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PUBLIC BUILDINGS.

During the period covered by this report considerable difficulty has been experienced in placing public buildings under contract and in getting buildings already under contract completed with ordinary expedition. At the beginning of the fiscal year 1917 the market for material and labor was already abnormally high, and throughout the entire period covered by this report there was a constant upward tendency in the market. Freight embargoes in various sections and car shortages were of annoying frequency. Congestion of orders at points of production of certain classes of materials was encountered, and contractors reported great difficulty in placing orders which involved definite dates for deliveries. Notwithstanding these and other conditions, the progress made by the Supervising Architect's Office in its building program was very satisfactory. The output of that office for the period covered by this report was:

Buildings completed

Extensions and remodeling projects completed__.

Buildings placed under contract__

Extension and remodeling projects placed under contract__

63

5

68

76

7

83

The foregoing shows that buildings were completed at the average rate of one every five and one-third calendar days, approximately, and that buildings were placed under contract at the average rate, approximately, of one every four and one-third days.

At the time the omnibus public-building act of March 4, 1913, became a law the accumulated authorizations of buildings under previous acts had not been disposed of, and months elapsed before they could be given attention. Meanwhile, in a number of cases, changed local conditions made further legislative action necessary, while the market on which limits of cost had been based had become abnormally high.

Except for a rigid adherence to the classification of public buildings promulgated under date of June 29, 1915, and the practice of a degree of economy in designing buildings not previously observed in general, it would not have been possible to meet the rising market and get under contract many of the buildings on which operations were begun.

Standardization.

In the report for the fiscal year ended June 30, 1916, reference was made to the fact that a type of building for a post office had been designed which, with modifications to meet local conditions, could be utilized in over 30 communities in which the general conditions and space requirements were substantially similar.

During the period covered by this report proposals were solicited for the construction of the buildings referred to in the preceding paragraph, with the result that 27 were placed under contract. Other types have also been designed to provide for different conditions and space requirements, and are being utilized likewise, from time to time, when appropriate.

The feasibility has thus been demonstrated, where conditions are similar, of adopting standardized plans within certain limitations. It does not follow, however, because a particular type of building may meet the requirements of a number of communities that the cost of constructing such type of building will be the same in each of those communities. Costs of construction vary considerably according to location, and are affected by many considerations, even in times when there is a normal material and labor market. The range in the cost of construction of the 27 buildings above referred to was from $38,000 to $57,000. This variation in cost was due, in part, to abnormal market conditions and in part to the widely separated sections in which the buildings were constructed, and affords no criterion by which to determine comparative costs of construction under normal conditions.

Interior Department building.

The Interior Department office building on the square bounded by Eighteenth, Nineteenth, F, and G Streets was so nearly completed during the year as to permit of its occupancy. This building has a floor area of approximately 18 acres, and was constructed with creditable rapidity.

New Patent Office building.

In the report for the fiscal year ended June 30, 1916, it was stated that no action had been taken to prepare plans authorized by the act of March 4, 1913, for a new Patent Office building, the amount appropriated for such work being insufficient. The status of this matter is unchanged. The department will proceed with the preparation of these plans as soon as the necessary appropriation of $10.000 is provided.

National archives building.

No change has taken place with respect to the status of the proposed National archives building since the date of the last report. Whenever the necessary additional legislation is enacted, and the plans submitted to the commission created by law are approved, this department will proceed with this very necessary project.

13034°-FI 1917- 4

Additional legislation.

I desire to invite especial attention to a recommendation contained in my report for the fiscal year ended June 30, 1915, as follows:

Much delay and embarrassment are caused by indefinite and incomplete legislation with reference to the character of buildings authorized by Congress. It frequently occurs that a building will be described merely as a "post office " in localities where there are other Federal departments requiring office space. Under the present statutes and decisions of the Attorney General, the Secretary of the Treasury has no authority to provide space in any new building for branches other than the Postal Service where the legislation directs the construction of a post office only. This situation frequently leads to the erection of buildings which might at the outset and within the limit of cost be constructed so as to provide ample room for all Government offices in that locality, but which, because of the phraseology of the legislation, are constructed merely for a post office and soon have to be remodeled and enlarged at considerable unnecessary cost to the Government. I strongly urge that the Secretary of the Treasury be given authority in such cases and within the limit of cost to construct buildings of a size and character to accommodate all Federal departments which, upon careful investigation, may be found to require space in the town where the building is to be erected.

COAST GUARD.

Coincident with the declaration by the President, April 6, 1917, that a state of war existed with the German Empire, the Coast Guard passed from the jurisdiction of this department to the Navy Department, to be operated thereunder as a part of the Naval Establishment in the national defense. This transfer was provided for in terms by the act of January 28, 1915, which created the Coast Guard and made it a part of the military forces of the United States. The expeditious manner in which the Coast Guard, with its force of trained officers and men and its various units heretofore employed for humanitarian purposes, was merged into the activities of the Navy, unquestionably proves the wisdom of Congress in the enactment of this legislation. I am confident that this humanitarian branch of the Government will prove its effectiveness in war as it has proved its great usefulness in peace.

Ice patrol to promote safety at sea.

Preparations were begun to resume the international ice-observation and ice-patrol service in the north Atlantic in accordance with the terms of the international convention for safety at sea, and the Seneca was fitted out for this duty. Before the time set for her departure, however, the international situation was becoming acute and her orders were rescinded and all further preparations for the patrol indefinitely postponed.

New ships.

It is gratifying to note that the Congress has made provision for the additional vessels for the Coast Guard which were recommended in my last annual report. Although designs were prepared for these vessels and bids for their construction invited, none was received within the limits of authorized cost. It is expected that satisfactory arrangements for their construction will be made at a later date when the shipyards of the country are not so congested with work.

Coastal communication.

Rapid progress has been made in improving and extending the coastal-communication service of the Coast Guard, as recommended by the interdepartmental board created by Executive order to consider the subject. This is a most important governmental activity both for the national defense and for the saving of life and property along our coasts.

Aviation.

The development of aviation facilities for the Coast Guard to be used both for humanitarian purposes and the national defense has been delayed because funds have not been provided for the physical equipment. Progress is being made in the training of the authorized personnel, and it is hoped that after the war the necessary funds will be provided for stations and equipment.

Patrol of the St. Marys River, Mich.

Attention is invited to the report of the captain commandant setting forth the urgent need of a site on the water front at Sault Ste. Marie, Mich., for use as a base for the operations of the vessels of the Coast Guard engaged in regulating the enormous water-borne traffic that passes through the system of locks and waterways of the St. Marys River. This system is about 60 miles long and includes approximately 45 miles of dredged channels. There are three locks on the American side, one on the Canadian side at Sault Ste. Marie, and the fourth American lock is under construction. This patrol is maintained to prevent congestion, reduce danger of collision and other marine casualty, and protect the dredged channels from blockades and unnecessary erosion, and it is highly essential that all necessary facilities be provided for maintaining an efficient patrol. I fully concur in the commandant's request for the moderate sum required and earnestly recommend that legislation be enacted at the forthcoming session which will permit a suitable water-front site to be purchased and properly equipped for the use of the Coast Guard.

Clerical force.

The clerical force authorized for the administrative office of the Coast Guard has been barely sufficient at any time in recent years to transact the business with due dispatch. At the present time the force is wholly inadequate. I earnestly concur in the recommendation of the captain commandant that additional clerical assistance be provided in the ensuing appropriations.

RETIREMENT OF CIVIL-SERVICE EMPLOYEES.

In my last annual report I submitted recommendation for the enactment of an equitable retirement law which would enable the departments of the Government to retire their aged civil-service employees. I desire to renew that recommendation.

GOVERNMENT COAL YARD.

During the early part of the present calendar year I addressed a letter to the Speaker of the House of Representatives, inviting attention to the situation in the District of Columbia concerning the purchase and distribution of coal for the use of the executive departments and independent establishments of the Government. In that connection I set forth the fact that the Government does not own or control a coal yard in the District of Columbia; that it is dependent upon contractors for furnishing coal to all departments and branches of the Government, and the difficulties the Government had experienced in obtaining an adequate supply of coal for its purposes. I stated that the establishment of a coal yard with ample storage facilities would enable the Secretary of the Treasury, through the General Supply Committee, to purchase coal at the time of the year when it is cheapest.

Since that time the Congress has passed a law placing within the hands of the President the establishment of prices of fuel. This legislation, wise as it is, does not meet our needs so far as storing and delivering coal is concerned.

I am still of the opinion that the building and operating of a Government coal yard is a good business proposition, and believe that it will result in a large annual saving. I present this for the serious consideration of the Congress, with the request that the matter receive its favorable consideration.

GENERAL SUPPLY COMMITTEE.

The price of all articles and supplies used by the Government has materially increased. Notwithstanding this fact, the contracts which I have negotiated through the medium of the General Supply Com

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