The possibilities of larger work suggested by these figures are obvious. But even greater increase in inspection work can be realized than is thus indicated. It has been frequently pointed out and has been a point of criticism of the Department, that too much of the time of inspection has been consumed in clerical work. Steps have already been taken to change this and it is believed that much can be done in the direction of reducing clerical work for inspectors to a minimum absolutely necessary for administrative purposes, with resultant increase of time available for actual inspection work. But it must never be forgotten that quantity of inspection is not the only desideratum. On the contrary, quality is even more important. This has always been true, but is to be even more so under the new system of legislative regulation. With the establishment of regulations in far greater detail under the numerous new laws of last year, and especially with continuous increase of new and more careful regulations by the Industrial Board, the responsibility and intelligence necessarily required of the inspector are proportionally increased. Quality of inspection work must keep pace with the developments in legislation if a balanced growth in this field is to be realized.

INDUSTRIAL DISPUTES.

It

In connection with the old yet ever new problems growing out of the relations of employers and employees, this Department has most important duties and opportunities. In the nature of the case, and as the law stands, what shall be done in this field depends mainly upon the policy of the Commissioner of Labor. The Department may intervene at any time for purposes of conciliation, and it may publicly investigate any dispute at any time. can do nothing through arbitration except as parties in dispute agree that it shall, but outside of that its activities in the line of friendly reasoning or investigation on behalf of the public depend upon the policy of the Department. It is very much in order, therefore, for a new Commissioner to indicate his policy in this regard.

First, as to the subject of conciliation, it almost goes without saying that there should be the largest possible application of the principle. Such mediation involves no question of interference

with the parties and represents only friendly action to save to all concerned the expense and bitterness of strife. Its success depends, of course, entirely upon the initiative, intelligence and tact of the mediator. Under the plain terms of the law it is the very least that can be done to work unceasingly along this line. Of greater moment, however, than the work of voluntary conciliation, is the question of public investigation of disputes. The fundamental reasons for such investigations are two. It is frequently the case that disputants who can not be influenced by individual mediators are brought to reason by being called upon to give public explanation of their acts, so that such investigation is effective to bring the parties together and to clear the atmosphere between them. But in the second place, there is ground for such investigation in the concern of the public. It may grow either out of the fact that the public as consumer is directly affected by the dispute, or out of the concern of the public that justice shall be done between the parties. In either case this public interest may be the legitimate reason for public investigation. In my opinion, where the community in either way is affected, the Department should not hesitate to publicly investigate. There need be no raising of the question of compulsory arbitration, for there is no compulsion in such investigation other than that of publicity which no just cause need fear, and which no cause ought to be permitted to escape. It is on the program of this administration, therefore, to make freer use of this power of public investigation, whenever the public interest seems to warrant. This power has been but little used in the past in this State, but the experience we have, and especially experience elsewhere, indicates that this is in line with modern progress. Larger use of the power to make public investigation may occasion some increase in departmental expenses, but such increase will not be of large proportion and will certainly be justified in view of the importance of the work.

ADMINISTRATIVE MEASURES.

With an increase of force in the entire Department to a total of 343 persons and a Departmental budget of more than $700,000, it is plain that the proper handling of business, or plain business

efficiency, entirely aside from technical work, becomes a larger and more complicated problem and demands more careful attention. The proper auditing and recording of expenditures; promptness and economy in purchasing of supplies; expedition, accuracy and economy in the handling of printing and distribution of publications; these and other similar matters require overhauling and rearrangement to fit the more exacting requirements of the larger Department.

Steps have already been taken on all these matters and they are to be further worked out. A new plan of handling purchases and of bookkeeping has been devised and will shortly be put in operation. The fundamental idea in this plan is the requisitioning of all supplies by each Bureau or Division through a central auditing and recording officer, coupled with a system of bookkeeping which will record expenditures both by classes and by bureaus and divisions. This suggests what may also be developed, namely, the budgeting of appropriations for the Department by bureaus and divisions, instead of en masse for the Department as a whole as at present. This is the practice in other large Departments of the State government and may be followed here.

In addition to systematization in the purchasing of supplies, and bookkeeping, there is to be similar centralization in the handling of printing. This has, heretofore, been done, aside from Department publications, in the different Bureaus or Divisions. It is now to be centralized in the Division of Printing and Publications of the Bureau of Statistics and Information. Similarly also the growing business connected with the distribution of publications is to be centralized and systematized.

In connection with this subject of business organization, it is entirely possible that some rearrangement of Department organization may be desirable. The definite establishment of an administrative division, entirely separate from the several technical divisions, seems to be a logical necessity. In the reorganization of last year, this side of the work was overlooked in the concentration of attention upon matters connected with inspection work and the Industrial Board. An administrative division practically exists now without formal establishment by law. But one

logical part of such a division is now by law left in the Bureau of Statistics and Information, namely, the Division of Printing and Publication, which is really a central division serving all the Department in the handling of printing and distribution of publications and supplies. The general principle of centralization of all matters of common business among the several technical bureaus and divisions, which clearly makes for economy both in such common business and in bureau or divisional work, point to the administrative division as the logical place for the Division of Printing and Publications. It is true, of course, that the Bureau of Statistics and Information is logically in charge of the publication work of the Department, but the line of division between its proper work, and the work which would naturally belong to an administrative division is that which clearly lies between editorial work and practical printing. It may be added that what has been said with reference to this subject will be found to follow good practice in matters of organization in other departments in this State and elsewhere as well as in private business organizations.

Another matter of administration on which there should be revision of practice is the matter of Departmental rules as to allowances for traveling expenses of officials required to travel on Department work. Certain requirements on these matters are laid down by the State Comptroller, but within these limits the Department itself should establish rules for the several classes of employees designed to insure uniformity in practice, fair treatment and conservation of the taxpayers as well as the officials' interests.

The matter of office hours, vacation allowances and definite rules of responsibility as to discipline are other matters which, with the growth of the Department, just as with the growth of any other business undertaking, must have new attention and careful overhauling.

Attention is being given to the adoption of the best mechanical equipment for the work to be done. So far as it can be seen that economy or efficiency can thereby be advanced, the Department is to have the best of modern appliances to facilitate its work which its enlarged resources will permit.

EDUCATIONAL WORK.

A reading of the reorganization law in the light of the discussion in connection with the framing of that act reveals a distinct intent that the Department should become a larger educational agent. At any rate, such a growth is most clearly in accord with the spirit of the times and developments elsewhere, and is un- . hesitatingly announced as the policy of this administration.

Enlarged resources for the Bureau of Statistics and Information, whose work is especially along these lines, have already opened the way for development in this direction. As a first step in such development, the form of publication has been entirely changed. Hereafter the plan is to issue matter on individual subjects separately in as direct, clear and readable form as possible consistent with accuracy and completeness of information. In other words, special bulletins on special subjects will be the model, in place of periodical publications covering various subjects. This is in line with the best practice elsewhere, and is calculated to produce more effective, more interesting and economical publication and distribution of information.

It is well to remember in this connection that enlargement of publication work is directly dependent upon appropriations there for. A considerable increase in printing appropriation has been made, but in considering this matter one point is to be emphasized. Heretofore there has been available for publication in the Departmental appropriations only a comparatively small sum. Much of the greater part of the published matter has been confined to annual reports paid for by the Legislature. The change in the plan of publication above noted will tend to reduce the cost of annual reports and increase the cost of Department publications. The significance of this is twofold; first, it emphasizes the need of a sufficient Departmental printing fund, and second, it indicates that this can be accomplished in part at least by simple transfer of funds from the Legislative printing appropriation. without increase in the total cost of printing to the State. more than improvement in matters of form is possible in connection with the Department's educational work. It is proposed to lay greater stress on furnishing to employers and employees

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