conclusive demonstration of the possibility of the cornstalk for the purposes above mentioned. The inability of the paper mill to perform this service was demonstrated by Doctor Cobb ín a recent hearing before the Interstate and Foreign Commerce Committee, and in answer to a question propounded by the chairman:

The CHAIRMAN. If you can send samples of different plants to paper mills which have laboratories for them to experiment and report to you, why is not that the most satisfactory way of doing it?

Mr. COBB. It is, provided they have the proper facilities; but I find that while they have the very best facilities for ascertaining the cost commercially of the different articles which they habitually use, outside of that range their fund of information is very small.

The CHAIRMAN. There are only a few who would have them, probably.

Mr. COBB. Very few, indeed, I assure you. Experimental work is a very expensive thing. No matter how you try to save, if you get at results you have to spend money, and these people are simply making money, and they do not divert very much of it to experimental work. You can not blame them.

The manufacture of paper from cornstalks necessitates, as we have said, the use of caustic soda. In order to recover this chemical expensive machinery and large quantities of fuel are necessary. For that reason the proposed paper mill should be located at once in the corn belt and in a coal field. Western Kentucky, at least that part of it bordering on the Ohio River, to an eminent degree meets all the essential conditions. Excellent facilities for transportation, both rail and water, large areas of river bottom land devoted exclusively to the culture of a corn peculiarly adapted for this purpose, and in addition to this underlying the whole area are several veins of the finest steam coal, which veins are at present highly developed and the coal is available at a minimum cost.

In H. R. 24328 the following amendments are suggested:

After the word "agriculture," in line 5, insert "through the Bureau of Plant Industry," and after the word "purchase," in line 8, insert 66 or procure."

[H. R. 24328. Sixtieth Congress, second session.]

A BILL To enable the Secretary of Agriculture to conduct experiments and determine the practicability of making paper material out of cornstalks, and to erect buildings and purchase apparatus therefor.

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That the sum of thirty thousand dollars be appropriated, out of any money in the Treasury not otherwise appropriated, to enable the Secretary of Agriculture through the Bureau of Plant Industry to conduct experiments to determine the practicability of making paper material out of cornstalks, to put in operation and to improve the processes now in use for that purpose, and to purchase or procure a site and erect buildings and to secure the necessary apparatus, the said buildings and site to be secured at or near Henderson, Kentucky.

ENLARGE INTERSTATE COMMERCE COMMISSION.

FEBRUARY 13, 1909.-Committed to the Committee of the Whole House on the state of the Union and ordered to be printed.

Mr. STEVENS, from the Committee on Interstate and Foreign Commerce, submitted the following

REPORT.

[To accompany H. R. 28072.]

The Committee on Interstate and Foreign Commerce, to whom was referred the bill (H. R. 28072) to enlarge the Interstate Commerce Commission, having considered the same, reports thereon with a recommendation that it pass.

Your committee has examined the reports of the Interstate Commerce Commission which show the vast extent and increase of business before it, and has been impressed with the necessity for increasing the number of the commission. The report of the commission filed on the 24th day of December, 1908, contains the following statement as to the business before it:

Since our last annual report to the Congress, 5,194 complaints have been filed with the commission for consideration and action. This number includes both formal and informal complaints, as well as proceedings and investigations instituted by the commission upon its own motion. The number of formal cases and investigations instituted during the year was 554, relating directly to the rates and practices of 3,080 defendants. This shows an increase of 33 per cent over the previous year, as the number of such complaints filed in 1907 was 415, relating directly to the rates and practices of 2,236 defendants. In addition to these complaints, 282 petitions for reparation have been filed and served on 1,737 defendants as a result of decisions by the commission; but these petitions have no reference to numerous applications filed by the carriers for authority to refund in special cases.

The work in the operating division has increased over the preceding year to a marked degree. In 1907, when 415 formal complaints were filed, it required in the service of complaints and assignment of cases for hearing the preparation of 15,000 notices and letters, while during the present year, without including the general correspondence, more than 25,000 registered letters and notices were prepared and mailed. In addition to this more than 3,000 answers and other pleadings were filed, all of which required examination, correspondence, and entering on the dockets of the commission.

Five hundred and seventy-three hearings and investigations of alleged violations of the act to regulate commerce, including one investigation under joint resolution of the Congress, have been had at general sessions of the commission at its office in Washington and at special sessions held at various places throughout the country, at

which more than 67,000 pages of testimony were taken, or something over 134,000 folios.

In the matter of informal complaints a much greater increase is found than in the number of formal complaints presented. During the present year 4,640 informal complaints were filed with the commission in which correspondence has been had with the carriers, resulting in the adjustment of 3,515 of these complaints; 37 were transferred to the formal complaint docket, leaving 1,288 unadjusted in which further correspondence is necessary. During the previous year 4,382 complaints of this character were filed.

This number, however, embraced all informal complaints, 2,276 of which were taken up with the carriers; while in the balance, because of lack of jurisdiction or the fact that the complaint was not well founded, and similar reasons, no such action was necessary. Approximately the same number of these complaints were received and considered by the commission as those taken up with the carriers so that it will therefore be seen that the number of informal complaints shows an increase over last year of more than 100 per cent. Many of these complaints are important and allege violations of every phase of the law, such as overcharges, excessive rates, discrimination, reconsignment rules, demurrage rules, validation of tickets, train service, car shortage, undercharge, Pullman rates, embargo, etc. The commission seeks to avoid the filing of a formal complaint when there is any probability of arriving at an amicable adjustment by correspondence. In many instances this correspondence is quite voluminous, yet very frequently the necessity of presenting the grievance in a formal petition is obviated, and every indication points to a constant increase in this method of adjustment. In order to handle these informal complaints it is necessary to consult the tariffs of the carriers which are on file with the commission and it is essential that they be readily accessible.

A large increase is also manifested in the amount of correspondence sent out from the operating division in answer to letters received and other correspondence pertaining to contested cases, safety-appliance matters, hours-of-service law, cases pending in courts, and other general matters, the increase being 55 per cent over the preceding year. In 1907, 66,070 such letters were prepared and mailed, while in 1908 the total was 102, 159. During the year 1907 there were 66,933 letters received by the commission, while in the year 1908 the aggregate was 104,034, an increase of 55.43 per cent. A considerable number of these letters call for the commission's view of the law, and result in administrative rulings. These rulings are promulgated from time to time in circular form, and are distributed to interested persons. Other inquiries are answered by individual commissioners as informal rulings which were authorized or approved by the commission in conference. In addition, numerous letters receive attention by the members of the commission in answer to particular inquiries. The expressions of opinion in these letters were intended and are believed to be in harmony with those previously announced in reports and rulings.

In addition to this vast volume of business, the compilation of statistics and accounts, the examination of books and accounts of carriers by which shall be prescribed the uniform system of accounts, the enforcement of the various statutes relating to safety appliances, and the experiments upon the same as authorized by Congress, the enforcement of the laws regulating the hours of service, the transportation of explosives, require much consideration and time for proper enforce ment. There are also miscellaneous matters of great number and importance before the commission, such as investigations ordered by Congress and instigated by the commission, orders concerning uniform bills of lading and uniform classification of freight, and a beginning toward a physical valuation of railroad property. This vast increase of business, present and prospective, renders it necessary, in the judgment of your committee, that the commission be increased by two at this time. The bill as reported makes no change in the method of appointment, the tenure, compensation of the commission, or political complexion of it. This amendment to the law has been carefully framed to avoid making any changes in these respects.

CONGRESS,

, HOUSE OF REPRESENTATIVES.

ESTABLISHMENT OF CHILDREN'S BUREAU.

FEBRUARY 13, 1909.-Committed to the Committee of the Whole House on the state of the Union and ordered to be printed.

Mr. HAUGEN, from the Committee on Expenditures in the Interior Department, submitted the following

REPORT.

[To accompany H. R. 24148.]

The Committee on Expenditures in the Interior Department, to whom was referred the bill (H. R. 24148) to provide for the establishment in the Department of the Interior a bureau to be known as the Children's Bureau, beg leave to report and recommend the passage of the same, to wit:

A BILL To establish in the Department of the Interior a bureau to be known as the Children's Bureau.

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That there shall be established in the Department of the Interior a bureau to be known as the Children's Bureau.

SEC. 2. That the said bureau shall be under the direction of a chief, to be appointed by the President, by and with the advice and consent of the Senate, and who shall receive an annual compensation of five thousand dollars. The said bureau shall investigate and report upon all matters pertaining to the welfare of children and child life, and shall especially investigate the questions of infant mortality, the birth rate, physical degeneracy, orphanage, juvenile delinquency and juvenile courts, desertion and illegitimacy, dangerous occupations, accidents and diseases of children of the working classes, employment, legislation affecting children in the several States and Territories, and such other facts as have a bearing upon the health, efficiency, character, and training of children. The chief of said bureau shall, from time to time, publish the results of these investigations.

SEC. 3. That there shall be in said bureau, until otherwise provided for by law, an assistant chief, to be appointed by the Secretary of the Interior, who shall receive an annual compensation of three thousand dollars; one private secretary to the chief of the bureau, who shall receive an annual compensation of one thousand five hundred dollars; a chief clerk, who shall receive an annual compensation of two thousand dollars; one statistical expert, at two thousand dollars; four clerks of class four; four clerks of class three; two clerks of class two, and six clerks of class one; five clerks, at one thousand dollars each; two copyists, at nine hundred dollars each; one messenger, at seven hundred and twenty dollars; two special agents, at one thousand four hundred dollars each, and two special agents, at one thousand two hundred dollars each.

SEC. 4. That the Secretary of the Interior is hereby directed to furnish sufficient quarters for the work of this bureau at an annual rental not to exceed two thousand dollars.

SEC. 5. That this act shall take effect and be in force from and after its passage.

Section 2 provides that the bureau be under the direction of a chief appointed by the President, with the advice and consent of the Senate, at a salary of $5,000; that the bureau shall investigate and report upon all matters pertaining to the welfare of children and child life, and shall especially investigate the questions of infant mortality, the birth rate, physical degeneracy, orphanage, juvenile delinquency and juvenile courts, desertion and illegitimacy, dangerous occupations, accidents and diseases of children of the working classes, employment, legislation affecting children in the several States and Territories, and such other facts as have a bearing upon the health, efficiency, and training of children, and that the results of these investigations be published.

Section 3 provides for an assistant chief at $3,000; private secretary at $1,500; chief clerk at $2,000; statistical expert at $2,000; 4 clerks class 4 ($1,800); 4 clerks class 3 ($1,600); 2 clerks class 2 ($1,400); 6 clerks class 1 ($1,200); 5 clerks at $1,000; 2 copyists at $900; 1 messenger at $720; 2 special agents at $1,400; and 2 special agents at $1,200.

The total number of employees is 33, and the total salary $49,820. Section 4 provides $2,000 for quarters.

The committee gave hearings, at which time there appeared in behalf of this measure a large number of people representing various associations and societies from all parts of the United States, which have to do with the betterment of child life. The establishment of such a bureau was urged by such persons as:

Miss Lillian D. Wald, head worker of the Nurses' Settlement, New York City; Prof. Edward T. Devine, of Columbia University, editor of Charities and the Commons; Miss Jane Addams, of Hull House, Chicago, Ill.; Mrs. Florence Kelley, of New York City, general secretary of the National Consumers' League; Mr. Homer Folks, of New York, secretary of State Charities' Aid Association; Prof. S. M. Lindsay, professor in Columbia University, New York City; Hon. William S. Bennet, a Representative in Congress from the State of New York; Mr. H. F. Fox, president of the Children's Protective Alliance of New Jersey; Julian W. Mack, esq., ex-judge of the juvenile court of Chicago, Ill.; Judge Ben B. Lindsay, judge of the juvenile court of Denver, Colo.; Judge N. B. Feagin, of Birmingham, Ala.; Bernard Flexner, esq., of Louisville, Ky.; Mr. Thomas F. Walsh; Mr. Ludwig B. Bernstein, Ph. D., superintendent Hebrew Sheltering Guardian Orphan Asylum, New York City; Mr. William H. Baldwin, of Wash ington, D. C.; Mrs. Ellen Spencer Mussey, of Washington, D. C.; Mr. A. J. McKelway, of Atlanta, Ga., secretary of the National ChildLabor Committee for the Southern States; Mrs. Lucy M. Sickels, superintendent State Home for Girls, Adrian, Mich.; Mr. Owen R. Lovejoy, general secretary of the National Child-Labor Committee, of New York City; Mrs. J. Ellen Foster, of Washington, D. C.

Prof. S. M. Lindsay, professor in Columbia University, New York City, has this to say:

* *

About three years ago, when I had the privilege of drawing this bill for the national committee, the question of how to accomplish this object was very carefully considered. * It was not drawn without conferences with a good many persons who might throw light on this subject. Two cabinet officers took an active part in the deliberations with reference to the formulation of the bill, and the matter was gone over very carefully with the Commissioner of Labor, Doctor Neill, and Doctor North, the Director of the Census, both of whom went over the manuscript copy before the bill was introduced and made many valuable suggestions.