahoma
City: Harlow Pub, Corp., 1935. 483 pp.
"For the fiscal year 1930/31, the State and its local units spent
for the support of public welfare institutions, agencies and ser¬
vices, about $3,000,000. For the year 1933/34 disbursements were
reduced to $6,500,000, To this last sum, however, should be added
$22,000,000 spent through the Emergency Relief Administration.
For the application and control of these expenditures, the State
has a constitutionally created Commissioner of Charities and
Corrections with only supervisory duties and with a total budget
of $8,470 annually; a Board of Public Affairs which has control
functions but no constructive or carefully correlated program for
the institutions under its control; a Commission for the Blind
without funds and withoiit aprcgram; a Commission of Pensions; a
Soldiers' Relief Commission interested in aid for a single group
and lacking coordination with any general welfare program; a De¬
portation Officer who draws a salary of $200 a month. Emergency
relief last year was in the hands of an administrator appointed
directly from Washington because the State had not set up an
agency for the administration of these funds acceptable to the
government.
Oklahoma arrived at statehood when one of the phases of the ev¬
olution of public welfare administration in this country was draw¬
ing to a close. When the Oklahoma constitution created a super¬
visory Commissioner of Charities and Corrections, older states were
already finding their boards of charities with mere supervisory
powers inadequate. The concept of a distinct field of governmental
service, preventive and constructive as well as remedial, was form¬
ing. By 1917, this concept had in many states taken quite a definite
form; and since that time there has been a rapid development in vol¬
ume of work and in techniques and in centralized state administrative
organization to handle the work.
Oklahoma also has felt the need for centralized institutional admin¬
istration and has attempted to meet this need; first by placing her
children's institutions under a single board of managers and later by
consolidating this board with the Board of Public Affairs. Aside from
a constitutional obstacle, therefore, Oklahoma as she contemplates
the reorganization of her public welfare services, has an easier task
than many another state where each institution is or was under a
separate managing board.
-176-
11514
State and Local
Oklahoma
COMMENT AND OPINION No. 244 cont'd.
BROOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Public
welfare, (cont'd.)
(244
cont'd) The total annual budget for public welfare in Oklahoma amounts to
about $30,000,000. The State has thus far established no properly
organized or adequately equipped agency to assure the wise, econom¬
ical and effective expenditure of these funds.
In placing the welfare institutions unde^ a single board, Oklahoma
took a step toward unified welfare administration whicv has not
yet been taken by many states. For the most part, however, it has
been the legislative habit in Oklahoma to create a new agency when¬
ever a new need has arisen. But when the social and administrative
meaning of a function is fully understood, and when the need of
coordination has become apparent, the continuance of a separate
agency for a single function is symptomatic of weak social leader¬
ship and popular apathy.
Another outstanding characteristic of welfare administration in
Oklahoma is the absence of any program of prevention. The resulting
extreme emphasis upon institutional care is at once costly and com¬
paratively ineffective.
No merit system is in operation and efficiency is often hampered by
the appointment of political pensioners in positions for which they
are not fitted,
Preliminary to any effective reorganization of public welfare activi¬
ties, therefore, 2 conclusions must be accepted:
(1) The various institutions, with certain exceptions, should
be treated as interrelated and interdependent, constituting
a vast problem of social maladjustment. It is the opinion
of this survey that they should be so organized as to make
possible a coordinated and effective state-wide program,
preventive as well as custodial and remedial.
(2) That the agency, or agencies, carrying out the program
must be established on a basis of non-partis? i, effective
service.
When constitutional obstacles are removed, the following organisa¬
tion is recommended:
(l) Creation of a department of welfare to manage and control
State welfare institutions and perform all state public
welfare functions. The department should be headed by a
board of Public Welfare of five members appointed by the
Governor, initial appointments being, 1 for 2 years, 2 for
4 years and 2 for 6 years. Subsequent appointments should
be made for 6 years. Members of the Board should be select¬
ed from the state at large, on the basis of fitness. They
should serve without pay except necessary traveling expenses.
The Board should meet quarterly or oftener. The Board should
appoint a Commissioner of Public Welfare, who should serve
at he pleasure of the board. He should be in direct charge
-177-
11514
State and Local
Oklahoma
COMMENT AND OPINION No. 244 cont'd.
BHOOKINGS INSTITUTION. INSTITUTE FOR GOVERNMENT RESEARCH. Publio welfare,
(cont'd.)
(244
cont'd.) of all executive and administrative work, with authority
to appoint all subordinates. He should be empowered to
create, with the approval of the board, necessary bureaus
and divisions. These at least seem to be essential, viz.J
Assistance (to administer all State relief funds); Child
Welfare; Mental Hygiene; Correction; Research and Statis¬
tics.
The remainder of the recommendations for State organization deal with
abolition of certain state offices and their transfer to the Public
Welfare Department.
- Local administration -
County departments of public welfare should be established in all the
counties of the state. It should be provided, however, that, with
the approval of the State Department, 2 or more counties may combine
to establish such an agency.
The county Department of Public Welfare shotild be headed by a Board
consisting of 3 members appointed by the board of county commissioners.
A superintendent should be appointed by the board from a list of quali¬
fied persons certified by the State Department of Welfare.
It will be necessary for the State to extend financial assistance in
the payment of the salaries of the local superintendents of welfare.
Such assistance should be made - on an equitable basis and with proper
control by the State.
The functions of the county Department of Welfare should be:
To administer public relief funds.
To act as agent of the state welfare department.
Investigate for adoptions and supervise children placed
pending adoption.
To provide probation service for juvenile or other courts.
To enforce conpensory attendance law with approval of Department
of Education.
To provide supervision for persons on parole or on probation.
To supervise local, penal, correctional, and' other welfare
agencies.
To furnish other agencies with information as may be neces¬
sary or desirable for the proper operation of the agencies.
To coordinate work of all public and private agencies in
the county.
In no event should the powers proposed in this plan for State welfare
organization be placed in the hands of an elective official."
-178-
11514 State and Local
Oklahoma
No. 245 - 248
COMMENT AND OPINION
(245) BUCK, ARTHUR EUGENE. Proposed consolidation plans, p. 53 in hisi
Administrative Consolidation of State Government. 1930. 59 pp.
Professor E. F. Blachly, of the University of Oklahoma, pub¬
lished a volume on "the Government of Oklahoma" in which he
presented a plan for administrative reorganisation. He sug¬
gested the following 12 departments, viz.: finance, education,
public works, justice, public welfare, agriculture, trade and
commerce, labor, health, loca.l government, civil service and
registration, and military. Under his plan the Governor would
be responsible for the administration and would appoint all
department heads.
This plan was never formally before the legislature.
(246) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Oklahoma. Table in his: Centripetal Force. 1935.
See No. 30.
(247) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Oklahoma,
pp. 156-157 in his Public Welfare Organization. Washington, D.C.: Brook¬
ings Institution, 1935. XXV, 700 pp.
The Oklahoma State Board of Public Affairs, created in 1909, manages
13 institutions. The Department of Charities and Corrections, es¬
tablished by the constitutional Convention of 1917, is the general
service agency. It is headed by a Commissioner who according to
the Constitution, is elected by popular vote. In all, the State has
about 23 agencies performing welfare functions; 10 are strictly wel¬
fare agencies and of these 7 are boards and 3 are institutional
managing boards.
(248) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest of
public welfare provisions under the laws of the state of Oklahoma.. Pre¬
pared by Robert C. Lowe mid staff, Legal Research Section. May 1, 1936.
2 p.l., pp. 3401-3481, 1 organization chart.
Digest of public ™elfare provisions, pp. 3401-3408; digest of
administrative "-rovisions, pp. 3412-3481.
-179-
11514
COMMENT AND OPINION
State and Local
Oregon
No. 249-252
OREGON
(249) BUCK, ARTHUR EUGENE. Proposed consolidation plans, pp. 44-46 in his!
Administrative Consolidation in State Governments. I960. 59 pp.
Agitation for State reorganization began in 1909 and has continued
at intervals since. During the 1927 session of the legislature
a member of the house proposed a bill for administrative reorgani¬
zation which was defeated. The bill proposed the creation of ten
departments, viz.: agriculture, labor and industry, finance, com¬
merce, public works, public welfare, education, state police and
military affairs, legal affairs and states.
Following the defeat of his statutory plan of reorganization, Mr.
McPherson started to work for a constitutional amendment, which
required the entire State administration to be refashioned into the
several departments mentioned above.
' /
(250) ECKER-R., LASZLO. Financial responsibility for various welfare activities
- Oregon. Table in his Centripetal Force. 1935.
(251) KEHRLI, HERMAN, Director, Memorandum on the trend of population and ex¬
penditures of State operated and State aided welfare institutions in Oregcn .
1912-1936. November, 1936. 10 pp. Mimeographed.
Study prepared for the Interim Commission on Governmental and
Administrative Reorganization and the State Planning Board.
"The probability of increasing population and expenditures of state
institutions during the next decode suggests that considerations of
economy alone call for further development of a state-wide welfare
organization, with local workers in all counties."
(252) AND ISSEKS, MORRIS S. History of State administrative
reorganization in Oregon. (Commonwealth Review, vol. 18, Nov. 1936,
pp. 161-171.
A discussion of all reorganization schemes which have been sug¬
gested for the Oregon State government. The following digest
deals only with that portion which concerns schemes for reorgani¬
zation in the field of public welfare.
In 1913 the Board of Control was placed in charge of all purchas¬
ing for, as well as the management of, all state institutions.
In 1914, a proposed constitutional amendment, initiated by the
Socialist Party of Oregon, to establish a Department of Industry
and Public Works, responsible to the State Labor Commission, and
-180-
11514 State and. Local
Oregon
No. 252-253
COMMENT AND OPINION
XEHELI, HERMAN and ISSEKS, MORRIS S. History of State Administrative, .re-
organization. (cont'd.)
(252
cont'd) with -provisions for unemployment relief, was defeated by a large
majority vote.
Failure of the House and Senate of the 1923 legislature to agree on
amendments resulted in final failure of a bill which would have con¬
centrated a number of State agencies into 5 departments, viz.: Agri¬
culture, Business control, Labor, Public Welfare, and F iblic Works.
Three other proposals for reorganization were received by the Senate.
All of these measures contemplated a cabinet form of government and
much of the opposition was directed at this feature.
Representative Macpherson introduced 12 bills in the 1927 legis¬
lature designed to secure a complete reorganization. His plan
proposed the creation of 10 departments, viz.: Agriculture, labor
and Industry, Financial Administration, Commerce, Education, Public
Works and Domain, Health and Public Welfare, State Police and Mili¬
tary Affairs, Legal Affairs, and State. Most departments were to
be under single directors, appointed by the Governor with the Senate's
consent. Of this group of bills, 3 came to a vote and were defeated.
The other bills were withdrawn from the committee upon the motion of
Mr. Macpherson, who sponsored a resolution providing for a committee
on reorganization to study the question between sessions. This com¬
mittee submitted to the 1929 legislature an amendment providing for a
cabinet form of government. The amendment passed the legislature,
but was defeated in the 1930 general election.
The issue of consolidation was again raised in 1934. The proposed
measure, submitted late in the session, provided for the creation
of seven departments: Finance, Public Service, Natural Resources,
Highway and Public Health and Welfare. Each department was to be
administered by a director appointed by and responsible to the
Governor. A com; ission was appointed to study the question of
reorganization. The State Planning Board and the W.P.A. have pro¬
vided funds for research on the question. The fields chosen for
study were Finance, Business Regulation, Conservation of Natural
Resources and Public Welfare.
(253) MCKINLEY, CHARLES. To consolidate welfare activities (in Oregon').
(National Municipal Review, vol. 24, Feb., 1935, pp. 123-124.)
A proposal dealing with the functions of county government is
embedded in the report of the Governor's Interim Commission on
Public Health and Welfare. This body would consolidate all welfare
activities under one commission which would employ a director to
take care of all administrative tasks. The scheme would centralize
many of the tasks of caring for dependents, which are now exercised
by county courts and county welfare workers, under the proposed
-181-
11514 State and Local
Oregon
No. 253-256
COMMENT AND OPINION
(253
cont'd.) MCKINLEY, CHARLES. To consolidate welfare activities, (cont'd.)
state welfare commission. These tasks would in part be exercised
through county or district (2 or more counties) welfare depart¬
ments. Over the latter the state would exercise great influence
through its power to appoint three of the seven members of the
county or district board: through its right to approve the se¬
lection of the administrative director of the local board; and
thru its power to withhold grants in aid of local welfare activi¬
ties.
This proposal means an end to the anarchic situation which now pre
vails, in the policies underlying the adoption of dependent childr
It means that control over the many state subsidized private child
caring institutions will be greatly strenghtened and ought to re¬
sult in more skilful attention to their physical and psychic well-
being and less emphasis on sectarian soul saving. Despite the fac
that Governor-elect Martin has a plan endorsing the new scheme, it
will have heavy sledding before it gets through the legislature.
(254) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Oregon,
p. 160 in his: Public Welfare Organization. Washington, D.C.: Brook¬
ings Institution, 1935. XXV, 700 pp.
Oregon is a state where central institutional control has been
achieved but where service and preventive functions are scattered.
The legislature of 1931 created the State Welfare Commission and
transferred to it the functions of the Industrial Welfare Com¬
mission and the Board of Inspectors of Child Labor. The Welfare
Commission appears to be primarily a labor agency. In, or touch¬
ing, the public welfare field, there are at least 24 agencies,
11 primarily welfare. Of the 24 agencies, 18 are boards; and
of these, 5 are wholly ex-off?cio. The Board of Control is entire
ly ex-officio.
(255) OREGON. GOVERNOR'S INTERIM COMMISSION ON PUBLIC HEALTH AND WELFARE.
Reoort. Dec. 14, 1934. pp. 33-35 in Summary in Kurtz, R. H. Looking
toward a welfare plan. 1935. 35 pp.
(256) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the State
of Oregon. Prepared by Robert C. Lowe and L. T. Bennett, Jr.,
Legal Research Section. June 1, 1936. 2 p.l., pp. 3501-3558.
1 organization chart.
Digest of public welfare provisions, pp. 3501-3511; digest of
administrative provisions, pp. 3514-3558.
-182-
11514
COMMENT AND OPINION
State and. Local
Pennsylvania
No. 257-358
PENNSYLVANIA
(257) BUCK, ARTHUR EOCENE. Administrative consolidation plans in operation,
pp. 25-27 in his: Administrative consolidation in State governments.
1930. 59 pp.
Directly after Governor Pinchot "/as inaugurated, he had an admin¬
istrative code drafted, which became effective on June 15, 1933.
This code was revised in 1927 ,mier his successor, and two de¬
partments were added. As the organization now stands, the ex¬
isting departments are: state, justice, public instruction, in¬
terna.! affairs, agriculture, forests and waters, labor and in¬
dustry, health, highways, welfa.re, property and supplies, revenue,
mines, banking and insurance. The three commissions are game,
fish and public service. The departments hrve single heads,
which (except the bead of internal affairs) are appointed by the
Governor with the approval of 2/3 of the Senate. These serve for
a term of 4 years except in two instances 'where they serve at the
pleasure of the Governor. The salaries of these department heads
vary from $8,000 to $12,000 a. year.
Another group, the executive board, consists of the Governor and
the heads of six departments, chosen by the Governor, and which
has control over the internal organization of the departments.
Under the department of welfare there are 33 boards, mostly of
state institutions.
It is claimed that the chief end to be attained by the reorganiza¬
tion was "reasonable centralization of fiscal responsibility with
a oroper decentralization in administration.11
(258) DUNEAL, ARTHUR. A count:,- welfare plan for Pennsylvania,. (Pennsylvania
Social York; journal of the Pennsylvania Conference on Social Welfare.
Oct., I'd"4. pp. 16-23)
The Public Charities Association of Pennsylvania has been
devoting much intensive study to the oroblems of public relief
in this state. We believe that Pennsylvania needs a modern
and effective system of county welfare administration. We
would propose five basic principles as the foundation of a
plan for county welfare ^orx in Pennsylvania. These principles
are a.s follows:
The establishment in every county of an appointed county welfare
board composed of unpaid citizen members.
The nopointment by the county welfare board of a paid director
and tho necessary staff, technically qualified for public wel¬
fare administration.
-183-
11514
State and Local
Pennsylvania
No. 258-260
COMI/iENT AND OPINION
(258 .
cont'd.) DUNHAM, ARTHUR. A county welfare olan for Pennsylvania, (cont d.)
The county welfare board should administer poor relief, mothers'
assistance, old age assistance, blind pensions, unemployment
relief, and child-caring services for dependent and neglected
children in so far a.s these services are carried on under public
auspices.
The appropriation of both state and local funds for administra¬
tion by county welfare boards for public welfare services.
County welfare boards should operate under the supervision of
the state in order to safeguard the administration of state
funds and to develop uniform standards of service throughout
the Commonwealth.
There are three compelling reasons why this county welfare
plan should be written into law at the next regular session of
the Legislature which will convene in January, 1935. The first
reason is the need for a more effective system of public relief.
The second is the need for the reduction of the cost of local
government through the consolidation of services. The third is
perhaps even more important than either of the other two. We
need a simpler, clearer, more inclusive public relief policy. It
is time that we realized tha.t the primary basis for giving re¬
lief is the existence of human need, not the possession of cer¬
tain formal requirements of eligibility as a. widow, a, veteran,
an aged person, or some other special type of human being.
(259) ECKSR-R., L. LASZLO. Financial responsibility for various welfare
activities - Pennsylvania. Table in his: Centripetal Force. 1535.
See No. 30.
(260) GOVERNOR OF PENNSYLVANIA, THE HON. GEORGE H. EARLE. Message to the
Legislature. Jan. 5, 1937.
"The entire question cf relief and public assistance is before
you at this Session. The emergency phase of this problem has
passed, and it is now our duty to seek a permanent solution.
The Pennsylvania Committee on Public Assistance and Relief,
operating with an appropriation granted at the last Regular
Session, has made a comprehensive report, embodying certain
recommendations. This report will be thc5 subject of a special
message in the near future, and meanwhile I commend it to
your attention for careful study and consideration.
Numerous departmental recommendations will come before you, and
I, cf course, bespeak your help in our efforts to give the fullest
and best service to out people through our administrative depart-
• ments. Naturally many of the departmental requests involve appro-
oriations, such as the institutional program of the Department of
-184-
11514 St Vx te and Local
Pennsylvania
No. 260-262
COiv'D!3NT AND OPINION
(250
cont1d.)
GOVERNOR OP PENNSYLVANIA, THE HON. GEORGE H. EARLE. Me_ssa^e_to t!ie_Le£is-
lature. (cont'd)
Welfare and the subsidies of the Department of Public Instruction.
These matters, and all other questions involving appropriations,
will be discussed in my Budget Message, which will be delivered
in the near future."
(261) HASSE, A. R. Maintenance, State, local .and private, of defective.s,
delinquents .and dependents, pp. 1111-1205 in Index to Economic
Material in Documents of the State of Pennsylvania. Washington,
D. C.; Carnegie Institution of Washington. 3 vols.
Analysis of reports, Governors' messages, etc., 1795-1901;
history of organization of State and county agencies.
(252) HUNT, CLEMENT W. The Department of Public Welfare in Pennsylvania.
pp. 104-112 in Public Welfare in the United States, American Academy
of Political and Social Science. Annals, vol. 105, January 1923.
Philadelphia; The Academy, 1923. vi. 282 p., 4 organization cherts.
The department of Public Welfare in Pennsylvania was created by
Act of Assembly in May, 1921, and organized in September the
same year. The purpose which led to this important piece of
legislation was the coordination and enlargement of the super¬
visory activities of the Board of Public Charities, the Committee
on Lunacy and the Prison Labor Commission. These administrative
agencies "ere automatically abolished upon the organization of
the new department.
The present organization of the department functions through
four bureaus. The Bureau of Assistance has supervision over
medical and surgical hospitals and homes for adults, which
receive financial a.id from the State, and its almshouses. The
Bureau of Children supervises the care of dependent, defective
and delinquent children, and the distribution of the Mother^'
Assistance Fid. Mental patients and the feeble-minded are
charges of the .Bureau of Mental Health. The supervision of the
penal and correctional institutions, and the management of the
industries carried on by prison labor is assigned to the 3uroau
of Restoration.
The programs and policies of these several agencies are dis¬
cussed in detail.
When four state departments are actively interested in local
social welfare problems, there is always the danger of a dupli¬
cation of service and overlapping of effort on the part of local
social agencies. With the purpose of coordinating the activities
of social agencies, state and local, the Department of Public
-185-
11514 State and Local
Pennsylvania
No. 262-263
COJILSNT AND OPINION
(262
cont1d.)
HUNT, CLEMENT W. The Department of Public Welfare in Pennsylvania.
(cont1 cl.)
Welfare led the way in creating the Commonwealth Committee. This
Committee now includes, besides the representatives of the Com¬
mission of Public Welfare, a representative of the Advisory Board
of the Department of Health, the Educational Council and the
Industrial Board.
The function of the Committee is to serve as a clearing house
for the social welfare plans of the departments represented and
to promote the organization of County Councils of Social Agencies;
thus making it possible to coordinate all local social work. The
County Welfare Boards serve the purpose of a link between the
Commonwealth Committee and the County Councils.
The County Board of Public Welfare is composed of 11 members,
viz. the County Superintendent of Schools, the County Medical
(a) Director, one representative each from the County Commissioners,
the Directors of the Poor and five chosen by the County Council
of Social Agencies. It is the business of this board to harmonize
the activities of the official and unofficial agencies, to keep
the State Departments informed as to the needs in the counties
and carry over into local districts the best methods of work for
general public welfare.
(263) MILLSPAUGH, .ARTHUR C. Characteristics of State Organization: Penn¬
sylvania. pp. 166-167 in his: Public Welfare Organization. Washing¬
ton, D.C.: Brookings Institution, 1935. XXV, 700 pp.
The present Department of Welfare in Pennsvlvania grew out of
the Department of Public Welfare. The latter, established in
1921, was a combination of the State Board of Charities (1369),
the Commission on Lunacy (1893), the Mothers' Assistance Fund
(1913), and the Prison Labor Commission (1915). Each of the 28
welfare commissions has a separate hoard of trustees. They
formerly enjoyed a large measure of fiscal independence, collect¬
ing monies due to them for the care of their wards and looking to
the legislature only to make up deficits. Each institution was
localized and operated mainly for the benefit of the particular
section in which it was located. An administrative code was passed
in 1923, and after its revision in 1927, there were 16 departments,
among them the Department of Welfare. Pennsylvania includes under
one agency, not only functions relating to children and dependents,
but also the supervision of prisons and reformatories, mental hos¬
pitals, and medical and surgical hospitals.
The institutional boards are shorn of much of their former power,
and they are placed by law within the Department of Welfare. Yet
their members are appointed by the Governor for 4 year terms, they
are responsible only to the Governor and they select, with the ap-
-186'
11514
State and Local
Penrsylva 'a
No. 263-2t,4
COMMENT AND OPINION
(253
cont! d. )
MILLSPAUGH, APT HUP C. Cliaracteristics of State organization, (cont'd.)
proval of the Governor, the executive heads of their respective
institutions. The Secretory of Welfare is an ex-officio member
of each institutional hoard; but the functions of the Department,
relative to the institutions, are mainly these of supervision,
control and coordination.
The Department emphasizes preventive services; its jurisdiction
is broad, but its unity e.s a department is qualified by the fact
that, in Pennsylvania, ultimate control of all personnel rests in
the governor's hands. In suite of all its apparent overhead unifi¬
cation, Pennsylvania organization has fallen short of complete
integration. It is said that the chief object in the minds of
those responsible for the code was reasonable centralization of
fiscal responsibility with a proper decentralization in administra¬
tion.
(264-) ODUM, HCTfZARD T7. AND WILLARD, D. W. The Pennsyl-ania plan. pp. 153-171
in their Systems of public welfare. Chapel Hill: University of N. C.
Press, 1925. 302 pp.
"The most important aspects of public welfare as represented by
the Pennsylvania plan, for the purposes of this volume, seem to be:
1) The general plan and organization:
The department is organized in 4 bureaus - Bureaus of
children, mental health, assistance and restoration.
The penal and correctional institutions, the home for
afflicted soldiers end sailors, the mental hospitals
- rd the medical end surgical hospitals.
2) Deoar1mental policies:
These policies provide an excellent standard for the con¬
sideration o^ all public welfare work.
a. Main emphasi" should be placed upon education
of the public and various Boards... in the
effort to improve work standards.
b. "Home rule in welfare work" should be recognized
as a fundamental principle. Local responsibil¬
ity and initiative should be encouraged.
c. The department should he organized so that it
can give expert advisory service to groups and
individuals desiring it.
d. Emphasis should be placed upon prevention of
poverty, delinquency, crime and mental disease
and defect.
- 187 -
11514
State and Local
Pennsylvania
No. 264-266
COMMENT AND OPINION
(264
cont1d.)
ODUM,
HOUARD U. AND WILLARD, D. W. The Pennsylvania plan. (cont'd.)
3) Appropriation and scope:
Distribution and amount of appropriation for various de¬
partment functions are considered, well balanced. A table
showing amounts and percentages of appropriations, by
puroose of fond, for the biennium, June 1, 1925 - May 31,
1927, is given.
4) Details of bureau organization:
a. Special staff.
Experts in selected fields are provided to serve the
entire department.
b. Research
A research and statistical imit which has made studie
on various ohases of public welfare has been establis
The report of the bureau of research on poor law admi
istration, recommends the following:
1. County as a unit of poor relief administration,
(a) 2. Consolidation of smaller counties for poor relief
adminis t ration.
3. Glearer recognition of the changing type of
almshouse uopulation.
4. Outdoor relief, coupled with siipervisory social
service.
5. Employment of well trained, paid poor relief
officers.
6. Recognition of close relationship between de¬
pendency and social and industrial situations.
Two charts accompany this chapter.viz.: A disc chart shewing
the Pennsylvania biennial appropriations for welfare adminis¬
tration and institutions, June 1, '25 - May 31, '27; and a table
of amounts and percentages of the appropriations as shown in the
disc chart."
(265) PENNSYLVANIA. COMMITTEE ON PUBLIC ASSISTANCE AND RELIEF. A message to
the neonle of Pennsylvania. Philadelphia, 1936. 15 pp.
The Committee appointed by Governor Earle, and popularly
known as the Goodrich Committee, having submitted to the
Governor seven recommendations proposing reorganization
and consolidation of all forms of public assistance,
then issued this "message" in the nature of a summary
of the more formal report.
(266) . . COMMITTEE ON PUBLIC ASSISTANCE AND RELIEF. Questions
and answers relating to a modern clan for public assistance in Penn¬
sylvania. Dec. 20, 1935. Philadelphia: The Committee, 1936. 15 pp.
-188-
H514 State and Local
Pennsylvania
No. 266-267
COMMENT AND OPINION
PENNSYLVANIA. COMMITTEE ON PUBLIC ASSISTANCE AND RELIEF. Questions and
answers. (cont'd.)
(266
cont'd.) Proposing the establishment of a Department of Assistance inde¬
pendent of the Department of Welfare, and to have administrative con¬
trol over County Boards of Assistance. The County Boards to super¬
sede the 425 county, district and "borough poor "boards, the 67 county
Mothers' Assistance Fund Boards and the 30 county and area Emer¬
gency Relief Boards.
The Committee estimates that the reorganisation will bring about
an annual saving of approximately $10,000,000 in direct local taxation
At the time of the monograph it is stated that the county poor boards
are spending about $18,000,000 annually, most of which is raised
by direct tax on real estate.
(267) . COMMITTEE ON PU3LIC ASSISTANCE AND RELIEF. A modern
public assistance -program for Pennsylvania. First general report and
recommendations of the Committee. Submitted to Gov. George H. Earle.
Philadelphia: The Committee, Dec. 15, 1936. 115 pp. tables, graph,
3 charts.
Seven recommendations proposing a sweeping reorganization and
consolidation of ell forms of public assistance under state super¬
vision with local control.
The outstanding features of Pennsylvania's assistance machinery
are its complexity and lack of uniformity. A synopsis of the rec-
ommendations follows:
(1) That a State-wide program of public assistance and
relief, to meet the present need and adjustable to
changing conditions in the future, be maintained in
Pennsylvania.
(2) That Pennsylvania's program of public assistance for
needy persons at home be unified and simplified, and
administered through a single public organization in
each county, subject to supervision by a single per¬
manent department of the State government.
(3) That locally administered public assistance of individ¬
uals and families in homes be supervised and standardized
by the State government through a new Department of Assis¬
tance .
(4) That direct administration of general outdoor relief, un¬
employment relief, aid to dependent children in their own
homes or in foster homes, old age assistance, and aid to
the blind, be under the immediate direction of County
Boards of Assistance, composed of representative citizens
of the local community, serving without pay except for nec¬
essary expenses, and charged with responsibility for de¬
termining policies of public assistance to be applied in
the county subject to minimum standards established by
the State Department of Assistance.
-189-
11514
COMMENT AND OPINION
State and Local
Pennsylvania
No. 267 cont'd.
PENNSYLVANIA. COMMITTEE ON PUBLIC ASSISTANCE AND RELIEF. A modern public
assistance program. (cont'd.)
(267
cont'd.) That the Mothers' Assistance Fund Boards, the Old Age As¬
sistance Fund Boards and the Emergency Relief Boards,
where they exist, he abolished and their functions taken
over by the County Boards of Assistance.
That the county, district, township; and borough Poor
Boards be abolished immediately and their duties with
respect to outdoor relief and the care of dependent
children be transferred to the County Board of Assis¬
tance, and those with respect to almshouse and other
institutional care be transferred to the County Com¬
missioners of the county; with the further provision
that persons now serving as Directors of the Poor
shall become employees of the County Commissioners and
shall also be charged with ultimate residual responsi¬
bility now lodged with the poor districts, to provide
assistance for such needy persons as may fail to re¬
ceive aid from other sources.
(5) That the financial cost of public assistance in all the
forms to be administered by the County Board of Assis¬
tance be assumed by the State;
That specific appropriations be made to the State Depart¬
ment of Assistance for each form of public assistance, and
that an additional appropriation to a reserve fun I be
made to the Department, which can be allocated to any one
of these funds, or to the payment of necessary additional
services undertaken by County Boards of Assistance in
accordance with law.
(6-A) That the Commonwealth retain, for the present at least,
Mothers' Assistance, old age assistance and blind pensions,
as classifications of assistance services, to facilitate
the use of Federal grants-in-aid under the Federal Social
Security Act for each of these services.
That the Mothers' Assistance Act be amended to assure assis¬
tance with Federal aid, for additional dependent children
under 16 years of age, including any child "who has been
deprived of parental support or care by reason of the death,
continued absence from home, or physical or mental incapacity
of a parent," and who is living in the home of other close
relatives, as permitted under the provisions of the Federal
Social Security Act of 1935.
That the Old Age Assistance Fund Act be amended so as to
assure assistance with Federal aid to aged persons 65 years
-190-
11514
COMMENT AND OPINION
State and Local
Pennsylvania
No. 267 cont'd.
PENNSYLVANIA. COMMITTEE ON PUBLIC ASSISTANCE AND RELIEF. A modern public
assistance program. (cont1d.)
(267
cont'd.) of age and over as permitted under the provisions of the
Federal Social Security Act of 1S35.
(a) That County Boards of Assistance administer a general relief
program under the supervision of the State Department of
Assistance, in order to aid those individuals in need who
would not he eligible under the present or the recommended
amendments of the Mothers' Assistance Fund Act, or of the
Old Age Assistance Fund Act, or under the present Pension
Fund for the Blind, Act.
That public assistance shall be administered so as to
encourage beneficiaries of aid to regain their power
of self-maintenance.
(6-B) That the requirements for determining the eligibility
of individuals or families for aid among the various
types of assistance be standardized in so far as pos¬
sible in administration.
That the basis for eligibility for all forms of assis¬
tance to be administered under the new County Boards of
Assistance shall be as nearly as possible for all ser¬
vice, namely, the actual need of a.ssistance.
Thai the amount of grant available to any eligible de-
oendent person, shall be the extent of this need.
That the present practice of providing relief in cash
should be continued.
That a program for necessary medical care should be in¬
cluded. among the services provided to dependent persons.
(7) Thai all offi cers and employees in the Stale Department
of Assistance, other than those in policy-determining
positions, and all officers and employees under all County
Boards of Assistance be placvd under the merit system.
Advantages of these recommendations, when put into effect may be
summarized as follows:
(1) Substitution for the present archaic system of a State-wide
system supervised by the State but with local administra¬
tive control.
(2) Definite economies in operation.
(3) Assurance of efficient personnel.
-191-
11514
COMMENT AND OPINION
State and Local
Pennsylvania
No. 267-368
PENNSYLVANIA. COMMITTEE ON PUBLIC ASSISTANCE AND RELIEF. A modern
public assistance program. (cont'd.)
(267
cont'd.) (4) Relief to real estate through the abolition of the Poor
Boards and the financing throxigh indirect taxation by the
State of all assistance to individuals or families in
their homes.
(5) Uniformity of distribution of relief.
(6) Making possible uniform and. complete statistical records
of those receiving relief.
(7) Enabling the State to enjoy grants-in-aid ma.de available
by the Federal Social Security Act of 1935, through com¬
pliance with the requirements of the Act.
(268) STAFFORD, PAUL T» The Pennsylvania system of public welfare adminis¬
tration. pp. 33-35 in his: State Welfare Administration in New Jersey.
Trenton, 1934. 136 pp.
The public welfare departmental system was organized in Pennsyl¬
vania in 1921. The Department of Welfare is headed by a secre¬
tary appointed by the Governor and the Senate, to hold office
during the four year term of the Governor. The secretary has
full power to appoint the officers and employees of the central
office except the bureau chiefs, to whose appointment the con¬
sent of the Governor is necessary.
Each institution is managed by a board of trustees composed of 8
members appointed by the Governor and the Senate for four years
during the term of the Governor, together with the secretary of
the department as a member ex-officio. These boards appoint the
institutional superintendents subject to the approval of the
Governor, and ~a>e general rules for the management of institu¬
tions. Control of institutional budgeting and expenditures,
inmate labor, and transfer of patients between institutions is
placed in the department.
The State Welfare Commission consists of 8 members appointed by
the Governor and the Senate to serve during the four year term
of the Governor, and the secretary of the department who is chair¬
man ex-officio. The members serve without pay, advise the secre¬
tary, supervise the policies and the rules or regulations of the
department. Actually the influence of the commission depends
upon the willingness of the secretary and the Governor to seek
its advice.
The control of the Department over the State institutions is
partly administrative and partly advisory. The institutional
boards, with the exceptions noted, are responsible for institu¬
tional management. The fiscal powers of the Department alone
are a direct means for controlling institutional administration.
-192.
1]~i4 State and Local
Pennsylvania, Rhode Isi;
No. 268-271
COMMENT AND OPINION
STAFFORD, PAUL. T. The Pennsylvania system of public welfare administration,
(cont'd.)
(268
cont'd.) The rules of management for each institutional board must be ap¬
proved by the Department. The boards are controlled by the Gov¬
ernor in that they serve only during his term, and, in practice,
the appointment of institutional superintendents is dictated by
the Governor and secretary of the Department. The powers of
these boards would seem, therefore, to extend only to details
of institutional management while the important powers of gen¬
eral direction and policy determination are vested in the de¬
partmental head and the Governor.
Each change in administration in Pennsylvania has brought a new
secretary into the Department. A considerable amount of conti¬
nuity of service within the department from the bureau heads down
has been maintained, despite the fact that there is no merit
system. The welfare commission if made independent by overlap¬
ping terms could serve more effectively. The fact that the elec¬
tion of a new Governor in Pennsylvania may result in a complete
change in the membership of instituional boards and the sppoint-
ment of new institutional executives creates a situation which
undoubtedly affects adversely the quality of personnel in the
institutional boards and administrative staffs.
j~RHODE ISLMD~|
(269) ECKER-R., L. l£szl6. Financial responsibility for various welfare
activities - Rhode Island. Table in his: Centripetal Force. 1935
See No. 30.
(270) HASSE, A. R. Maintenance, by the State, of defectives, delinquents
and depentdents, 1794^-1904. pp. 63-68 in: Index to Economic Material
in Documents of the State of Rhode Island. Washington, D. C.;
Carnegie Institution of Washington. 95 pp.
Analysis of reports, Governors' messages, etc., 1794-1904;
history of organization of State agencies.
(271) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Rhode
Island, p. 175 in his: Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pd.
In Rhode Island, the functions of the State Board of Charities
and Corrections, establised in 1869, and of the Board of Control
and Supply, created in 1912, were transferred in 1917 to a Penal
and Charitable Commission the name of which was changed in 1923
to State Public Welfare Commission. In addition to this Commis¬
sion, there were in 1934 four welfare agencies. The Board of
Parole, the State Board of Soldiers' Relief and Board of Trustees
of the State Sanitorium and the State Unemployment Relief Com¬
mission. The Public Welfare Commission was supplanted in 1935
by a single-headed Department of Public Welfare.
-193-
11514
COMMENT AND OPINION
State ant1 Local
South Carolina
No. 272-275
FSOUTH CAROLINA1
' /
(272) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - South Carolina. Table in his: Centripetal Force. 1935.
See No. 30.
(273) MILLSPAUGH, ARTHUR C. Characteristics of State organization: South
Carolina, p. 143 in his: Public Welfare Organization. Washington,
D. C.: Brookings Institution, 1935. xxv, 700 pp.
South Carolina's organization is characterized by decentralized
institutional management and by few an<? weak central agencies.
A State Board of Charities and Corrections was created in 1915
and a State Board of Correctional Administration in 1913. Both
were succeeded in 1920 by the State Board of Public Welfare.
The latter still seems to be provided by law; but it has ceased
to function, at least temporarily, due to lack of appropriations.
On the other hand, the Board seems to have authority to appoint
heads of the institutions for juveniles, and it is, therefore,
classified at the moment as a central control agency.
(274) SOUTH CAROLINA. TEMPORARY STATE DEPARTMENT OF PUBLIC WELFARE. County
welfare boards, p. 4 in South Carolina Social Welfare, vol. 1, Jan.,
1937.
The Temporary State Department was organized in December, 1935.
The field representative, Mrs. Mary K. Baskerville, has issued
a "Manual of County Welfare Boards", parts of which relating to
the duties of count;?- boards, to qualifications of boards, mem¬
bers, etc., is su;irmrized in the above article.
(275) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare -provisions under the laws of the State
of South Carolina. Prepared by Robert C. Lowe and staff, Legal
Research Section, March 15, 1936. 2 p.l., pp. 3301-3841.
1 organization chart.
Digest of public welfare provisions, pp. 3801-3805; digest of
administrative provisions, pp. 3808-3341.
-194-
11514
COMMENT AND OPINION
Stg,te and Local
South Dakota
No. 276-278
f SOUTH DAKOTA |
(276) BUCK, ARTHUR EUGENE. Consolidation Plans in operation, pp. 34-35 in
his: Administrative Consolidation in State Governments. 1930. 59 pp.
Partial reorganization ha§ been carried out in South Dakota, but
further change and consolidation is needed. No department of wel¬
fare has been established. The movement for consolidation is
being kept alive in the State. A bill for reorganization was in¬
troduced in the 1927 legislature but no action was taken.
(277) BUREAU OE MUNICIPAL RESEARCH, NEW YORK CITY. Report on the adminis¬
tration and organization of the government of Sout Dakota. New York
City; The Bureau, 1922. 74 pp. 1 chart.
The fundamental defect of institutional administration is the
lack of centralized control.
A summary of the recommendations for centralized administration
is as follows:
1) Abolition by constitutional amendment of the Board of
Charities and the creation of a Department of Public
Welfare headed by a commissioner appointed by the
Governor. The commissioner should be selected because
of his training and experience regardless of residence,
but preferably not a South Dakotan.
2) Abolition of the Board of Managers of the Soldiers'
Home, the Women's Committee of investigation and the
independent office of Parole Officer. Their functions
should be transferred to the Department of Public Wel¬
fare.
3) The commissioner of welfare to be given full authority
to organize his office as he may deem proper within the
limit of available funds and to appoint, transfer or
remove all employees or officers of institutions, sub¬
ject to such federal rules as may be established by the
legislature.
Services of the Department of Welfare should include medical
advisory service, dental service, dietetics service, parole
service, social service, records and research service, farm
supervisory service.
/ /
(278) ECKER-R., L» LASZLO. Financial responsibility for various welfare
activities - South Dakota. Table in his: Centripetal Force. 1935
See No. 30.
-195-
11514
COMMENT AND OPINION
State and Local
South Dakota
No. 279
GOVERNOR OP SOUTH DAKOTA, THE HON. LESLIE JENSEN. Message to the Legis¬
lature, Jan. 5, 1937.
(?79) "Our fields are unnlowed. Our farmers and home-owners are facing
foreclosures. Almost all of our livestock has left our State and our
foundation herds, we were years in "building, are now depleted. Such
livestock as we have needs feed. We need seed for this year's crop
and I am hopeful it will come timely. We must see to that. We need
help for working men and their families. Our minimum needs for "bare
essentials to sustain us for the next few months are so far beyond our
ability to provide, that I now express the hope that after our true
situation is made known to our President and the relief agencies in
Washington, they will speedily restore o^^r WPA quotas to the level
maintained during the early fall. It is winter now and our needs are
greater, — hence our case is stronger. It is my view that the slash¬
ing of WPA quotas two months ago shows that our true situation is not
known in Washington. That blow fell heaviest upon our farm population
for the reason that while during the winter of 1935 there was some
feed on the farms in most parts of our State and, therefore, some farm
income, now there is no feed and no farm income.
Our relief problem is the more serious because we have reached the
point where the credit of many of our counties is approaching impair¬
ment. These counties are, and have been, levying the legal limit for
both poor relief and mothers' pensions. Those funds are exhausted and
some counties have started registering general fund warrants which are
heavily discounted. The depletion or exhaustion of these funds came
through caring for the "border line" relief cases, that is those which
seemingly do not qualify for relief from any of the federal agencies or
the State Welfare Board.
May I call upon you to cooperate with me in all things that may be neo*
essary to convince our President and the national relief agencies that
we cannot come through without their prompt assistance? An adequate
showing concerning our present economic crisis, I am confident, will
be welcomed, for it will serve to strengthen the hand of our President
in obtaining from Congress such appropriations as may be necessary.
We need not apologize for this, for just as soon as Divine Providence
sends rain to moisten our barren fields, we will be the first to stand
upon our feet again ana help our neighbors who then may be in need of"-'
help.
While on the subject of relief, I deem it not inappropriate to here
reassert a statement which I have often made in the recent past that,
as Governor of this State, I am fully determined to use every
instrumentality at my command to the end that the administration of
relief be placed on the highest possible plane; that those who are in
need shall not want; that the "chislers" shall be weeded out; that the
administration be a humane one, free from favoritism and from any
taint of politics. When human needs are concerned, we are all South
Dakotans."
-196.
11514
COMMENT AND OPINION
State and Local
South Dakota, Tennessee
No. 280-283
(280) MILLSPAUGH, ARTHUR C. Characteristics of State organization; South
Dakota, p. 160 in his! Public Welfare Organization. Washington, D. C.J
Brookings Institution, 1935. xxv, 700 pp.
South Dakota has about 16 administrative entities concerned with
welfare functions; but only 7 are primarily welfare agencies.
Six of these are boards; but the State has only one institutional
managing board. The State Board of Charities and Corrections is
essentially a central control body, preoccupied with the business
management of institutions.
(281) WORKS PROGRESS ADMINISTRATION. DIVISION OP SOCIAL RESEARCH.
Analysis of constitutional -provisions affecting public welfare
in the State of South Dakota. Nov. 15, 1936. Prepared by Robert
C. Lowe and David S. Lander. 15 pp.
(282) . Digest of public welfare -provisions under
the laws of the State of South Dakota. Prepared by Robert
C. Lowe and staff, Legal Research Section, January 15, 1936.
2 p.l., pp. 3901-3965. 1 organization chart.
Digest of public welfare provisions, pp. 3901-3903; digest
of administrative provisions, pp. 3911-3965.
(283) BUCK, ARTHUR EUGENE. Administrative consolidation plans in operation,
pp. 27-30 in his: Administrative consolidation in State governments.
1930. 59 pp.
Under the direction of Governor Austin Peay, a reorganization bill
was passed by the legislature, becoming effective Feb. 1, 1923.
The act created 8 administrative departments, viz.: finance and
taxation, agriculture, highways and public works, education, insti¬
tutions, public health, insurance and banking, and labor.
In control of each department is a single head who is appointed by
the Governor to serve at his pleasure. Their salaries range from
$4,000 to $6,000 a year. Subordinate officers are appointed by the
commissioners with the Governor's approval and subject to employment
regulations established by the department of finance and taxation.
-197-
11514
COMMENT AND OPINION
State and Local
Tennessee
No. 283-286
BUCK, ARTHUR EUGENE. Administrative consolidation -plans in operation,
(cont'd.)
(283
cont'd.) Excepting the limited amount of administrative work that falls to
the three other constitutional officers, the Governor has complete
control over the administrative activities of the State government.
This leaves no doubt as to responsibility and serves to expedite the
State's business.
The department of institutions has charge of the public welfare in¬
stitutions and activities of the State. Under it are 13 charitable
and penal institutions and the workshops for the blind.
The plan has been successful. At the end of four years of operation*
a current deficit of $2,900,000 was wiped out and a surplus of more
than a million dollars had taken its place in the treasury.
f /
(284) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Tennessee. Table in his: Centripetal Force. 1935.
(285) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Ten—
nessee. p. 172 in his: Public Welfare Organization. Washington,
D. C.J Brookings Institution, 1935. xxv, 700 pp.
Tennessee effected a general reorganization and a number of
consolidations in 1923. There are no separate institutional
managing agencies. Control of the institutions, as well as
the more important service functions, are concentrated in
the Department of Institutions headed by a commissioner
appointed by the Governor with the consent of the Senate,
Departmental unity, however, is impaired by a provision that
each of the institutional executive officers shall be appoint¬
ed by the commissioner with the approval of the Governor.
(286) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the State
of Tennessee. Prepared by Robert C. Lowe and staff, Legal Re¬
search Section. March 30, 1936. 2. p.l., pp. 4001-4068.
1 organization chart.
Digest of public welfare provisions, pp. 4001-4006; digest of
administrative provisions, pp. 4009-4068.
-198-
11514
COMMENT AND OPINION
State and Local
Texas
No. 28r. -290
I' TEXAS]
(287) BUCK, ARTHUR EUGENE. Prouosed consolidation plans, p. 54 in his:
Administrative Consolidation of State Governments. 1930. 59 pp.
The 1917 legislature established a joint legislative committee
to investigate the state departments and institutions. This
committee reported to the 1919 legislature, its principal
recommendation being for the establishment of a board of control.
Such a board was created composed of three members appointed by
the Governor. It has control of the state eleemosynary institutions.
Luring the 1925 session of the legislature, the University of Texas
published a bulletin on state reorganization which was prepared by
Frank M. Stewart. A plan of reorganization was proposed which
recommended that existing agencies should be consolidated into
14 departments under the control of the Governor. This report was
never brought officially before the legislature.
(283) SCKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Texas. Table in his: Centripetal Force. 1935. See No. 30.
(289) MARTIN, ROSCOE C. Public Welfare, po. 231-292 in his: Urban local
government in Texas. Austin, 1936. 357 pp. (Univ. of Texas. Bull.
No. 3637. Oct. 1, 1935. Bureau of Research in the Social Sciences.
Study No, 20. Municipal Studies. No. 7.)
"At present only three of the five principal cities, Houston, Lallas
and Fort Worth, have established separate welfare depar cinents."
Each of these departments is briefly described as to its activities.
"Welfare agencies maintained under county direction consist in every
instance of a uoor farm or home for its aged, and in some cases of
homes for indigent orphans." The agencies of Harris, Lallas and El
Paso counties are briefly described.
(290) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Texas,
p. 166 in his: Public Welfare Organization. Washington, L. G.:
Brookings Institution, 1935. xxv, 700 pp.
The Texas Board cf Prison Commissioners was cre.ated in 1846.
When the Beard of Control was established in 1819, 6 central
control agencies and 17 institution managing beards were
abolished. Sixteen agencies now function more or less in
the welfare field. Seven are strictly welfare agencies; six
of which are controlling and directing; .and one is an insti¬
tutional managing beard. By retaining its Prison Board in
addition to the Board of Control, Texas differentiates adult
delinquency from other uarts of the welfare field.
-199.
11514 State and Local
Texas
No. 291
COMMENT AND OPINION
(291) A STATE DEPARTMENT OP WELFARE, p. 3 in: Texas public welfare workers.
(Public welfare journal, vol. 1, no. 8, December, 1936)
The Texas Government and Social Aspects Committee, a subdivision
of the Texas State Planning Board, has stressed the importance of
conserving human lives as well as material resources. For some
8 months the committee has studied the social needs of the state
with the conviction that these require a carefully organized divi¬
sion of the state government to correlate and administer the grow¬
ing public welfare measures so recently enlarged by the Social
Security Act. A bill ha,s been formulated which is to be submitted
to Governor Allred for his approval for submission to the regular
session of the Legislature in January, 1937. "Concisely, to pro¬
vide for a Board of Public Welfare, responsible for the policies,
and a director and staff responsible for the administration of
this department, and with proper safeguards to insure a competent
and efficient personnel. The department thus created would assume
all the responsibilities of the State in respect to the Social
Security Act... The Children's Division and the Texas Roliof Com¬
mission would be transferred to the Department of Public Welfare.
Provisions are made for County participation in local administration
under the authority of the County Commissioners and through County
of.District Boards of Public Welfare.
"... With an unpaid Board directly representing the people safe¬
guarding the righteousness of public welfare policies and an ex¬
perienced Executive and staff to carry theso into effect, democra¬
tic principles of government are maintained."
The Laredo Times, in its issue of December 1, contains an... edito¬
rial expressing public opinion in respect to this measure:
"It should be made a separate state department with full authority
to do nothing but administer welfare work. That will be enough
for any one board.
A State board of Public Welfare should be created by the next
Legislature. On that board should be placed five, seven or nine
of Texas' outstanding men and women who are recognized as having
gotten the grasp of Social Welfare.
An experienced director should be named by the board to aid in
carrying out its plans.
This work should not be delegated to the overworked Board of Con¬
trol. "To saddle the Board of Control with this new welfare prob¬
lem would be just like asking the Governor to take over and add to
his duties the task of being attorney general in connection with the
governorship."
-200-
11514
State and Local
Texas
No. 292
COMMENT AND OPINION
(292) STEWART, PRANK MANN. The Reorganization of State administration in
Texas. 129 -p. 4 organization charts (concerning organization of the
State as a whole). (University of Texas. Bulletin no. 2507. Feb. 15,
1925.)
The increasing cost of State government in Texas and the recurring
difficulty of providing revenue to meet constantly growing expen¬
ditures emphasize the urgent necessity of a reorganization of the
State's administrative machinery, to the end that expenditure may
be curtailed and efficiency promoted. Another reason, as expressed
by Governor Neff, is that the State Government "is acting as guard¬
ian for too many private enterprises". This is reflected in the
creation of 70 State agencies since 1876, 57 having been created
since 1900, and 31 in the last decade.
As a result of this haphazard method of organizing the administration
the State is, according to Governor Neff, "burdened in the governmen¬
tal agencies. It is top heavy. We have too much machinery, too much
overhead expense and too much duplication of work."
The simplification and reorganization of the State administration
in the interest of efficiency and economy is a matter of highest im¬
portance to the State.
Therefore a plan for reorganization for the State Government is pro¬
posed. Under this plan the following departments would be included:
Finance; Taxation and Revenue; State; Law; Military Affairs; Educa¬
tion; Health; Public Welfare; Agriculture; Labor; Commerce; Public
Works and Buildings; Conservation; Employment and Registration.
The process of integration is applied to the State Government in
four different ways, viz.; l) By increasing the administrative func¬
tions of the State government; 2) By the unification and departmental
ization of the scattered administrative units; 3) By the establish¬
ment of an effective system of financial control; 4) By coordination
of administration through the cabinet system.
With a few exceptions each department should be headed by a single
official appointed by the Governor. Terms of the department heads
should be for four years.
Boards or commissions should not be used for administrative work.
Ex-officio boards are not very effective and should be seldom used.
The proposed Department of Public Welfare would include the State
agencies dealing with prisons, reform schools, pardons and elee¬
mosynary institutions. The Prison Commission, Penitentiary Supervi¬
sory Board, Auditor for Prison System, Board to Select Auditor for
-201-
11514
COMMENT AND OPINION
State and Local
Texas
No. 292-293
STEWART, FRANK MANN. The reorganization of State administration in Texas.
(292
cont'd.) Prison System, Board of Pardon Advisors and Board of Control, Division of
Eleemosynary Institutions.
A State Public Welfare Commission of 9 members will be appointed by the
Governor. Members should serve without pay except actual expenses. The
Commission should have inspection and investigation, referee and consul¬
tant powers. It should not have administrative powers, but should con¬
fine itself to questions of policy and general administration.
The Department would be divided into the following bureaus:
(1). Administration.
(2). Mental Hygiene.
(3). Hospitals.
(4). Confederate Veterans.
(5). Reform schools.
(6). Dependents.
(7). Prisons.
The three institutions for the instruction of the deaf and dumb would be
placed under the supervision of the State Board of Education.
Local advisory boards would be created for ea.ch institution under the
Welfare Department. It is not contemplated that these advisory boards
will have administrative control of the institutions. Management will
be centered in the Department.
A Board of Pardons and Paroles should be constituted within the Depart¬
ment, to consist of the Commissioner of the Department and the Director
of the Bureau of Reform Schools and the Bureau of Prisons.
93) TEXAS. JOINT LEGISLATIVE COMMITTEE ON ORGANIZATION AND ECONOMY. Public wel¬
fare : eleemosynary institutions and social service agencies. 283 pp. in Part
7 of "The Government of the State of Texas." Report compiled by Griffenhagen
and Associates. Austin: A. G. Baldwin & Sons, 1933. 13 parts.
A-ctivities maintained by the State which concern public welfare and
social service include:
20 eleemosynary institutions.
Division of Child Welfare of the Board of Control.
Almshouse and Coushati Indian Agency.
Division of Vocational Rehabilitation of the State Board of Education
Commission for the Blind.
State Service office of the Adjutant General's Department.
Confederate Pension Fund now exercised by county judges.
Comptroller of Public Accounts.
It is proposed that all of these functions and agencies, together with
the correction institutions of the State prison system and the existing
Board of Pardons and Paroles be consolidated in a new Department of Public
Welfare with organization as follows:
-202-
11514
COMMENT AND OPINION
State and Local
Texas, Utah
No. 293-296
TEXAS. JOINT LEGISLATIVE C0111ITTEE ON ORGANIZATION AND ECONOMY". Public
welfare, (cont'd.)
(293
cont'd.) Commissioner of Public Welfare to be appointed by the
Governor, from a list of at least 3 npminees of the State
Board of Public "Welfare and t<? be head of the department
responsible for all of its activities. Would appoint heads
of bureaus and institutions.
State Board of Public Welfare, to consist of 6 members ap¬
pointed by the Governor for 6-year overlapping terms,
to make nominations for appointment of the Commissioner,
to make reports ana recommendations as to policies and
procedure to the commissioner, the Governor and/or the
legislature, and to act as a board of classification and
parole.
Bureau of Social Service
Bureau of Mental Hygiene
Bureau of Corrections
Bureau of Industries and Farms
Bureau of Plant and Equipment
Bureau of Administration
The various eleemosynary institutions \ ould also be included under
the department.
(294) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL REARCH.
Digest of Public welfare provisions under the laws of the State
of Texas. Prepared by Robert C. Lowe and John A. Hanley, Legal
Research Section. May 1, 1936. 2 p.l., pp. 4101-4177. 1 organ¬
ization chart.
Digest of Public welfare previsions, pp. 4101-4107; digest of
administrative provisions, pp. 4110-4177.
I UTAH I
' j-
(295) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Utah. Table in His; Centripetal Force. 1935. See
No. 30.
(296) GOVERNOR OF UTAH, THE HON. HENRY H. BLOOD. Message to the legis¬
lature at the regular session Jan. 12, 1937.
"The State Department of Public Welfare was appointed May
9, 1935, succeeding the Governor's Advisory Committee on
Public Welfare and Emergency Relief which had been in
-203-
11514
COMMENT AND OPINION.
State and Local
Utah
No, 296-cont'd.
GOVERNOR OP UTAH, THE HON. HENRY H. BLOOD. Message to the legislature,
(cont'd.)
(296
cont'd.) charge of these activities since 1932. The 1935 statute,
which antedated by five months the passage of the Federal
Social Security Act, designated the new departure as the
official state agency for the administration of all state
and federal funds made available for relief and welfare
purposes, and empowered it to establish county boards
to serve under its direction.
The last of the federal grants for direct relief was
received in November, 1935. After that time, the state
was required to assume the care for the needy and destitute
unemployables. The Federal Works program assumed responsi¬
bility for employables. The State Board managed this
transfer of unemplovables from federal to state auspices
in a commendable manner so that needy citizens received
relief without break or reduction. In February, 1936,
Congress appropriated funds vrhich enable the Federal
Social Security Board to make grants in aid to those
states that had worked out programs which the Board could
approve. Utah became the tenth state in the union to
qualify for receipt of federal grants for the relief of
the needy aged, the needy blind and dependent children.
In good time Utah plans in compliance with all other
phases of the National Social Security Act also were
approved.
Under the old Federal Emergency Relief Administration
program, the government supplied nearly 90 per cent of
the funds required to take care of the state's needy
citizens. Its portion, as provided by the new program,
is about 34 per cent. The government pays one-half
the cost of grants to the needy pged, one-half for
the needy blind and one-third for dependent children.
There is a large group of needy citizens loss than 65
years of ago who cannot qualify under any of the Federal
social security categories. The Welfare Board, to its
credit, decided provision should be made for this group
on the same basis of need as for the other groups. A
needy family, of which the head is 63 or 64 years of age,
may suffer as much as a family of which the head is 65.
The latter, but not the former, is eligible for old age
assistance under the Social Security Act. In Utah each
such family receives assistance as generously as the
other. But the cost is bczmeby the state alone in one case
and in the other is shared with the federal government and
the counties.
-204-
11514 State and Local
Utah
No. 296 cont'd.
COMMENT AND OPINION.
GOVERNOR OF UTAH, THE NON. HENRY H. BLOOD. Message to the Legislature,
(cont 'd.)
(296
cont'd.) In November, 1936, 29,000 persons, or 6 per cent of the
state's population, were receiving public assistance from
state funds under the Social direct relief, or from state,
local and federal funds under the Social Security Act.
The figures include 5,106 persons recieving an average
monthly old age grant of $22.46; 231 blind persons re¬
ceiving aid averaging $23.72 monthly and 4,602 dependent
children under the age of 16 receiving an average monthly
allowance of $12.19 each. In each of these three classifi¬
cations, the average grant equals or considerably exceeds
the national average for states participating in Social
Security assistance. Similarly in proportion to popula¬
tion the rate of dependency among persons 65 years of
age or over was 196 per thousand aged persons in Utah, as
compared with a national rate of 126. Social Security
grants for dependent children were being issued for 26
of every thousand children under 16, whereas the national
rate was 15, per thousand. In those households whore the
maximum Social Security grant is insufficient to meet the
needs, additional aid is extended from state funds for
general relief purposes. In addition to the 6,590 house¬
holds being maintained wholly or partially from Social
Security grants in November, 1936, a total of 4,535
families were being aided from general relief funds of
the State Department of Public Welfare. Partly because
of normal decline in seasonal employment, but largely
because of the recent strike of workers in the metal
mining industry, the public relief load reached its
peak for the year 1936 during November.
The two per cent sales tax is the financial mainstay for
the administration of public assistance in Utah. The
erescnt appropriation for State Welfaro purposes from
this source is $2,000,000 a year. Out of this are met
the state's proportion of the public assistance costs
and also the matching funds required for participation
in other welfare services under the Social Security Act.
These include the Crippled Children's Service, Maternal
and Child Health Services and public health work, all
administered by the State Board of Health; special child
welfare services administered by the Department of Public
Welfare, and vocational rehabilitation of the physically
handicapped, administered by the State Department of
Education. The $2,000,000 fund is also a source of
revenue for the furtherance of the state's public building
-205-
11514
COMMENT AND OPINION
State and Local
Utah
No. 296-297
GOVERNOR OF UTAH, THE HON. HENRY H. BLOOD . Message to the Legislature,
(cont'd.)
(296
cont'd.) program. A summary of receipts and of obligations incurred
from the state welfare fund from its inception in 1933 to
November, 1936, is presented herewith.
At the suggestion of the State Board of Public Welfare, I
appointed a committee to prepare welfare legislation to
be considered at this session. Drafts for proposed acts
will be presented for your consideration. In the formula¬
tion of these drafts the committee had the advice of rep¬
resentatives of the Social Security Board and of the
American Public Welfare Association. The suggestions thus
carry the fruit of Utah's experience in administration of
public assistance and the experience of all states cooper¬
ating with the Social Security Board. The effort has been
to present a well-rounded relief and welfare program. I
urge that you provide for continuation of local administra¬
tion by county welfare boards, for local participation in
the cost of the program and for strong state supervision.
This is in keeping with the urgent request of the Social
Security Board which asks that we continue the upbuilding
of trained personnel. It has been the belief that you
will desire to provide for public assistance to the needy
aged, the needy blind, dependent children, and to the other
needy of the state and for continued participation in the
other programs provided for by the Social Security Act,
The bills have been prepared with such objectives in.mind.
The State Board of Public Welfare has estimated that the
sum of $2,400,000 will be needed from the sales tax to
finance the state's share of the program during the next
year, this sum being in addition to the contributions from
the coxmties and from the Federal Social Security Board.
I am committed to the policy of adequately providing for
the welfare of the needy aged above and below the 65 year
mark. I am also favorable to similar care being extended
to the other needy groups now receiving public assistance
through the joint activities of counties, state and federal
government, including the needy blind, dependent children
and others. A large portion of the sales tax now is dedi¬
cated to these welfare activities and it is apparent greater
sums than have been expended by the state will be necessary
to finance the program on the present basis."
(297) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Utah.
p. 148 in his: Public Welfare Organisation. Washington, D. C.: Brook-
ingslnstitution, 1935. xxv, 700 pp.
Utah has enacted some excellent legislation. Its Juvenile Court
and Prooation Commission is equipped v,ith comprehensive statu¬
tory authority within a limited field. Like some other states,
-206.
11514 State and Local
Utah, Vermont
No. 297-300
COMMENT AND OPINION
MILLSPAUGH, ARTHUR C. Characteristics of State organization. (cont'd.)
(297
cont'd.) Utah attempts to correlate welfare with education, the State Su¬
perintendent of Public Instruction being an ex-officio member
of the Board of Trustees of the State Industrial School end of"
the Juvenile Court and Probation Commission. Of the 18 agencies,
16 are headed by boards and all of the primary welfare agencies
are of the same type. There is, however, no integrating agency.
(298) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest of
public welfare provisions under the laws of the State of Utah. Prepared
by Robert C. Lowe and Donna Seare, Legal Research Section. May 1, 1936.
2 p.l., pp. 4201-4249. 1 organization chart.
Digest of public welfare provisions, pp. 4201-4210; digest of administra¬
tive provisions, pp. 4211-4249.
"VERMONT
(299) BUCK, ARTHUR EUGENE. Administrative consolidation r>lans in operation,
pp. 30. in his: Administrative consolidation in State governments.
1930. 59 pp.
When Governor Proctor was inaugurated in January, 1923, he sent a
message to the legislature recommending reorganization and outlin¬
ing a proposed scheme. The plan became partially effective on May 1
but did not come into full operation until July 1, 1923. It provided
for 7 departments, viz.: finance, public welfare, public health,
highways, agriculture, education and public service. These depart¬
ments are single headed except the departments of highways, public
health, education and public service, which are under the direction
of small boards. The departmental heads are appointed by
the Governor with the consent of the Senate and the terms of
office are the same as that of the Governor- The department of
public -welfare has much the same function as that department in
other reorganized State governments.
While the Vermont plan of reorganization is not as thoroughgoing
as it might be, it has nevertheless seemed to work with a fair
degree of success.
(300) ECKER-R., L. LASZLO. Financial responsibility for various welfare ac¬
tivities.- Vermont. Table in his: Centripetal Force. 1935. See No. 30.
-207-
11514
COMMENT AND OPINION
State and Local
Vermont
No. 301
(301) GOVERNOR OF VERMONT, THE HON. GEORGE D. AIKEN. Message to the legis¬
lature at the regular session, Jan, 7, 1937.
"The Department of Public Welfare is charged with the supervision of
the hospital for the insane, the state's prison, industrial school,
school for feeble minded, woman's reformatory and sanatoriums for
the care of tuberculous persons. It is also in charge of paroles
and probations.
The point has been reached when certain of our institutions have
become over-crowded and requests have been made for appropriations
totaling over a million dollars for additional buildings, equipment
and operating expenses. It is my opinion that appropriations for
this purpose should not be made until there has been a real study of
our entire system of public welfare and state institutions.
We have 1200 people in the state on parole and probation. At present
probationary work is handled by part-time officials and is in a
generally unsatisfactory condition, several hundred persons failing
to meet the terms of their probation. It is very probable that a few
full-time probation officers would be so much more effective in their
supervision of these cases that the cost to the state for their
services would be negligible.
The Woman's Reformatory at Rutland is a fine institution used to only
a third its capacity. The Brandon Home for Feeble Minded is over¬
crowded, without even a place to isolate the victims of contagious
diseases. At Vergennes we are spending between five and six hundred
dollars a year apiece to care for children, some of whom doubtless
should never have been sent there. At the State Hospital in-
Waterbury 1100 persons are confined in an institution built to ac¬
commodate 800. At the State Prison in Windsor half the prisoners are
idle because there is no work for them to do.
It has been recommended that we should employ a full-time psychia¬
trist to work at our institutions and that if this were done the sav—
ing made by releasing inmates would amount to more than his cost to
the state.
I confess I do not feel competent to make detailed recommendations
at this time. I believe it is our duty to see how many people we can
keep out of state institutions rather than how many we can put in.
Rather than spend five hundred dollars a year in keeping a boy in
Vergennes I would prefer to spend half that amount in keeping him out.
I do not like to hear of an old person being sent to an insane asylum
simply because he has reached the age where his mind fails to
function and he is not self-supporting.
208-
11514
COMMENT AND OPINION
State and Local
Vermont
No. 301-305
GOVERNOR OF VERMONT, THE HON. GEORGE D. AIKEN. MPg«qgP to the legislature,
(cont'd.)
(301
cont'd.) And so I would request that this legislature authorise a committee
of not over five and preferably three persons, which may he a sub¬
committee of a regular legislative committee, or a special committee
to be appointed by the governor, .and with an appropriation to enable
it to make a real study, not only of our state institutions but of
our entire welfare system. Although it might take some time for this
committee to complete its studies, yet it could report before the
end of this session its recommendations on matters requiring immediate
attention, so that legislative action might be taken by this assembly.'"
(302) HASSE, A.R. Maintenance. bv the State, of defectives, delinquents and
dependents. 1789-1904. pp. 46-51 in Index to Economic Material in
Documents of the State of Vermont. Washington, D.C.: Carnegie Insti¬
tution of Washington. 71 pp.
Analysis of reports, Governors' messages, etc., 1777-1904; history
of organization of State agencies.
(303) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Vermont,
pp. 172-173 in his Public Welfare Organization. Washington, D.C.: Brook¬
ings Institution, 1935. xxv, 700 pp.
Vermont, discarding a number of separate agencies, in 1923,
created a Department of Public Welfare under a Commissioner,
but the Assistant Commissioner is appointed by the Governor
and at least six of the institution heads are appointed by
the Commissioner with the approval of the Governor.
(304) VERMONT. BOARD OF CONTROL. Special report made in accordance with
joint resolution no. 327 of 1919, to the Vermont Legislature of 1921,
entitled Joint resolution relating to an investigation of state expenses
by the Board of control. Rutland,Vt., Tuttle Company, 1921. 33 pp, 6
tables; 5 charts.
This report does not include separate discussion on welfare functions.
One chart indicates "Expenditures of the State of Vermont for
institutions, agriculture, health and conservation, 1901-1920."
Line graph, p. 11.
Table A shows expenditures of Vermont from 1901 to 1920, viz.
total expenditures for each of the years, divided into 13 groups
(including institutions.)
(305) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest of
public welfare provisions under the laws of the State of Vermont. Pre¬
pared by Robert C. Lowe and staff, Legal Research Unit. January 1, 1936.
2 p.l., pp. 4301-4368. 1 organization chart.
-209-
11514
COMMENT AND OPINION
State and Local
Virginia
No. 306-309
VIRGINIA
(306) BUCK, ARTHUR EUGENE. Consolidation plans in operation, pp. 42-44 in
his: Administrative Consolidation in State Governments. 1930. 59 pp.
A special session of the Virginia legislature, meeting on March
16, 1927, passed an act to reorganize the State government, part
of which took effect on August 1, 1927 and the remainder on March
1, 1928. The act provides for the Governor's office and 12 depart¬
ments, as follows: taxation, finance, highways, education, corpo¬
rations, labor and industry, agriculture and immigration, conserva¬
tion and development, health, public welfare, law and workmen's
compensation.
Eventually Virginia should have a thoroughly modern governmental
structure, if present lines of development are followed out.
(307) BUREAU OF MUNICIPAL RESEARCH, NEW YORK CITY. Organization and management
of the State government of Virginia. Richmond, 1927. 156 pp. diagrs. etc.
(308) ECKER-R., L. LilSZLO. Financial responsibility for various welfare ac¬
tivities - Virginia. Table in his: Centripetal Force. 1935. See No. 30.
(309) JAMES, ARTHUR W. Defining public welfare as a function of government in
Virginia. (Social Forces, vol. 6, June, 1928, pp. 622-626.)
The General Assembly of Virginia, the oldest lawmaking body in
America, dating back to 1619, received at its session in 1924 a
recommendation from the Governor that it provide for a. survey of
the government by an expert commission or agency. The Governor's
recommendation was unanimously adopted, the appropriation suggested
for the survey being increased by $10,000. The New York Bureau of
Municipal Research was selected to make the study which was begun
in May, 1926, and completed in January, 1927.
It is not the purpose of this brief article to deal with the whole
report, but with the chapter on public welfare, sometimes defined
as the "newest function of democracy".
The Bureau said, "Many parts of the machinery of Administration are
thoroughly antiquated. They belong almost to the era of the stage
coach and the tallow candle, and here they are trying to function in
the age of motor cars and electric ligjht."
-210-
11514
COMMENT AND OPINION
State and Local
Virginia
No, 309 cont'd.
JAMES, ARTHUR W. Defining nub]ic welfare as a function of government in
Virginia, (cont'd.)
(309
cont'd.) From tue Revolution until the War Between the States,
there was little addition to the States' charitable
and correctional institutions; but as soon as the
integrity of the State was restored, the Assembly
began to provid.e new facilities for handling increas¬
ing social burdens. In 1870, while Virginia was
still under military control, the State established
a hospital for the colored insane, and since that
time, two additional hospitals for the insane, two
colonies for the epileptic and feeble minded, two
state prison farms, two general hospitals for the
care of indigent juveniles and schools for the deaf
and blind, and a number of other agencies.
These several institutions were created by individual
acts of the Assembly and placed under the control of
boards of directors selected by the Governor. In
addition to these, seven other boards connected with
public welfare were created.
As a first step in coordinating this vast system, the
Assembly, in 1908, established a State Board of Char¬
ities and Corrections, limiting its duties to those
of a visitational and recommendatory character. Later
statutes gave to the Board of Charities and Corrections
limited executive power over juvenile wards of the State,
making it the official agency for the care of dependent,
delinquent and neglected, children committed by the Courts.
In 1922 the State Board of Charities was reorganized and
given the name of the State Department of Public Welfare,
with executive power over local agencies but not over
State institutions and agencies.
The Municipal Research Bureau found much encouragement
in the fact that the very decentralization lent itself
to a process of simplification, the only obstacles being
the two or three offices established by the constitution.
The greater number were statutory in origin, permitting
immediate reorganization by the Assembly. The nucleus
of a central administrative agency was found in the
State Board of Public Welfare, which had already begun
to assume a place of importance and power throughout
the whole field of social administration. It was pro¬
posed that the Commissioner of Public Welfare be ap¬
pointed by the Governor and that the Board of Public
Welfare be continued merely as an advisory body.
-211.
11514
COMMENT AND OPINION
State erd Local
Virginia
No. 309 cont'd.
JAMBS, ARTHUR W. Defining public welfare as a function of .roverimer: 1 in
Virginia. (cont1d.)
(309
cont'd.) It "as the ideal of the New York Bureau of Municipal
Research that the four hospitals for the insane, the
colonies for the feeble-minded, the schools for the
deaf and blind, the industrial schools for juvenile
delinquents and the entire penitentiary system, as
uell as the child welfare work and the organization
and supervision of county and city social agencies,
would be combined in the one distinct department of
government, the Department of Public Welfare, under
a commissioner appointed by and answerable to the
Governor.
To administer such a department the Bureau recommended
the addition of a staff of professional and technical
supervisory officers to aid the superintendents of the
institutions and a staff of psychiatric social workers
and parole officers to serve all institutions where
such service is required. The program was one of
economy as well as simplification, in the estimated
reduction of costs by reason of improved care and
supervision of institutional inmates, by revenues from
paying patients, by a distribution of farm products
and better direction of farm operations, by improved
supervision and standardization of dietary, by the
elimination of waste in the operation of institutional
utilities, by improved county welfare activities and
by greater returns from child welfa.re expenditures.
An act was introduced which required that the Bureau's
report should be received by a committee on reorgeni-
za.tion.i' which was instructed to report specific recom¬
mendations to the Governor. Its recommendations were
embodied in a comprehensive statute, and the reorgani¬
zation bill was passed practically as written.
It was not to be expected that the Reed Committee would,
adopt the full recommendations of the New York report,
nor that the Assembly would enact them into law at once.
It went as far as it could, however, without crippling
the institutions and provided for future changes as soon
as constitutional amendments and other parallel changes
have been made.
Specifically, in the field of public welfare, the reor¬
ganization bill, which bccajne law July 1, 1927, provided
for the abolishment of the four boards of directors of
industrial schools, and for the substitution of two
boards, one for white ana one for colored schools; it
grouped all of the public welfare institutions and
agencies discussed above in the Department of Public
1/ The "Reed Committee."
-212-
11514 State and Local
Virginia
No. 309-310
COMMENT AND OPINION
JAKES, ARTHUR W. Defining rmblic w-1 fare as a function of government in
Virginia, (cont'd)
(309
cont'd.) Welfare as "associated agencies"; it provided for the submission
of proposed constitutional amendments to the electorate, which, if
adopted, would make it possible for the Assembly to do away with
the .present constitutional boards and place them in the Department
of Public Welfare.
(310) . Problems in Public Welfare Administration. 1936. 13 pp.
Address at Loc%L Government Round Table, Institute of Public
Affairs University of Virginia, July 18, 1936.
On the occasion of the 25th anniversary of the Virginia Depart¬
ment of Welfare, Commissioner James addressed the dinner-gathering
(a) on Dec. 13, 1933, in honor of Dr. J. T. Mastin. The subject of
this dinner address was "Public Welfare Orientation in Virginia",
and "which" Commissioner James says, "in view of subsequent legis¬
lation in line threwith, is equally pertinent today."
*
In the address of Dec. 1933, Commissioner James spoke in substance
as follows:
"The original Department of Charities and Corrections of Virginia,
which later became the Department of Public Welfare, was set up
strictly as an investigatory, educations?. , demonstrational, pro¬
motional social agency with no administrative or executive powers.
The reorganisation of the Board of Charities and Corrections, in
1922, into the Board of Public Welfare in no particular changed
this original conception. All that happened was that the depart¬
ment was given some additional facilities and machinery for carry¬
ing out its functions. The Children's Bureau was established and
provision was made for establishment of the mental hygiene clinic
ahd bureau. County public welfare machinery was authorized as a
means for extending public welfare service to the political sub¬
divisions of the State. The department was given power to license
certain child-welfare agencies oS a further measure of improving the
service in which it was engaged. But no where in the 1922 re¬
organization act was the Board of Charities and Corrections made
a department of institutions or a board of control.
The question deserving the most serious consideration in my opinion
is the effect of the government reorganization act of 1S27 on the
department's sot-up and program.
In general, it nay be said that throe types of organization evolved
among the American States:
-213-
11514
COMMENT AND OPINION
State and Local
Virginia
No. 310 cont'd.
JAMES, ARTHUR iV. Problems in Public Uelfare Administration. 1936.(cont'd)
(310
cont'd.) The first type is represented by those states which have not changed
the original conception of the board of charities and corrections,
such as "as established in Virginia.
The second type by those in which the government of the welfare in¬
stitutions is placed in an entirely administrative agency set-up as
a sepa.rate bureau in the department of public welfare. In some
instances this type has been subdiviced into separate departments
for prisons, hospitals and social service.
In the third type of states, the welfare institutions have been
grouped with the educational, health and all other institutions
into a. state board of control, all being governed by a single
agency so far s.s physical matters are concerned.
The New York Bureau of Municipal Research made a study of the
Virginia public welfare agencies and presented a. series of
recommendations for their reorganization. The Reed committee failed
to a.dopt these proposals nor did the General Assembly seriously
considecr them.
However, by a series of incidental developments, the Commissioner
of Public "Jelfa.re ha,s become a member of the board of directors of
each of these institutions as well as chairman of the combined
boards of hospitals and colonies, known as the General Board of
Directors for the Hospitals for the Insane and Colony for Epileptics
and Feebleminded, without any of the recommended administrative as¬
sistance regarded as a necessary accompaniment to such membership.
The Commissioner of Public Welfare acted as Commissioner of State
Hospitals, which position was abolished by the amended constitu¬
tion and he thereby automatically became chairman of the General
Board until 1928. No provision was made for placing the Com¬
missioner on this board, and although he acted as chairman from
1928 until 1930 he was not actually a legal member of the board.
By a ruling of the Attorney General the Commissioner of Public
Welfare continues to exercise the functions of the office of the
former Commissioner of Hospitals.
Entirely out of line with the system recommended by the survey,
the Commissioner of Public Welfare has become a member of the
board of directors of the Penitentiary, State fa.rm for Defective
Misdemeanants and State Farm for Women; of the 4 hospitals for
the Insane and Colony for Epileptics and Feebleminded; of the 4
industrial schools, and the Commission for the Blind.
It must be obvious that such memberships are purely nominal if
the Commissioner is to give any time to the affairs of the de¬
partment .
-214-
11514
COMMENT AND OPINION
State and Local
Virginia
No. 310 cont'd.
JAMES, AltTHUR W. Problems in Public Welfare Administration. 1936. (cont'd.)
(33.0
cont'd.) I have gone over our present set-up with some outstanding authori¬
ties and they are all of the opinion that our system is illogical,
unsound and not constructive either from a departmental or institu¬
tional point of view.
I am therefore of the opinion that under the nresent system of de¬
partmental and institutional administration, the Commission of
Public Welfare should be taken off all these boards."
Proceeding to the period following 1933, Commissioner James con¬
tinued, in substance, as follows:
In the 1934 session of the General Assembly, the Commissioner of
Public Welfare was removed from the Prison and. Hospital Board.
I am convinced that the soundness of my 1933 position has been
amply demonstrated in the subsequent relationahips of the De¬
partment and these boards and the institutions under their control.
In the Virginia Department of Public Welfare the matter of personnel
has been simplified by the adoption of an absolute standard of pro¬
fessional requirements. The personnel problem is greatest, perhaps
in the forces over which a State department exercises control as
to qualifications and ability. This problem confronts our depart¬
ment at present in the extension of welfare service to all the po¬
litical subdivisions. The Department's position was set forth in
the following statement to the county and city authorities:
June 5, 1936
A primary purpose of the new relief and welfare act is to assist
the counties and cities in employing trained, experienced, competent
welfare workers. This is necessary for a number of reasons, viz.:
(l) The Welfare superintendents are to fill, partly
at least, the long felt need of out-patient workers
for the hospitals for mental patients, parole officers
for the industrial schools .and social service workers
for other institutions.
(2) The welfare superintendents are to handle not only
local relief but all social problems confronting local
authoritie s.
(3) It is intended that this system will serve to handle
measures which will devolve upon the states if Virginia
enters the Social Security program.
It will be the aim of the Department to limit its approval of
personnel to those who are:
(a) Graduate social workers.
-215-
11514 State and Local
Virginia
COMMENT AND OPINION No. 310-312
JAMES, ARTHUR W, Problems In Public Welfare Administration. 1936. (cont'd.)
(310
cont'd.) (b) Experienced and trained social workers who have been
successful in their field.
(c) Those who have had some experience in relief and welfare
work and who have demonstrated a capacity for training
and improvement.
(311) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Virginia.
p. 157 in his Public Welfare Organization. Washington, P. C.:
Brookings Institution, 1935. xxv, 700 pp.
Virginia effected a general reorganization and a number of con¬
solidations in 1927. The assembly in 1908 had created a State
Board of Charities and. Corrections, which was changed in 1922
to the State Board of Public Welfare. Attempts were subsequently
made to center more control and coordinating power in the Depart¬
ment by making the Commissioner of Public Welfare an ex-officio
member of several boards which manage or control institutions.
The Board and the Commissioner of Public Welfare are both re¬
sponsible (or partially responsible) to the Governor. Insti¬
tutional control is represented by the State Prison Board and
the General Hospital Board; but each of the institutions, other
than the penal, has a separate board of directors. Of the 15
primarily welfare agencies, 14 are boards; and 10 are classified
as institutional managing boards.
(312) OGDEN, GLADYS. Example of current expansion of state welfare activity,
in her; Municipalities and the Federal works program. (National Munici¬
pal Review. Feb., 1937, pp. 62-70; on pp. 69-70.)
An interesting example of the current expansion of state welfare
activities can be seen in Virginia. The state department of public
welfare has been in existence for many years. In 1922 the general
assembly provided for the development of a unified and modernized
system of poor relief and general welfare in the counties and cities.
Although that legislation was permissive only and did not provide
for state assistance, by March of 1936 twenty of the larger coun¬
ties (out of a total of one hundred) and several cities had taken
advantage of it.
In the session of 1936 the general assembly appropriated $925,000
for general relief during the following fiscal year—/. It was the
first appropriation ever made by the state for relief. The purpose
of the act, as explained by the state commissioner of public welfare,
was "to stimulate interest and responsibility in relief and welfare
problems and to develop efficient, economical local services under
state financial and administrative assistance.—'
These funds were to be apportioned among the city and county welfare
departments on the basis of population and on the condition that they
be supplemented locally at least to the amount of 60 per cent of the
grant. Not more than 10 per cent of the state contributions could
1/. H.3. 250,Acts of 1936. '
2/. Public Welfare, April 1936, p. 3.
•*216—
11514 State and Local
Virginia
No. 312-314
COMMENT AND OPINION
OGDEN, GLADYS. Example of current expansion of state welfare activity..
(312
cont'd,) be spent for administration, but there was no such limit on the
local funds, The money was to be used, furthermore, for direct
rather than for work relief.
Although the individual programs were to be initiated by the cities
and counties, they were to be supervised by the state. Regulations
were formulated, therefore, concerning the selection and approval
of personnel, uniform records and accounts, -and the scheduling of
programs so as to take core of the need as it aroseOfficially
the program started on July 1, 1936. 3y October seventy-three counties
and twenty cities were participating 2/ peCember the number had
increased to eighty-six counties and twenty-three of the twenty-four
independent cities.
Similar trends may be seen in other states. With the advent of the
social security program the work is progressing even faster than
might have been the case. Responsibilities are increasing but so
are the benefits, and the municipal!ties cannot help but receive a
substantial part of them.
(313) VIRGINIA, DEPARTMENT OP PUBLIC WELFARE. Public welfare d.er.a.rtments in
Virginia* 1936. pp. 1-2 in its Public Welfare, Jan., 1937.
"The year 1936 is a memorable one in the history of public welfare
in Virginia.. The most constructive and far-reaching measure in the
development of the state public welfare program was the Public As¬
sistance Act of 1936, which has already resulted in the establishment
of public welfare departments in 86 of the 100 counties and 23 of the
24 independent municipalities. ..."
(314) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH. Digest of
public welfare provisions under the laws of the State of Virginia. P r e -
pared by Robert G. Lowe and staff, Legal Research Section. February 1,
1936. 2 p.l., p. 4401-4458. 1 organization chart.
Digest of public welfare provisions, p. 4401-4410; digest of admin¬
istrative provisions, p. 4415-4458.
1/ Public Welfare, April 1936, p. 3.
2,/ Ibid, October 1936, p. 2.
-217.
11514
COMMENT AND OPINION
fviRGINIA - LOCAlI
(RICHMOND)
(315) AMERICAN PUBLIC WELFARE ASSOCIATION.. Survey of the Department of
Public Welfare and Social Service Bureau of the City of Richmond,
Va. Chicago: The Association, 1936. iv, 44 pp. tables.
The purposes of this report, as ststed in the introduction, in
so far as they concern public welfare organization, are as
follows:
To study and evaluate the existing administrative machinery and
personnel set-up of the Department of Public Welfare with par¬
ticular reference to the Social Service Bureau; to review the
detailed operating methods of the Social Service Bureau; to pre¬
sent certain specific recommendations for the improvement of the
administrative organization, operating methods and procedures,
and the reporting and accounting systems of Public Welfare and
Social Service Bureau; to render all possible assistance to the
community of Richmond in the development of a modern and effec¬
tive social welfare program.
Richmond's health and welfare services are controlled by the
Department of Public Welfare. This department is headed by a
director who is appointed by and responsible to the Mayor- The
department has no general advisory or administrative board, but
has two boards for two Social Service Bureau functions. The
members of the Tuberculosis Board are bureau and division heads
of the Department of Public Welfare. The Mothers' Aid Board
consists of four people on the Tuberculosis Board and one member
who is a division head in the Bureau of Health. Both of these
boards have administrative and advisory functions.
The administrative office is the clearing point for the expendi¬
tures of all department bureaus. A.measure of budgetary control
is exercised through the expenditure accounting system of the
department, which system is entirely on a cash basis.
A study of each of the subdivisions of the Welfare Department
was made and findings are given in the report. The organization
and function of the Social Service Bureau is given in detail and
recommendations are made for its improvement.
Chapter 4 of the report deals with the disadvantages of the present
State and Local
Virginia - Local
Richmond
No. 315
-213-
11514 State and Local
Virginia - Local
Richmond
No. 315 Cont'd.
COMMENT AND OPINION
AMERICAN PUBLIC WELFARE ASSOCIATION. Survey of the Department of Public
Wp.lfn.rfi end Social Service Bureau. (cont' d.)
(315
cont'd.) organization and methods of the Department and of the Social Service
Bureau.
The major defects of the Department as a whole are presented in the
following summary.
The administrative office acts merely as a clearing point for
the transmission of claims to the comptroller. Many of the
records kept are dupicated in other departments. The. ad¬
ministrative office is not relied upon for detailed reports
of activities in the various bureau. When this type of infor¬
mation is used, it is prepared "by the accounting offices of
the individual "bureau.
The necessity for specialization in the field of personnel
administration is not recognized in the set-up of the Richmond
Government. The Department heads are not always free to choose
their employees on a merit "basis. There is no standard plan of
position classification and compensation.
In the Department of Public Welfare, there is an unnecessary
amount of duplication in keeping of expenditure ledgers.
Detailed study of the organization of the Social Service Bureau
of the Department is made in the report.
The following recommendation for the improvement of the entire
Department are made:
A. General recommendations:
(1) Publication of more adequate information on health
problems and standards.
(2) Careful study of service and work of City physicians.
(3) Detailed study of City Home to determine its function
in relation to the entire public welfare program
(4) Installation of proper forms, records and administrative
procedures in the financial operations of the city.
B. Specific recommendations:
These recommendations are given generally and then applied
to Richmond's problems. The proposed changes are:
(1) Centralize all related social service programs in
the same bureau.
(2) Centralize all related intake functions in one office
of the Social Service Bureau.
(3) Centralize all responsibility for the supervision of
case work, determination of case work policy and super¬
vision of intake in a case Work supervisor.
-219-
11514 State and Local
Virginia - Local
Richmond,
Washington
COMMENT AND OPINION No. 315-318
AMERICAN PUBLIC WELFARE ASSOCIATION. Survey of the Department of Public
Welfare and Social Service Bureau. (cont'd.)
(315
cont'd.) The very nature of the case work eupervisor's respon¬
sibilities requires that he function in many respects
as assistant to the executive secretary.
(4) District and visitor's geographical areas should he
determined on the basis of maximum case loads and the
boundaries of census tract areas.
WASHINGTON ~f
(316) BUCK, ARTHUR EUGENE. Administrative consolidation plans in operation,
pp. 17-19 in his: Administrative consolidation in State governments.
1930.. 59 pp.
An administrative code was drafted and passed by the legislature
in April, 1921. It provided for 10 departments in the State govern¬
ment. A department of public welfare was not provided for.
/
(317) ECKER-R., L. LASZLO. Financial res-ppiisibility for various welfare
activities - Washington. Table in his: Centripetal Force. 1935. See
No. 30.
(318) GOVERNOR OF WASHINGTON, THE HON. CLARENCE D. MARTIN. Message to the
legislature at the regular session, Jan. 12, 1937.
"No more sacred duty rests upon a state than the care of the inmates
of charitable, mental and reform institutions; and, I am glad to
be able to tell you, that, as the result of building improvements
and other betterments, no state now excels Washington in the humane
care of the mentally deficient, deaf and blind persons delinquent
boys and girls. We now have more than 10,000 such wards, and I assure
you, their mothers, fathers and relatives, that they are being treated
helpfully and sympathetically.
Because of pressing demands and overcrowding at Medical Lake, another
custodial institution should be provided, and it should be located
somewhere in Western Washington. You will find included in the budget
a request for $250,000, which will be necessary for acquiring land and
the erection of primary buildings. I trust that you will authorize
this project, and that you will cooperate in the selection of a suit¬
able site. The site should include sufficient bottom land to permit
development of a well diversified farm and dairy."
—220'
11514
State and Local
Washington, West Virginia
No. 319-322
COMMENT AND OPINION
(319) MILLSPAUGH, ARTHUR C. Characteristics of State organization; Washington,
p. 160 in his Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pp.
In Washington, a Board of Control, established in 1901, was re¬
placed in 1921 "by a single headed Department of Business Control,
which administers the welfare institutions. There are only 5
other predominantly welfare agencies; and none of these are
charged with institutional management.
(320) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare -provisions under the laws of the State
of Washington. Prepared by Robert C. Lowe and Carolyn E. Limbach,
Legal Research Section. November 1, 1936. 2 p.l., p. 4501-4575.
1 organization chart.
Digest of public welfare provisions, p. 4501-4515; digest of admin¬
istrative provisions, p. 4516-4575.
i WEST VIRGINIA j
* s
(321) ECXER—R., L. LASZLO. Financial responsibility for various welfare
activities - West Virginia. Table in his: Centripetal Force.1935. See No»30»-
(322/) MLLLSPAUGK, ARTHUR C. Characteristics of State organization: West
Virginia, pp. 157-158 in his: Public Welfare Organization. Washington,
D. C.: Brookings Institution, 1935. xxv, 700 pp.
In West Virginia functions are exercised by 32 separate agencies,
24 of which are primarily welfare. No less than 22 of the 24
welfare agencies are single-headed; and of these 22 agencies 20
are headed by superintendents of State institutions. Though this
State, like Indiana, is a striking illustration of scattered
single-headed institutional management, West Virginia has two
well defined integrating agencies, viz.: a central control agency,
the Board of Control, and a general service agency, the Director
of Welfare.
-221-
11514 State and Local
West Virginia, Wisconsin
No. 323-326
COMMENT AND OPINION
(323) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of •public welfare provisions under the laws of the State
of West Virginia. Prepared "by Robert C. Lowe. December 1,
1935. 2p.l., p. 4601-4688. 1 organization chart.
This digest, is now in the process of revision.
WISCONSIN
(324) BUCK, ARTHUR EUGENE. Proposed consolidation plans, p. 54-55 in
his: Administrative Consolidation of State Government. 1930. 59 pp.
Senator W. A. Titus introduced a bill in the 1925 legislature
to consolidate certain departments, com .issions and boards of •
the State government into 20 departments. Nearly all the con¬
solidation was to have been made in the financial and agricul¬
tural agencie s.
Several other reorganization proposals were made, and some
changes were brought about by this agitation for consolidation.
The public welfare agencies were not affected.
(325) ECKER-R., L. LASZLO. Financial responsibility for various welfare
activities - Wisconsin. Table in his : Centripetal Force. 1935
See No. 30.
(326) MILLSPAUGH, .ARTHUR C. Characteristics of State organization: Wis¬
consin. p. 175 in his: Public VTelfare Organization. Washington,
D. C.: Brookings Institution, 1935. xxv, 700 pp.
A State Board of Charities and Reform was .organized in 1871.
Wisconsin then had six institutions, each managed by a sep¬
arate board. The institutional boards were abolished in
1881, and their managerial functions were transferred to a
central board which, in 1891, became the State Board of Con¬
trol. This agency now represents a high degree of integra¬
tion of welfare functions; but these are also exercised by
related agencies among which the State University and the
Industrial Commission are notable. Outside of the Board of
Control, however, there are only two predominantly welfare
agencies, the Board of Managers of the Veteran^ Home and
the Soldiers' Rehabilitation Board.
-222-
11514
COMMENT AND OPINION
State and. Local
Wisconsin, Wyoming
No. 327-329
(327) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the State
of Wisconsin. Prepared by Robert C. Lowe and staff, Legal Re¬
search Section. March 15, 1936. 2 p.l., p. 4701-4774. 1 organ¬
ization. chart,
Digest of public welfare provisions, p. 4701-4716; digest of
administrative provisions, p. 4721-4774.
rWyoming!
L 1
' /
(328) ECKER-R., L. LASZL0. Financial responsibility for various welfare
activities - Wyoming. Table in his: Centripetal Force. 1935. See
No. 30.
(329) GOVERNOR OF WYOMING, THE HON. LESLIE A. MILLER. Message to the
legislature in regular session, Jan. 13, 1937.
"Your careful study of the report of the State Department of Wel¬
fare which will be laid upon your desks is invited. The report
being comprehensive, it will not be reviewed here. I do, however,
desire to direct your attention to the fact that in several cate¬
gories the number of people who come within the administration of
the general public welfare laws is much greater than we estimated
two years ago. We thought that perhaps 1,800 people would apply
to us for old age assistance; we are now caring for 2,500.
We thought we might have 75 blind people who would be entitled to
pensions; we are paying out mohey to more than twice that number.
Obviously the program costs more than we estimated in 1935 would
be the case, but by and large wo seem to be meeting the situation
rather adequately. True, wo cannot pay as much as some recipients
would like to have, but a careful investigation is made of each
individual case and an earnest effort put forth to provide the
real necessitities.
Our welfare laws were enacted prior to the passage of the Federal
Social Security Act. Also, we now have the benefit of some months
of experience and we find a necessity for some slight changes in
our statutes. The Director of the State Department of Public Wel¬
fare has prepared some amendments which will be submitted to the
proper committees of your body and your cooperation is respectfully
solicited.
—223—
11514 State and Local
Wyoming
COMMENT■AND OPINION No. 329 cont'd.
GOVERNOR OF WYOMING, THE HON. LESLIE A. MILLER. Message to the legis¬
lature . (cont'd.)
(329
cont'd.) In the general relief situation we have a difficult problem. While
it is true that conditions have materially improved, the financial
position of many people who were able to take care of themselves
before the depression is no better. There is still much unemploy¬
ment, especially for the unskilled.
Moreover, the counties are no better situated to take care of the
increased load of poor and pauper than they were three years ago
because assessed valuations upon which tax levies are based have
increased in only a very small amount. It will be asked, "Why
does this load keep up if financial conditions generally are
better?" Well, let us consider that question briefly.
At the outset of the depression there were many people ordinarily
unemployed who were being taken care of by relatives and friends.
After a while many of these relatives and friends became sorely
beset and were forced to turn such responsibilities over to relief
agencies. When the employables found the going rough, they first
resorted to the use of their savings and investments, but when the
depression drew out to such a, great length of time, these resources
dwindled away and finally many of this class had to move in with
relatives and friends and ultimately turned in large numbers, along
with the unemployables, to the relief rolls.
Now, most of the unemployables who formerly were cared for without
resort to public funds are still on the relief rolls and will be
indefinitely because it will be a long time 'before their former
sources of support will be rehabilitated to the extent they can
be taken back.
Moreover, it has been accepted that, these people properly are pub¬
lic charges and it is doubtful if it will again be regarded as
disgraceful to be carried on public charity as it once was. Then
there is the problem of men being displaced by machinery—we have
examples in Wyoming of road ma elm nery, single units of which will
do the work of dozens of teams and men as roads were built only a
few years ago. This is also p. situation to be dealt with as a
public and not as a private or individual matter.
All of which leads me to say that while in a certain, sense the
emergency has passed, we have witnessed a change in public con¬
sciousness toward men and their problems which makes it necessary
to continue some of the programs we have set up and which we had
hoped would now be out of the picture.
I refer particularly to the direct relief we have been extending
to the unemployables, financed to the extent of $500,000 per year
from receipts from the sales tax. As stated above, the counties
cannot raise sufficient money through taxes on property to ade¬
quately care for these people and they cannot be allowed to go
cold and hungry. We believe this amount must again be paid out
for these purposes over each of the next two years and if you
agree with us, you will give consideration, naturally, to the
source of revenues."
-224-
11514 State and Local
COMMENT AND OPINION Wyoming
No. 330
(330) GRIFFENHAGEN AND ASSOCIATES. Tho organization for nublie welfare,
pp. 61-95 in vol. 2 of thoir Report to the special legislative com¬
mittee on organization and revenue. OhcyonnoS Wyoming Labor Journal,
1933. 2 vols. Statistical and eost tables,
*
The significant facts developed in the study on which this part
of the report is based, and the conclusions arrived at on the
basis of such facts may be summarized as follows*
A. As to Public Welfare:
(1) The Activities of the State in public welfare work are
administered by the State Board of Charities and Reform,
the Commissioner of Labor and Statistics, the State Board
of Pardons, the State Commission on Prison Labor, the
Child Labor Commission, and the judges and reporters of
the district courts who investigate claims and under tho
Workmen's Compensation Law.
(2) The State operates ten institutions and two parks under the
State Board of Charities and Reform.
(3) Several of the institutions and one of the State parks
have little justification for existence as State agencies
on account of their local or specialized nature.
(4) A children's division under the State Board of Charities
and reform is responsible for the care and placement of
children who become wards of the State. A tentative policy
of boarding children in private homes where foster homes
cannot be secured has been adopted, which should be ex¬
tended.
(5) Tho Commissioner of Labor enforces the labor laws with the
exception of those relating to mines. The staff of this
office is too small for economical administration.
(6) The county is the principal unit of local welfare organi-
Za-1 X Oil «
(7) Local public welfare activities include poor relief, medical
care and hospitalization of indigents, the granting of old
ago pensions, the operation of poor farms and jails.
(8) There is a wide variation in the relative number of pensions
granted by tho several counties, and in the degrees of in—
digency required for a pension.
(9) Few counties have adequate urovision for tho investiga¬
tion of cases granted relief, although funds for this
purpose are available.
(10) The cost of relief is increased by its faculty adminis¬
tration and indigency is encouraged thereby, since re¬
habilitation is neglected.
-225-
11514 State and Local
Wyoming
No, 330 cont'd.
COMMENT AND OPINION
GRIFFENHAGEN AND ASSOCIATES. The organt"-aUon for public welfare, (cont'd)
(330
cont'd.) (ll) The Red Cross and the county cooperate in the adminis¬
tration of relief in a few counties under a plan whereby
the Red Cross practically controls the expenditure of
county funds for relief.
(13) The policy of mixing the administration of public and pri¬
vate funds should be discontinued.
(13) Eleven counties operate county poor farms, while other
counties have but recently discontinued such institutions.
(14) The cost of caring for inmates of poor farms is more than
would be the cost of boarding them, and is not so satis¬
factory from the standpoint of society.
(15) Each county provides a physician to care for the
indigent sick.
(16) Five counties operate county hospitals under boards of
trustees appointed by the boards of county commissioners,
and other counties send indigents to private hospitals at
county expense,
(17) County hospitals receive pay patients, but the rates are
too low, and deficits are paid from the proceeds of a
special tax.
(18) The sheriff of each county oeerates a jail.
(19; Sheriffs receive 70^ a d- y for feeding prisoners, which
is too much
(20) Prisoners sentenced for less than one year serve their
sentences in county jails.
(21) Each city or town operates a leckuu.
(22) The duplication of jail facilities is not necessary and
their administration is not such as to promote public wel¬
fare.
(23) No provision is made for special handling of juvenile
offenders by the courts .-...ad no institutions are provided
solely for juveniles. Because of these facts many juvenile
offenders are not brought to trial.
(24) There is inadequate coordination of the welfare work of
local governments.
(25) The parole system is meager and should be extended.
(26) The relief of indigents cannot be regarded solely as a
local function.
Recommendations made in the report are as follows:
(1) That all public health and public welfare agencies of the
State be combined into a Department of Public Welfare.
(2) That the Department assume all the public health activities
carried on by the loCcil governments.
-226.
11514
State and Local
Wyonin g
COMMENT AND OPINION No. .730 cont'd.
GBIFEENHAGEN AND ASSOCIATES. The organization for public welfare, (cont'd.)
(330
cont'd.) (3) That through this Department the State assume the cost of
providing relief for cases without legal settlement in any
county of the State and 50$ of the cost of cases chargeable
to the individual counties, and that the necessary staff for
social service work also "be provided by the State, leaving to
the counties the final approval of county cases for payment
and disbursement of funds subject to reimbursement by the
State for its share. Cases aided by any county of legal
residents of other counties should be charged to the counties
of such residence.
(4) That the department be headed by a commissioner of welfare
appointed by the Governor on nomination of the Board of
Public Welfare.
(5) That the Board of Public Welfare be composed of three
citizens appointed by the Governor for 6 year terms. This
Board should be designated as the Board of Charities and
P.eform until the constitution can be amended, to eliminate
reference to such a broad.
(6) That there be appointed a diroctor of public health and a
director of social service to head the activities in these
two fields.
(7) That the State be divided into six public health districts
staffed by State employees, and that lr.ca.1 employees be dis¬
placed thereby.
(8) That the Department provide a trained ocial worker for each
district and that assistants be provided in districts where
claims for workmen's compensation are numerous.
(9) That the field work of the Department be conducted on the
basis of the districts, but that district lines and assign¬
ments to employees be made flexible to permit efficient
and economical work.
(10) That various existing examining boards be superseded by an
examining officer.
(11) That pensions be granted only in the amount and for the
period required,
(12) That the practices of making donations of public funds to
private organizations and allowing such organizations to
administer these funds be discontinued.
(13) That all county poor farms be closed and their inmates
be cared for outside institutions except those requiring
special attention.
(14) That the State provide facilities for chronic cases re¬
quiring relief and. care in institutions as State charges.
(15) That the boards of trustees of county hospitals be discon¬
tinued and that the hospitals be placed directly under the
control of the county commissioners.
(16) That the State take charge of necessary jails, and eventually
replace them with forms to replace them.
(17) That not more than one jail or lockup be operated in one
municipality.
-227-
11514
II
LEGISLATION
A
Federal Department
of Welfare
11514 State and Local
Wyoming
COMMENT AND OPINION No. 330-332
OR IFFENHAGEN AND ASSOCIATES. The organization for public welfare. (cont'd.)
(330
cont'd.) (18) That the allowance to sheriffs for board of prisoners be
cut in half or that feeding of prisoners be handled on
a cash basis.
(19) That special and less formal court procedures be established
for juvenile offenders.
(20) That modern social service methods be adopted in the conduct
of all public welfare activities.
(21) That legislation for unemployment insurance be passed,
(22) That the parole procedure be altered to allow the Board of
Public Welfare to grant paroles without executive action by
the Governor and that more active parole supervision be de¬
veloped,
(23) That the Soldiers' and Sailors' Home be discontinued.
(24) That the State institutions so far as practicable bo
grouped at some central location.
(25) That children be placed in foster homes and that the
Cnildren's Homo be used as a receiving homo only.
(26) That statutes for dairy regulation be strengthened.
(27) That workmen's compensation laws be enforced by field
onqployoes of the Department.
(331) MILLSPAUGH, ARTHUR C. Characteristics of State organization: Wyoming,
p. 173 in his Public Welfare Organization. Washington, D. C.:
Brookings Institution, 1935. xxv, 700 pp.
Wyoming has a highly centralized organization. The dominant cen¬
tral agency of general jurisdiction - directing, managing, con¬
trolling and supervising - is the State Board of Charities and
Reform, a wholly ex-officio body, which serves also as the State
Board of Pardons, While Wyoming has developed preventive public
welfare functions only in a rudimentary way, its organization
must be classed as a highly integrated one, with integration
qualified, however, by the ex-officio composition of the Board.
(332) WORKS PROGRESS ADMINISTRATION. DIVISION OF SOCIAL RESEARCH.
Digest of public welfare provisions under the laws of the State
of Wyoming. Prepared by Robert C. Lowe and Donna Seare. July 15,
1936. 2 p.l., p. 4801-4-360. 1 organization chart.
Digest of public welfare provisions, p. 4801-4811; digest of admin¬
istrative provisions, p. 4813-4360.
-228-
11514
LEGISLATION
Legislation
No. .333-337
WILSON ADMINISTRATION |
66th Congress
(1919-1921)
(333) S. 4542. Bill to bring about the more effective coordination of
the executive departments, to create a department of pub¬
lic works and department of public welfare.
Introduced Dec. 7, 1920, by Senator McCormick, of 111.
Tabled. 60 Congressional Record, p. 27.
(334) S. 4543. Bill to establish in the Cabinet the Department of Social
Welfare.
Introduced Dec. 7, 1920, by Senator Kenyon of la.
Referred to Senate Education and Labor Committee. Lost.
60 Congressional Record, p. 27.
(335) S. 4863. Bill to establish the Department of Public Welfare and to
determine its functions and for other purposes.
Introduced Jan. 17, 1921, by Senator Dillingham of Vt.
Referred to Senate Committee on the District of Colum¬
bia, Lost. 60 Congressional Record, p. 1491.
j HARDING ADMINISTRATION
67th Congress
(1921-1923)
(336) S. 408. Bill to establish a Department of Social Welfare. Text of
bill, pp. 3-5 in Hearings on bill, see below.
Introduced April 12, 1921, by Senator Kenyon, la. Referred
to Senate Committee on Education and Labor. Lost. 61
Congressional Record, p. 148.
This bill was discussed by Edward T. Devine; see
under "Opinion and Comment#, No. 7.
(337) Hearings on S. 408 were held before the Senate Committee on
Education and labor on April 21, 1921. 22 pp. 1 organization
chart; 1 schedule.
Senator Kenyon, chairman of the Committee, on opening
the hearings said (p. 5): "The President has asked Gen.
Sawyer to appear before this committee and explain the
general plan that Gen. Sawyer has been working on."
Gen. Charles E. Sawyer was the only witness appearing be¬
fore the Committee.
-229'
11514 Legislation
No. 333-342
67th Congress (cont'd.)
(1921-1923)
(338) S. 1607. Bill to establish a Department of Public Welfare and for
other purposes.
Introduced May 5, 1921, by Senator Kenyon, of la.
Referred to Senate Committee on Education and Labor.
Lost. 61 Congressional Record, p. 1058.
S. 1607 and H.R. 5837. Joint hearings before the Committees
on Education on bills to create a Department of Public Welfare
and for other purposes. May 11-13, 18, 20, 1921. 179 pp.
Senator Kenyon, la,, chairman of the Senate Committee on
Education and Labor, presided at these hearings. Among
the Proponents of the bill appearing before the Committee
were Gen, Charles E. Sawyer, U.S.Bureau of Efficiency,
Congress of Mothers and Parent Teachers Association.
Others appearing before the Committee either as active
or provisional opponents of the bill represented the Na¬
tional Education Association, the Citizens Protective Asso¬
ciation, the U. S. Pixblic Health Service, National Vocational
Association, American Federation of Labor, various medical
bodies and the Federated American Engineering Society.
(339) S. 1839. Bill to create the Department of Public Welfare and for
other purposes.
Introduced May 17, 1921, by Senator McCormick of 111.
Referred to Senate Committee 011 Education and Labor.
Lost. 61 Congressional Record, p. 1515.
(340) S. 4278. Bill to establish the Department of Public Welfare and to
determine its functions, and for other purposes.
Introduced Jan. 5, 1923, by Senator Spencer, of Mo.
Referred to Senate Committee on the District of Columbia.
Lost. 64 Congressional Record, p. 1275.
(341) H.R. 5837.Bill to establish a Department of Public Welfare, and for
other purposes.
Introduced May 5, 1921, by Mr. Fess, of Ohio. Referred
to House Committee on Education. Lost. 61 Congressional
Record, p. 1094.
Joint hearings were held on this bill and the
Kenyon bill; see above No. 333,
;_c^lir.ge ad::i'tistration ]
68th Congress
(1923-1925)
(342) S. 2641. Bill to establish the Department of Public Welfare and to
determine its functions and for other purposes.
Introduced Feb. 26, 1924, by Senator Spencer, of Mo.
Referred to Senate Committee on the District of Columbia.
Lost. 65 Congressional Record, p. 3133.
-230-
11514
Legislation
No. 343-346
68th Congress (cont'd.)
(1923-1925)
(343) S» 3445. Bill to provide for the reorganization and more effective
coordination of the executive "branch of the Government, to
create the Department of Education and Relief and for other
purposes.
Presented "by Senator Smoot, of Utah, June 3, 1924, from
the Joint Committee on Reorganization (65 Congressional
Record, pp. 10248-10252). Report of Jt, Com. (S. doc. 128),
ibid, pp. 10252-10271. Debated, largely on parliamentary
technicalities, Jan. 30, 1925. 66 ibid. p. 2707.
The text of.the bill is printed in the Congressional Record,
vol. 65, pp. 10248-10252, and also on pages 289-294 of Odum
and Willard. Systems of public welfare, 1925, where it is
referred to as "the later bill". Reference is also made,
p. 302 of this edition, to a "study of debates" on this bill,
which, if it refers to debates in Congress, is misleading.
There was no congressional debate on this bill.
(344) H.R. 5795. Bill to establish a department of education and welfare.
Introduced Jan. 19, 1924, by Mr. Dallinger, of Mass.
Referred to House Committee on Education. Lost. 65
Congressional Record, p. 1181.
The text of this bill is printed in full on pages 294~>302
of Odum and Willard. Systems of public welfare, 1925.
The reference made on p. 302 of this edition to a "study
of debates" on this bill is misleading if it means debates
in Congress. There was no congressional debate on this.
(345) H.R. 9629. Bill to provide for the reorganization and more effective
coordination of the executive branch of the Government, to
create the Department of Education and Relief and for other
purposes.
Int/'C duced June 3,.1924, by Mr. Mapes, . Mich., from the
Joint Committee on Reorganization, with report from the
Committee (H. rept. 937, 68th Congress.) Referred to
Committee of the whole. 65 Congressional Record,
p. 10329-10330, 10414.
! iJL GSEVji'LT administration
73d Congress
(1933— )
(346) S. 629. Bill to create an executive department of the Government
to be known as the Department of Education and Public Welfare.
-231-
11514
Legislation
No. 346 cont'd.
73d Congress (cont'd.)
(1933- )
(346
cont'd.) Introduced Jan. 11, 1937, "oy Senator Thomas, Utah.
Referred to Senate Committee on Education and Labor.
Creating an Executive Department headed by a Secretary with
a salary of $15,000 a year, and with a term of office the
same as that of ^tho other executive departments.
The duty of the department would be to promote, encourage
and develop the educational and public welfare facilities
of the nation. The bill would be construed as intending to
secure to the several states control of their educational
and public welfare facilities within their respective juris¬
dictions, and to preserve local initiative in the operation
of schools. The President would make an investigation
of all executive agencies of the government dealing with
education and public welfare. Whore he finds that co¬
ordination and consolidation of these agencies Tinder one
department will tend to increase their efficiency he could
by Executive Order so direct.
-232-
11514
II
LEGISLATION
B
Stato Do-nartmonts
of Welfare
11514
LEGISLATION - STATES
Nos.
j ARIZONA*]
Legislation digested. Sec -------49
f CALIFORNIA"!
Legislation digested. See -------60
[""COLORADO '
Legislation digested. See ------- 65
rCONNEOTICITT"
Legislation digested. See ------- 70
j DELAWARE j
Legislation digested. See -------76
FLORIDA J
Legislation digested. Sec ------- 33
["GEORGIA 1
Legislation digested. Sec ------- 39
| indiaiia"]
Legislation digested. Sec - 1Q8
233-
11514 LEGISLATION - STATES
(cont'd.)
Nos.
I0WA~|
Legislation digested. See - ----- - -115
KENTUCKY
Legislation digested. See ------ -127
louisiana
Legislation of 1894 discussed. See - - -130(a)
» « 1904 » Sec » (U)
| maryland]
Legislation of 1935 discussed. See - - -137
Legislation digested. See ------ -139
r minnesota"]
Legislation digested. See ------ -160
1 Mississippi"]
Legislation digested. See ------ -164
[TiissoujT"!
Legislation digested. See ------ -171
Legislation of 1915 discussed. See- - -172
•234-
11514
LEGISLATION - STATES
(cont'd.)
Nos.
Montana]
Legislation digested. See- ------ 177
NEBRASKA
Legislation digested. See ------- 181
| Nevada]
Legislation digested. See- ------ 186
1 new hampshire )
Legislation digested. See- ------ 192
[~new Mexico]
Legislation digested. See- ------ 207
NORTH CAROLINA
Legislation digested. See- ------ 228
Legislation of 1917 discussed. See- - -227
» 11 1919 " " 227
NORTH DAKOTA
Legislation digested. See- ----- -233
-235-
11514
LEGISLATION - STATES
(cont'd.)
Nos.
! oelahomaI
Legislation digested. See ------- 248
OBEGON
Legislation digested. See ------- 256
Legislation of 1923 discussed- ----- 252
ii » 1927 " "
L S_2^TiL CAROLINA ]
Legislation digested. See ------ -275
i _99lT™ DAKOTA i
Legislation digested. See ------ -282
TENNESSEE
Legislation digested. See ------ -286
Legislation of 1923 discussed- - - - - -283
(347) Act to create a State Department of In¬
stitutions and Public Welfare and to prcscirbe
the powers and duties thereof. Oh. 48, Public
Laws 1937. Approved Peb. 9, 1937.
Legal successor to State Department of In¬
stitutions, Tennessee Welfare Commission.
See. 11(b) provides for regional adminis¬
trations comprising one or more counties, but
not to exceed 14, each to be administered by
a regional director appointed by the Commissioner
of Public Welfare, The Act became effective upon
passage.
-236-
11514
LEG-ISIATION - STATES
(cont'd.)
Nos.
texas]
Legislation digested. See ------- 294
|utah]
Legislation digested. See ------- 298
["VERMONT j
Legislation digested. See ------- 305
j~yiRGINIA~|
Legislation digested. See ------- 314
| Washington]
Legislation digested. See ------- 320
TOST VIRGINIA ]
Legislation digested. See ------- 323
[WIS COTS DT"1
Legislation digested. See ------- 327
WYOMING
Legislation digested. See- ------ 332
-237-
11514
III
ORGANIZATION CHARTS AND SCHEDULES
A
Fodoral Dopartmont of Welfare
11514
Organization Charts
No. 348-349
ORGANIZATION CHARTS, SCHEDULES, ETC.,
A
FEDERAL
(348) 1920. Under the McCormick bill, S. 4542, S6th Congress, the Department
of Public Welfare is provided for in Chapter II, sections 1-4 of
this bill. The proposed reorganisation for this Department is
as follows:
sec. 1. Department created. Secretary provided for.
sec. 2. Three assistant secretaries provided,
sec. 3. Appropriation for Department.
sec. 4. Bureau/', offices, etc.., transferred or abolished..
a) From Interior Departrn at
1. Office of Indian Affairs.
2. U. S. Indian Service .
3. Bureau of Pensions.
4. Bureau of Education.
5. St. Elizabeth's Hospital.
S. Howard University.
7- Freedrnen's Hosoital.
3. Board of Indian Commissioners abolished.
b) From Treasury Department
1. Bureau of War Risk Insurance.
2. Public Health Service.
c) From Labor Department
1. Children's Bureau.
7. Women's Bureau.
d) U. 5. Employees' Compensation Commission abolished
and functions transferred to Bureau of Pensions.
e) Federal Board of Vocational Education abolished and
functions transferred to Department of Welfare.
f) Interdepartmental Social Hygiene Board abolished and
functions transferred to Public Health Service.
g) National Home for Disabled Volunteer Soldiers.
h) Columbia Institution for the Deaf.
(349) 1920. Under the Keriyon bill, S. 4543, 6Cth Congress, the set-up of
the proposed Department of Social Welfare was en follows:
Secretary to be Cabinet officer.
Assistant Secretary appointed by the President.
Trarsfers -
a) From Treasury Dep. rtrn^nt
l) Public Health Service. 2) Hygienic Laboratory.
b) From Interior Department
l) Bureau of Education.
c) From Labor Department
l) Children's Bureau. 2) Women's Bureau. 3) Bureau
of Industrial Housing and Transportation. 4) Tj. S.
Employment Service. 5) U. S. Employees' Compensation
Commission.
d) From Department of Agriculture
l) Office of Home Economics.
-238-
Organization Charts
11514 No. 350-351
QRCANIZATION CHARTS,
A
FEDERAL (cont'd)
(350) 1921. Organization chart of a tentative plan for a Department of
Public (sic) Welfare; followed "by s schedule of the plan,
pp. 21-22 in Hearings on the Kenyon bill, S. 408, 66th
Congress.
sec. 1. Secretary to be Cabinet officer,
sec. 2. Assistant Secretary
sec. 3. Duties of Department
sec. 4. Transfers
a) From Treasury Department
1) Public Health Service. 2) Hygienic Laboratory
b) From Interior Department
l) Bureau of Education.
c) From Labor Department
l) Children's Bureau. 2) Bureau of Industrial
Housing and Transportation. 3) U. S. Employment
Service.
d) U. S. Employees' Compensation Commission.
e) From Department of Agriculture
l) Bureau of Home Economics.
(35l) 1923. Department of Education and Welfare, p. 4 in Reorganization of
the Executive Departments. Letter from the President of the
United States to Walter F. Brown, chairman of the Joint Com¬
mittee on Reorganization of Government Departments. 1923.
5 pp. 1 fold, chart. (Senate Document 302, 67th Congress.)
Four major divisions are provided viz. Education, Health,
Social Service and Vetere.ns' Relief.
Existing bureaus to be transferred to the new Department
are these;
a) From the Interior Department
l) Bureau of Education. 2) Indian Schools.
3) Howard University. 4) St. Elizabeth's
Hospital. 5) Freedmen's Hospital. 6) Bureau
of Pensions.
b) From the Labor Department
1) '."omen's Bureau (part). 2) Children's Bureau
(part)
c) From the Treasury Department
l) Public Health Service.
d) Prom the War Department
l) Soldiers' Home.
e) From Department of Justice
l) Office of Superintendent of Prisons.
f) Independent Establishments
1) Smithsonian Institution (provisionally).
2) Federal Board for Vocational Education.
-239-
1X514 Organization Charts
No. 351-353
ORGANIZATION CHARTS,
A
FEDERAL (cont'd)
(351
cont'd.) 3) National Home for Disabled Volunteer
Soldiers. 4) Columbia Institution for the
Deaf. 5) Veterans' Bureau.
(352) 1923. Department of Education and Welfare. Organization. Item 10 on
the folding chart accompanying Senate Document 302, 67th Congress.
Secretary of Education and W Ifare.
Assistant Secretary for Education.
General Education
Bureau of Education (Interior)
Indian schools (Interior)
Howard University (Interior)
Columbia Institution for the Deaf (Independent)
Smithsonian Institution (Independent)
National Museum
National Gallery of Art
International Exchange Service
Bureau of American Ethnology
Astrophysical observatory
National Zoological Park
International Catalogue of Scientific Literature
Physical Education (new)
Vocational Education, Federal 3oard
Assistant Secretary for Public Health
Public Health Service (Treasury)
Quarantine and Sanitation
Hospitalization jendent)
National Home for Disabled Volunteer Soldiers Incler-
Soldiers' Heme (War)
St. Elizabeth's Hospital (interior)
Freedmen's Hospital (interior)
Research.
Assistant Secretary for Social Service
Women's Bureau (Labor - part)
Children's Bureau (Labor - part)
Superintendent of Prisms (Justice)
Assistant Secretary for Veteran Relief
Veterans' Bureau (Independent)
Bureau of Pensions (interior)
Solicitor
(353) 1924. Department of Education and Relief, pp. 28-29 in Reorganization
of the Executive Department. Report of the Joint Committee. To
accompany H. R. 9629. June 3, 1924. 31 (l) pp. (House Report
937, 68th Congress.)
11514
Organization Charts
No. 353-355
ORGANIZATION CHARTS,
A
FEDERAL, (cont'd)
(353
cont'd.) Secretary of Education and Relief
Three assistant Secretaries
Transfers and abolitions:
a) From Interior Department
l) Bureau of Pensions. 2) Bureau of Education. ,
3) St. Elizabeth's Hospital. 4) Howard Univer- v
sity. 5) Freedmen's Hospital.
b) From Treasury Department
l) Public Health Service
c) Feder-1 Board for Vocational Education (Independent)
d) Commissioner of Education abolished.
e) National Home for Disabled Volunteer Soldiers
f) Columbia Institution for the Deaf
g) U. S. Veterans' Bureau
(354) 1924. Department of Education and Relief, as set up under the Sinoot
bill S. 3445, 68th Congress.
This set-up is identical with that proposed in the Mapes
bill K. R." 9629, 1924, 68th Congress.
(355) 1924. Schedule of reorganization plan recommended by President
Harding and presented by Senator Smoot, Utah. 65 Congres¬
sional Record, pp. 10262-10271.
Department of Education and Welfare.
A new department to have four major subdivisions, each
to be in charge of an assistant secretary, viz. Educa¬
tion, Health, Social Service, Veterans' Relief.
Existing bureaus which were to be transferred to the
Department of Education and Welfare were the following:
a) From Interior Department, l) Bureau of Educa¬
tion. 2) Indian Schools. 3) Howard University.
4) St. Elizabeth's Hospital. 5) Freedmen's
Hospital. 6) Bureau of Pensions.
b) From Labor Department, l) Women's Bureau (part).
2) Children's Bureau (part).
c) From Treasury Department, l) Public Health
Service.
d) From War Department, l) Soldiers' Home.
e) From Justice Department, l) Office of Superin¬
tendent of Prisons.
f) Independent Establishments, l) Smithsonian
Institution (provisional). 2) Federal Board
for Vocational Education. 3) National Home for
Disabled Volunteer Soldiers. 4) Columbia Insti¬
tution for the Deaf. 5) Veterans' Bureau.
-241-
Ill
ORGANIZATION CHARTS AND SCHEDULES
B
Stato Departments
of Welfare
11514 Organization Charts
Alabama
No. 356-358
ORGANIZATION CHARTS AND SCHEDULES,
B
STATES
(356) 1936. State and local public welfare organization, based on
recommendations of the American Public Welfare Association,
p. 9 in Mangold and Rockwood. Organization for Public Welfare.
1936. 32 pp.
(357) 1937. An example of an organization chart of a state department
of public welfare, p. 12 in White, R. Clyde. Public welfare
manuals. Chicago: American Public Welfare Association, 1937.
22 pp.
! ALABAMA, j
(358) 1932. Schedule of present and proposed organization. In: Brookings
Institution for Government Research. Report on a survey of the
organization and administration of State and county government
of Alabama. 1932. 5 vols.
- Present organization -
Child Welfare Department
Child Welfare Commission
Director
Division of County Organi¬
zation
Division of Child Care
Division of Institutions
Division of Child Labor
State Hospital System
Board of Trustees for State
Hospitals
Superintendent of State Hos¬
pitals under these - state
hospital for the insane and
mentally deficient.
State Prison System
Board of Administration
Director
Under these - prisons
and convict camps
State Prison Inspector
State Pardon Board
Boys Industrial School
State Training School for
Girls
Reform School for
Juvenile Law Breakers
Home for Confederate
Veterans
■243-
11514 Organization Charts
Ala., Ariz., Ark.
ORGANIZATION CHARTS,
B
STAT3S (cont'd.)
No. 358-363
- Proposed organization -
(358
cont'd.)
(359) 1936.
(360) 1936.
(361) 1936.
Department of Public Welfare
State Board of Public Welfare
Commissioner of Public Welfare
Bureau of Social Service
Division of County Organization
Division of Child Care
Division of Mental Hygiene
Division of Institutional
Supervision
Division of Child Labor
Division of Institutional
Administration
(Supervises hospitals
for insane prisons and
training and vocational
schools.)
Home for Confederate
Veterans
Alabama Department of Public Welfare, p. 18 in W.P.A. Division
of Social Research. Organization and procedure of the Alabama
Department of Public Welfare. 1936. 70 pp.
Alabama public welfare agencies, Dec. 30, 1936, folding
chart in: Works Progress Administration. Division of
Social Research. Digest of public welfare provisions
under the laws of Alabama.
Organization chart for special child welfare services in Alabama,
p. 45 in same Monograph as preceding title.
ARIZONA
(362) 1935. Arizona public welfare agencies. Oct. 1935. lOi? x 8 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Arizona. 1935.
ARKANSAS
(363) 1936. Arkansas public welfare agencies. Aug. 15, 1936. 10§ x 14§- in.
In. W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Arkansas. 1936,
•243-
11514 Organization Charts
Calif., Colo.,
Conn., Del.
No. 364-367
ORGANIZATION CHARTS,
B
STATES (cont'd.)
| CALIFORNIA |
(364) 1936. California public welfare agencies. April 15, 1936.
10-|- x 15 in.
In: W.P.A. Division of Social Research. Digest of public
welfare provisions under the laws of California, 1936,
COLORADO
(365) 1935, Colorado public welfare agencies. Aug. 1, 1935. 10^- x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Colorado. 1935,
I CONNECTICUT
(366) 1936. Connecticut public welfare agencies. Sept. 1, 1936. lO^ x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Connecticut. 1936.
DELAWARE
(36?) 1936. Delaware public welfare agencies. April 15, 1936. 10^ x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Delaware. 1936.
244-
11514
Organization Charts
Fla,, (3a,, Ida.,
111., Ind.
No. 368-372
ORGANIZATION CHARTS,
B
STATES, (cont'd.)
FLORIDA
(368) 1936. Florida public welfare agencies. March 30, 1936. 10-|- x 15 in.
In? W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Florida. 19360
GEORGIA
(369) 1935. Georgia public welfare agencies. November, 1935. lOf- x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Georgia. 1935.
IDAHO
(370) 1936. Idaho public welfare agencies. Jul,7 15, 1936. 10-| x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws, of Idaho. 1936.
ILLINOIS |
(371) 1925, Organization of State administration under the Civil Administrative
Code of 1917, as amended in 1919 ana. 1925. p. 9 in Buck. Adminis¬
trative consolidation in State governments. 1930 . 6§- x 10 in.
INDIANA
(372) 1935. Proposed Indiana Department of Public Welfare, in: Indiana.
State Committee on Governmental Economy. Report, 1935.
743 pp. Chart No. 8
J
-245-
11514 Organization Charts
Ind., la., Ky., Me.
ORGANIZATION CHARTS, No. 373-376
B
STATES (cont'd)
I INDIANA
(373) 1936. Indiana public welfare agencies. June 30, 1936. lOg- x 15 in.
In; W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Indiana. 1936.
IOWA I
(374) 1936. Iowa public welfare agencies. November 15, 1936. lOi, x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Icwa. 1936.
! KENTUCKY
(375) 1936. Kentucky public welfare agencies. January 1, 1936.
10b x 15 in.
In: W.P.A. Division of Social Research. Digest of
public welfare provisions under the laws of Kentucky.
1936.
j MAINE
(376) 1930. Distribution of functions of existing governmental agencies ac¬
cording to the proposed plan of administrative reorganization for
Maine, pp. 10-14 in National Institute for Public Administration.
Report on a survey of the State government conducted by Gov.
Gardiner. 1930. 214 pp.
-246-
11514 Organisation Charts
Md., Mich.
ORGANIZATION CHARTS, No. 377-383
B
STATES (cont'd)
! ■MARYLAND I
(377) 1936. Organization chart of the department of social work, i.e.
Board of State Aid and Charities, p. 7 in W.P.A. Division
of Social Research. Organization and procedures of the Mary¬
land Board of State Aid and Charities. 1936. 44 pp.
(378) 1936. Maryland public welfare agencies. July 15, 1936. IO55 x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Maryland. 1936.
MICHIGAN
(379) 1936. Local public welfare services and administrative authorities
in Michigan. (1936)
In: Michigan. Welfare and relief study commission. Report.
1936. p. 32.
(380) 1936. Present organization of Michigan welfare agencies.
In: Michigan. Welfare and relief study commission. Report.
1936. p. 20.
(381) 1936. Proposed local public welfare organization.
In: Michigan. Welfare and relief study commission. Report.
1936. p. 33.
(382) 1936. Proposed reorganization of state public welfare agencies.
In: Michigan. Welfare and relief study commission. Report.
1936. p. 21.
(383) 1936. Michigan public welfare agencies. July 1, 1936. 10/.- x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Michigan. 1936.
-247-
1151Organization Charts
Minn., Miss.,
Mo., Mont.
ORGANIZATION CHARTS, No. 384-389
B
STATES (cont'd)
MINNESOTA j
(384) 1936. Minnesota public welfare agencies. March 1, 1936. 10| x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Minnesota. 1936.
1 MISSISSIPPI j
(385) 1936. Mississippi public welfare agencies. January 1, 1936. 10^ x 15 "r
in.
In: W.P.A. Division of Social Research. Digest of public welfare
provisions under the laws of Mississippi. ln36.
MISSOURI
(386) 1936. Missouri Public welfare agencies. Oct. 15, 1936. 10^ x 15 in.
(387) 1936.
(388) 1936.
In: W.P.ii.. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Missouri.
Present set-up of official welfare services, p. 33 in Missouri
Association for Social Velfare. Official welfare services in
Missouri, n.d. 36 pp.
Suggested administration of official welfare services, pp. 34-
36 in same as preceding. Organization charts II - IV. Chart
II includes all the services; Chart III omits the correctional
institutions and the merit system; Chart IV meets the minimum
requirements of the Social Security Act.
j" MONTANA 1
(389) 1936. Montana public welfare agencies as of Dec. 30, 1936. Folding
chart in Digest of public welfare provisions under the Laws
of the State of Montana. W.P.A. Division of Social Research.
1936. pp. 2401-2418.
-248-
-Q5-J.4 Organization Charts
Neb., Nev., N.H.,
N.J., N.M.
No. 390-396
ORGANIZATION CHARTS,
B
STaTES (cont'd..)
1 NEBRASKA, j
(390) 1936. Nebraska public welfare agencies. Dec. 15, 1936, 10}r x 15 in.
In: W.P.A. Division of Social Research. Digest of legal provi¬
sions under the laws of Nebraska. 1936.
i NEVADA
(391) 1936. Nevada public welfare agencies. July 15, 1936. 10|- x 8 in.
In: W.P.A. Division of Social. Research. Digest of Public wel¬
fare provisions under the laws of Nevada. 1936.
NEW "HAMPSHIRE"I
(392) 1936. New Hampshire public welfare agencies. Dec. 15, 1936.
10| x 15 in.
In: W.P.A. Division of Social Research. Digest of public
welfare provisions under the laws of New Hampshire. 1936.
j NEW JEPSeYI
(393) 1930. Distribution of functions of existing governmental agencies
according to the proposed plan of administrative reorganiza¬
tion for the State of New Jersey, in Institute of Public
Administration, N. Y. Report on a survey of the organiza¬
tion, etc. of N. J. 1930. 381 pp.
(394) 1934. Organization chart. Pacing p. 5 in N. J. Department of
Institutions and Agencies. Summary report. 1934. 129 pp.
(395) 1934. Department of Institutions and Agencies, as of May, 1934,
folding chart facing p. 54 in Stafford, Paul T. State wel¬
fare administration in New Jersey, 1934. 136 pp.
I new Mexico!
(396) 1936. New Mexico public welfare agencies. Nov. 15, 1936. 10| x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of New Mexico. 1936.
-249-
11514 Organization Charts
New York State
ORGANIZATION CHARTS, No. 397-399
B
STATES (cont'd)
' new york~sttt"e1
(397) 1915. New York State. State Department of Efficiency and Economy and
N. Y. B\ireau of Municipal Research. Government of the State of
New York. 1915. 758 pp.
Among the large number of organization charts included in
this volume are the following:
(1) The State board of public charities, fiscal
supervisor of state charities and the insti¬
tutions reporting to him; also related boards
and commissions. Preceding p. 407.
(2) Rome state custodial asylum. Preceding p. 457,
(3) Now York Soldiers' and Sailors' Home. Preceding
p. 497.
(4) Prison Department. Preceding p. 511.
(5) Sing Sing Prison and Dannenora State Hospital
for Insane Convicts. Preceding p. 521.
(6) Probation Commission and Commission to Investigate
Provision for the Mentally Deficient. Preceding
p. 551,
(7) State Hospital Commission. Preceding p. 553.
(8) Utica State Hospital. Preceding p. 561.
(9) Psychiatric Institute, p. 645.
(10) State institutions for delinquents and defectives
and departments, boards and commissions charged
with their control. Preceding p. 647.
(11) Reformatory at Elmira. Preceding p. 421.
(3980 1927. Organization of the State Administration under the reorganiza¬
tion, effective January 1, 1927. p. 38 in Buck. Administra¬
tive Consolidation in State Governments. 1930. 59 pp. 6-^ x
10 in.
(399) 1936. Proposed organization of State Department of State Welfare.
p. 67 in Now York State. Governor's Commission on Unemploy¬
ment Relief, 1936. 97 pp.
-250-
11514 Organization Charts
N.C., N.D., Ohio, Okla,
ORGANIZATION CHARTS, No. 400-405
3
STATES (cont'd)
I NORTH CAROLINAJ
(4-00) 1925. The North Carolina plan of public welfare.
In: Odum and Willard. Systems of public welfare.
1925. 302 pp.
(401) 1936, North Carolina public welfare agencies. April 15, 1936. 10-g x
15 in.
In: W.P.A. Division of Social Research. Digest of public welfare
provisions under the laws of North Carolina. 1936.
! NORTH DAKOTA !
(402) 1936. North Dakota public welfare agencies. Jan. 1, 1935. 10g x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of North Dakota. 1936.
OHIO •
(403) 1935. Present and recommended organization of the State Department
of Welfare. 2 charts, pp. 147-146 in Sherrill, Col. C.O.,
director Ohio Government Survey. Report, 1935. 302 pp.
(404) 1936. Sherrill, Col. C.O. Ohio Government Survey, Summary of findings
and recommendations on public welfare, pp. 31-57. See No. 241.
Chart II facing page 32. Recommended reorganization of the
State Department of Welfare
i OKLAHOMA I
(405) 1936. Oklahoma public welfare agencies. May 1, 1936. 10§ x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Oklahoma. 1936.
-251-
11514
organization charts,
b
STATES (cont'd)
Organization Charts,
Ore., Pa., S.C.
No. 406-410
[""oregon
(406) 1936. Oregon public welfare agencies. June 1, 1936. lC-g x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Oregon. 1936.
i pennsylvania i
(407) 1925. Organization chart of the Pennsylvania department of welfare.
(1925?)
In: Odum and Willard. Systems of public welfare. Chapel
Hill, 1925.
(408) 1936. Pennsylvania. State Department of Welfare, p. 43 in A
Modern Public Assistance Program for Pennsylvania. Penn¬
sylvania. Committee on Public Assistance and Relief.
1936. 115 pp.
(409) 1936. Proposed functions of Department of Assistance, p. 44 in
same as preceding.
i south carolina"]
(410) 1936. South Carolina public welfare agencies. March 1, 1936. 10-^ x
15 in.
In: W.P.A. Division of Social Research. Digest of public welfare
provisions under the provisions of the laws of South Carolina.
1936.
-252-
11514 Organization Charts
S.D., Tenn., Tex.
ORGANIZATION CHARTS, No. 411-415
*B
STATES (cont'd)
! SOUTH DAKOTA I
(411) 1922. Distribution of functions of existing administrative agencies
according to the proposed plan of reorganization without con¬
stitutional change.
In: Bureau of Municipal Research, N. Y. City. Report on the
administration and organization of the government of South
Da.kota. 1922. 74 pp.
(412) 1936. South Dakota public welfare agencies. January 1, 1936. 10| x
15 in,
In: W.P.A. Division of Social Research. Digest of public welfare
provisions under the laws of South Dakota, 1936.
! TENNESSEE
(413) 1923. Organization of State government under the Reorganization
Act of 1923. p. 28 in Buck. Administrative consolidation
in State governments. 1930. 59 pp. 6-ir x 10 in.
(414) 1936. Tennessee public welfare agencies. April 1, 1936. 10§ x 15 in.
In: W.P.A. division of Social Research. Digest of public wel¬
fare provisions under the laws of Tennessee. 1936.
TEXAS 1
(415) 1936. Texas public welfare agencies. May 1, 1936. 10-g- x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Texas. 1936.
-253-
11514 Orgm Ization Charts
Utah, Vt., Va. -
Richmond.
No. 416-421
organization charts
B
STATES (cont'd.)
UTAH
(416) 1936. Utah public welfare agencies. May 1, 1936. 10-g- x 15 in.
In! W.P.A. Division of Social Research. Digest of public wel¬
fare provisions of Utah. 1936.
Vermont]
(417) 1936. Vermont public welfare agencies. January, 1936. 10-|- x 15 in.
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Vermont. 1936.
VIRGINIA j
(418) 1936. Virginia public welfare agencies. February 1, 1936, 10| x 15 in,
In: W.P.A. Division of Social Research. Digest of public wel¬
fare provisions under the laws of Virginia.
(Richmond)
(419) 1936. Recommended organization of the Social Service Bureau.
8-§ x 10jy in. Following p. 26 in American Public Welfare
Association. Survey of ... Richmond, 1936. 44 pp.
(420) 1936. Present organization of the Social Service Bureau,
Richmond. 8-g- x 10 in. Following p. 12 in report as
above.
(421) 1936, Present organization of the Department of Public Welfare,
Richmond, 8^ x 10 in. Following p. 9 in report as above.
—254—
11514
NOTES ON COMMENTATORS
ADIE, DAVID C., Comr. of Social Welfare of N.Y. State since Oct. 1, 1932.
BAGLEY, WILLIAM C., toachor, writer; b. Detroit, 1874. ph.D. Cornell, 1900.
Author of boohs in field, of education and American history.
BANE, IBANK, b. Va., 1893. A.B. Randolph-Macon, 1914; author of books in
field of public welfare. Sec. Va. Bd. Charities and Corrections,
1920-23; dir. public viclfaro Knorville, 1923-26} assoc. prof,
sociology U. Va., 1926-23; comr. pub. welfare Va., 1926-32} mem.
President's Emcrg. Employment Com, 1930-31; dir. Amer. Welfare
Assoc.,1932-36; now exec, dir. Social Security Board.
BATES, SANFORD, Penologist; comr. Dir. U.S.Bureau of Prisons, 1930-36; mem,
exec. com. Nat'l. Conf. on Social Work (Vice chmn. com. on de¬
linquency); mem. bd. dirs. Assn. Pub. Welf. Officials; pres. Wash.
Council of Social Agencies, 1934-35; exec. dir. Boys Club of Amor.,
Inc. since Feb. 1937.
BLACKLY, FREDERICK F., b. Ohio, 1880. Ph.D. Columbia, 1916. Prof. Govt. U.
Okla., 1916-25; on staff of Inst. Govt. Research, Brookings Inst.,
1925 to date.
BOOKMAN, CHARLES M., social worker; b. Ohio, 1883. L.H.D. U. Cincinnati,
1929; assoc. dir. Council Soc. Agencies 1914-16; exec. dir.
Cincinnati Com. Chest since 1917; pres. Assoc. Com. Chests, 1927—.
28; pres. Natl. Conf. Social Work, 1931-32.
BRECKENRIDGE, SOPHONISBA P., social worker, educator, author; b. Ky., Ph.D.
Univ. Chic., 1901; J.D., 1904; LLD.Oberlin, 1919; U. Ky, 1925; mem.
faculty U. Chic, since 1902; pres. Amer.Schools Soc.Work, 1934-35.
BUCK, ARTHUR E., b. Tenn., 1888; M.A. Columbia, 1916; on staff N.Y.Bur0
Municip. Research since 1917; with Inst. Pub. Admin, since 1921;
advisor to various State govts, in matters of administration and
finance, to U.S. Bur. of Budget, 1934-35; author of books on
govt, budgeting; contrib. journals.
BUTLER, AliOS W«, b. Indiana, 1860; LLD. Ind. U. 1922; LED. Hanover Coll.,
1915; sec. Ind.3d. Charities, 1897-1923; senior sociologist U.S.
Bur. Efficiency, 1928-29; sec. Ind. Com. on Observance and En¬
forcement of Law, 1929-31.
COLBY, MARY RUTH, Asst. dir., Children's Bur., State Bd. of Control, St.
Paul, 1921-29; assoc. econ. analyst, U.S.Children's Bur. since 1931.
CONANT, RICHARD K,, Commissioner c " publ'c welfare in Mass.,1920-35.
CORNICK, PHILIP H., Staff member, Institute of Public Adm.,1927 to date.
CEEEL, GEORGE, author; b. Missouri, 1876; editor and writer; chmn. Com. on
Pub. Information, by apptmt. of Pros. Wilson, 1917-19; chmn. San
Francisco Regional Labor Bd., 1933, chmn. Nat. Advisory Bd., WPA
1935.
CUNLIFF, NELSON, Formerly Dir.Dept. of Public Welf., St. Louis, Mo.
-255-
11514
EDWARD T., b. Ia., 1867. Ph.D. U'. of Pa., 1893; gen. sec. Charity
Organization Soc., N.Y.C., 1896-1912; prof. soc. econ. Columbia,
1905-19; dir. N.Y.School of Philanthropy, 1904-7, 1912-17; assoc.
editor Survey 1912-21; dean Grad. Sch. Amer. U., Wash., D.C. 1926-
28; dir. Emergency work Nassau County, 1931-35; author of hooks in
field of social welfare.
JAMES A., b. N.C., 1892. Ph.D. Cornell, 1931; prof, rural economics
and sociology, U. of Ark.,1924-31; sr. economist Fedl. varm Ed.,
1931-32; with U.S.Dept. Agriculture since 1932.
ARTHUR, Dir. spl. studies, Fam.Welf. Assn. of Amer.,1931; secy. Child
and Fan. Welf. .Div.Public Char. Assn. Phila., 1925-35; faculty. Inst,
of Health and Social Sciences, U. of Mich, since 1935.
DUNN, ARTHUR WALLACE, Diet? 1926. Newspaper editor and author.
ELLIS, WILLIAM J., b. Muncy, Pa., 1892; Ph.D. Rutgers, 1928; commr. of Dept.,
Instns. and Agencies, N.J. since 1926; sec. N.J.Social Security Comn.
and N.J. Crime Cornn. ; mem. President's White House Conf. (chmn. com.
on physically handicapped), 1928-29; mem. Wickersham Com. on Law
Enforcement and Observance; mem. advisory council N.J. State Emerg.
Relief Admin. Author of articles and reports on crime.
FOREES, RUSSELL, governmental researcher, educator; b. Pa., 1896; Ph.D. Colum¬
bia, 1929; prof, and dir. Div. Research in Pub. Admin. N.Y.U.(on leave
since 1933); consultant on government purchasing to Nat. Assn. Pur¬
chasing Agts. since 1930; commr. of purchase, N.Y.C., 1933-., National
Municipal League (hon. v.p., 1933-). Author of books and articles.
FOWLER, CEDRIC, writer. Staff of New Outlook magazine; Labor relations
section, U.S.Resettlement Adm., 1935-36; Fedl. writers' project,
WPA since May 1936.
GIDDINGS, F'.H., b. 1355, d. 1931; prof, of sociology and history of civiliza¬
tion 1906-1931, Colvunbia U.
GRIEFENHAGEN AND ASSOCIATES, Consultants in public administration and finance.
Head office: 221 N. LaSalle St., Chicago, 111.
HOEiiLER, FF.ED K., Exec. dir. Amer. Public Welf. Assn. since Dec. 1935.
HUNT, CLEMENT W., deputy commissioner of Public Welfare in Pennsylvania.
ISSEKS, MORRIS S., Member of research staff, Interim Comn. on Gov. and Adminis¬
trative Reorganization of Oregon State Legislature, appointed 1935.
JACOBS, J.L., was director of the survey of the "Advisory Committee on Fiscal
Relations Study, United States and District of Columbia, 1937".
JAMES, ARTHUR W., commissioner of the Richmond Dept of Welfare.
JOHNSON, MRS. KATE EURR, social worker; b. N.C., 1881; dir. Bur. Child Welfare
of N.C.State 3d. Charities and Pub. Welfare, 1919-21; comr. pub.
welfare, B.C., 1921-30; chmn. com. on state and local orgns. for
handicapped, White House Conf. on Child Health and Protection.
DEVINE,
DICKEY,
DUNHAM,
-256-
11514
KEHRLI, HERMAN, director, State aidod welfare institutions in Oregon.
KELSO, ROBERT W., social service; b. 111., 1880; A.B. Harvard, 1904, LL.B., 1907;
sec. Mass. State Bd. Charity, and commr. pub. welfare, 1910-20; exec,
sec. Boston Council Social Agencies, 1921-29; dir. St. Louis Community
Fund and Council, 1929-32; field representative of FERA, 1932-35. Author
of books and articles regarding social service.
KENNEDY, WILL P., political writer; b. Minn., 1877; Litt.D., Holy Cross Coll.,
1925; now political writer on Wash. Star, etc.
KUHLMAN, A.F., asst. prof, of Soc. U. of Mo.; compiled "Guide to Material on Crime
and Criminal Justice".
LA DUE, BLANCHE L., lawyer, public welfare administrator; b. Minn.; LL.B., U. of
Minn., 1905; mem. of State Bd. of Control since 1921; Pres. Am. Prison
Assn., 1935-36; pres. Minn. State Conf. of Social Work, 1930-31; pres.
Amer. Public Welfare Association, 1935-36.
LUNDBERG, EMMA 0., D?r of research and statistics, N.Y.T.E.R.A., 1931-35; asst.
dir. Child welfare Div,, U.S. Children's Bureau since Oct. 1935.
MC CORD, ELIZABETH, Asst. instr. in Case work, Dept. of social econ., Bryn Mawr
coll., 1929-3C: chief of social work, Institute of mental hygiene of Pa.
Hospital, 1930-31; Case consult. Com. Council of Phila., 1931-33,
Faculty Penna. School of Social Work; Div. of Social Res. WPA Sept. 1935-
Mar. 1936; with U. S. Social Security Board since March 1936.
MC KINLEY, CHARLES, Prof, polit. sci., Reed College, Portland, Oregon.
MANGOLD, EDITH P., V-P. Cal. League of Women Voters.
MARTIN, NORMAN R., superintendent, Los Angeles County Dept. of Charities.
MARTIN, ROSCOE C., Prof. gov. , U. of Texas and dir. Texas Bur. of Municipal Research.
MAURER, JAMES H., labor official; b. Reading, Pa., 1864; mem. Pa, Ho. of Rep. 3
terms, 1910, 14, 16, introducing Workmen's Compensation Act, etc.; pres.
Federation of Labor since 1912; Chmn. Old Age Assistance Co imr. of Pa.
since 1917. Author of books in labor field.
OATMAN, MIRIAM E. (Mrs. F.F. Blachly) collaborator with husband on books on
government.
ODUM, HOWARD WASHINGTON, b. Ga., 1884; Ph.D., Clark U., 1909; Ph.D., Columbia U.
1910; Litt.D., Coll. of the Ozarks, 1935; dir. Inst, for Research in
Social Science, U. of N.C., since 1924; also dean Sch. Pub. Admin., U.
of N.C., since 1935; mem. and asst. dir. President's Research Com. on
Social Trends, 1929-33; author of numerous books and articles.
OGDEN, GLADYS, Committee on public admin., Soc. Science Research Council.
-257-
11514
PARSONS, HERBERT, b. N.Y.C., 1869; member of the Board of Aldermen, N.Y.C.,
1900-04; elected to Congress, 1905-11; delegate to Republican Natl,
Convention, 1908, 12, 16, 20. Died, 1925.
POST, 10UIS P., former assistant Secretary of Labor.
POTTER, ELLEN C., 1923-27, Secy, of welfare in Pa.; dir. medicine, N.J. State
Dept. of Institutions and Agencies since 1927.
RANKIN, REBECCA B., librarian, Municipal Reference Library, N.Y.C.
R0CKW00D, EDITH, Natl, staff of Natl. League of Women Voters, 1930-36; assoc.
in Child Welfare, U. S. Children's Bureau since March 1936.
SPRINGER, GERTRUDE, Assoc. ed., "Survey Graphic" and "Survey Midmonthlv"
magazines.
STAFFORD, PAUL T., Asst. prof. Dept of Politics, Princeton University.
STEWART, FRANK MANN, Prof. Polit. Sci. at U. of Cal. at Los Angeles.
TIMMONS, BENJAMIN FINLEY, Asst. prof, of sociology, U. of 111.
VAN KLEECK, MARY,,b. Glenham, N.Y., 1883; A.B. Smith Coll., 1904; dir. in¬
dustrial stulies, Russell Sage Foundation, 1909-18, and since August
1919; dir. Woman in Industry Service, U. S. Teot. Labor, 1918-19;
pres. 2d Internat. Conf. of Social Work, Frankfurt-am-Main, 1932; mem.
ba. airs. Ency. of Social Sciences. Author of books and articles of
women in industry.
VILLARD, HENRY (1835-1900) Amer. journalist and financier.
■WALLACE, RICHARD W., supt. of Inspection, State Bd. of Charities, Albany, N.Y.
WILLARD, DUDLEY WILSON (1892-1934) Formerly Prof. soc., Geo. Washington U.
WISNER, ELIZABETH, Dir. and prof. Public welf. admin., School of Social Work,
Tulane U.
-258-
11514
INDEX
ITos.
Adams, Donna S,, joint author. See Lowe, Robert C.
Adie, David C.
Organization of a national welfare program .... 2
A state handles its public welfare problems .... 208
Adult Education 2(b)
Alabama
Comment and Opinion 37-45
Organization charts . 358-361
American Medical Association
Public welfare department ... 7(f)
Kentucky emergency relief administration ..... 121
Survey of the Department of Public Welfare, Richmond,
Virginia ....... 315
Arizona
Comment and Opinion ............ 46-49
Legislation 49
Organization chart 362
Arkansas
Comment and Opinion 50-55
Organization chart ..... 363
Bagley, William C.
Education and pxiblic welfare department ..... 7 (e)
Bane, Frank
Establishment of State welfare department. .... 23
Federal public welfare department ....... 20 (a)
His brother's keeper 24-25
Public Welfare in 1934 2a
Bates, Sanford
Federal Department opposed 17 (d)
Bennett, ,L. T., Jr., joint author. See Lowe, Robert C.
Blachly, Frederick F. and Oatman, Miriam E.
Government of Oklahoma ..... 243
Bookman, C. M.
The F.E.R.A 3
Looking ahead at relief 4
Breckenridge, S. P.
Public welfare administration 5
Summary of present State Systems 27
Brookings Institution
Report on a survey of administration in Iowa . . . 109
Survey of organization of State and county governments
of Alabama 38
-259-
11514
Brookings Institution (Continued)
Report of p. survey of organisation and administration
in Mississippi
Report on a survey of the organisation and administration
of New Hampshire
Report on a survey of the organization am1 administra¬
tion of North Carolina,
Brookings Institution. Institute for Government Research.
Report on a survey of the organization and administra¬
tion of Oklahoma 244
Buck, Arthur E.
Administrative consolidation in State governments . . 26
Buck, Arthur E. and Cornick, Philip H.
Survey of the State government of Arkansas .... 53
Bureau of Municipal Research, New York City
Constitution and government of the State of New York . 210
Organization, etc., of the State of Virginia . . . 307
Report on administration of South Dakota 277
Butler, Amos W.
Indiana plan of supervision 102
Cabinet Office. See Federal Department of Public Welfare
California
Comment and Opinion 56-60
Legislation 60
Organization chart 364
Carnegie Institution of Washington
Economic Material in the Documents of the States of
California, Delaware, Illinois, Kentucky, Maine, Mas¬
sachusetts, Few Hampshire, New York State, New Jersey.
Ohio, Pennsylvania, Rhode Island and Vermont. A. R.
Hasse, compiler. See Hasse, A. R.
City Departments of Public Welfare. See Municipal Departments
Colby, Mary R.
County as an administrative unit for social work . . 28
Colorado
Comment and Opinion 62-65
Legislation 65
Organization chart 365
Conant, Richard X.
Federal public welfare department 17 (b)
Massachusetts Department of Public Welfare .... 142
Connecticut
Comment and Opinion 66-70
Legislation . 70
-260-
Nos.
161
187
221
11514
Nos.
Connecticut (Continued)
Organization chart • ^66
Constitutional Public Welfare Provisions
Georgia
Iowa .....••••••
Indiana 107
Kansas 120
Massachusetts 1^8
Missouri
New Jersey 203
North Dakota 232
South Dakota 281
Cornick, Philip H., joint author. See Buck, Arthur E.
County Administration of Public Welfare
Bookman on. 3 (a)
Colby, Mary R. on 28
Illinois plan 100
Indiana, plan 105 (a), (b)
Iowa plan (Brookings report) ......... 109 (a)
Los Angeles County. California, plan 61
Mangold, and Rockwood on 33 (a)
Michigan olan ............ b . 151 (3),152(g)
Minnesota plan ............. 159 (a)
Missouri plan 172
New Hampshire plan ............ 187 (a)
North Carolina plan 224A,227B,C
Odum, Howard W. on 34 (a),(b)
Oregon plan 253
Pennsylvania plan
Dunham on ..... 258
Goodrich Committee report .... 267 (a)
Hunt on 262 (a)
Odum and Willard on 264 (a)
South Carolina plan 274
Creel, George
Unscrambling government 6
Cunliff, Nelson
Department of public welfare, St. Louis 173
Delaware
Comment and Opinion 71-76
Legislation 76
Organization chart 367
Delinquency
Public welfare department and ........ 7 (h)
Devine, Edward T.
The Department of Public Welfare 7
Dickey, James A.
Department of public welfare in representative cities 29
District of Columbia
Comment and Opinion 77
-261-
11514
Dunham, Art hur s•
County welfare plan for Pennsylvania 258
Dunn, Arthur W.
Gen. Sawyer explains the Department of Public Welfare 8
Ecker-R., L. Laszlo.
Centripetal force ...... 30
Ellis, William J.
Hew-steps in coordinating public and private local and
soate social welfare efforts 125
Employment Service
Federal-state, Adie on 2 (a)
Federal Aid
Stales (Bookman) ........ 3(b)
States (Breckenridge) ..... 5 (a)
Federal Department of Pxxblic Welfare - Opponents
1921. Bagley, William C.; objections to proposed scope 7 (e)
Bates 17 (d)
Moure r, James H. 7(b)
Post, Louis F 7 (b)
Van Klceck, Mary; objection to proposed scope . . 7 (d)
1925. Parsons, H. K 17 (e)
Federal Department of Public Welfare - Proponents
1901. National Conference of Charities 5 (b)
1920. Xenyon, U. S. Senator (Iowa) 334
McCorrnick, U. S. Senator (Illinois) 333
1921. Anonymous article in Tne Playground .... 22
Croel, George 6
Do vine, Edward T 7 (a)
Dillingham, U.S. Senator (Vermont) 335
Fess, U.S. Representative (Ohio) 341
Giddings, Franklin H 12
Xenyon, U.S. Senator ... 336,338
League of Women Voters 7(c)
McCorrnick, U.S. Senator (Illinois) ...... 339
President Harding 8,9,10,12,17(c)
Sawyer, Gen. Charles E 8, 337, 338
U.S. Senate debate 21
1923. Spencer, U.S. Senator (Missouri) ..... 340
1924. Dallinger, U.S. Representative (Massachusetts). 344
Forbes, Russell 10
Mapes, U.S. Representative (Michigan) 345
Odum, H.W 16
Smoot, U.S. Senator (Utah) 343
Spencer, U.S. Senator (Missouri) 342
1925. Conant, Richard K. . 17
Kelso, Robert W 1?
1927. Breckenridge, S.P 5
1933. Great Lakes Institute 13
1934. Adie, David C 2(c)
American Public Welfare Association ..... 20 (a)
Bane, Frank 20 (a)
-262-
11514
Nos.
Federal Department of Public Welfare -Proponents (Continued)
1934. Adie, David C. (Continued)
Bookman, C. M 3,4 (a)
Great Lakes Institute ..... 14
1935. Fowler, Cedric H
Great Lakes Institute 11
193S. Commonwealth Review; editorial 1
Today 15
1937. President's Committee on Administrative Management 19
Thomas, U.S. Senator (Utah) 346
Federal Welfare Agencies Number of 35 (a)
Florida
Comment and Opinion 76-83
Legislation 83
Organization chart 368
Flug, Mary, joint author. See Lowe, Robert C.
Forbes, Russell
Proposed reorganization of the Federal government . . 10
Fowler, Cedric
In search of a plan 11
Georgia
Comment and Opinion 84-89
Constitutional provisions 88
Legislation 89
Organization chart 369
Giddings, F. H.
Welfare by Law 12
Goodrich Committee. See Pennsylvania Committee on Public As¬
sistance and Relief
Governors' Messages on Public Welfare Organization
1921. Missouri 165
1923. Vermont 299
1937. Massachusetts 144
Michigan 151
Minnesota 157
Missouri 167
Montana 175
Nevada 184
New Hampshire 189
New Jersey 190
New Mexico 205
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Governors* Messages on Public Welfare Organization (Continued)
1937. Massachusetts (Continued)
New York State 212
North Dakota , . . . . ^30
Pennsylvania
South Dakota ^79
Utah
Vermont
Washington 318
Wyoming ^29
Great Lakes Institute
Proceedings 1933
1934 11,14
Griffenhagen and Associates
Government of the State of Texas; report 293
Report to Wyoming Special legislative committee. . . 330
Hanley, John A., joint author. See Lowe, Robert C.
Harding Plan 8,9,10,
12,17 (c)
Hasse, A. R.
Economic material in documents of the States
California 58
Delaware 73
Illinois 97
Kentucky 124
Maine 132
Massachusetts 145
New Hampshire 190
New Jersey ..... 197
New York State 213
Ohio 237
Pennsylvania 261
Rhode Island 270
Vermont 302
Hunt, Clement W.
Department of Public Welfare in Pennsylvania . . . 262
Hoehler, Fred K.
Effect of social security program 31
Holcombe, John L., joint author. See Lowe, Robert C.
Idaho
Comment and Opinion 90-93
Organization chart ... 370
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IT o s.
Illinois
Comment and Opinion
Organisation chart 371
Indiana
Comment and Opinion 101-108
Constitutional provisions 107
Legislation 108
Organization chart 372-375
State committee on governmental economy; report . . 105
Institute of Public Administration, New York City-
Survey of the organization and administration of the
State government of New Jersey 108
Survey of the State government of Arkansas .... 53
Iowa
Comment and Opinion 109-115
Legislation 115
Organization chart 374
Isseks, Morris S., joint author. See Kehrii, Herman.
Jacobs, J. L. Report on fiscal relations U.S. a.nd District
of Columbia 77
J ame s, Art hur W.
Problems in public welfare administration .... 310
Public welfare as a function of government in Virginia 309
Public welfare orientation in Virginia 310 (a)
Johnson, Mrs. Kate Burr
The North Carolina plan of public welfare 224
Kansas
Comment and Opinion 116-120
Constitutional previsions 120
Kehrii, Herman
Trend of population and expenditures of welfare insti¬
tutions in Oregon 251
Kehrii, Herman and Isseks, Morris S.
History of State administrative reorganization in
Oregon 252
Kelso, Robert W.
Federal public welfare department 17 (a)
Science of public welfare 32
Kennedy, Hill P '9
Kentucky
Comment and Opinion 121-127
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Nos.
Kentucl<y (Continued)
Efficiency Commission, renorts .... 125
Legislation ^27
Organ izo.t ion chart 375
Kuhlman, A. F.
Development of county public welfare in Missouri . . . 172
La Du, Blanche L.
Coordination of State and local units for welfare adminis¬
tration 158
Lander, David S., joint author. See Lowe, Robert C.
League of Women Voters
Public Welfare Department, endorsed by 7 (c)
Los Angeles County, California
Comment and Opinion 61
Louisiana
Comment and Opinion 128-130
Lowe, Robert C.
Digest of public welfare provisions under the laws of
California 60
Delaware 76
Florida 83
South Carolina 275
West Virginia 323
Wisconsin 327
Lowe, Robert C. and Adams, Donna S.
Digest of public welfare provisions under the laws of
Missouri 171
New Mexico 207
Lowe, Robert C. and Bennett, L. T., Jr.
Digest of public welfare provisions under the laws of
Michigan 154
Nebraska 181
Oregon 256
Lowe, Robert C. and Flug, Mary
Digest of public welfare provisions under the laws of
Iowa 115
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Nos.
Lowe, Robert G. And Hanloy, John.A.. ....
Digest of public welfare provisions.under,laws of State of
Colorado 65
Indiana 108
Texas 094
Lowe, Robert C. and Holcombe, John. L.
Legislative trends in public relief 36
Lowe, Robert C. and Lander, David S.
Analysis of constitutional provisions affecting public
welfare in Indiana ............ 107
Kansas .............. 120
Massachusetts 148
Missouri ............. 170
North Dakota 232
South Dakota 281
Lowe, Robert G. and Limbach, Carolyn S.
Digest of public welfare provisions under the laws of the
State of Washington 320
Lowe, Robert C. and Queen, James S.
Digest of public welfare provisions.under laws of Arizona 49
Connecticut 70
Georgia 89
Maryland 139
Lowe, Robert C. and Seare, Donna.
Digest of public welfare provisions under the laws of the
State of Nevada ............ 186
Utah 298
Wyoming 332
Lowe, Robert C. and Sherfey , Helen R.
Analysis of constitutional provisions affecting public
welfare in State of Georgia ......... 88
Iowa 114
New Jersey ........ 203
Digest of public welfare provisions under the laws of
the State of Iowa H5
Lowe, Robert C. and Staff
Digest of public welfare provisions .under.the laws of
the State of Kentucky .......... 137
Minnesota ............. 150
Mississippi ....... 164
Montana ......... 177
New Hampshire 192
North Carolina ........... 228
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0
Nos.
Lowe, Robert Gf and Staff (Continued)
Digest of public welfare provisions under the laws of
the State of Kentucky (Continued)
North Dakota 233
Oklahoma 348
South Dakota 282
Tennessee ..... 286
Vermont • 305
Virginia 314
Lundberg, Emma 0.
Social welfare in Florida 80
A State plans social welfare reconstruction 81
McCord, Elizabeth
Organization and procedures of the Maryland Board of
State Aid and Charities 140
McKinley, Chtorles
To consolidate welfare activities in Oregon 253
Maine
Comment and Opinion 131-134
Organization chart 376
Mangold, Edith P. and Rockwood, Edith.
Organization for public welfare ... 33
Martin, Norman R.
Los Angeles County Department of Charities 61
Martin, Roscoe C.
Urban local government in Texas 289
Maryland
Comment and Opinion ,. 135-140
Legislation 139
Organization chart 377-378
Massachusetts
Comment and Opinion 141-148
Constitutional provisions . . 148
Governor's message, January 7, 1937 144.
Maurer, James H.
Public welfare bills 7 ("b)
Mechanization
Labor surplus and . 2(a)
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Nos.
Michigan
Comment and Opinion . . 149-154
Governor's message, January 7, 1937 ....... 151
Organization chart 379-383
Welfare and Study Commission; report 1936 152
Minnesota
Comment and Opinion 155-160
Legislation 150
Governor's message, 1937 ' 157
Interim Committee on Social Legislation and Relief; re¬
port, 1937 159
Organization chart 384
Mississippi
Comment and Opinion 161-164
Legislation 164
Organization charts 385
Missouri
Comment and Opinion 165-173
Constitutional provisions 170
Governor's message, January 11, 1937 167
Legislation 171
Organization charts 386-388
Missouri Association for Social Welfare.
Official welfare services in Missouri ....... 169
Montana
Comment and Opinion 174-176
Governor's message, 1937 174
Legislation 177
Organization charts 389
Municipal Departments of Public Welfare
Dallas, Texas 289
Dickey, James A. on 29
Fort Worth, Texas 289
Houston, Texas 289
New York City (Rankin) 220
Odum, Howard W., on 16 (a),
35 (a)
Richmond, Virginia 315
St. Louis, Missouri 173
National Conference of Social Work
Origin 5 Ob)
Proceedings, 1933 158
National Institute for Public Administration
Report on survey of State government of Maine .... 134
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Nos.
Nebraska
Comment and Opinion ......•••«••• 17-180
Legislation
Organization charts 390
Nevada
Comment and Opinion . • . • • . . 182-186
Governor's message, 1937 .••••*..•.. 184
Legislation * 186
Organization chart .... 391
New Hampshire
Comment and Opinion 187-192
Governor's message, 1937 189
Legislation 192
Organization chart . • . • 392
New Jersey-
Comment and Opinion ... ..... 193-203
Constitutional provisions ..... 203
Department of Institutions and Agencies; summary report,
1923-1933 ..... 200
Governor's message, 1937 ........... 196
Organization charts .... 393-395
New Mexico
Comment and Opinion ........ 204—207
Governor's message, 1937 ........... 205
Legislation 207
Organization charts .. ...... 396
New York City
Comment and Opinion ........ 220
New York State
Comment and Opinion ............. 208-220
Governor's Commission on Unemployment Relief; Summary
report 216
Governor's message, 1937 212
Labor Department; removals from ......... 7 (g)
Organization charts ... 397-399
State Department of efficiency and Economy Government
of the State of New York 217
North Carolina
Comment and Opinion 221-228
Legislation ............... 228
Organization charts ... 400-401
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11514
Nob.
North Dakota
Comment and Opinion ......
1 *70
Constitutional,provisions • ••••••:?? -1-
Governor's message, 1937 ..........
Legislation 233
Organization charts . ^2
Oatman, Miriam E., joint author. See Placthly, Frederick F.
Odum, Howard W.
Federal public welfare ........... 16
Public welfare activities .......... 35
Public welfare in the XJ.. S.. 34
Odum, Howard W. and Willard, D. W.
Systems of public welfare 17
Ogden, Gladys.
Municipalties and the Federal works program .... 312
Ohio
Comment and Opinion ..... . 234—242
Governor's message, 1937 • 236
Joint Legislative Committee on Economy in the Public
Service; report 239
Organization charts 402-403
Oklahoma
Comment and Opinion . 243-248
Legislation 248
Organization-qharts 405
Oregon
Comment and Opinion ........... . 249-256
Governor's Interim Commission on.Public Health and Wel¬
fare; report 1934. ........... 255
Legislation 256
Organization charts 406
Osborne Association, Inc.
Report of a survey on correctional institutions . * 240
Pennsylvania
Comment and Opinion 257-268
Governor's message, January 5, 1937. , 260
Committee on Public Assistance and Relief ("Goodrich
Committee"). A message ......... 265
Questions and answers ........... 266
Modern public assistance program 267
Organization charts ..... 407-409
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Nos.
Post, Louis F,
Kenyon Bill objectives 7 (t>)
Potter, Ellen C.
Coordination of State and local units for welfare . . , 201
President Harding
Message, 1221; extracts and references to 8,9,10,12,
17 (c)
President Roosevelt
Message January 12, 1937, transmitting report of Committee
on Administrative Management 18
President's Committee on Administrative Management, 1937.
Report 19
Public Welfare Departments
County. See County Administration of Public Welfare
Delinquency and 7 (h)
Federal. See Federal Department of Public Welfare
Municipal. See Municipal Departments of Public Welfare
Queen, James S., joint author. See Lowe, Robert C.
Rankin, Rebecca B.
Department of public welfare in the City of New York . . 220
Rhode Island
Comment and Opinion 269-271
Richmond, Virginia
Comment and Opinion 315
Organization charts 419-421
Rockwood, Edith, joint author. See Mangold, Edith P.
St. Louis, Missouri
Comment and Opinion ..... 173
Department of public welfare (Cunliff) 173
Sawyer Plan 7 (a)
8
Seare, Donna, joint author. See Lowe, Robert C.
Sherfey, Helen R., joint author. See Lowe, Robert C.
Sherrill, Col. C.O.
Ohio government survey, 1935 241
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Nos.
Smoot - Reavis Commission .... 7 (f)
South Carolina
Comment and Opinion 272—275
Legislation 275
Organization charts . 411
South Dakota
Comment and Opinion ............. 276—282
Constit\itional provisions 281
Governor's message, January 5, 1937. ....... 279
Legislation 282
Organization charts 411-412
Springer, Gerturde
Social relief in the years ahead. 20
Stafford, Paul T.
Pennsylvania system of public welfare 268
State welfare administration in New Jersey 202
Stewart, Prank M.
Reorganization of State administration in Texas. ... 292
Taxpayers' League of Delaware
Public welfare administration in Delaware 75
Tennessee
Comment and Opinion 283-286
Legislation ...... 286—347
Organization charts . . 41^-414
Texas
Comment and Opinion 287-294
Legislation 294
Organization charts .... 415
Timmons, B. P.
Experience in county public welfare organization in
Illinois 100
Utah
Comment and Opinion ............. 295—298
Governor's mess,age, 1937 ........... 296
Legislation 298
Organization charts ... 416
Van Kleeck, Mary
Public welfare Department, reservations as to ... . 7 (d)
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Nos.
Vermont'
Comment and Opinion 299—305
Gove rno r's me s sage s
1923 (Proctor), 299
1937 (Aiken) 301
Legislation 305
Organization charts ....... 417
Villard, Henry-
Historical sketch of social science. . 5 (h)
Virginia
Comment and Opinion ............. 306-314
Legislation 314
Organization charts 418
Wallace, Richard W.
The New York State system and its problem of reorganiza¬
tion 219
Washington, D. C. See District of Columbia
Washington, State
Comment and Opinion ............. 311-320
Governor's message, 1937 318
Legislation 320
West Virginia
Comment and Opinion ............. 321—323
Legislation 323
Willard, D. W., joint author. See Odum, Howard W.
Wi sconsin
Comment and Opinion •••.. 324—327
Legislation 327
Wisner, Elizabeth
Public welfare administration in Louisiana ..... 130
Works Progress Administration, Division of Social Research
Analysis of constitutional provisions affecting public
welfare in the State of Georgia ........ 88
Indiana ............... 107
Iowa ................ 114
Kansas ............... 120
New Jersey 203
North Dakota 232
South Dakota 281
Digest of public welfare provisions under the laws of
the State of California 60
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Nos .
Works Progress Administration, Division of Social Research
(Continued)
Digest of public welfare provisions under the laws of
the State of California
(Continued)
Colorado 65
Connecticut 70
Delaware 76
Florida 83
Georgia 89
Idaho 93
Indiana 108
Iowa 113
Kentucky . 127
New Mexico 207
North Carolina 228
North Dakota 233
Oklahoma « 248
Oregon • 256
South Carolina. 275
South Dakota 282
Tennessee 286
Texas 289
Utah 298
Ye rmont 305
Virginia 314
Washington 320
West Virginia ............. 323
Wisconsin * 327
Wyoming 332
Legislative trends in public relief and assistance . . 36
Public welfare provisions under the laws of the State
of Arizona 49
Wyoming
Comment and Opinion 328-332
Governor's message, 1937 329
Legislation 332
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