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REPORT ON THE
AN UNSKILLED
IN NEW


COST OF LIVING FOR
LABORER'S FAMILY
YORK CITY


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4
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SUBMITTED BY THE
BUREAU OF STANDARDS
TO THE
Committee on Salaries and Grades of the Board of Estimate and
Apportionment, supporting the salary recommendations for positions
in the lowest grades of the Street Cleaning specifications and for
other positions as unskilled laborers throughout the city service.




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REPORT ON THE
AN UNSKILLED
IN NEW


COST OF LIVING FOR
LABORER'S FAMILY
YORK CITY


SUBMITTED BY THE
BUREAU OF STANDARDS
TO THE
Committee on Salaries and Grades of the Board of Estimate and
Apportionment, supporting the salary recommendations for positions
in the lowest grades of the Street Cleaning specifications and for
other positions as unskilled laborers throughout the city service.




I 
A
I   
j       *




n       ~TABLE OF CONTENTS
PAGE
INTRODUCTION...................................................    5
REPORT..............................................               9
CLASSIFICATION OF OBJECTS OF EXPENDITURE....................  11
HOUSING..............................................         11
CARFARE..............................................   12
FOOD.................................................... 12
CLOTHIN G......................................................  13
FUEL  AND  LIGHT................................................  14
HEALTH..................................................      15
INSURANCE.....................................................  15
SUNDRIES...................................................  16
APPENDICES........................................................  17
A. BIBLIOGRAPHY AND DIGEST OF MORE IMPORTANT LITERATURE.... 19
B. LIST OF PERSONS INTERVIEWED................................ 31
C. FIELD REPORTS-SUPPORTING DATA ON FOOD, CLOTHING, RENT,
AND  FUEL  AND  LIGHT................................  32
D. SELECTED FAMILY BUDGETS SUBMITTED BY PUBLIC AND PRIVATE
ORGANIZATIONS  OR   COMMISSIONS  AND   BY  INDIVIDUAL
AUTHORITIES.........................................  37
E. SUMMARY OF FAMILY BUDGETS SUBMITTED BY MEMBERS OF THE
UNIFORMED FORCE OF THE DEPARTMENT OF STREET CLEANING. 50
F. EXCERPTS FROM A TRANSLATION OF AN OFFICIAL REPORT ON THE
SALARIES OF MUNICIPAL OFFICIALS IN THE CITY OF FRANKFORT ON THE MAIN, GERMANY...........................  52
G. LETTERS AND BUDGET FORMS USED IN OBTAINING SUPPORTING
D ATA.................................................  55
30 7 487








5


INTRODUCTION
In connection with the recommendation of a proper wage for unskilled
laborers, the Bureau of Standards, in conjunction with the Bureau of Municipal
Research, has made a study of the rates prevailing in this and other cities and in
private employment. The almost uniform rate of $2.50 a day which has been
paid by the City of New York to its unskilled laborers for some years was
never based upon the rate prevailing in private employment in and in the neighborhood of the City. On the other hand, the prevailing rate in private employment has been invariably determined by market conditions, that is, by the lowest
rate for which satisfactory labor service can be purchased at any one time. This
rate has not been based in any way upon minimum wage principles or upon studies
of the cost of living, although these elements have entered indirectly into the
willingness of the laborer to accept the prevailing rate. Upon the theory that the
City of New York wishes to pay its employes salaries or wages which bear- a
proper relation to the salaries or wages prevailing among representative private
employers, and at the same time wishes itself to be a model employer, the
Bureau of Standards decided that it wqc essential to make some study of the
cost of living for unskilled laborers in the City of New York. The tentative
specifications for the Street Cleaning Service were ready for formal submission
to the Board of Estimate and Apportionment and the question had arisen as to
the proper salaries to be paid the rank and file of this department. It was therefore decided to submit in connection with the tentative specifications for the
Street Cleaning' Service the study of the minimum cost of maintaining a decent
standard of living for an unskilled laborer's family.
A general study of the cost of living, which would take into consideration
all the variations in the size, age, nationality, etc., of families, would have presented a problem which the Bureau of Standards could not possibly undertake
and which at best could only have led to the publication of a long statistical
report without specific conclusions. After careful consideration of the average
size of families, among laborers in general, in the United States, in the City of
New York, and among the rank and file of the Department of Street Cleaning in
particular, it was decided to select for purposes of study a family consisting of
five members, a wage earner, his wife, and three children of school age, who
could not be expected to contribute anything to the family support. It was decided to fix the sex and ages of the children as follows:
Boy.........................    13 years
Girl...........................  10  years
Boy...........................  6  years
This decision was based largely upon the desirability of selecting for illustra-'
tive purposes a family of five with average food, clothing and other requirements.
Three children below five years of age would of course require less. Three
children over ten years of age would require slightly more. It need hardly be
stated that there are a very large number of laborers' families in the Street Cleaning and other City departments which consist of four or more children below




6


fourteen years of age. It was not, however, the purpose of the Bureau of Standards to select for experiment the budget of a large family at the time the demands on the wage earner were greatest.
The conclusion to be drawn from the report which follows is that below
$840 a year an unskilled laborer's family of five cannot maintain a standard of
living consistent with American ideas. As a practical application of this conclusion, the Bureau of Standards has recommended no maximum rate for the rank
and file in the Street Cleaning Department and in the Bureaus of Street Cleaning,
Queens and Richmond, below $840. The salary range proposed for sweepers
will serve as an example.
The flat rate paid to sweepers in the Department of Street Cleaning up to
January 1, 1915, was $780. In September, 1914, a range of salary of from
$720 to $816 was recommended tentatively by the Bureau of Standards. Increases to the rate of $792 were actually incorporated in the annual tax budget
for 1915. As a result of the minimum wage study, the range of salary finally
recommended for sweepers is from $720 to $840 with increases of $24 after not
less than one year of service. This salary range is based upon the theory that a
sweeper enters the department with little or no family responsibility and at a
slightly lower salary than the average pay for similar labor in private employment. Thereafter his salary is increased after each year or two years of satisfactory service up to the point at which his family obligations are greatest.
At this point his salary rate should approximate the minimum cost of decent living. In order to apply this range of salary successfully from the point of view
of the family obligations of the laborer and the pension obligations of the city, it
will be necessary to limit further the age at which recruits may enter the Street
Cleaning Department,
Provided that the Board of Estimate agrees to the principle above outlined
as a factor in fixing salaries, the same principle will be applied to other laborers
performing unskilled or slightly skilled work.
The data in the following report has been drawn from the following sources:
1. Literature prepared by authorities on the standard of living, especially
books and reports dealing with conditions in New York City.
(For bibliography and digest of the more important literature,
see Appendix A.)
2. References, suggestions, criticisms and other assistance obtained personally and by correspondence from individual authorities and
from public and private organizations and commissions. (For
list of persons, commissions and organizations assisting directly
or indirectly, see Appendix B. For selected budgets and authoritative comments, see Appendix D.)
3. Interviews and informal conferences with members of the uniformed
force of the Department of Street Cleaning regarding their conditions and standards of living. (For selected budgets submitted
by them, see Appendix E.)




7


4. Field studies to obtain prevailing prices of food, clothing and other
commodities. (For data obtained in this way, see Appendix C.)
5. Salary schedules in German cities. (As an illustration, see translation from official report on salaries of municipal officials in
Frankfort on the Main. Appendix F.)
The Director of the Bureau of Standards wishes to acknowledge the most
valuable co-operation and assistance rendered by the Bureau of Municipal Research in the preparation of this report.




I
I




REPORT




I    A i




11


CLASSIFICATION OF OBJECTS OF EXPENDITURE
Objects of expenditure have been classified in eight standard groups
among which the total has been apportioned as follows:
Per Year.
I.-H ousing........................................  $168.00
II.- Carfare..........................................   30.30
III.-Food.............................................   380.00
IV.- Clothing..........................................  104.00
V.-Fuel and  Light....................................    42.00
VI.-Health.............................       20.00
V II.-Insurance.........................................   22.88
VIII.- Sundries.........................................   73.00
Total...........................................  $840.18
Sundries ClassifiedPapers and other reading matter....................  $5.00
Recreation.................................       40.00
Furniture, utensils, fixtures, moving expenses, etc.....  18.00
Church  dues.....................................    5.00
Incidentals-soap, washing material, stamps, etc......  5.00
Total.......................................   $73.00
I-Housing
A family consisting of five people needs at least four rooms to meet the
demands of decency. Three rooms for more than four persons causes overcrowding. Four rooms, on the other hand, for five persons is slightly above the
accepted standard of "one and one-half persons to a room."
Rent in tenement districts at the present time, according to the statement
of reliable real estate men, averages $4.00 per room per month. This statement
is verified by the family budgets exhibited in Appendices D and E and by the
data on present rentals in Appendix C. Amounts allowed by the leading authorities as a minimum expenditure for housing are:
Per Year.
Robert  Coit  Chapin...................................  $168.00
Louise  Bolard  More..................................   168.00
Martha Bensley Bruere..............................    144.00
(This amount is low because in her allowance of
$150.00 for fuel, light, service and repairs, an unusually
high figure, Mrs. Bruere has included items which, in our
classification, would be included in the housing expenditure.)
Frank Hatch Streightoff.............................   200.00
(This takes into consideration the fact that model
tenement house owners, providing heat, cannot realize on
their investments under a rental return of less than $200.)




12


The housing minimum arrived at in our standard classification represents
therefore the rent expenditure necessary for an average of 3I/2 rooms at the $4.00
monthly rate, or for four rooms at a $3.50 monthly rate. The resulting annual
expenditure for housing, $168, is 20co of the total expenditure, which is generally considered a proper ratio of housing to total income.
II-Carfare
In fixing the minimum estimate for carfare at $30.30, it is sufficient to note
that this represents only lOc. per day for 303 working days.
III-Food
In arriving at a proper minimum for food expenditure, a number of factors
must be taken into consideration. A laborer, in order to perform efficient work,
requires nourishing and wholesome food in considerable quantities. The age
of children is an all important factor in determining their food consumption. The
prices of foodstuffs are constantly changing.
The schedule adopted by the United States Department of Agriculture
(Farmers' Bulletin No. 142) apportions the food requirements of women and
of children of various ages on the basis of fractions of the integer required tc
support a mature working man. This schedule is as follows:
M an............................................  1.
Woman...........................................8
Boy-  16  years.....................................9
Boy-12 to 16 years................................8
10  to  12 years................................6
Girl-15 to 16 years................................8
14 to  15 years................................7
10  to  14 years................................6
Child-6 to 9 years.................................5
2  to  5  years................................4
U nder  2  years...............................3
According to the above table the family which we have assumed, consisting
of a man, wife, a boy of 13 years, a girl of 10 years and a boy of 6 years, would
consume a quantity of food sufficient for 3.7 men.
In 1907, Federal government dietitians agreed that families spending at the
rate of 22c. per man per day were not receiving food enough to maintain physical
efficiency.* Moreover, this minimum was predicated upon extraordinary intelligence, in that it assumed that the mother possessed a scientific knowledge of
household economy, food values and market conditions. The food prices in
1913, as compared with 1907, have risen 16%, according to a report of the United
States Department of Labor. (Retail Prices and Cost of Living Series 8.)t
Taking the 22c. per man per day minimum established in 1907 and allowing a
16% increase, 25'2c. would be the minimum measured by 1913 standards. Adding to this a 1l2c. marginal limit, to provide for discrepancies and for an increase
in price in 1914, 27c. per man per day is a fair minimum. This is also the present
minimum established by the Association for Improving the Condition of the Poor
* Report on Nutrition Investigation. Special Committee on Standards of Living.
t The 1914 report is not available.




13


as the basis of their relief work, and by the State Factory Investigating Commission in their recent study. Upon this basis the cost of food per day for our
family in New York City would be:
Per Day.
Husband..............  $.27
W ife..................216
Boy, 13 years............216
Girl, 10 years..........162
Child, 6 years..........135
Total............. $. 999 per day or approximately $7.00 per week.
This conclusion is based upon scientific facts regarding the number of calories
of heat and grams of protein necessary for the human body. It is only one of
several logical means of reaching a minimum estimate.
Another method of approach to such a conclusion is to price a list of foodstuffs necessary for an American family of five. An itemized food budget was
taken from Dr. Chapin's book on " Standard of Living in New York City " and
was submitted for criticism to dietitians and social service workers at the Association for Improving the Condition of the Poor, the Labor Temple, and Bellevue
Hospital Social Service Bureau, with the result that the list was slightly modified.
Other lists might be prepared for families of other nationalities. In order to
find the prevailing cost in New York City, foodstuffs were priced in the places
where unskilled laborers would naturally buy, that is, municipal markets, pushcarts, co-operative stores and regular neighborhood grocery and butcher establishments. (For this food budget used in field work, with current prices, see Appendix C.) This method of approach led to the conclusion that $7.374 per week
or $382.758 per year would be the minimum requirement. This estimate is
$0.374 per week or $19.458 per year higher than the foregoing conclusion, based
on the estimates of government dietitians.
Other estimates for the minimum cost of food are:
Robert Coit Chapin (1907), 27c. per man per day, $364 per year
Louise Bolard More (1907), $364 per year
Martha Bensley Bruere (1911), $447 per year
Frank Hatch Streightoff (1915), 27c. per man per day, $364 per year
A. I. C. P. (1915), 27c. per man per day, $364 per year
Our conclusion, based upon the above studies and investigations, is that $380
per year ($7.304 per week) is the proper minimum allowance for food.
IV-Clothing
The clothing estimate was arrived at in the same way as that for food. A
list of the clothing needed by a family of five was taken from Dr. Chapin's report
and considerably modified. The prices of the various articles in this clothing
budget were obtained from the type of stores at which workingmen would
naturally buy. (For copy of this list of clothing, with current prices, see Appendix C.)




14


Amounts allowed by others as a minimum expenditure for clothing are:
Per Year.
Robert Coit Chapin  (1907).......................  $103.
Louise Bolard More (1907).......................   100.
Frank Hatch Streightoff (1915)..................  140.
A.  I.  C.  P.  (1915)..............................  117.
It is difficult to make exact statements about the expenditure for such an
item as clothing in which there are so many personal and peculiar considerations.
Basing our estimate, however, upon average common sense requirements and
upon prices prevailing in 1915 for these requirements, we conclude that an
amount below $104 for our assumed family of five is insufficient.
V-Fuel and Light
The fuel and light estimate of $42 is based on facts submitted by the Consolidated Gas Company and by public and private relief organizations, and on
past studies, taking into consideration, however, the prevailing prices of coal,
wood and gas. (For supplementary data see Appendix C.) All of the estimates submitted have been in the neighborhood of $40 to $45.
The allowances by leading authorities as a minimum expenditure for this
item are:
Per Year.
Robert Coit Chapin (1907)...................... $40.50
Louise Bolard More (1907).......................  40.00
Martha Bensley Bruere (1911).................... 150.00
(This amount includes service, repairs, etc.)
Scott Nearing (1913)...........................  52.00
Frank Hatch Streightoff (1915)..................  20.00
(This amount includes only fuel used in cooking.
Housing item of $200 allows $170 for rent and $30
for heat. Thus the total allowance for heat and
light would be $50.)
Our conclusion is a fair mean and allows for the following approximate
consumption of fuel and gas:
Fuel
During the winter months, 3 bags of coal per week at 25c. a bag, and
6 bundles of wood per week at 2c. per bundle, resulting in a weekly expenditure of 8'7c. During the fall months, 2 bags of coal per week at
25c per bag, and 4 bundles of wood per week at 2c. a bundle, resulting
in a weekly expenditure of 58c. Assuming 18 weeks for the winter and
13 weeks for the fall, the total expenditure for fuel amounts to $23.20.
Light and gas used for fuel
Light, assuming the use of gas during the 18 weeks of the winter,
at 25c. per week, 13 weeks of the fall at 35c. per week, and 21 weeks of
the summer at 50c. per week amounts to a total expenditure of $19.55.
(During the fall and summer gas is used for cooking. Thus the consumption is increased.)




15


VI-Health
The problem of arriving at a minimum for health expenditure is necessarily involved. Several studies have been made upon this subject which for our
purposes are quite satisfactory. The Metropolitan Life Insurance Company,
in connection with its welfare work, has considered health expenditure in more
detail than has any other organization. Dr. Lewis I. Dublin, their statistician,
who has studied this problem from an insurance standpoint, concludes that a
workingman will average five weeks' illness once in every three years, or that
one out of every three workingmen will be sick in each year. A prominent
benevolent society, organized in St. Louis for the special purpose of establishing health insurance, has arrived at the conclusion that an adult requires 50 cents
and a child 25 cents a month for health expenditure. This totals $21.00 a year.
Prof. Irving Fisher of Yale, who has devoted considerable study to health insurance, states that the average expenditure resulting from illness and death in
workingmen's budgets is $27 per annum. This amount is agreed to by the
United States Commissioner of Labor (1912) and by Dr. Dublin, although Dr.
Dublin supplements this by stating that even at this rate the family will to some
extent be dependent upon charity.
Our conclusion of $20 is based upon the fact that there are more facilities
for conserving the health of a family in New York City than elsewhere and that
$27 under these conditions would be too high. We realize, however, that it is
impossible to establish beyond criticism a definite amount for health expenditure.
VII-Insurance
Insurance is found to be an almost universal item in budgets of workingmen's families. The expenditure of $22.88 in our minimum estimate is based
upon the assumption that the head of the family should be insured for $500, the
wife for $100, and that the children should each have the smallest amount of
insurance which can be obtained. This is merely industrial insurance and does
not provide for sickness, accident, or property loss.
Interesting studies have been made in this connection showing that the kinds
of insurance vary with the different nationalities. Some peoples are more apt
to insure upon life than upon property, and vice versa. Americans, Germans
and Irish insure members of the family more frequently than they do property.
On the other hand, Russians and Hungarians favor property insurance. In this
report the personal property item is so small that property insurance can reasonably be ignored.
The estimates by authorities for the insurance expenditures of American
workingmen's families are:
Per Year.
Robert Coit Chapin (1907)...................... $25.00 to $30.00
Louise Bolard More (1907).....................   35.00
U. S. Commissioner of Labor (1905).............  26.69
Frank Hatch Streightoff (1915)...................  35.60




16


In industrial insurance weekly payments are the rule. For a $500 policy
the premium is 25 cents a week, for a $100 policy 10 cents a week, while a
minimum of 3 cents a week is required for the policies of children-a total
weekly payment of 44 cents, or a yearly expenditure of $22.88 for the family.
Our estimate is based on the rates offered for those policies considered most
satisfactory by the three insurance companies which specialize in industrial
insurance.
VIII-Sundries
The item " Sundries " includes recreation, reading, general household expense, church contributions, etc. It is unnecessary to defend the fact that a
family in order to maintain a normally happy and self-respecting existence must
have proper amusements. For recreation, therefore, we have allowed occasional
trips to the beach, incidental carfare, moving picture shows, Christmas and
birthday presents, and miscellaneous amusements. For furniture, utensils, fixtures, moving expenses and general maintenance, $18 is allowed, although this
amount could be legitimately increased. $5 is allowed for church contributions.
Incidentals, including soap, washing material, stamps, umbrellas, and other miscellaneous items, are totaled at $5. For reading a one cent daily paper is allowed,
with a Sunday paper almost every week. The resulting $73 expenditure for
Sundries is a fair minimum.






APPENDICES






I




19


APPENDIX A
Bibliography and Digest of More Important Literature on the Cost of Living
for Workingmen's Families in New York City
BIBLIOGRAPHY
Books
The Standard of Living In New York City.
Robert Coit Chapin, 1909.
Workingmen's Budgets.
Louise Bolard More, 1909.
Financing the Wage Earner's Family.
Scott Nearing, 1913.
Family Monographs.
E. G. Herzfeld, 1905.
The Living Wage.
Philip Snowden, 1912.
Reducing the Cost of Living.
Scott Nearing, 1914.
The High Cost of Living.
Walter R. Morson, 1913.
Making Both Ends Meet.
S. A. Clark and E. F. Wyatt, 1911.
Immigration and Labor.
Isaac A. Hourwich, 1912.
Immigration.
Henry P. Fairchild, 1913.
The New Immigration.
Peter Roberts, 1912.
The Immigration Problem.
J. W. Jenks and W. J. Lauck, 1913.
Homestead The Households of a Mill Town.
Margaret Frances Byington, 1910.
Magazine Articles and Reports
" The Influence of Income on Standards of Life."
Robert Coit Chapin, American Economic Association Publication, Volume 10, 1909.
"Some Unconsidered Elements in Household Expenditures."
Margaret Frances Byington, Annals of the American Academy of Political and
Social Science, July, 1913.
"Cost of Living of A Wage Earner's Family in New York City."
Louise Bolard More, Annals of the American Academy of Political and Social
Science, July, 1913.
" Utilization of The Family Income."
Martha Bensley Bruere, Annals of the American Academy of Political and Social
Science, July, 1913.
"The Cost of Living in New York City."
Lee K. Frankel, Charities and Commons, November, 1907.
" Cost of Living of the Normal Family."
Frank Hatch Streightoff, 1915.




20


"The Standard of Living of American Workingmen."
Emile Levasseur, Yale Review, Vol. 5, 1896.
"The Minimum Practical Cost of An Adequate Standard of Living in New York City."
Caroline Goodyear, Charity Organization Society Publication, November 17, 1906.
"Economics of Life and Health Conservation."
Irving Fisher, Market World Chronicle, September 14, 1912.
"Cost of Sickness in the United States."
Irving Fisher, Market World and Chronicle, October 19, 1912.
Report of an Inquiry by the British Board of Trade as to Working Class Rents,
Housing and Retail Prices, together with rates of wages in certain occupations
in the principal industrial towns of the United States.
Survey made in 1909, printed in 1911.
"Investigation of Wages and Prices."
Senate Document No. 2, Vol. 64, 61st Congress, 3d Session, 1910-1911.
Bulletin No. 34, Bureau of Railway Economics.
"Standards of Living and Labor."
Owen R. Lovejoy, National Conference of Charities and Corrections.
"Union Scale of Wages and Hours of Labor."
Bureau of Labor Statistics, United States Department of Labor, May, 1913.
Third Report, New York State Factory Investigating Commission.
Report on the Homes and Family Budgets of 100 New York Patrolmen.
Bureau of Municipal Research, March, 1913.




21


INDEX TO DIGEST
PAGE
The Standard of Living Among Workingmen's Families in New York City.
Robert Coit Chapin.
Russell  Sage  Foundation,  1909...............................................  22
The Influence of Income on Standards of Life.
Robert Coit Chapin.
American Economic Association Publication, Vol. 10, 1909................... 25
Cost of Living for Wage-Earner's Family in New York City.
Louise Bolard More.
Annals of the American Academy of Political and Social Science, July, 1913.. 25
Wage-Earner's Budgets.
Louise   Bolard   M ore.............................................................  27
Financing the Wage-Earner's Family.
Scott Nearing.
New    York,  B.  W.  Huebsch,  1913............................................  27
A Living Wage.
John Augustine Ryan.
New    York,  The  MacMillan  Co.,  1906........................................  28
Utilization of the Family Income.
Martha Bensley Bruere.
Annals of the American Academy of Political and Social Science, July, 1913... 29
Some Unconsidered Elements in Household Expenditures.
Margaret Frances Byington.
Annals of the American Academy of Political and Social Science, July, 1913... 29
Cost of Living of the Normal Family.
Frank  H atch  Streightoff..........................................................  29




22
DIGEST
Several reliable and accurate studies have been made of the cost of living for laborers
in New York City. The book generally regarded as standard is Robert Coit Chapin's
" The Standard of Living Among Working Men's Families in New York City."
"THE STANDARD OF LIVING AMONG WORKINGMEN'S FAMILIES IN
NEW YORK CITY"
This volume is a compendium of the data obtained by the Special Committee on
Standard of Living, appointed by the seventh New York State Conference of Charities and
Correction, and contains a detailed study of the expenditures and living conditions of 391
families in Greater New York averaging five persons each whose incomes range approximately from $600 to $1100. Twenty-five families below the $600 mark and forty-eight
above the $1100 mark are included for the sake of indicating tendencies, but the main
attention is concentrated upon the 318 families within the $600 to $1100 range. The families
under discussion are distributed as follows:
(a) By BoroughM anhattan................................................  291
Bronx................................................    17
B rooklyn..................................................  64
Q ueens...................................................  9
Total............................................  391
(b) By nationality of the fatherA m erican................................................  88
Teutonic.................................................  46
Irish......................................................  26
Colored...................................................  29
Bohemian................................................  14
R ussian...................................................  78
Austro-Hungarian.........................................  39
Italian....................................................  69
Others....................................................  2
Total............................................  391
(c) By occupationDomestic  and  personal  service..............................  96
Trade.....................................................  47
Transportation............................................   53
Manufacturing and mechanical trades.......................  189
Professional..............................................  6
Total.............................................  391
The occupations represented are principally those of the less skilled employments, in
which the wage is from $2.00 to $3.00-a day. In the group are found laborers, teamsters,
garment workers, bar-tenders, cooks, waiters, janitors, tradesmen, agents, clerks, dealers, etc.
The expenditures are analyzed under the following heads: (1) Housing, (2) Carfare,
(3) Fuel and Light, (4) Food, (5) Clothing, (6) Health, (7) Insurance, (8) Sundry minor
items.
Tables and charts show the apportionment (averages and percentages) of expenditures
by:
1. Income group, i. e., $600 to $699; $700 to $799; $800 to $899; $900 to $999; $1000 to
$1099 per year.
2. Nationality.
3. Borough (in some cases).
The relation of income to expenditure is compared in detail by income groups and
nationalities carefully analyzed and summarized in the following table, which in concentrated
form gives a comprehensive review of the problem:




Table of Average Annual Expenditures for Given Objects-By Income Groups.
Description                                                      Average Itemized Expenditures
Total
Total   Average
Number   Average   Average  Expend-                        Fuel
Income        of     Number   Income     iture     Rent    Carfare     and      Food     Cloth-   Insur-    Health    SunGroup       Fam-       of                                            Light                ing      ance               dries
ilies   Persons
$600-$699       72      4.9     $650 17  $650 57   $153 59   $11 31    $37 71   $290 10   $83 48    $13 05   $13 78    $47 55
700- 799       79      5.1     748 83    735 98    161 36    10 53     36 94    335 82    98 79     18 24    14 02     60 28
800- 899       73      5.2      846 26   811 88    168 24    15 86     41 04    359 26   113 59     17 62    22 19     74 08
900- 999       63      5.1      942 03   906 70    171 67    13 79     46 70    405 19   132 34     23 71    23 30     90 00
1000-1099      31       5.0    1,044 48  1,009 57   183 12    18 46     46 11    451 46   155 57     25 46    14 80    114 59
A similar table was prepared by Louise Bolard More, showing expenditures:
1-By Income Groups.
2-By size of family.
It is taken from her book "Workingmen's Budgets" and is inserted here for comparison with the foregoing table by Dr. Cha!in.
Description                                                      Average Itemized Expenditures
Total
Total   Average
Number   Average   Average  Expend-                        Fuel
Income        of     Number    Income    itures    Rent    Carfare     and      Food     Cloth-   Insur-   Health     SunGroup       Fam-       of                                            Light                ing     ance               dries
ilies   Persons
600-$700        29      5.1    $651 14   $656 95   $142 55......   $37 36   $299 06   $59 16    $30 04......   $88 78
700- 800       27      5.3     746 78    739 41    156 81......    47 52   326 63     68 27     3634......   10384
800-900        25      5.9      836 80   831 28    154 89......    44 51    380 36    85 55     2610.        13987
Size of
Family
4           40...     $765 15  $743 79   $162 80......   $40 16   $309 10   $79 50    $25 56......  $126 67
5           39...      72837    720 61    1'55 49......    39 95    327 24    58 74     33 12.....    106 07
6           36...      896 72   875 98    166 69.....     44 70    360 66    97 24     34. 62.....    17207




24


Dr. Chapin has carefully prepared statistics showing in general the minimum expenditure
required for each item. His conclusions, without respect to nationality or borough, are as
follows:
Housing-When it is remembered that in most quarters of the City an apartment of
four rooms costs more than $14 a month, it will be seen that no proper standard
for housing conditions can be maintained for a year at less than twelve times this
amount or $168.
Carfare-$25 a year is needed by the average family for carfare.
Fuel and Light-The minimum required for this purpose is tabulated as follows:
Three  tons  of  coal, at  $6.50....................................  $19.50
Wood and matches............................................   3.00
Gas, at $2.00 per month in summer, $1.00 per month in winter....  18.00
Total..................................................  $40.50 per year.
Food-On the basis of prices prevailing in the summer of 1907, the families which
spent at the rate of less than 22 cents per man per day did not have sufficient food
to maintain physical efficiency. Dr. 'Chapin did not arrive at definite conclusions
regarding the amount of food required by a family, since it necessarily varies
according to the ages of the children. He did, however, consider one family
consisting of father, mother and three children, aged four, three and two years,
respectively, and in this case regarded $4.24 per week, not including lunches for the
man, as the absolute minimum. (This minimum presupposes a housewife with a
knowledge of the nutritive values of foods, efficient in household management and
able to exercise judgment in purchasing supplies, a decidedly extravagant supposition. Nor is it fair to base estimates on conditions existing in a family in which
the children are so young. Authorities generally agree that not less than $7.00 per
week is required for food).
Clothing —Not less than $100 is required to provide decent clothing for a normal family
of five.
Health-Aside from a flat statement that an $800 income does not permit expenditures
sufficient to care properly for the health of the family, Dr. Chapin does not allow
any fixed sum for health expenses. Statistics show that where the health expenditures are heavy, expenditures in other directions are curtailed. For instance, an
abnormally low expenditure for the man's clothing appears in one schedule, where
it is stated also that he was sick in a hospital for several weeks. In other cases
where the health expenditure is large, the expenditures for amusement, recreation
and miscellaneous purposes disappear.
Insurance-Insurance is carried by a majority of families, but generally of the industrial type, more properly described as burial insurance than life insurance. Policies
usually amount to $100 for adults and $50 for children. $25 a year is a very reasonable expenditure for this purpose.
Sundry Minor Items-These include expenditures for furniture, recreation and amusements, education and reading matter, moving, and dues and contributions. The
expenditures vary from $47.55 to $114.59. Dr. Chapin does not venture to state a
minimum.
General Conclusions of Dr. Chapin
1. "An income under $800 is not enough to permit the maintenance of a normal
standard."
2. "An income of $900 or over probably permits the maintenance of a normal standard,
at least as far as the physical man is concerned."




25


3. "It seems probable that on an amount ranging from $800 to $900, the standards
prevailing among Bohemians, Russians, Austrians and Italians may be maintained, but that
it is the exception rather than the rule, when the more expensive standards of the
American and kindred nationalities are maintained on this amount."
4. "A -comparison of the families by nationalities shows that at almost every point
a lower standard of expenditure prevails among the Bohemians, Russians, Austrians and
Italians than among the Americans, Teutons and Irish. The families of the former group
on incomes above $700 to $800 begin to save and show a surplus * * * while families
of the other group do not reach the saturation point, so to speak, below an income of $900
or $1,000."
5. "The standard of living varies as the two jaws of the vice, wages and prices, contract and relax."
"THE INFLUENCE OF INCOME ON STANDARDS OF LIFE"
In this article Dr. Chapin brings out the following: that 22 cents per diem per man
is the minimum allowance for food; that one and one-half persons to a room, not over six
persons to four rooms, is the minimum standard of housing; and that $100 per year is the
absolute minimum for clothing and washing.
According to these standards the following conditions in income groups appear:


(a) $400 to $500


All are underfed.
88% underclad.
65% overcrowded.
65% underfed.
88%o underclad.
71%o overcrowded.


(b) $500 to $600


(c) $600 to $700


33% underfed.
63% underclad.
51% overcrowded.


For every income group thereafter, overcrowding is the main evil. Even in the $1100
group, where none are underfed and only 6% underclad, 21% are overcrowded.
The above facts show that, in (a) the need of shelter is being satisfied at the expense
of food and clothing, in (b) the desire for sufficient food is being satisfied at the expense
of shelter. A higher rental is paid but more people are crowded into the rooms.
In discussing savings, Dr. Chapin shows that the fact that money is saved is no proof
that a proper standard of physical efficiency is attained. Many families save at the expense
of efficiency and comforts. For example, in the three income groups mentioned above,
50% of the underfed, 65% of the underclad, and 44% of the overcrowded, report a surplus
of $25 or more. It is interesting to note that the proportion of families saving money
among the Russian and Italian families is much higher than among the Americans.
"COST OF LIVING FOR A WAGE EARNER'S FAMILY IN NEW YORK CITY"
With the exception of Dr. Chapin's work upon this problem, Louise Bolard More has
accomplished more for our purpose than any other authority. In this article Mrs. More
designates $850 a year, or $16.50 a week, as a representative income of the typical family
under discussion. This income is a little above the point where a household ceases to run
into debt. It allows a small margin whereby a respectable family may retain a fair physical
and moral standard under city conditions. " Other investigations, as well as my own,' have
placed this as a fair average for workingmen's families in a city like New York."




26
Her conclusions are based on the following conservative family budget:
Object of Expenditure.               Per Week. Per Year.
Rent...............................................  $3.25      $168
Food...............................................   7.00       364
Clothing...........................................   2.00       100
Fuel and Light.......................................80       40
Insurance...........................................70       35
Sundries..........................................     2.75       143
Total..........................................  $16.50      $850
This budget is supported by the following data:
Rent$13.50 per month is 19.4% of total expenditure. 3 or 4 rooms at present rates would
'cost $12, $16 or $18 per month. Conservative estimate-$14 per month-$168 per year.
FoodRecent investigations place necessary expenditure for food at 22c. per day per man.
Thus, for a family of 5, with the children aged 12, 8 and 3 years, $5.70 is a minimum, but
this necessitates scientific knowledge of food values, household efficiency, and economical
buying.
$1 per day is generally regarded by housekeepers as adequate to provide nutrition for a
family of 5 or 6 persons. Conservative estimate-$7 per week-$364 per year.
ClothingThe expenditure for clothing varies greatly. However $100 per year is considered a
minimum allowance.
Fuel and LightCoal at $6 to $6.50 a ton or 25c. a bushel or 10c. a pail.
Gas at 25c. per 250 cu. ft.
Wood-gathered by children.
25 families with incomes between $800 and $900 average $44.51 per year for light and
fuel. Conservative estimate-$40 per year.
InsuranceExpenditure for this item is almost universal. Only twenty-six out of the two hundred
families investigated did not carry life insurance. Policies vary from $50 to $300, bearing
a premium of $30 to $40 per year. Average amount-$37.19. In one case an expenditure of
$127 per year with an income of only $1200 was discovered. Conservative estimate-$35.
Sundries, Carfare, Furniture, etc.Per Year.
Papers  and  magazines......................................    $5.00
Furniture,  kitchen  utensils,  etc..................................  15.00
Recreation (summer excursions, dances, theatres, etc.)..........  20.00
Drink (occasional pint of beer at supper-man not a hard drinker)  20.00
Church   dues...................................................  5.00
Spending money-father (including shaves, tobacco, carfares to
and from work, union dues, and drink outside home)........    50.00
Occasional  sickness........................................    10.00  or  less
Miscellaneous-domestic service in time of sickness, soap, washing materials, writing paper, stamps, moving expenses, etc.   18.00
Total..................................................  $143.00




27
"WAGE-EARNER'S BUDGETS"
In this book, Louise Bolard More again concludes that a well-nourished family of five
in New York City needs at least $6 per week for food. The average food expenditure for
39 families of 5 persons each was $327.24 per year or $6.293 per week. Considering $6 a
week or $312 per year as 43.4% of the total expenditure, that being the average percentage
expended for food in the 200 families under immediate consideration and approximately
the average arrived at in the extensive investigation of the U. S. Department of Labor, the
total expenditure for all purposes would be about $720 a year. Making allowance for a
larger proportion of surplus than was found in these families, in order to provide for the
future, the minimum income should be from $800 to $900 per year.
"FINANCING THE WAGE-EARNER'S FAMILY"
This book by Scott Nearing discusses in detail the question of the standard of living,
but his chapter upon individual family budgets, with particular reference to a minimum
New York City budget, contains the only information that would be useful for our purpose. This particular discussion is a criticism of a family budget obtained by Mrs. More.
The budget was prepared by an average Irish family, consisting of father, mother,
and two boys, eight and nine years of age. The man was a steady, temperate, unskilled
laborer, and the woman, who had considerable native thrift, was neat, honest and reliable.
The estimated expenditures were as follows:
Per Year.
Rent: 2 mos. at $10; 7 mos. at $12; 3 mos. at $11......................  $137.00
Food, from   $4  to  $7  a  week..........................................  277.00
Drink  (pint of  beer  at supper  daily)..................................  36.40
Clothing.............................................................  40.00
Light  and   fuel.......................................................  52.00
Insurance from 50 to 75 cents a week................................    29.25
Papers,  11  cents  a  week..............................................  5.72
Church, 35 cents a week (for 50 weeks)..............................    17.50
Man's spending money...............................................     25.00
Sundries...........................................................    2.03
Total............................................................  $622.50
Incom e.........................................................  600.00
D eficit.......................................................  $22.50
Upon analysis Mr. Nearing shows the cost of food to be slightly more than the 22c.
per man per day estimate, while the expenditure for clothing is abnormally low, so low
in fact that it cannot be considered accurate. The housing was inadequate, with only three
small dark rooms, the windows of two of these opening into an airshaft. There was no
allowance whatsoever for recreation or health.




28


"A LIVING WAGE"
For the purpose of comparing conditions in New York City with conditions elsewhere,
the family budgets following are included. They are the result of a study made by John
Augustine Ryan, as described in Chapter VII of his book-"A Living Wage." He compares two family budgets, one by the U. S. Commissioner of Labor in 1905, showing the
average yearly cost of living for 2132 families averaging 5.7 persons, the other a revision
of this same budget showing the cost of living at minimum prices.


Family budget, from the seventh a
report of the Commissioner of 
(1905).
Per
Food..........................  $
Rent (av. no. of rms. 4.7)......
F uel..........................
Lighting.......................
Clothing......................  l
Taxes (nearly Y of families
made no return for this)......
Insurance (property).........
Insurance  (life)..............
Organizations (labor).........
Organizations (other)........
Religion......................
Charity.......................
Furniture and Utensils (an irreducible minimum)..........
Books and newspapers (schoolbooks   included,  ridiculously
low )........................
Amusements and Vacations....
Intoxicating Liquors..........
Tobacco......................
Sickness and death............
Other  purposes...............
Total.....................  $6
The total average of expenditure
family was $610.61. The discrepancy
from the fact that hundreds of famade no mention of several items.


Same budget revised to show the cost of
living at minimum prices.,87.06     Food..........................
72.58      Rent.........................
35.75      Fuel..........................
4.90      Lighting.......................07.40     Clothing......................
5.43
6.47      Insurance (property)..........
20.22      Insurance (life)
(Eliminated because he should
have saved enough to provide for old age.)
'6.06      Organizations (labor).........
6.60      Organizations (other).........
10.29      Religion......................
2.80      Charity.......................
Furniture and Utensils........
19.79
Books and newspapers.........
5.25
9.36      Amusements and Vacations....
15.98      Intoxicating Liquors..........
10.48      Tobacco......................
22.31      Sickness and death    (provided
for by saving).
38.19      Other purposes...............


Per Year.
$235.00
84.00
30.00
4.90
107.40
5.00
6.06
6.60
10.29
2.80
19.79
10.00
20.00
10.00
8.00
38.19


Total.....................  $601.03
CONCLUSIONS.
(1) In N. Y. $600 would not, even during periods of low prices, obtain the irreducible minimum of the revised column.
It is not a living wage in New York City.
(2) Anything less than $600 is not a
living wage in cities of U. S.
(3) This sum is probably a living wage
in certain cities of the South where goods
and rent are cheaper.


It is unnecessary to point out that if the above budget were applied to New York City
conditions, the food and rent expenditures, $235 and $84 respectively, would have to be so
materially revised as to render Father Ryan's conclusions of little value to us.




29


"UTILIZATION OF THE FAMILY INCOME"
In this article Martha Bensley Bruire states that a middle class family cannot be
maintained decently or efficiently on less than $1200 a year or its equivalent. "Its equivalent" refers to such items as the vegetables which a farmer raises and uses on his table,
the free education given to children of teachers and professors, or the parsonage provided
for the preacher. This conclusion is based on a study of several hundred middle-class
families located throughout the United States, composed of husband, wife and three
children, not more than one of whom is over fourteen.
Per Year.
Food........................................................  $447.15
Housing....................................................  144.00
Clothes......................................................  100.00
Gas, Heat, Service, Repairs, etc...............................  150.00
Advancement: health, vacations, insurance, books, recreation,
education,  carfare,  etc....................................  312.00
Unclassified incidentals......................................  47.00
Total...........................................   $1,200.15
It is evident that this middle-class type of household would maintain a much higher
standard of living than the typical unskilled laborer's family in New York City. Thus,
as applied to our problem, Mrs. Bruere's study can be considered only as affording an
interesting comparison.
"SOME UNCONSIDERED ELEMENTS IN HOUSEHOLD EXPENDITURES"
This article is a criticism by Margaret Frances Byington of some of the standards
adopted by authorities in discussing the cost of maintaining a minimum standard of living.
In particular she attacks the conclusion of Robert Coit Chapin that 22 cents a day is
sufficient to buy the requisite calories of heat and grams of protein for the adult man,
stating that this is perhaps scientifically true, but impractical, because:
1. The true cost of providing these calories is not considered.
2. The relative strength of the digestive apparatus and the powers of assimilation of people of different ages and occupations are ignored. (The comparative requirements for the assimilation of different kinds of foods must be
taken into consideration. For instance, a child needs milk and eggs, relatively
expensive food.)
3. The provision of appetizing as well as nourishing food is not considered.
4. The domestic skill, or rather lack of skill, of the housewife has not been considered. There is bound to be waste and unintelligent buying by the average
wife of the unskilled laborer.
"COST OF LIVING OF THE NORMAII FAMILY"
This report, as yet unpublished, prepared by Frank Hatch Streightoff for the New
York State Factory Investigating Commission, was loaned to us through the courtesy of
Mr. Abram I. Elkus. It is the most satisfactory work upon present day conditions available,
and has been invaluable in the present study. The object of this survey was to obtain
and compare data on the cost of living for a normal family of five persons in different
cities of New York State.




30
The standard budget for this family in New York City has been drawn up as follows:
Per Year.
Housing   (including heat)....................................  $200.00
Food.......................................................      325.00*
Fuel  and  light...............................................    20.00
Clothing...................................................     140.00
Clothing.~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~                  140.00
Carfare.....................................................     31.20
Insurance...................................................    35.60
Health......................................................     22.00
Furnishings.................................................      7.00
Education...................................................      5.63
Recreation  and  amusement....................................    50.00
Miscellaneous..........................................      40.00
Total...................................................    $876.43
* The difference between this food expenditure and the $380 expenditure in our budget is accounted
for by the fact that the ages of the children in this budget were 10, 8 and 4, while in the family which
we have assumed the ages of the children are 13. 10 and 6.






William H. Matthews...
Howard D. Woolston..
Lee K. Frankel........
Frank Tucker.........
Michael Rofrano.......
George G. Thompson...
Victor S. Dodworth....
Charles P. Molesphini..
Angus P. Thorne......
Arthur Essing.........
Richmond Smith.......
Mary Wadley..........
Margaret F. Byington..
Thresa M. Sessa.......
Irene O. Andrews.....
Morris D. Waldman....
Jonathan C. Day.......
Joanne C. Colcord....
W. E. Clark...........
Lewis I. Dublin........
Charles Molesphini.....
Oscar H. Fogg.........
Katherine A. Ward....
Patrick M. Mallon.....


31
APPENDIX B
List of Persons Interviewed
Association for Improving the Condition of the Poor.
College of the City of New York. Member New
York State Factory Investigating Commission.
Chairman, Committee on Standard of Living of the
Eighth New York State Conference of Charities
and Correction. Vice-President, Metropolitan Life
Insurance Co.
Chairman, Committee on Standard of Living of the
Seventh New York State Conference of Charities
and Correction.
Deputy Commissioner, Department of Street Cleaning.
Deputy Commissioner, Department of Public Charities, Manhattan.
Superintendent, Children's Bureau, Brooklyn, Department of Public Charities.
Assistant Superintendent, Children's Bureau, Brooklyn, Department of Public Charities.
Superintendent, Bureau of Dependent Adults, Department of Public Charities.
Mayor's Market Commission.
In charge of Division of Supplies, Bureau of Standards, Board of Estimate and Apportionment.
Supervisor, Social Service Bureau, Bellevue Hospital.
Bureau of Charities, Brooklyn.
Bureau of Charities, Brooklyn (Italian Field Worker).
American Association for Labor Legislation.
United Hebrew Charities.
Labor Temple.
District Superintendent, Charity Organization Society.
Dean, Economics Department, College of the City of
New York.
Statistician, Metropolitan Life Insurance Company.
Real Estate Editor, New York Evening Post.
Engineer of Utilization, Consolidated Gas Company.
Society of St. Vincent de Paul, Brooklyn.
Society of St. Vincent de Paul, Brooklyn.




32
APPENDIX C
Field   Reports-Supporting        Data   on   the  Food, Clothing, Rent, Fuel and
Light Conclusions in the Report
The prices of the above commodities were obtained during the months of
January and February, 1915.
MINIMUM FOOD BUDGET FOR ONE WEEK FOR FAMILY OF FIVE, WITH
CURRENT PRICES
Meat and Fish —
5  lbs.  Beef,  at  16c.  lb......................................................  $0.80
2   lb.  Beef  for  Stew,  at  12c.  lb..............................................06
2 lbs. Pork, at 14c. lb., 28c. or
2  lbs.  H am,.at  18c.  lb.,  36c..............................................av..32
1 lb. Chicken (4 lbs. month), at 18c. lb.......................................    18
1/2 lbs. Fresh Fish, at 12c. lb...............................................18
$1.54
Eggs and Dairy Products1  lb.  Butter,  at  33c.  lb.......................................................33
/2 lb. Cheese, at 20c. lb......................................................10
24   Eggs,  at  32c.  doz.........................................................64
16   qts.  M ilk,  at  6c.  qt.......................................................96
$2.03
Cereals21  Loaves   5c.  Bread........................................................  $1.05
1  doz.  R olls,  at  1Oc........................................................10
2  lbs.  Cake,  at  10c.  lb.......................................................20
Rice  (1  lb.  per  month),  at  7c.  lb..........................................017
Flour (32 lbs. twice a month), at 4I/c. lb...................................071
O atm eal  (2 2  lbs.),  at  4c.  lb.................................................10
$1.538
Vegetables, Fruits, etc.6  qts.  Potatoes,  at  8c.  qt....................................................  $0.48
Turnips  or  Carrots.........................................................05
2  lbs.  Onions,  at  3c.  lb......................................................06
Fresh Vegetables..........................................................75
Dried  Beans  and  Peas....................................................05
Can of Tomatoes, at 10c. can...............................................10
Can of Corn (monthly), at 10c. can.........................................025
Fresh  Fruit................................................................25
Dried Prunes (1 lb. per month), at 14c. lb..................................035
$1.80
Sugar, Tea, Coffee, Etc.1  lb.  Coffee,  at  20c.  Ib......................................................  $0.20
1~   Ibs.  Sugar,  at  5% c.  lb....................................................096
Syrup...................................................................02
Pickles,  Spices,  etc..........................................................05
4 lb. Tea, at 40c. lb.........................................................10
$0.466 




33


Summary
Per Week.
Meat and Fish............................................................       $1.54
Eggs and Dairy Products..................................................    2.03
Cereals...................................................................     1.38
Vegetables, Fruits, etc.....................................................     1.80
Sugar,  Tea,  Coffee,  etc......................................................466
T otal.............................................................   $7.374
Annual Total.................................................. $382.758


MINIMUM CLOTHING BUDGET FOR ONE YEAR FOR FAMILY OF FIVE,
WITH CURRENT PRICES


Man
2   Caps..........................
1  Suit...........................
1 Overcoat (last 3 years)........
1 Pair Pants....................
3 Working Shirts................
1  W hite  Shirt...................
3 Collars........................
2 Pairs Overalls.................
2  T ies...........................
6  Pairs  Hose...................
3 Pairs Shoes....................
Repair of Shoes (twice)........
Summer Underwear (2 suits)..
Winter Underwear (2 suits)....
Cloth for Night Gown..........
Gloves and Mittens.............
4 Handkerchiefs.................
Sundries......................


$0.75
8.00
5.00
1.50
1.50.50.30
1.50.20.60
6.00
1.50
1.50
1.50.25.50.20.50


Woman
2 Hats (last 2 years).............    $2.00
1 Coat (last 2 years)............      4.00
1  Suit..........................     6.00
3 Waists........................       1.50
2 Wash Dresses.................        2.50
2 Petticoats......................     1.00
3 Aprons.........................45
6 Handkerchiefs..................30
6 Pairs Stockings.................60
2 Pairs Shoes..................     4.00
Repair of Shoes (twice)........      1.00
Summer Underwear (3 suits)....60
Winter Underwear (3 suits)....        1.05
M ittens........................25
Rubbers........................50
Linen and sundries.............      4.00
Total............... $29.75


Total................  $31.30


Boy (13 Years)
2   C aps..........................
1  W inter  Suit...................
1  Summer  Suit..................
1 Overcoat (last 2 years).........
6 Pairs Stockings...............
3 Waists (material)..............
Summer Underwear (3 suits)...
Winter Underwear (3 suits)....
3  Pairs  Shoes....................
Repair of Shoes (3 times).....
M ittens........................
6 Handkerchiefs.................
Sundries.......................


$0.50
2.00
1.00
1.50.60.50.60.90
4.50
1.50.50.20.50


Boy (6 Years)
1 Cap...........................     $0.25
1  W inter  Suit...................  1.00
1 Summer Suit...................50
1 Overcoat (last 2 years).........     1.00
6 Pairs Stockings..................60
3 Waists (material)..............30
Summer Underwear (3 suits)....30
Winter Underwear (3 suits)..60
3 Pairs Shoes...................      3.00
Repair of Shoes (3 times).....     1.50
Mittens.........................50
3 Handkerchiefs..................10
2 Ferris Waists...................30
Total...............     $9.95


Total................   $14.80




34


Girl (10 Years)
2 Hats-winter 75c., summer 50c..      $1.25
1 Stocking Cap (school)..........25
1 Coat (last 2 years).............     2.00
2 Winter Dresses (material)......     2.00
2 Summer Dresses (material)....       1.00
1 Sweater.......................      1.00
6 Handkerchiefs..................20
6 Pairs Stockings................50
2 Pairs Mittens..................50
3 Petticoats.......................75
3 Ferris Waists.................45
Summer Underwear (3 suits)....60
Winter Underwear (3 suits).....90
2  Pairs  Shoes....................  3.00
Repair of Shoes (twice).......      1.00
Rubbers........................50
Sundries......................     2.00
Total................   $17.90


Summary
Per Year.
Husband........................  $31.30
W ife............................  29.75
Girl, 10 years....................  17.90
Boy,  13  years.....................  14.80
Boy, 6  years......................  9.95
Total................ $103.70


DATA ON PREVAILING RENTALS
In a letter received from Charles Molesphini, Real Estate Editor of the Evening Post,
he concludes "that tenement house rents vary to such a degree that it is difficult to arrive
at a definite average."
He submitted the following list of the average rents paid by unskilled laborers in different sections of the city:
Mulberry Bend District (Italian)
Old tenements..................... $4.00 per room per month.
Modern tenements.................   3.25 per room per month.
"Little Italy"
Modern tenements................. $2.85 per room per month.
East Side
Old tenements..................... $3.00 per room per month.
Modern tenements.................   4.00 to $5.50 per room per month.


Washington Heights
Old apartment houses.............. $4.00 to $5.00 per room per month.
New apartment houses..............   7.50 to $8.00 per room per month.
Yorkville District
Old tenements.................... $4.00 to $5.00 per room per month.




Tenement Iouse Rents




Number        Rent per              Rent per            Improvements Included
of        Apartment               Room                     in the Rent
Location of Property          Rooms_ -_                                                                         Nationality of
Per                                                                                   enants
Apart-  Highest Lowest Highest Lowest Average           Hot     Steam   Ranges
mernt                                                 Water Hteat
Madison Ave. and 133d St..........     8      $25 00   $200      $3 12    $3 12    $3 12    Yes      Yes      Yes     Negro
East 127th St., near 3d Ave........    3        7 00     6 00     2 33     2 00     2 16    None     None     None    Italian
4       10 00     8 00     2 50     2 00     2 25        None          None    Italian
3        7 00     6 00     2 33     2 00     2 16   None       one     None    Italian
4       12 00     8 0      3 00     2 00     2 50    None     None     None    Italian
4       1700     1200      4 25     3 00     3 62    None     None     Yes     Negro
East 113th St., near 5th Ave.......    5       18 00    17 00     3 60     3 20     3 40    Yes      None     Yes     Jewish
East 107th St., near exington Ave..    5       18 00    17 00     3 60     3 40     3 50    None     None     Yes     American
Third Ave., near 102d St...........    5       16 00    11 00     3 20     2 20     2 70     one     None     Yes     American
East 97th St., near 3d Ave.........    3       10 00     7 00     3 33     2 33     2 83    Yes      None     Yes     Jewish
4       15 00    12 00     3 75     3 00     3 37   Yes       None     Yes     Jewish
2        6 00     5 50     3 00     2 75     2 87   None      None     None    Italian
3        8 50     7 50     2 83     2 49     2 66        None     None None    Italian
East 92d St., near 1st Ave........... 3        10 00     9 00 3 33         3 00     3 16    Yes      None     Yes     Russian & German
East 6th St., near Sheriff St.........        25 00    24 00     3 57     3 42     3 47    None     None     Yes     German
Mott St., near Spring St..............4 and 3 18 50    11 00     4 62     3 66     4 27    None     None     None    Italian
Section of City east of Bowery and
south of Grand St.:
Hester St.......................  3 and 2    17 00     6 00     5 66     3 00     4 54    Yes      Yes      Yes     Jewish
Henry St... 6 and 4                          28 00    18 00     5 25     4 66     4 81    None     None     Yes     Jewish
Monroe St......................   3 and 2    16 00     7 00     5 33     3 50     4 36    None     None     None    Jewish
Monroe St......                   3 and 2    16 00     9 00     5 3         66    4 30    Yes      None     Yes     Jewish
Monroe St......................      3       12 50     9 00     4 16     3 00     3 63    None     None     None    Italian
Attorney St.....................  4 and 3    18 00    11 00     4 50     3 66     4 02    None     None     None    Jewish
Attorney St............ 4 and 3    17 50    12 00     4 37     4 00     4 32        None     None None    Jewish
Broome St......................   4 and 3    21 00    14 00     5 25     4 66     4 89    None     None     None    Jewish
Madison St.......      4       18 00    15 50     4 50     3 87     4 36        None None     None    Irish and Greek
Madison St..                         3       17 00    17 00     5 66     5 66     5 66    None     None     None    Irish and Greek
Rose St........4,3 and 2                     16 00     9 00     4 50     3 50     3 63    None     None     None    Irish
Peck Slip.......                    4       13 00    11 00     3 25     2 75     3 03    None     None     None    Irish


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36


DATA ON COST OF GAS USED FOR FUEL AND LIGHT
Submitted, at our request, by the Consolidated Gas Company of New York. This data
was obtained from a study conducted by Oscar H. Fogg, Engineer of Utilization.
"In general, it may be said that with families of the class under consideration (unskilled laborers' families of five persons), gas is used for both illumination and cooking.
In many cases coal and wood are used for some of the cooking during the winter months.
The reason for this is readily seen. Families of this class usually occupy what are known
as "cold water tenements," in which neither heat nor hot water is furnished by the landlord. The kitchen is the general living room for the family, and in cold weather a wood or
coal stove is used, for it not only supplies heat for cooking but it heats the kitchen as well,
and so provides at least one heated room in which the members of the family may be comfortable. The cost of coal, however, when purchased in the small quantities which these
people are compelled by circumstances to buy (the bag or bucketful), makes its use desirable
only when the weather requires the additional heating of the room, and at other times it is
believed that the small gas stove or hot-plate is used altogether for cooking and for such
small quantities of hot water as are required. Thus it will be seen that in the figures given
below, the total cost of fuel is not included, but only that part representing the cost of gas
used for fuel and light.
"A group of fifty-one families has been taken, where the factors of family life are
known to conform with those submitted by the Bureau of Standards, i. e., unskilled laborers'
families, consisting of two adults and three children, and we find that for this group the
average cost of gas for each month in the year 1914 was as follows:
January........... $1.51   May............... $1.33   September......... $1.68
February..........  1.37  June...............  1.27  October.............  1.67
March............. 1.44    July............... 1.36   November......... 1.60
April.............. 1.33   August........... 1.07    December.......... 1.78
Average  total  for  the  year........................................  $17.41
A verage   per  m onth...............................................  1.45
"In addition to the foregoing, there have been taken at random 242 cases from a number
of different sections of the City in which families of the class under discussion predominate.
These 242 cases give us a total average yearly consumption of $18.08 each, and an average
monthly consumption of $1.50 each. In this group, however, we have no information of the
number constituting the family, in fact, no information whatever except that which may be
assumed from the geographical location and our records of consumption."




37


APPENDIX D
The following family budgets have been selected from those submitted by public and
private organizations or commissions and by individual authorities. They are valuable in
that they represent the ideas and conclusions of persons who are in daily contact with
social problems in New York City. In particular the budget submitted by the Bellevue
Hospital Social Service Bureau should be noted because it is the accurate result of an
intensive survey carried on by the workers of this bureau. In almost every case a family of
five persons is assumed.
FAMILY BUDGETS, MANHATTAN
1.
Basis Used by Association for Improving the Condition of the Poor for Relief Work-Cash
Distributions.
Per Week.
Rent,  $12  m onth..........................................................  $3.00
Fuel and Light, Summer, $2 month; $2 x 5 mos................ ApproxiFuel and Light, Autumn, $3 month; $3 x 3 mos..................   mate.75
Fuel and Light, Winter, $4-5 month; $5 x 4 mos................ Average
Clothing, $2 month (for each individual over 2 yrs.), 4 individuals..........  2.00
Sundries,  $2-3  month......................................................75
Food,.27  diem   for  man..................................................  1.89.216  diem   for  wom an..............................................  1.51.216 diem for child over 14 yrs. (one at 10 yrs.).....................  1.10
(one at 6  yrs.)......................70.08 diem for child under 2 yrs. (one at2 yrs.).....................56
$12.26
Y early  total......................................................  $637.52
Not included:
Health.
Carfare.
Insurance.
* * * * * *


2.
Estimate by Deputy Commissioner Michael Rofrano of a minimum Italian budget:
Per Week.
Rent (2 families in 4 rooms)..................................... $1.85 to $2.00
Food.......................................................... 6.00 to   7.00
C oal...............................................................50
Light   (gas)......................................................25
Clothing  (bare  necessities)........................................          2.00
Carfare...60
Furniture  and  Sundries............................................50
Health...........................................................50
Insurance..........................................................50
Total...........................................  $13.85
Y early   total.........................................................  $720.20




38


FAMILY BUDGETS, BROOKLYN
1.
Estimate by Margaret F. Byington, Superintendent, Department of Service and Relief,
Brooklyn Bureau of Charities, of a minimum American family budget for husband, wife
and three children under fourteen years, living in Brooklyn:
Per Week.
R ent  (4   room s)..........................................................  $3.00
Food.............................................................  7.00
Carfare..................................................................60
Fuel  and  light  (maximum )...............................................  1.00
Clothing.................................................................  2.00
Furniture  and  sundries  (minimum).......................................  1.00
Insurance.................................................................50
$15.10
Y early   total.....................................................  $785.20
Not included:
Health.
2.
Estimate by Katherine A. Ward and Patrick M. Mallon, Society of St. Vincent de Paul,
Brooklyn, of a fair standard American family budget for husband, wife and three children
under 14 years, living in Brooklyn:
Per Week.
Rent....................................................................  $3.00
F ood....................................................................  10.50
Fuel  (average).........................................................60
Gas (including occasional use of cooking stove)............................25
Clothing..................................................................75
Insurance................................................................40
$16.10
Yearly  total..........................................................  $837.20
Not included:
Health.
Carfare.
Sundries.
Stated that the $1.50 per day food allowance would purchase only the bare necessities
and good household managership would be required to keep out of debt. The clothing
estimate is very low.
ESTIMATED FAMILY BUDGET OF BELLEVUE HOSPITAL SOCIAL
SERVICE WORKERS
The following is an itemized family budget as drawn up by Mary Wadley, supervisor
of the Social Service Bureau of Bellevue Hospital, and the five district workers, who have
obtained all the information at first hand. These figures are the conservative estimates of
women who are daily meeting problems arising from poverty, and who have an exact
knowledge of the needs of the typical worker's family. These are not ideal estimates. They
represent the practical requirements for maintaining a decent standard of living.
The basis of this budget is a family of five-husband, wife, and three children under
14 years.




39


HOUSING
Rent  (3  rooms), $14  per  month.......................................... $168.00  per  year
CARFARE
Carfare   (303  days).....................................................  30.30  per  year
FUEL AND LIGHT
Per XVeek.
Fuel-3 bushels coal at 25c. per bushel...................................  $0.75
6  bundles  wood  at  2c. per  buindle...................................12
Total.......................................................  $0.87
Per Year.
87c. per  week  x  26  weeks..........................................  $22.62
Gas-$1.25  per  month  x  6'2  months......................................  8.12
2.25 per month x 5X2 months (summer)...........................    13.37
Total......................................................  $44.11 per year
Note-No coal is used during the summer months. The gas bill is, therefore, increased
$1 per month.
FOOD
Minimum Budget for One Week
Meat and Fish5  lbs.  Beef,  at  13c. a  lb..................................  $0.65
2  lb. Beef, at  1Oc  a  lb....................................05
2 lbs. Pork, at 32c. a lb., 64c., or
2  lbs. Ham, at  14c. a  lb., 28c...........................av..46
1 lb. Chicken (4 lbs. a month)...........................16
1X2 lbs. Fresh Fish, at 8c. a lb..........................12
$1.44
Eggs and Dairy Products1   lb.  Butter.............................................  $0.29
2  lb.  Cheese,  at  18c. a  lb.................................09
24  Eggs  (storage, 31c. a  doz.).............................62
16  qts.  M ilk,  at  6c.  a  qt...................................96
$1.96
Cereals21  loaves  5c.  bread......................................  $1.05
1  doz.  R olls..............................................10
2   lbs.  Cake...............................................20
Rice (1 lb. per mo.).....................................02
Flour  (32  lbs. twice  a  month)............................07
Oatmeal  (2T2  lbs.), at 4c  a  lb.............................10
$1.54




40


Vegetables, Fruits, Etc.6 qts. Potatoes (10c. for 32 qts.).....................        $0.18
Turnips  or  Carrots.......................................05
2  lbs. Onions, at 2c. a  lb...................................04
Fresh   Vegetables........................................50
Dried Beans and Peas.....................................05
Can of Tomatoes........................................07
Can of Corn (per month 8c.).............................02
Fresh   Fruit..............................................25
Dried Prunes (1 lb. per month 8c.).....................02
$1.18
Sugar, Tea, Coffee, Etc.1 2  lbs. Coffee,  at  20c. lb..................................30
14 lbs. Sugar (18c. for 32 lbs.)..........................09
Syrup (4 10c. cans per year).............................008
Pickles,  Spices,  etc.......................................05
$0.448
Summary
Per Week.
M eat  and   Fish............................................    $1.44
Eggs and Dairy Products...............................             1.96
C ereals..................................................      1.54
Vegetables,  Fruits,  etc...................................       1.18
Sugar. Tea, Coffee, etc................................448
Total........................................      $6.568-  $341.536  per  year.


CLOTHING
Budget for One Year


Man
2 Hats or Caps.................... $2.00
1  Suit............................  10.00
1 Overcoat ($10, last 2 yrs.)...... 5.00
1 Pair of Pants................... 2.00
3 Working   Shirts................  1.50
2 White Shirts...................   1.00
6 Collars..........................60
2  pairs  of  Overalls.................  1.50
4 Ties.............................50
4 Handkerchiefs...................20
6 pairs Hose.......................60
Gloves and Mittens................50
Shoes,  2  pairs.....................  4.00
Repair of shoes (twice)..........   1.50
Underwear
Summer, two suits............... 1.00
Winter, two suits...............  1.50
$33.40


Boys (6 and 4 Years)
2 Caps...................... $1.00
1 Suit (2 Trousers) Winter.. 3.00
1 Overcoat ($3, last 2 yrs.)....  1.50
6 prs. Stockings..............50
3 Waists.....................75
Underwear
Summer, 3 suits.........60
Winter, 3 suits.............. 1.00
Shoes,  2  pairs................  3.00
Repair of shoes (twice)...... 1.00
3 Ferris Waists...............75
6 Handkerchiefs............25
Mittens, 2 pairs.............50
Rubbers......................50
Ties..........................25
Summer suit................. '1.00
Sundries......................50
$16.10 each.




41


Woman
2 Hats ($6, last 2 yrs.)............ $3.00
1 Coat ($8, last 2 yrs.)...........   4.00
1  Suit..........................    8.00
3 Waists (2 at 50c. and 1 at $1).... 2.00
2 Wash Dresses.................. 2.50
2 Petticoats......................   1.00
3 Aprons........................45
6 Handkerchiefs...................45
6 Pairs Stockings..................60
2 Pairs Shoes...................      4.00
Repair of Shoes (twice).......... 1.00
Underwear
Summer, three suits..............60
Winter, two suits................ 1.40
Gloves and Mittens.................75
Linen..........................6.00
Rubbers........................50
Sundries.......................  3.00
$39.25


Girl
2 Hats, Winter best......... $1.50
Summer best........ 1.00
(last  2  yrs.)................$2.50  1.25
1 Stocking Cap   (School)...........25
2 Winter Dresses................. 4.00
2 Wash Dresses (Summer)........ 2.00
1 Coat ($4, last 2 yrs.)........... 2.00
I  Sweater....................  1.00
6 Handkerchiefs...................25
6 pairs Stockings..................50
2  pairs  M ittens....................50
3  Petticoats.......................75
Linen............................. 1.50
3 Ferris Waists...................75
Underwear
Summer, 3 suits.................60
W inter,  2  suits..................  1.00
Shoes, 2 pairs.....................   4.00
Repair of shoes (twice)........... 1.00
Rubbers...........................50
Sundries..........................   1.50
$23.35


Summary
Per Year.
M an...........................................................  $33.40
Woman..................................................    39.25
Boys    (2).....................................................  32.20
Girl.......................................................      23.35
Total...................................................    $128.20 per year.
INSURANCE
Average weekly premium, male adult...................    lc.
it     it      it     female  adult...............  lOc... "      "     child (5c. x 3).............     15c.
35c. per week —$18.20 per year.
HEALTH
M edicines.................................................50c. per  month-$6.00  per  year.
NOTE.-No doctor's fees are included in this budget, because the Social Service Workers
have based their figures on families receiving free medical treatment at Bellevue Hospital.
SUNDRIES
Per Year.
Papers and other reading matter.......................................    $5.00
Recreation............................................................   35.00
Church  dues.........................................................   10.00
Furniture,  utensils, fixtures,  etc........................................  15.00
Spending  'M oney  for  Father............................................  5.00
Miscellaneous-Soap, Washing Material, Stamps, Moving expenses, etc..       5.00
Total.........................................................  $75.00  per year.




42


Summary
Per Year.
Housing.....................................................    $168.00
Carfare......................................................    30.30
Fuel  and   Light................................................  44.11
Clothing.....................................................  128.20
Insurance.....................................................   18.20
*Health (Medicine)...........................................       6.00
Sundries.................:....................................  75.00
Food......................................................   341.536
Total.....................................................  $811.346 per year.
* This does not include fees for doctor's services.
Allowing $14.00 for doctor's fees or sick benefit organization dues:
Grand Total.................................................... $825.35 per year.


FAMILY BUDGETS SUBMITTED BY MARY KINGSBURY SIMKHOVITCH
AND THE SOCIAL WORKERS OF GREENWICH HOUSE
(1)
A group of five men and women attending Evening Class in English at Greenwich
at the present date (February, 1915) made out this budget. It should represent the amount
necessary for a family of five-father, mother and three children (under fourteen), father
an unskilled laborer. This family does not receive aid from any charitable society.
Per Month.
Rent................................................    $14.00
Food...............................................       60.00
Clothing...........................................     12.00
Fuel and light.......................................       3.75
C arfare.............................................70
House  furnishings..................................       2.00
Insurance...........................................       1.00
Medical attendance..................................        5.00
Savings.................................................
Small  luxuries...................................
Total.........................................    $98.45 - $1181.40 per year.


(2)
Father works in subway (digging, earns from $14.00 to $18.00 a week), 6 children, oldest
boy brings home $5.00 as errand boy.
Per Month.
R ent...............................................  $12.00
Food ($40-$50), average.............................    45.00
Light................................................40
Fuel................................................    4.60
C lothing...............................................
Insurance...........................................  1.00
Carfare..............................................70
Total...........................................   $63.70 -$764.40 per year.
Clothing and medical attendance depends on surplus.




43


(3)
Father, mother, and 2 children, aged 4 and 2.
Per Month.
Rent...............................................   $12.00
Food...............................................    35.00
Fuel................................................    5.00
Light...............................................    3.00
Clothes.............................................   12.00
Total...........................................   $67.00 -$804.00 per year.
Less money is spent on light and fuel in the summer. Sometimes the children are able
to collect enough wood for the fire from the buildings that are torn down in the neighborhood.
(4)
Father, mother, 7 children, aged 18, 16, 12, 10, 8, 6, 3.
Per Month.
Rent................................................  $16.00
Food...............................................    70.00
Fuel..............................................     7.00
Light..............................................    3.00
Clothes............................................  30.00
Carfare (father and son ride to and from work).....       9.00
Total...........................................  $135.00 - $1620.00 per year.
(5)
Father, mother, 4 children, aged 14, 10, 8, 6.
Per Month.
R ent................................................  $12.00
F ood...............................................   50.00
Carfare........................................     1.00
Fuel...............................................   5.00
Light...............................................    3.00
M edicine...........................................    5.00
Doctor..............................................   5.00
Clothes.............................................    15.00
Insurance...........................................   1.00
Total..........................................  $97.00 -$1164.00  per year.
Rent is paid for first, then food and insurance. Medicine and clothes come last.
(6)
Father, mother, 6 children, aged 11, 9, 7, 5, 3, 1.
Per Month.
Rent................................................  $16.00
Food...............................................    60.00
Fuel................................................    7.00
Light...............................................     3.00
Clothes.............................................  15.00
C arfare.............................................   3.00
Medicine...........................................  5.00
Doctor.............................................  5.00
Total...........................................  $114.00 -$1368.00 per year.




44
(7)
Father, mother, and 5 children, aged 18, 16, 14, 10, 7.
Per Month.
Rent...............................................  $15.00
Food...............................................    60.00
L ight..............................................   3.00
Fuel................................................    7.00
Carfare...........................................      5.00
Clothes............................................    20.00
Total.........................................    $110.00-$1320.00 per year.


TENTATIVE FAMILY BUDGETS SUBMITTED BY SOCIAL WORKERS OF
THE UNITED HEBREW CHARITIES, FOR AN UNSKILLED
LABORER'S FAMILY OF FIVE PERSONS


(1)
Per Year.
1.  Housing  (4  rooms  at $14)..............................  $168.00
2. Carfare (50 weeks at 60 cents-1 person)................     30.00
3.  Food  ($8  per  week).....................................  416.00
4. Fuel and light (3 tons coal-gas, $2 per month)..........    47.00
5.  Clothing...............................................  100.00
6.  H ealth.................................................  20.00
7.  Insurance..............................................   25.00
8.  Sundries...............................................  100.00
Total.....................................................


$906.00 per year.


Sundries classifiedPapers and other reading matter....................
R ecreation.........................................
Furniture, utensils, fixtures, etc.....................
Lodge  dues........................................
Spending money for the father......................
Miscellaneous-soap, washing material, stamps, mov

$5.00
40.00
25.00
5.00
15.00




1. Housing
2. Carfare
3. Food..
4. Fuel an
5. Clothing
6. Health 
7. Insuran~
8. Sundries


ing  expenses,  etc................................  10.00
Total...........................................  $100.00  per  year.
Submitted by R. P.
(2)
Per Year................................................  $156.00................................................  30.00.................................................   364.00
d  light........................................   40.00...............................................    100.00
(dispensary)........................................
ce  (lodge)......................................   16.00...............................................      77.00
Total.................................................   $783.00  per  year.




45


Sundries classifiedPapers and other reading matter....................
Recreation.........................................
Furniture, utensils, fixtures, etc.....................
Church   dues.......................................
Spending money for the father......................
Miscellaneous-soap, washing material, stamps, moving expenses, etc................................


$5.00
40.00
15.00
5.00
7.00


5.00


Total.........................................   $77.00 per year.
Submitted by M. Halpern, Supervisor, District No. 4, February 11, 1915.


(3)
As the sex or ages of the three children were not mentioned, it is difficult to make
even an approximate budget. It would seem that Chapin's "Governmental Budget" was
used as a basis.
I am making only a rough estimate, as such a budget would take considerable time and
should be based upon a careful investigation of a number of families of a given group.
Assuming that the ages of the children are 11, 9 and 7, and that they are girls, I have
made the following estimate:
Per Year.
1. Housing...............................................  $144.00
2.  Carfare...............................................  30.00
*3.  Food..................................................  377.00
4.  Fuel  and   light.........................................  31.00
5. Shoes and clothing (this includes 2 pairs of shoes each for
the children at $1.50, and 2 pairs each for the man and
woman at $4, excluding cost of repairs)............  100.00
6. Health................................................  20.00
7.  Insurance.......................................  25.00
8.  Sundries..............................................  51.00
Total........................................  $778.00  per  year.
Sundries classifiedPapers and other reading matter....................  $5.00
Recreation................................     26.00
Furniture, utensils, fixtures, shoe repairing..........  15.00
M iscellaneous.....................................  5.00
Total...........................................  $51.00  per  year.
*Allowing $2 per week for man; $1.50 for woman; $1.25 for each of the three children.
This is a more liberal estimate than that given by Chapin's Budget, which was made a few
years ago. I increased the amount to meet the present needs of higher cost of living.
Submitted by Anna Fox.
(4)
Annual Budget for Family of Five.
$840 per annum.
$16 per week.
I would consider the above adequate for a decent standard, presupposing that the wife
was thrifty and a good manager.
For a rental of $14 per month, three to four sanitary rooms could be had in a desirable
neighborhood.




46


I might apportion the income somewhat differently, as I do not think that five people
can be decently clothed on $100 a year, unless the mother can make the children's clothing,
nor do I think that $15 would supply household articles required for a year, allowing for
wear and tear.
Submitted by D. B. VW.
FAMILY BUDGET SUBMITTED BY LILLIAN D. WALD, AND THE SOCIAL
WORKERS OF THE HENRY STREET SETTLEMENT
(1)
Family-Father, mother, 3 girls, oldest 10 years, 1 baby. Father earns $15 per week.
$60 per month.
Per month.
R ent................................................  $15.50
FoodMilk...................................  $5.60
Butter.................................   1.80
Groceries and vegetables................  8.00
Fruit..................................   1.00
Total...................................  16.40
Insurance.........................................80
Smoking and papers................................      2.00
Husband's parents.................................      4.00
Clothes............................................    9.00
Total..........................................   $47.70 -$572.40 per year.
Not included-health, carfare, fuel and light.
(2)
Family-man, wife and 3 children.
Three light rooms, five windows.
Husband-Cloak 'Worker-$12 per week-$624 per year.
Per week.
R ent..............................................   $4.13
Gas................................................50
Furniture insurance.................................07
Fuel...............................................75
Food..............................................     5.00
Total..........................................  $10.45  - $543.40 per year.
The remainder is spent for clothes and incidentals.
Not included-insurance, health, carfare.
(3)
Family-Father, mother, 8 children, 2 working.
Monthly income................. $60.00
Charity monthly income..........   22.60
Total.................................... $82.60 per month.




47


Per month.
Rent.............................................   $15.00
Food.............................................    38.00
Heat..............................................     7.00
Clothing...........................................   8.00
Carfares...........................................    12.00
Miscellaneous......................................    2.60
Total..........................................   $82.60 -$991.20 per year.
Not included-insurance, health.
(4)
Family-Father, mother and 3 children.
Cloak Sewer-income, $15 per week.
Three light rooms, 4 windows.
Per week.
Rent...............................................   $3.75
Food..............................................     8.75
Coal................................................   1.00
Gas.................................................38
Furniture insurance.................................08
C lothes............................................   1.00
Total..........................................   $14.96 -$777.92 per year.
Not included-insurance, health, carfare.
(5)
Family-Father, mother and 3 children.
Three dark rooms, no windows, one airshaft.
Earns per week, $13.
Per week.
Rent...............................................    $2.38
Gas................................................62
Food..............................................     8.00
Insurance   for  2   children.............................20
To    m other..........................................50
Incidentals  and   clothing..................<..........  1.30 
Total..........................................    $13.00 -$676.00 per year.
Not included-fuel, carfare, health.
(6)
Family (Italian)-Father, mother, 3 boys and 1 girl.
Father, Tailor, earns about $15 per week.
Per month.
Rent.............................................   $13.50
G as................................................   2.50
F uel...............................................   1.25
Food............................................      36.00
Clothes...........................................    8.50
Insurance..........................................    1.00
Amusements.......................................     1.00
Carfare...........................................    2.40
Total.........................................   $66.15   - $793.80  per  year.




48
Occasionally makes a suit at home, earning extra money.
During 10 weeks' busy season makes $25 per week.
Yearly income, $880.
Not included-health.
(7)
Family-Father, mother, 4 children, 10, 8, 5, 3 years old.
Two rooms.
Mother earns $10 a week cleaning, etc.
Father, disabled, earns $2 a week.
Per month.
Rent..............................................  $8.00
Food..............................................   35.00
H eat  and  light......................................  1.00
Clothing..........................................  2.50
Health...........................................50
Insurance..........................................   2.40
Miscellaneous......................................    3.00
Total......................................  $52.40 -$628.80 per year.
A good deal of clothing is given to this family.
(8)
Family-Father, mother, 4 children, 18, 14, 9, 7 years old.
Income:
Father, capmaker................  $4.50 weekly.
Oldest daughter................    8.00    "
Son (scholarship)...............   3.00    "
Total........................... $15.50   "   -$62.00 monthly.
Per month.
Rent  (3  rooms)....................................  $10.00
Food........................................    41.87
H eat  and  light......................................80
Carfare............................................   1.05
Health............................................50
Insurance..........................................   1.10
Clothing..........................................  8.23
Total....................................  $63.55 -$762.60 per year.
(Approximate estimates.)
Father's income irregular.
Family living on the east side.
(9)
Family-Mother and two children.
Son, 22; daughter, 16.
Mother's earnings irregular, day's work.
Son earns $10 to $15 a week as Truck Driver.
Daughter earns $5 (clerical work) when at work.
Four rooms, in Hoboken.




49


Per month.
Rent.............................................    $13.00
Food............................................      35.00
H eat  and  light......................................  2.00
Clothing...........................................     6.00
Carfares...........................................     2.00
Health........................................         5.00
Insurance..........................................     4.30
Miscellaneous......................................    2.50
Total.....................................    $69.80 -$837.60 per year.


CONCLUSIONS OF TWO ECONOMISTS CONCERNING THE MINIMUM
EXPENDITURE OF A TYPICAL UNSKILLED LABORER'S
FAMILY OF FIVE PERSONS IN NEW YORK CITY
Professor HOWARD B. WOOLSTON, College of the City of New York, Member of State Factory
Investigating Commission.
"A single man requires at least $1 per day to live in New York City. Upon marriage
this budget of $365 is necessarily increased l)y $200. With every child $100 should be added."
He states this merely as a general opinion. By applying it to our typical family of
husband, wife and three children, this minimum budget would amount to $865.
Professor WALTER E. CLARK, Head of the Economics Department, College of the City of
New York.
"$8'00 is the minimum  upon which a family of five persons (three children under 14
years) can maintain a decent standard of living in New York City. To provide for any
legitimate luxuries, or careful savings, $1,000 per year would be absolutely necessary."
BUDGET SUBMITTED BY BUREAU OF SOCIAL INVESTIGATIONS,
DEPARTMENT OF PUBLIC CHARITIES
The following budget was submitted by Mr. A. P. Thorne of the Department of Public
Charities, Bureau of Social Investigations, as showing the average cost of living of one
hundred laborers' families in New York City:
Per week.
Rent..............................................    $3.654
Food..............................................     6.474
Light...............................................628
Fuel.........................................752
Carfare.............................................625
Insurance.........................................344
Medicine...........................................402
Clothes............................................942
Furniture...........................................204
Sundries............................................643
Total..................................   $14.668 per week.
Total  per  year..........................  $762.74






50
APPENDIX E
The following table is a summary of the family budgets obtained from members of
the uniformed force of the Street Cleaning Department. While the amounts apportioned to
the various expenditure groups cannot be considered accurate, -nevertheless in most cases
they show the results of an honest attempt on the part of unskilled laborers and their wives
to estimate their annual expenditures. It will be noted in several cases that expenditures do
not check against income. In this connection it is well to remember that the average person
without family responsibilities would find it difficult to estimate his or her expenditures
within ten per cent. of the correct total.




The following table gives in summarized form data obtained by interviews and letters from members of the New York Street Cleaning
Force, concerning their living expenses. The men were selected after consideration of the cards in the Pension Commission. In general men
of various nationalities with families of five (3 children under 14 years) were interviewed.
Tota I           Light                                          House Medical
No.      Title of    Salary*   Other    Total    Expend-   Rent     and    Food    Car-    Cloth-  Insur- Amuse- Fur-    AttenPosition             Income   Income     iture            Heat             fare    ing     ance   ments nishings  tion
1  Sweeper........ $756 60           $756 60 [1[,158 96 $192 00 $50 00 $520 00 $15 15.  220 87 $69 24  $6 00 $32 70 $53 00
2  Sweeper........ 756 60 $416 00    1,172 60  1,173 95  132 00  48 30   428 48  56 30   388 37  14 00   25 50  51 00   30 00
3   Sweeper........ 756 60   132 00   888 60    886 73   264 00  34 50   340 08  10 40   204 65..........  13 10   20 00
4   Sweeper........ 756 60......   756 60    966 58   144 00  45 48   456 00  18 20   146 90  51 00    2 00  10 00   15 00
5  Sweeper........ 756 60......   756 60    945 79   174 00  27 00  429 00   46 80   224 99  12 00 ].....  12 00  20 00
6  Sweeper........ 756 60    360 00  1.116 60   976 28   144 00  52 00  416 00   31 20   231 08.....  12 00  50 00   40 00
7  Sweeper........ 756 60             756 60   1,067 95  1441 00  44 75- 546 00  30 30   245 50  32 40          15 00   10 00
8  Sweeper........ 756 60     95 00   851 60    934 35  200 00   58 27  479 96   15 60   120 72  27 60    2 00  16 45   13 75
9   Sweeper........ 756 60......   756 60   1,075 80  156 00 104 25   468 00  15 60   223 55  46 00   10 40  25 00   27 00
10  Driver......... 7    00            776 00    855 58   156 00  63 80  463 84   15 60   120 14  33 20..........   3 00
11  Driver......... 776 00......   7 776 00  1,210 60  190 00  50 00  488 80  62 40   317 00  22 40   10 00  50 00   20 00
12  Driver......... 791 52    160 00   951 52   1,108 20  162 00  77 30  546 00.....244 10     73 80..      5 00.....
13  Driver....  776 00......  776 00  797 96   156 00  42 96  403 00.....    85 00  49 00   12 00  25 00   25 00
14  Driver......... 791 52......   791 52   1,022 77  126 00  40 80  502 70   45 90   233 37   8 00   21 00  15 00   30 00
15  Driver......... 814 80......   814 80   1,150 35  204 00  66 30  520 00    2 40   22 25   41 00.....  11 40   75 00
16  Driver......... 791 52......   791 52   1,042 45  180 00  43 90   520 00.....   233 55  12 00.....  30 00   23 00
17  Driver........ 814 80......   814 80   1,171 40  180 00  84 90   587 60          250 90  19 00          4000     900
18  Driver......... 776 00......   776 00   1,176 72  180 00  75 40   616 06  30 30   183 96  35 80    2 00  10 00   25 00
19  Stableman...... 756 60......   756 60    892 60   120 00  40 00   442 00  36 40   160 30  36 40   20 00  22 50   15 00
20  Asst. Stable
Foreman.... 907 92      75 00    982 92    994 84  228 00   29 80  438 36   67 60  137 00   77 08   5 00   10 00   2 00
Averages....... $779 II* $206 00  $841 01  $1,030 94 $171 60 $53 985 $480 594$31 26 $210 06 $36 66 $10 66 $23 376 $23 46
*The pension premium of 3 per cent. has been deducted. Thus these amounts represent the actual unencumbered salary.


Ui






52


APPENDIX F
Excerpts From an Official Report on the Salaries of Municipal Officials of
the City of Frankfort on the Main
This appendix contains a quotation from an official report outlining the method of
determining salaries, wages and perquisites of municipal officials in Frankfort on the
Main, Germany. It has a bearing on the foregoing report only in that it depicts an advanced
method of basing the salary of an official on the normal cost of maintaining an efficient
standard of living for his family. The German plan is to allow an official a certain
amount for his family living expenses, either by providing the necessary commodity or
its money equivalent. This amount varies according to the number of persons below 18 years
of age who are dependent upon the wage earner.
The positions in this German report are not unskilled labor positions, nor are the
figures in this report quoted for the purpose of comparison with the salaries of officials
in New York City. It is difficult to estimate the value of a mark in Frankfort in terms
of cents in New York City. The following quotations therefore merely illustrate the principle of considering family obligations in fixing salaries.
The salaries of municipal officials, with the exception of positions for which special
provisions were issued by the municipal authorities, are arranged according to the following
schedule:
Rate in Marks      1       2       3       4        5       6       7       8
Grade la........  6000    6600     7200    7800    8400    9000
Grade I..........  5500   5400     5800    6200    6600    6900     7200
Grade IIa........ 4700     5100     5500    5900    6200    6500     6800
Grade II......... 4300    4700     5100    5500    5800    6100     6400...
Grade ilia......  3400    3700     4000    4300    4600    4800     5000    5200
Grade III........  2700   3000     3300    3600    3900    4200     4500    4800
Grade IV.........  2100    2400     2700    3000    3250    3500     3750    4000
Grade V..........  2000    2150     2300    2450    2600    2750     2900    3000
Grade VI......    1800    1900     2000    2100    2200    2300     2350    2400
Grade VII........  1500   1600     1700    1800    1850    1900     1950    2000
Officials in Grades IIIa, III, IV, V, VI and VII receive, in addition to their salary,
an extra allowance for rent, which is graduated as follows:
80 Marks for families with one or two children.
140 Marks for families with three or four children.
200 Marks for families with more than four children.
Only children not exceeding the age of 18 years are taken into consideration.
Provisions with Regard to Allowance for Rent
A-I. The allowance for rent is calculated in accordance with the number of an official's
legitimate children under 18 years of age and living in the same household with their parents.
Adopted children are considered equally. Upon application, children under 18 years of age
are considered in the calculation of the rent allowance who do not live in the same household
with their parents but are supported by the father. A special commission decides whether
or not sufficient proof of such support by the father has been furnished.
II. The rent allowance is paid at the same time as the salary. It is paid as long as
the salary or a portion thereof (in case of suspension from office) is paid.
III. The number of children under 18 years of age an official has on January 31st is
taken as basis for calculation of the rent allowance. The amount thus calculated is paid
during the entire following fiscal year. Changes of any nature occurring during the fiscal
year, that is between February 1st and January 31st, are taken into consideration only from
the beginning of the next following fiscal year.




53


Newly appointed officials who have already drawn an allowance for rent in their
previous municipal positions continue to draw it without change until circumstances
necessitate an increase or reduction of the rent allowance.
When an official is promoted to a position in Grade II, the payment of the rent allowance is discontinued with the end of the quarter (of the year) during which the official
was promoted. Should the promotion fall on the first day of a quarter (of the year) the
payment of the rent allowance is discontinued with the last day of the quarter (of the
year) which just elapsed. The rent allowance, however, is paid as long as the salary of the
second or any higher grade is not at least equivalent to the income (salary plus rent
allowance) of the official's previous grade.
IV. Officials for whom an official residence is provided or who are furnished with
lodgings (the rent value of which is determined in the same way as the rent value of an
official residence), or who are already drawing some kind of a rent allowance, are not paid
any of the above rent allowances. In case, however, the rent allowance paid to an official
should be lower than any of the rates mentioned, under I, then one of the rates mentioned
in paragraph I is to be paid.
B-I. The rent allowances to be paid are calculated on the basis of rent allowance
sheets which have to be kept for all officials and employes. On February 1st or on the next
following working day these sheets have to be handed to the officials; the latter must enter
all their children under 18 years of age, who, up to January 31st inclusive, were living in
the same household with their parents. Also the entries made the previous year must be
supplemented, corrected, etc., with regard to births, deaths, and completion of 18 years of
age by the children, or their leaving the household of their parents, during the last fiscal
year. On February 3d, at latest, these sheets must be returned to the official in charge of
calculating the rent allowances. This official must examine these sheets an d in case of doubt
or suspicion he can demand that certificates from the birth or death registrar's office be
produced as evidence.
Allowances in the Paid Fire Department
Salaries of the Officers of the Paid Fire Department
Branddirector................................. Chief.
Brandmeister.................................. Deputy  Chief.
Verwalter..................................... Head  of  Supply  Division.
Feldwebel.....................................Captain.
Oberfeuerwehrmann........................... Lieutenant.
G efreiter....................................... Sergeant.
Feuerwehrmann.............................. Fireman.
Spritzenmann.................................. Hoseman.
The rates of salaries are as follows:
One Chief-6000, 6600, 7200, 7800, 8400, 9000 marks.
Three deputy chiefs-3400, 3700, 4000, 4300, 4600, 4800, 5000, 5200 marks.
One head of the Supply Department-2700, 3000, 3300, 3600, 3900, 4200, 4500, 4800
marks.
Five Captains-2400, 2650, 2900, 3150, 3400, 3600 marks.
Allowance for Clothing
The allowance for clothing including the indemnity for clothing damaged at fires is
rated as follows:
300 marks per annum to the Chief and the Deputy Chiefs.
250 marks per annum to the head of the Supply Department.
200 marks per annum to each of the Lieutenants.




.54


Allowance in Lieu of Official Residence, Light and Fuel
Allowance in lieu of official residence (Dienstwohnung):
750 marks per annum to the Chief.
360 marks per annum to Deputy Chiefs and the Head of the Supply Division.
200 marks per annum to Captains.
Allowance in lieu of light and fuel:
260 marks per annum to the Chief.
180 marks per annum to Deputy Chiefs and the Head of the Supply Division.
80 marks per annum to Captains.
No one has a legal claim to an official residence; the use of an official residence is
granted in accordance with the provisions governing allowances for official residence.
Allowance for Renlt
Allowance for rent is granted in accordance with the provisions regulating allowances
for rent for municipal officials.
Salaries of the Rank and File of the Fire Departnmett
1 Hoseman-1300 marks per annum.
After one year of training the hoseman can, provided his ability and conduct
are satisfactory, be promoted to the grade of a fireman.
2 Fireman-1400, 1500, 1600, 1700 marks per annum.
In case of good conduct the fireman can be advanced every three years to the
above higher rates; there is no legal claim, however, to such advancement.
3 Sergeant-1750 marks.
4 Lieutenant-1850, 2000, 2150, 2300 marks.
Advancement the same as for firemen.
The promotion to the grade of Lieutenant takes place only in case of a vacancy and
on the basis of an examination. Special regulations are in force regulating the supplying of
clothing free of charge..Allouwance for Rent
The allowance for rent, which is not included in the pension, is graduated as follows:
5 marks per month to families with one or two children.
10 marks per month to families with three or four children.
15 marks per month to families with five or more children under sixteen years
of age.
No rent allowance is paid to those who occupy official residences or lodgings, the rent
value of which is determined in the same way as the rent value of an official residence.




55


APPENDIX G
Letters and Budget Forms Used in Obtaining Supporting Data
GENERAL LETTER SENT TO AUTHORITIES, CHARITABLE SOCIETIES,
ETC.
SIR:
In preparing a report on standardization of salaries and wages of City employees, the
Bureau of Standards is at present making a study of wages of unskilled laborers in order
to recommend to the Board of Estimate just rates of pay for various kinds of unskilled
work. We are endeavoring to go as thoroughly as possible into this question. At the same
time we do not wish to become involved in debatable problems of economic theory.
We have already collected information regarding rates paid to the various kinds of
unskilled laborers in city and private employment. Having ascertained the prevailing rates,
we now wish to consider the question of the minimum wage necessary for a decent living.
The difference between the prevailing rates and the proper minimum salary would represent
the desire of the City to be a model employer.
Will you send us any information which you may have or reference to any information
which you may know of regarding a minimum wage for laborers in different parts of the
City of New York? This information, so far as possible, should be in the form of budgets
showing exactly how much money is set aside for rent, food, clothing, fuel and light, carfare, house furnishings, medical attendance, saving or insurance, small luxuries, etc. Pertinent facts regarding the class, nationality and character of laborers and the number and
ages of children, etc., will be essential in the interpretation of these budgets. The standard
of living set up by the City will, of course, be that of an American citizen, and not that of
a foreigner employed under the padrone system who has just landed without a family and
who has not adapted himself to American life.
We realize that the time and thought you have given to questions of this kind will be
of considerable assistance to us.
Very truly yours,
Director.
LETTER AND BUDGET SENT TO EMPLOYES IN THE DEPARTMENT OF
STREET CLEANING
DEAR SIR:
You were kind enough to give us certain facts as to your living expenses when you
were interviewed last Wednesday. At that time you were not sure of some of the amounts
which you spent and so we are sending you the enclosed blank. We wish you and your
wife to go over this blank carefully, and to fill in the exact expenditure for each item
listed.
Be as sure as you can of your statements. The report being prepared by the Bureau
of Standards may be of considerable advantage to the Street Cleaning Department. If
your statements are found to be incorrect or exaggerated, they will not be used. See that
you have put down carefully and accurately your average expenses.
If your expenses amount to more than your salary, this must be explained.
Please return these papers with comments in the enclosed envelope.
Very truly yours,
Director.
STREET CLEANER'S BUDGET.
N am e.........................................  D ate.................................
Address.........R r.......................   Remarks..............................
P osition............................................................................
Country  of  birth.....................................................................
Children............................................................................
Sex...   *..........  Age............




56


ACTUAL EXPENDITURES.
(State whether week, month or year.)
Rent-(State number of rooms)...........................................
Fuel and Light:
Winter.
Gas...............................................................
Coal..................................................................
W ood...............................................................
K erosene..............................................................
Sulmmner.
G as...................................................................
Coal..................................................................
W ood................................................................
K erosene..............................................................
Food-Give details. Kinds, amount and cost of food actually used during the
week beginning Thursday morning, February 25, and ending Wednesday
night,  M arch   3d...............................................................................................................................
Carfare to Work-State average per day)....................................
Other Carfare-(State average per week).....................................
YEARLY.
Adults.


Amount.
*..-.... 


Clothing:
No.          Husband.
C aps........................
Suit........................
Overcoat....................
Pair  Pants..................
Work Shirts................
W hite  Shirt.................
Collars......................
Pair Overalls................
Ties.........................
Pair  Hose...................
Pair  Shoes..................
Repair of Shoes..............
Summer Underwear Suits...
Winter Underwear Suits......
Cloth for Nightgown.........
Gloves and Mittens...........
Handkerchiefs...............
Sundries....................


No............................................*....
* -..................................


Wife.
H ats........................
Coat........................
Suit.........................
W aists......................
Wash Dresses...............
Petticoats....................
A prons.....................
Handkerchiefs...............
Pair Stockings..............
Pair  Shoes..................
Repair of Shoes..............
Summer Underwear Suits...
Winter Underwear Suits.....
Gloves and Mittens..........
Rubbers.....................
Linen and Sundries..........................................................................e......... -..................  Xe 


Total................


Total......................




57


No.            Boy.
Caps.....................
W inter  Suit..............
Summer Suit.............
Overcoat.................
Pairs Stockings..........
Waists (Material)........
Summer Underwear Suits..
Winter Underwear Suits..
Pair  Shoes...............
Repair of Shoes...........
M ittens..................
Handkerchiefs............
Sundries.................


Children.
No.          Girl.
Hats, Winter...........
Stocking Cap (School).
Coat...................
Winter Dresses (Material).................
Summer Dresses (Material).................
Sweater................
Handkerchiefs..........
Pairs Stockings.........
Pairs Mittens..........
Petticoats..............
Ferris Waists..........
Summer Underwear Suits
Winter Underwear Suits.
Pairs Shoes............
Repair of Shoes.........
Rubbers................
Sundries...............


Boy or Girl...................


Total............


Total.......................


Total  amount  for  family.........................................
Insurance-(State number and kinds of policies):
Life...................................................................
F ire..................................................................
L odge.................................................................
Amusements-(Give details):
Trips to parks, Coney Island, moving pictures, theatres, ball games, etc.
House Furnishings:
New dishes and kitchenware bought during the year....................
Repairs to house.....................................................................
General maintenance.....................................................................
B rooms...................................................................
Medical Attention-(State average amount of sickness)'
D octors'  fees.............................................................
Medicines....................................................................
Total  Expenditures..............................................


Amount.
*.......................~


SOURCES OF INCOME.
Husband's Salary................................................................
Other Income...................................................................
Total.............................................,*'






M. B. BROWN PRINTING & BINDING CO..
37-41 Chanlbers Street. N. Y.




q I








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