SOME LESSONS OF THE RELIEF SURVEY

What then are some of the lessons to be learned from this review of the San Francisco relief work that may be applied in other great disasters?

Part I. Organization and the Emergency Period

We see among other things:

1. The importance of postponing the appointment of sub-committees until a strong central committee has been able to determine general policies and methods of procedure.

2. The wisdom of reducing the bread line and the camp population as quickly as possible after the disaster so that the relief resources may be conserved to meet the primary need of rehabilitation.

3. The value of utilizing for emergency administration a body so highly organized and so efficient as the United States Army, to take charge of camps, and to bring to points of distribution the supplies required for those in need of food and clothing.

4. The necessity of utilizing the centers of emergency distribution for the later rehabilitation work of district committees and corps of visitors.

5. The need of establishing a central bureau of information to serve from the beginning of the relief work as a clearing house, to prevent confusion and waste through duplication of effort.

6. The importance of legal incorporation for any relief organization that has to deal with so large a disaster.

7. The importance of a strict audit of all relief in cash sent to a relief organization. The impossibility of an equally strict accounting for relief in kind, because of the many leaks and the difficulties attendant upon hurried distribution.

8. The desirability that contributions, especially those in kind, shall be sent without restrictions, as only the local organization is able to measure relative needs at different periods of the work.

9. The recognition of the American National Red Cross, with its permanent organization, its governmental status, and its direct accountability to Congress for all expenditures, as the proper national agency through which relief funds for great disasters should be collected and administered; thus securing unity of effort, certainty of policy, and a center about which all local relief agencies may rally.

Part II. Rehabilitation

We have to recognize:

1. The need, in at least the early stages of rehabilitation, of the district system, in order to facilitate application and investigation and to insure prompt committee action upon calls for assistance.

2. The need of a bureau of special relief from beginning to end of the rehabilitation work in order to meet the emergent and minor requirements of families and individuals without having to use the necessarily complicated slow-moving machinery of the rehabilitation organization itself.

3. The fact that even in a community where the residences of over half of the population have changed and the business section has been completely destroyed, it is possible to make individual investigations of family wants such as will generally mean the adding of the judgment of one outsider at least to that of the family.

We have to recognize further:

4. That the period of time elapsing between applications and grants will not be greatly altered if, after the early stages of rehabilitation, a centralized system is substituted for a district system.

5. That a flexible scheme of rehabilitation is furthered when no rigid limit is fixed for an individual grant and deliberation is required in each case where a grant of large amount is made.

6. That though rehabilitation may proceed generally along the line of fortifying each family in one particular direction, as for instance, in its business relations or housing accommodations, it will always be necessary to provide a considerable proportion of the families with subsidiary grants for other purposes.

7. That any centralized system which attempts to fix arbitrarily the different types of cases with which different committees shall deal will create a certain amount of confusion. If a centralized system seem desirable, the question is whether the committees in the central office should not have authority to consider cases according to geographical divisions rather than according to typical classes of applicants.

Part III. Business Rehabilitation

We learn, and the fact deserves to stand apart:

That when grants are made for the re-establishment in business of persons of little ability or experience, close supervision of plans and expenditures by agents of the relief committee is necessary to secure the best results.

Part IV. Housing Rehabilitation

We have to recognize:

1. That to provide but one form of housing rehabilitation is far from satisfactory.

2. That in a general way the three forms provided in San Francisco met the needs of the three general classes to be reached.

(a) With reference to the camp cottages it is too soon to say how successful the experiment will ultimately be of giving cottages for removal to other sites to those who may be classed as comparatively weak in resourcefulness and character. It is certain, however, that the permanent close grouping of the cottages in great numbers on open lots is a danger to be guarded against.

(b) With reference to the grant and loan houses, though it seems that in general the houses built by applicants were better than those built by the housing committee for the applicants, it by no means follows that direct grants of money if commonly adopted would always bring good results. Individual capabilities must be one determining factor. As to grants and loans, it may be said that a double standard is not practicable. A grant on one house and a loan on its neighbor lead to dissatisfaction and often failure on the part of the borrower to meet his debt.

3. That because of the highly specialized business ability required, a separate department of the relief organization should have charge of all building and details of building.

4. That decisions upon housing applications and dealings with housing applicants should be centered in a rehabilitation department.

Part V. After-Care

We are brought to see that:

1. The applications made to an emergency relief organization will not include all who, as a result of the disaster, will eventually be obliged to seek succor. It is demonstrated that some permanent agency must be prepared to help those who, fighting heroically to the very end of their resources, give up after the temporary relief organization has discontinued active work.

2. The number of sufferers who need after-care may be increased by families who have been attracted to the city by illusive expectations of work.

3. The problems of family relief after a great disaster are essentially those requiring the personal care and attention which are characteristic of the work of an associated charities under normal conditions. The number of families that have come to the San Francisco Associated Charities in the years since the Corporation turned over the relief work to it, has been far larger than before the fire. It follows that for some years after so tremendous a disaster there should be an increase in the force of trained workers proportionate to the increase in the applications for rehabilitation. The community must be prepared to pay the additional cost.

4. Grants of relief, when they must be given regularly and for a considerable period (in the form that is often described as pensions), should be sufficiently large to assure reasonable standards of living.

Part VI. The Aged and Infirm

We see finally that:

1. A great disaster increases especially the number of the aged and infirm who become public charges.

2. One of the tasks of delicate readjustment is to remove from the almshouse the aged men and women who, merely through the rough chance of a great catastrophe, are thrown with those whose lifelong habits and disabilities lead to the almshouse.

3. A critical test of the quality of a community is how far the responsibility for the aged, infirm, and handicapped who, save for the disaster, would never have become dependent upon public relief, is resumed by relatives, friends, or others who in the ordinary course of events would have cared for them; how completely the standard of private and family care for them shall be as though the disaster had never occurred.

APPENDIX I
DOCUMENTS AND ORDERS

APPENDIX I
DOCUMENTS AND ORDERS

PAGE
1.List of Members Finance Committee of Relief and Red Cross Funds and Its Permanent Committees[377]
2.General Orders No. 18[379]
3.Extracts from The Army in the San Francisco Disaster. By Brigadier General C. A. Devol[383]
4.Letter from General Greely to James D. Phelan[387]
5.Plan of the Executive Commission[391]
6.Original Housing Plan[394]
7.The Incorporation of the Funds[398]
8.Appointment of Board of Trustees Relief and Red Cross Funds, February, 1909[401]
9.List of Official Camps[404]
10.Grants to Charitable Organizations[405]
A.By Denominations and Nature of Work[405]
B.By Denominations[405]
11.Rehabilitation Committee: Details of Administration[406]
I.Directions given by the Associated Charities[406]
II.Monthly budgets[408]
III.Method of work beginning July 7, 1906, in connection with the district [section] organization[408]
IV.The centralized system[412]
V.Consideration of cases out of turn[412]
VI.A lesson learned regarding records[413]
VII.Loose ends[415]
VIII.Bookkeeping and registration notes[415]
12.General Plan of Housing Committee[417]
13.Statistics from Associated Charities[419]
A.Receipts of San FranciscoAssociated Charities from all sources, by months, from June, 1907, to September, 1912, inclusive[419]
B.Disbursements of San Francisco Associated Charities for relief andfor administration, by months, from June, 1907, to September, 1912, inclusive[419]

APPENDIX I

1
LIST OF MEMBERS FINANCE COMMITTEE OF RELIEF AND RED CROSS FUNDS AND ITS PERMANENT COMMITTEES

FINANCE COMMITTEE

Elected April 24 to represent the California Branch of the Red Cross:

Appointed later:

NOTE: At the meeting of April 30 Dr. E. E. Baker of Oakland was appointed to Finance Committee to represent Governor Pardee, at the latter’s request. Later in the same meeting it was arranged that, since Dr. Baker’s duties prevented him from attending meetings, he should be represented on the Finance Committee by F. S. Stratton. Mr. Stratton was from that date on a member of the Finance Committee, representing both the Governor and the Oakland Relief Committee.

SUB-COMMITTEES OF FINANCE COMMITTEE

Committee of Supervision (appointed April 22)

Purchasing Committee (also called Purchasing Agents, appointed April 26)

Auditing Committee (appointed May 7)

Committee on Hospitals (appointed May 9)

Rehabilitation Committee (authorized May 5, appointed June 29)

Later appointments made by the Executive Committee were

EXECUTIVE COMMISSION (OFFICIAL TERM OF OFFICE JULY 1 TO AUGUST 1, 1906)

2
GENERAL ORDERS, NO. 18

HEADQUARTERS PACIFIC DIVISION,
San Francisco, Cal., April 29, 1906.

I. In order to economically and efficiently perform the non-military duties of distributing relief supplies, the City of San Francisco is hereby divided into seven civil sections, as described in [Paragraph XIV].

II. The following named officers are charged, generally, with administrative duties, as follows:

1. Major Lea Febiger, Inspector General; in general charge of the organization of relief stations, of their personnel, methods of administration and requisitions. Headquarters: Hamilton School Building, on Geary Street near Scott Street.

2. Major C. A. Devol, Depot Quartermaster; with all questions of transportation, storage, and allied duties. Headquarters: Presidio Wharf.

3. Major C. R. Krauthoff, Depot Commissary, with the commissary duties in connection with providing food supplies and the filling of requisitions approved by Major Febiger, Dr. Edward T. Devine, Special Representative of the National Red Cross, or other duly authorized agents or officials. Headquarters: Folsom Street Wharf.

4. An officer of the Army, not yet selected; with supplies other than food, and the filling of requisitions for such supplies after approval by Major Febiger, Dr. Devine, or other duly authorized official. Pending his selection these duties will be performed by Major Devol. Headquarters: Presidio Wharf.

5. Lieutenant Colonel G. H. Torney, M. D., U. S. A., has been placed in charge of all sanitary work. He is charged with the proper organization of sanitation, the formulation of regulations to carry out the proper measures of safety against any danger from unsanitary conditions, co-operating with the Health Commission of San Francisco.

6. Colonel W. H. Heuer, Corps of Engineers, is charged with all duties relating to engineering problems connected with the work in hand and in this connection will consult freely with the civil authorities in regard to the water supply, sanitation and all other matters in which engineering skill is required.

III. As far as practicable, all applications for relief, (whether for food, clothing, tentage or bedding) will be made direct to, and the administrative business connected therewith transacted directly with, the officers above named. This will facilitate relief and centralize data and action relative thereto. The officers named will, as far as possible, transact their business with each other and with outside applicants direct, that is, without reference to Division Headquarters, the object being to insure an economical, efficient and prompt service for the distressed and destitute.

IV. 1. As soon as practicable an officer of the Army, with assistants, will be assigned to each of the seven sections enumerated, with the view of co-ordinating the work, and introducing at the earliest moment such methods as will prevent dishonesty or wastage, eliminate the unworthy and impostors, and insure economical administration.

2. Wherever an officer of the Army is not available a responsible civilian of the locality, designated by Dr. Devine, will be placed in immediate charge of each relief station, and assisted in organizing a proper personnel to carry on the work.

3. As soon as possible, rigid daily inspections will be made of every relief station, and local regulations introduced with the view of correcting abuses, neglects or mistakes. Relief stations will be reduced in number and personnel limited to the smallest possible number consistent with pressing demands.

4. The officer or person placed in immediate charge of each relief station will be carefully instructed by the officer in charge of the civil section to make his requests in duplicate, and those for food supplies must be separate and distinct from those for clothing, bedding, tentage, etc., because they must be filled from different supply departments. All requests must be in duplicate, and submitted through the officer in charge of the civil section to Major Febiger, at the Hamilton School Building, on Geary Street near Scott. In case of immediate need the requisition may be taken direct to Major Febiger.

V. It is expected and desired that commanders of military districts in San Francisco, charged with guarding of public buildings and other military duties, shall extend advice and, as far as practicable, needful assistance in the interests of the non-military duties of relief.

VI. Charges of wastage, deception, theft and improper appropriation of relief supplies have been freely made, and it is claimed that the food supply in some cases is too lavish in quantity, and is being issued without suitable discrimination. The period of extreme distress for food has passed, and at the earliest possible moment the issue of rations must be confined to helpless women and children, and refused to adult males, unless they are sick or in feeble condition.

VII. For the information of Division Headquarters, a system of inspection will be established through the Inspector General’s Department, in order that the inspectors may be facilitated as much as possible in gaining information giving a clear idea as to how the work is going on. All officers connected with the distribution of supplies will keep such memorandum records, aside from their regular records, as will enable them to give to the inspectors a summary of the work being done, the method pursued, and in general such information and recommendation as they may have for improvements and economy.

VIII. The following permanent relief ration is fixed, the amount being stated in allowance per ration or per 100 rations:

Meat Components.

10 oz. canned meat or salt meat or canned fish, or

14 oz. fresh meat to the ration.

Bread Components.

14 oz. fresh bread or 10 oz. hard bread, or crackers or

12 oz. flour to the ration.

Coffee and Tea.

1 lb. coffee to 15 rations or

11⁄2 lbs. tea to 100 rations.

Vegetable Components.

11⁄2 oz. beans, peas, rice or hominy, to the ration.

3⁄4 lb. fresh vegetables (80 per cent. potatoes, 20 per cent. onions) to the ration.

Dried Fruit Component.

1 oz. dried fruit to the ration.

Miscellaneous.

15 lbs. sugar to 100 rations.

3 quarts vinegar (or pickles) to 100 rations.

2 lbs. salt to 100 rations.

4 oz. pepper to 100 rations.

4 lbs. soap to 100 rations.

11⁄2 lbs. candles to 100 rations.

It is recognized that exact conformity to articles herein mentioned is at present impracticable. However, the ration, commencing at noon, Tuesday, May 1, 1906, will be confined to the articles herein named, or proper substitutes equivalent thereto.

IX. After May 1, 1906, no rations beyond the articles above named, or their substitutes, will be issued from any relief station or district under military control, except on the prescription or order of a reputable physician or other competent authority. Issues of luxuries, or articles of special diet must be confined to infants or invalids. Any other course will speedily exhaust the very limited means of subsistence now at the disposal of the Army and of the Finance Committee of Relief and Red Cross Funds.

X. At the earliest practicable moment, each of the four officers charged with the supervision of the work of distribution of supplies will report approximate data from which the Division Commander can determine.

A. The amount of United States supplies actually received to date by the Army and the amount in transit.

B. The total amount of all kinds of supplies (army relief and other relief) actually received to date by the Army.

C. The total amounts issued daily to stations distributing food, clothing, tentage, etc., under Army control.

D. Same for those not under army control in San Francisco.

E. Amounts issued to towns outside of San Francisco.

While present reports through lack of sufficient force and supervision, cannot be exact, it is expected that they will as soon as possible be reduced to the methods generally in vogue in the Army.

XI. Officers in charge of departments will submit a report as soon as conditions permit, of the disbursements made, or indebtedness contracted in carrying out the relief work by the Army. They will immediately submit requisitions for necessary funds, giving the period which they are expected to cover, such requisitions to be accompanied by notes explaining the reason and necessity for such funds.

XII. Officers charged with these duties will be expected to make such daily record as to enable them to make weekly, or when otherwise called upon, a brief report of the work done, and when the civil authorities resume the work to present a complete report covering their entire operations.

XIII. Rigid economy is enjoined on every officer of the army engaged in relief work. No indebtedness will be contracted without the authority of one of the officers named in this order or the department or division commanders. It is desired and directed that any unusual and abnormal expense be reported verbally or in writing to the Division Commander so that authority covering expenditures, apart from the necessary ones of the employees, material and ordinary routine, may be specifically authorized.

XIV.

Relief Sections[284]

[284] In General Circular, No. 1, May 1, 1906, Section 1 is defined as the section in which relief stations are numbered between 1 and 100; Section 2, between 200 and 300, and so on. This numbering was used instead of that of General Orders No. 18.

1st Section wherein all official relief stations are numbered between 1 and 100, is bounded as follows: On the south by Fulton street, on the east by Devisadero street, on the north and west by San Francisco Bay, and Pacific Ocean, including Presidio Reservation, but not including Fort Miley reservation.

2nd Section wherein all official relief stations are numbered between 101 and 200 is bounded as follows: On the north by Fulton street, on the east by Devisadero street and Castro street, on the south by 18th and L streets, on the west by the Pacific Ocean.

3rd Section wherein all official relief stations are numbered between 201 and 300, is bounded as follows: On the north and east by San Francisco Bay, on the south by Union street, on the west by Devisadero street.

4th Section wherein all official relief stations are numbered between 301 and 400, is bounded as follows: On the north by Union street on the east by the Bay, on the south by Market street, on the west by Devisadero and Castro streets.

5th Section wherein all official relief stations are numbered between 401 and 500, is bounded as follows: On the north by Market street, on the east by the Bay, on the south by 18th street, on the west by Castro street.

6th Section wherein all official relief stations are numbered between 501 and 600, is bounded as follows: On the north by 18th street, on the east by the Bay, on the south by the County Line, on the west by the Southern Pacific Railroad.

7th Section wherein all official relief stations are numbered between 601 and 700, is bounded as follows: On the north by L and 18th street, on the east by the Southern Pacific Railroad, on the south by the County Line, on the west by the ocean.

By Command of Major General Greely:

S. P. JOCELYN,
Colonel, General Staff, Chief of Staff.

Official:

W. G. HAAN,
Captain, General Staff, Military Secretary.

3
THE ARMY IN THE SAN FRANCISCO DISASTER[285]
By Brigadier General C. A. Devol

[285] Extracts from article printed in the Journal of the United States Infantry Association, Vol. IV, No. 1, pp. 59-87.

At 7:45 on the morning of the disaster Companies C and D, Engineer Corps, arrived from Fort Mason and were reported to the Mayor and Chief of Police. They were directed by the former to guard the banking district and send patrols along Market Street to prevent looting. At 8:00 a.m., the Presidio garrison, consisting of the 10th, 29th, 38th, 66th, 67th, 70th, and 105th Companies of Coast Artillery; Troops I and K, 14th Cavalry; and the 1st, 9th and 24th Batteries of Field Artillery, began to arrive.

The Headquarters and 1st Battalion 22d Infantry, were brought from Fort McDowell by boat, arriving at 10:00 a.m., and were held for a time in reserve at O’Farrell Street. They were later utilized as patrols and as an assistance to the fire department. The Fort Miley troops, the 25th and 64th Companies Coast Artillery, had a longer march and did not arrive until 11:30 a.m.

Troops subsequently arrived in the city as follows:

April 19. Companies E and G, 22d Infantry, from Alcatraz Island; Companies K and M, 22d Infantry, from the depot of recruits and casuals, and the 32d, 61st and 68th Companies Coast Artillery, from Fort Baker;

April 21. Headquarters and two battalions 20th Infantry, from Presidio of Monterey;

April 22. Headquarters and ten companies 14th Infantry, from Vancouver Barracks;

April 23. The 17th and 18th Batteries Field Artillery from Vancouver Barracks.

These troops were all stationed in the Pacific Division and were ordered to San Francisco by the Division Commander. Troops arriving later by orders from the War Department will be enumerated later. It is believed the prompt appearance of the United States troops on the streets of the city was an object lesson to the minds of the evil-disposed, reminding them that the law of the land still existed with ready and powerful means at hand to enforce it, and was of incalculable moral and material benefit to the city.

General Funston moved into the Commanding General’s quarters at Fort Mason, establishing both Division and Department Headquarters at that point, and the Signal Corps immediately began to stretch wires for telegraph communication to various points of importance in the city.

The entire force in the city finally consisted of 1 Major-General, 1 Brigadier-General, the 1st and 14th Regiments of Cavalry, the 10th, 25th, 27th, 29th, 32d, 38th, 60th, 61st, 64th, 65th, 66th, 67th, 68th, 70th, and 105th Companies Coast Artillery; the 1st, 9th and 24th Batteries Field Artillery; the 11th Battalion Field Artillery, consisting of the 17th and 18th Mountain Batteries; the 10th, 11th, 14th, 20th and 22d Regiments of Infantry; Companies C and D, Corps of Engineers; Companies A and B, Hospital Corps; Companies A, E and H, Signal Corps, and 168 staff, detailed and retired officers, a grand total of 6000 men and officers. To these men were added during the earlier days a large force of the navy, a battalion of marines, and a force of naval apprentices, also the force of the National Guard, State of California.

Officers of the Quartermaster’s Department were stationed at Oakland Pier, Point Richmond, the Santa Fe freight yard, Entries Nos. 1, 2, 3, and 4, Quartermaster Depots Nos. 1, 2, 3, and 4. Officers of the Subsistence Department were stationed at the Food Depots, Nos. 1, 2, and 3. The various Quartermaster and Commissary Depots were connected by wire with the office of the Depot Quartermaster, which had been established in the Quartermaster Warehouse at the Presidio, and the Commissary Depots connected with the office of the Depot Commissary, which was established at Folsom street dock. Every arriving car was checked up across the bay, either at Oakland Pier or Point Richmond. Every lighter leaving for any of the entries was reported by wire to the Depot Quartermaster with the car numbers and what entry consigned to. The Depot Quartermaster could thus control the supply and balance the arrivals at the different entries, wiring orders to deliver more or less at the different points as occasion demanded. A dispatch boat was put in service, making two trips daily to Oakland Pier. At each trip, yard car slips giving complete list of cars with numbers and contents were forwarded to the main office. These were abstracted as fast as they came in and from this abstract acknowledgment of arrival was made to all donating parties in the different parts of the country. This branch of the work was most important, as Relief Committees in the various cities and towns were always desirous of obtaining information which would enable them to inform the people of their community that the stores had arrived in San Francisco and had reached the suffering people. The record also enabled satisfactory answers to be given to the hundreds of inquiries by wire and mail from all over the country on this subject. Every car load was finally accounted for and inquiries answered locating stores, except in some cases of individual packages.

The Quartermaster-General had been asked by wire to have the number of every car of military supplies reported to San Francisco by wire as soon as it was dispatched. These instructions were promptly given, and this advance information aided very greatly in preventing confusion.

The stores for the Presidio were delivered by river steamers acting as lighters from cars at Oakland Pier. At Entry No. 2, or the three docks above described, deliveries were from river steamers acting as lighters and also from cars delivered alongside of the docks by floats. Entry No. 3 was by cars sent across the bay on floats and delivered at the 3d and Townsend Railroad yard, which fortunately was not destroyed by fire. The small amount of freight that arrived from the south also came into this depot. Entry No. 4 was from the Santa Fe Railroad by float to the Spear and Harrison freight depot. The steamships delivered at the three docks, 8, 10, and 12. It will thus be seen that there were four avenues through which supplies could reach the city simultaneously, and by night as well as by day.

Forty-five officers were detailed on arrival to take charge of various stations throughout the city. Fifteen were ultimately detailed as assistants to the Depot Quartermaster, and placed in charge of the various entries and depots, as above stated. As the various stations were established in all administrative departments, the Signal Corps connected up the stations by wire with the main offices and Department Headquarters. Operators were placed at all instruments and communications by day and night established. During the first three days issues were made from the quarter-master supplies in store at the four depot warehouses at the Presidio, which amounted to 3,000 tents, 13,000 ponchos, 58,000 shoes, 24,000 shirts and other articles necessary to relieve immediate suffering. This issue was made in the face of necessity without any authority, but when reported was promptly approved by the Secretary of War.

The Finance Committee asked that the army take over all transportation in the city for all purposes for betterment of management in systematizing under one head. The Division Commander directed the Depot Quartermaster to take it over, and Captain Peter Murray, Quartermaster, 8th Infantry, was directed to report to him for that purpose. An office for this part of the transportation was established at Hamilton School, and in two days the number of hired teams for this part of the work was cut down from 557 to 109.

The population of San Francisco had spread over the surrounding country, refugees in large numbers going to San Jose, Oakland, Berkeley, Alameda and Sausalito, and naturally the people in these outlying towns demanded their proportionate share of relief. Officers were sent to the various interested sections and remained in charge, the system being similar to San Francisco. The distribution, however, of supplies over this enlarged territory added considerably to the burden which relief workers were already carrying.

The gradual evolution of a completed camp system had kept pace from day to day with the growth of other relief work. As before stated, there were on hand at the Depot Quartermaster’s storehouse for immediate issue some 3,000 tents (common), and 12,000 shelter tents. This canvas placed indiscriminately wherever ground was available initiated what grew into a very complete system of camps. By the prompt action of the War Department, tentage had been shipped by express from different depots in the United States and soon became available, there being finally issued some 25,000 tents, many of which were conical, and wall tents of large capacity.

As fast as camps were established the outlying and scattered tents in that vicinity were called in and placed systematically as a part of the camp. Each camp was known by number and each tent was known by number.

On May 29, General Orders were issued, defining the camps, the total at that time being twenty-one, eighteen of which were in San Francisco and the other three in outlying cities. The sanitary arrangements varied in regard to the different conditions. Eighteen camps were variously scattered through Golden Gate Park, the Presidio Military Reservation, what is known as Harbor View Flat, Fort Mason Military Reservation, and the various other parts of the city. No restrictions were placed on the inmates of these camps save those required by decency, order, and cleanliness. If the occupants persistently refused to obey the rules to meet the above requirements they were obliged to forego the benefits of government canvas and relief stores.

4
LETTER FROM GENERAL GREELY TO JAMES D. PHELAN

HEADQUARTERS PACIFIC DIVISION
SAN FRANCISCO, CALIFORNIA

June 15, 1906.

Mr. James D. Phelan, Chairman,
Finance Committee of Relief and Red Cross Funds,
Hamilton School, City.

Sir:—

1. I understand from the morning papers that a telegram signed by you and Mayor Schmitz, has asked the retention of the Army on duty in San Francisco for ninety days from July 1st.

2. I have seen Mayor Schmitz this morning and he concurs with me in the belief that the relief of the Army on July 1st is in the public interests, and after consideration of the opinions expressed by me in this letter, I trust that the Finance Committee will agree in the wisdom of withdrawing their request.

3. The spirit of American institutions is obviously adverse to the quartering of troops in times of peace in large cities, which is in this case supplemented by reasons of a practical and economic character. From all sources, there is a consensus of opinion that the service of the Army for relief purposes in San Francisco was of great benefit to the city of San Francisco and the State of California. That July 1st marks the date on which federal troops should cease to guard stores, control camps, administer order and provide sanitation for civilians quartered on city grounds or private property, is my conviction.

4. Your attention is called to the fact that there are classes of worthy citizens who in considerable numbers are now deprived of their ordinary means of gaining a livelihood, either by lack of public funds or from destruction of private business. Among these may be mentioned firemen, policemen, school teachers and physicians.

5. Your attention is particularly called to the fact that a certain number of such persons could be given temporary employment by the Red Cross organization if the present guards and camp administrations of the Army were withdrawn. In short, the officers and men of the Army are now performing duties and rendering services which should be performed and rendered by the destitute men in San Francisco. I submit to your Committee whether it is advisable to favor a policy which thus discriminates against civilian labor because the work of the Army is done without expense to the Red Cross Funds.

6. If the Red Cross was not amply supplied with funds, there might exist a necessity for free army labor but such is not the case. The morning paper reports that Mr. Bartnett is favoring the immediate distribution of the greater part of six million dollars now in the possession of the Committee.

7. Of all the methods of relief that which most commends itself to me from a careful consideration of this question, is that advanced by Dr. E. T. Devine, and known under the general term of rehabilitation. There is no better way of rehabilitating a man than by allowing him to earn a living salary. In this case it can be conjoined with the care and relief of the destitutes who are rapidly being reduced in number.

8. It has been unofficially advanced that the withdrawal of the Army would involve conditions of disorder and that sanitary conditions would not be as carefully observed as under strict military methods. It is believed that the rigidly enforced methods of the Army cannot be equalled by ordinary civilian control and it is also acknowledged that the suggestion of a soldier with a gun is more potent in enforcing order that the directions of a policeman with a club.

9. On the question of order and sanitation, experience has shown that the people of San Francisco are self-respecting and desirous of conforming to proper methods of life as regards the three important points of order, decency and cleanliness. That this is a fact and not an opinion, is shown by the conditions attending the 43,000 people now under canvas in the City of San Francisco. Of this number 18,000 are under military supervision, while 25,000 are scattered elsewhere throughout the city. About 10,000 of these people have been continually under military supervision and 8,000 more have lately been taken in charge. It might be thought the 25,000 other people supplemented by the 8,000 lately transferred, would in the past two months have become centers of infectious diseases or the centers of disorder and violence, which has not been the case as infectious diseases have been sporadic and the conditions of order have been such that as far as I know no murder has been committed and only one or two assaults have been made.

10. It appears to me that the time has arrived when some definite plan of organization should be formulated. At present no one connected with the Red Cross has any power to act, not even Dr. Devine, save as to certain expenditures for rehabilitation which in limited amounts have been appropriated.

11. To illustrate a practical method of handling this question, a definite line of organization is herewith suggested. It is worse than useless to expect that the interests of the tens of thousands of people and sums of money running into the millions can be economically and efficiently administered by men giving such part of their time as remains after transacting their own business, to the questions of relief. There must be not only a paid personnel but to obtain men of character, efficiency and skill, they must be well compensated.

12. The Finance Committee should allow no money to be spent except on estimates which should be submitted monthly in advance so that they may be properly discussed by the Finance Committee before paying the money. Emergencies can be met by allowing a small sum for each particular department for contingent expenses. It is believed that the duties of the Finance Committee should be confined to questions of policy and considering of estimates and authorizing them formally.

13. The executive work should be done by three men who should receive a salary of not less than $5,000 per year. One member should be a special representative of the Red Cross and as Dr. Devine would probably not remain many months and his services are needed as an advisory to the Finance Committee, it is suggested that some one be named by Dr. Devine if he will not serve himself. The second member should be named by the Mayor of San Francisco and the third should be selected by the Finance Committee from individuals familiar with the industrial, commercial and business interests of San Francisco. This committee should divide the duties between themselves.

14. Supplies should be centralized and should be in charge of a carefully selected man to receive $10.00 per day, with an assistant who should receive $5.00 per day. This official should under no circumstances have anything to do with the purchase of supplies but only be responsible for their receipt, care, and issue.

15. Each camp should be placed under a very carefully selected officer of the Fire or Police Department who is on furlough; preferably to be Captains and Lieutenants of the Fire Department and Captains, Lieutenants and Sergeants of the Police Department, and should be paid according to the size and importance of the camp. The familiarity of these men with the people of San Francisco and their habits of authority should enable them to properly supervise these camps, which naturally would be under the general direction of one of the three executive members of the committee. The present surgeons should be replaced by doctors of executive ability and standing of which it is understood that there are many without practice. There should be about one doctor to each seven hundred persons and their pay should be from $3.50 to $5.00 per day.

16. At places where guards are necessary, civilian watchmen, drawn largely from furloughed policemen and firemen and male school teachers, should be placed in charge. It might be added that wherever opportunity for women’s work offers, it should be given to school teachers of standing now on furlough.

17. All expenses of sanitation and policing of these camps should be at the expense of the Red Cross. While they would be naturally subjected to inspection from time to time by the sanitary officers of the city yet such officers would, it is believed, not interfere unduly with the arrangements in these camps. There should be special police officers on duty at night at the larger camps, these also to be paid employees.

18. In short, an organized, well selected and properly paid personnel is indispensable to the successful handling of the relief work.

19. Supplementary to the executive committee, there should be an agent charged with the rehabilitation work, acting under the special direction of Dr. Devine or his successor. The policy regarding rehabilitation should be liberal and a very considerable sum should be set aside therefor subject to distribution as Dr. Devine or his successor might direct.

20. Briefly this letter looks to action and organization, which cannot progress satisfactorily while the Army is conducting independently a part of this work. There are large sums of money on hand and the public naturally has a right to demand results.

21. Valuable time is being lost as regards questions of shelter and rehabilitation through lack of suitable organization.

22. The Committee will think perhaps that I have expressed myself very forcibly in this matter, but my great interest in the adoption of the best and speediest means of restoring normal conditions in San Francisco and in the relief of its destitute, will, I hope, be viewed as excuses for my speaking freely and fully, and offering definite advice relative to the work in hand.

23. In view of the great importance of the interest the municipality has in this work, I have furnished a copy of this letter to his Honor, Mayor E. E. Schmitz.

24. May I then express the hope that the Finance Committee will agree with me that the Army will be withdrawn on July 1st.

25. I may add that should the services of say half a dozen officers be needed in the way of advice and aid during July, I should be glad to take steps looking to their detail provided the Secretary of War approves which I believe he will.

Very respectfully,
A. W. Greely,
Major General, Commanding

5
PLAN OF THE EXECUTIVE COMMISSION[286]
Submitted to the Finance Committee, Relief and Red Cross Funds, June 26, 1906

[286] See [Part I], [p. 20].

The work to be undertaken will naturally fall into eight main departments.

I. Management and Sanitation of Camps. The camps are of four classes:

1. Military Camps on military reservations. These will continue under the supervision of the military authorities and our only relation to them will be to furnish any necessary food, clothing or other relief, and to arrange for the eventual removal of any who are not able to make their own arrangements.

2. Military camps in public parks and squares. The problem in these camps is to provide superintendence, sanitation, policing and labor, which are now supplied by the Army. The present organization should be continued, the pay-roll being transferred but the personnel so far as possible being retained from the commanding officer of camps down. Estimates for the expense of conducting these camps for the month of July have been supplied to the Finance Committee by General Greely and appropriations in accordance therewith are recommended.

3. Camps in public squares or on other city property not under military control. These camps should be immediately incorporated into the system which now prevails in the military camps. The co-operation of the Park Department, the Health Department, and the Police Department will be essential, but we are informed by the Mayor that the expense of sanitation and policing which has heretofore been borne by the Army will have to be met from the Relief Fund and probably the same is true of the non-military camps which will become a part of the same system.

4. Camps and straggling shacks and tents on private property. The Commission will have no authority to interfere with persons living either in tents or in temporary dwellings on private ground, but the giving of any relief to such persons may be made subject to any conditions which are considered necessary, and the intervention of the Health Board may be asked whenever there are insanitary conditions.

II. Warehouses. After July 1st, there will be only two warehouses, one in the Moulder School, for provisions and the other, now in the Crocker School, and about to be removed to the new warehouse, Geary and Gough Sts., construction of which has been authorized by the Finance Committee, for clothing and other relief supplies. It is expected that the present management of these two warehouses can be continued, the military officers now in charge being given leave for this purpose and engaged by the Commission. In this event the officers, as superintendents of the warehouses, will probably be made purchasing agents of the Commission for the kind of goods of which they respectively have charge.

III. Hot Meal Restaurants. There are now some 27 hot meal restaurants, on which 10 cent and 15 cent tickets are issued by the Red Cross in the several sections, to be redeemed by the Finance Committee. As these restaurants are located in camps any necessary supervision of their management and sanitation so long as they are continued may safely be entrusted to the superintendent of camps and to those who are in charge of the several camps under his direction. The Commission should assume responsibility for the issuing of tickets and certifying the bills of the contractors to the Finance Committee.

IV. Section Organization. The civilian chairmen of the seven sections, in addition to their duties in the distribution of food and clothing in the relief stations have succeeded to the duties of the military chiefs of sections, and they should be responsible to the Commission until relieved, which cannot probably be earlier than the end of July. These chairmen have given their entire time to this work since May 1st and they should be paid for their services. They should be held responsible in the immediate future for the distribution of clothing, meal tickets and other relief and for the second registration which is now in progress and which will bring to the Commission a large number of cases in which gifts of money or its equivalent are required.

V. Hospitals. The care of the indigent sick has thus far been in part in emergency hospitals maintained as a part of the camp system, and in part in private hospitals on a per capita basis—payment being made to the hospitals for each patient who is accepted as a proper charge on the relief fund. It is desirable that the present plan be continued, under the supervision of the Commission, the medical executor who has been engaged by the Hospital Committee remaining in charge and supervising the emergency hospitals in camps as well as the care in private hospitals, of which the expense is met from the Relief Fund.

VI. Special Relief. This is now one of the most important parts of the work to be done by the Commission. It includes all aid given to individuals or families other than food or ordinary clothing. Its key-note is rehabilitation. Its object is to enable those who are now dependent on the relief stations, or whose means of livelihood have been destroyed, to become self-supporting. The means employed are the furnishing of tools, furniture, sewing machines or other things, transportation to other places, or loan, as may be indicated by the investigation in each instance. The Finance Committee has thus far advanced $15,000.00 for experimental work in this direction. About 500 applications have been passed upon, and checks have already been drawn and await signature, for over $3,000.00 in excess of the amount appropriated. It is recommended that an additional appropriation for this purpose be made at once. An advisory committee of 5 or 7 members will be appointed in connection with this work.

VII. Loans. The Commission has under consideration the advisability of opening a department of loans on

1. Pledges, such as are ordinarily deposited in pawn-shops.

2. Real estate mortgage for the erection of homes.

3. Chattel mortgage on furniture, etc., and

4. Personal endorsement.

Such a department or departments would be of great service to persons who do not wish to accept charity and who are still not in position unaided to build, furnish their homes or get started in business. Especially is this true on account of the delay and uncertainty in the payment of insurance claims. The Commission is not yet prepared to make a definite recommendation on this subject, and it is named only as one of the departments of work which it may be desirable to undertake in the near future.

VIII. Housing. The question of shelter appears to the Commission to be the one of paramount importance—so important indeed as to require not only further consideration by the Commission itself and by the Finance Committee, but also the co-operation of a strong board of consulting architects and builders who would doubtless be willing to assist the Commission in this capacity without compensation. Estimates are before the Commission for the construction of temporary dwellings of from $200.00 to $400.00 each. His Honor, Mayor Schmitz, has expressed the opinion to the Commission that instead of constructing such temporary buildings efforts should be made to provide before the winter season a sufficient number of permanent homes of an attractive character for all who need to be housed. The Commission is inclined to accept this view although it is admitted that some additional temporary barracks may be found necessary if by September 1st, it appears that there will be a shortage of permanent housing accommodations.

If the Finance Committee decides that it will be advisable that $1,000,000.00 or some such amount be invested in acquiring land and erecting homes to be rented and sold on reasonable terms of monthly payment, it is probable that this sum can be greatly augmented by investment from private parties, if for any reason the Government deposits are not found to be available for this purpose. The business can be so conducted as to pay a reasonable return on such investment and still make the dwellings of moderate cost to the renter and purchaser.

Finances. It is understood by the Commission that complete financial control remains with the Finance Committee as was suggested by General Greely in his letter of June 15 to the Finance Committee. All work undertaken by the Commission will be on estimates and plans submitted in advance to the Finance Committee. All bills will be audited and paid by the Finance Committee. The Commission will make only such purchases and contracts and engage such employees as have been authorized by the Finance Committee, and the certificate of the duly authorized officers and agents of the Commission would become a warrant for payment when found to be in accordance with the action of the Finance Committee. Certified copies of resolutions authorizing given lines of work should be supplied by the Finance Committee to the Commission. On the other hand, to fix responsibility and prevent confusion, all executive work, both for relief and for rehabilitation, should devolve upon the Commission, which should be held responsible for initiating relief measures, presenting them to the Finance Committee and subsequently carrying them into effect.

6
ORIGINAL HOUSING PLAN
Recommendations Submitted to Finance Committee, July, 1906

San Francisco, Cal., July 10, 1906.

James D. Phelan, Esq.,
Chairman Finance Committee.

Sir:—

The Finance Committee at its last meeting referred to the Rehabilitation Committee for consideration and report a proposition made in the Finance Committee by Mr. M. H. de Young that a donation be made to any workingman owning a lot in the burnt district of one-third of the value of the dwelling to be erected on it, this donation however, not to exceed in any case the sum of five hundred dollars, and to be paid, not to the lot owner, but to the contractor who builds the house when it is completed and clear of liens.

The Executive Commission has had under consideration various plans for acquiring tracts of land and building homes for sale or rental, one such plan having been referred to the Commission by the Finance Committee at its last meeting. The Executive Commission has also appointed, with the knowledge and approval of the Finance Committee, a consulting board of architects and builders who have placed their services at our disposal without compensation, both for expert counsel on general plans and for the making of suitable designs for dwellings which might be built by the Commission, or by individual lot owners.

Under these circumstances, both the Executive Commission and the Rehabilitation Committee have given careful consideration to this subject, and have held informal joint sessions in order that any recommendations made by this Committee might have the endorsement of both bodies, and might, if possible, be such as to secure the immediate favorable consideration of the Finance Committee. It is agreed on all sides that no time is to be lost if houses are to be made available before the winter season, and before the tents which are now in use are so dilapidated as to be uninhabitable.

The Rehabilitation Committee recommends the acceptance of the principle that workingmen and others of moderate means whose homes were destroyed by fire, who own lots in the burnt district, and who cannot obtain from banks, building and loan associations or other societies enough to rebuild without assistance, should be aided in rebuilding by a donation or loan from the relief fund. This policy involves no new action by the Finance Committee except the appropriation from time to time of such sums as may be required by the Rehabilitation Committee to carry it into effect. It is exactly in line with the work which that Committee was created to undertake. This Committee is therefore already endeavoring to ascertain how many applications are likely to be made for such donations or loans, and devising such safeguards as will protect the operation of the plan from the obvious abuses to which it might be subjected. If there are any conditions of such grants which the Finance Committee, or its members, would consider it desirable to call to our attention, it is suggested that this be done at the earliest possible moment; and if the Finance Committee disapproves the plan, that of course, should be indicated before any further steps are taken. As soon as the information is available, an estimate will be presented to the Finance Committee as to the amount of money which is required to carry this policy into effect. We consider it doubtful whether this plan, of itself, will go very far towards providing shelter for the families now in tents, but the time which has elapsed since the plan was proposed has not been sufficient to enable us to secure accurate information on this subject.

The Executive Commission on July 9th held a conference with the consulting Board of Architects and Builders, at which the Chairman of the Finance Committee, the Mayor, and some of the members of the Rehabilitation Committee were present, and the whole subject was exhaustively considered. The conclusion reached was that no one plan had been suggested which would completely solve the problem of housing the homeless families, but that immediate action is desirable in the following directions:

I. The first necessity is the shelter of those who are entirely dependent. We recommend for this purpose the erection on city property of an attractive permanent building or buildings on the cottage pavilion plan for the care of aged and infirm persons, chronic invalids and other adult dependent persons for whom it is not so much a question of rehabilitation as of permanent maintenance. We recommend that such building or buildings to be erected from the relief fund be large enough to accommodate one thousand men and women, and that the maintenance of the institution after it is erected be left to the municipality. Alternative plans would be to care for these aged and infirm persons in existing private institutions, on a per capita weekly basis similar to that on which patients are now cared for in private hospitals, or to make an allowance in the nature of a pension for their care, in private families. We believe that the erection of a special pavilion would be more economical and that it has the indirect advantage of enabling the city to secure an attractive modern public home for aged and infirm persons. The plan suggested, supplemented by the policy now in force of caring for the indigent sick in hospitals and the ordinary operation of the established charitable agencies of the city, will, it is believed, adequately and humanely shelter those who are actually destitute, and who, from lack of any earning capacity, must remain entirely dependent upon public relief.

II. The next and more serious problem is the supply of dwellings for families who ordinarily pay a moderate rental, who do not own land and have no considerable savings, but who are in receipt of ordinary wages. There are probably five thousand families now in tents or other temporary shelter who are in this position. Possibly, if those who are temporarily out of the city and who desire to return are included, this number may be ten thousand. No accurate estimate is possible for the reason that there is no information available as to what number have already permanently removed to suburban towns, what number has been absorbed in existing homes by the doubling up process, and what number will build for themselves. What is certain, however, is that no real beginning has yet been made by private enterprise or otherwise in the erection of dwellings for the five thousand families of which we do have knowledge, although nearly half of the long summer season, which, fortunately, lay between the disaster of April and the winter season, has already elapsed. It was, therefore, the unanimous conclusion of the conference, and it is the official recommendation of the Relief Commission that in addition to all that is done for individuals through the Rehabilitation Committee some considerable contribution to the supply of homes should be made directly from the Relief and Red Cross Funds, either by financial assistance to private individuals or corporations in building on a large scale, suitable dwellings, on satisfactory terms; or by the creation for this particular purpose of an incorporated body, which can make contracts and enforce legal obligations. It is, therefore, recommended: that unless the alternative suggested can be made immediately effective, eleven or more persons, including the Mayor, the Chairman of the Finance Committee and suitable representation of the National Red Cross, the Executive Commission and the Rehabilitation Committee, be designated by the Finance Committee to form a corporation under the laws of this State relating to corporations not for profit, that not less than one million dollars be subscribed by the Finance Committee as capital or as a permanent loan to this corporation; that the homes thus provided be sold on a monthly installment plan to families who were living in San Francisco on April 17th, and rented to those who are unable to purchase; that all income from rentals and sales after meeting necessary expenses be invested in the building of other houses, or for such other public philanthropic objects as may be decided upon by the corporation with the consent of the Finance Committee. After one year it might be found practicable and desirable for the corporation thus formed to sell its remaining property and interests to Savings Banks or otherwise, and to dispose of the entire sum thus obtained for the relief of those who were still at that time in any way in distress through the disaster, or if there were no such distress, then for some public purpose which might be decided upon.

The essential thing at this time is that, at the earliest possible moment some of the funds which are now lying idle in the treasury of the Finance Committee, shall be put at work providing homes for the working people of the community. The plan which we have recommended is proposed, first, as a relief measure because the tents will not provide proper shelter after October; second, as a measure of public policy, because, in the interests of the community it is not desirable that San Francisco shall lose her present population of working people merely because there are not dwellings to be rented or bought; third, also as a measure of public policy, because it is desirable that workingmen shall have the opportunity to own their homes, and this opportunity is now afforded, not on a charitable, but on a reasonable and just business basis; and, finally, because the intelligent and efficient carrying out of the plan proposed will enable the community to set a standard of attractive, sanitary, safe, and yet comparatively inexpensive dwellings which will have a beneficial effect not only in the immediate future, but for the coming generation. The co-operation of the municipal administration in enforcing suitable conditions as to sanitation, light, ventilation, fire protection, etc., of the architects in making plans for convenient and attractive homes at moderate cost, of the building trades in getting these homes built, and of the Finance Committee in advancing capital and creating a corporation which will ensure the purchasers against fraud or injustice, will solve the housing problem and nothing less than this co-operation will solve it.

In closing this report, however, the Rehabilitation Committee and the Relief Commission alike wish to emphasize the fact that there is no intention that the relief fund shall become a providence of the refugees, solving all their difficulties and relieving them of all individual responsibility. On the contrary, it is confidently expected that each family will to the greatest possible extent solve its own problems, find its own capital, decide on the plans for its own home, discharge its obligations for any money advanced as soon as practicable, and that if these recommendations are adopted the entire business will be so conducted by the Rehabilitation Committee, the Executive Commission and the corporation formed for the purpose of acquiring land and building homes, as to preserve in full integrity the fundamental traits of American character, individual initiative and personal responsibility.

Respectfully submitted on behalf of the Executive Commission and the Rehabilitation Committee.

Edward T. Devine,
Chairman.

7
THE INCORPORATION OF THE FUNDS

SAN FRANCISCO RELIEF AND RED CROSS FUNDS, A CORPORATION
(Incorporated July 20, 1906)

MEMBERS AND DIRECTORS

Changes made later:

The plan of organization adopted by the Executive Committee of the Corporation for conducting the five departments into which it divided its work was as follows:

DEPARTMENT A. FINANCE AND PUBLICITY

This department shall be in charge of the President or Acting President of the Corporation. It shall comprise all matters pertaining to

Finances of the Corporation.

The donations made or promised to the Corporation.

The custody of funds on hand.

The General Office.

The Bureau of History.

All publications issued or made by this Corporation.

All Information to be given to the Press shall emanate from this Department or shall be submitted for approval to this Department before being printed except that each Chairman of the Department may transmit information concerning the work contemplated or done in his Department to the Press.

All automobiles except when assigned to their Departments, shall be in the custody and under the direction of this Department.

The Staff of this Department shall consist of the Secretaries and stenographers at large.

Accountants and Employees of the General Office.

The Janitors, door-keepers and messengers of the Office Building.

The Chauffeurs of the automobiles not assigned to other Departments.

The Committee and employees connected with the History Committee.

Any other employees for general work except those of the other Departments.

DEPARTMENT B. BILLS AND DEMANDS

This Department shall be in charge of Chairman, M. H. de Young. It shall comprise all matters pertaining to bills and demands against this Corporation.

Staff of this Department shall be the employees required for the examination of all bills and demands to be passed upon by this Department.

DEPARTMENT C. CAMPS AND WAREHOUSES

This department shall be in charge of Chairman Rudolph Spreckels. It shall comprise all matters pertaining to:

Camp and camp supplies.

Sanitary matters connected with camps.

Outside warehouses and contents of same.

The staff of this department shall be employees of the office of this department, the Superintendent, officers and assistants and employees in charge of or connected with camps; Officers and employees in charge of or connected with Warehouses.

DEPARTMENT D. RELIEF AND REHABILITATION

This Department shall be in charge of Chairman F. W. Dohrmann. It shall comprise all matters pertaining to the business of the Special Rehabilitation Committee appointed by this Corporation.

Of all applications for donations, relief and assistance not regularly referred to the Special Rehabilitation Committee.

Of all matters connected with patients placed in hospitals on account of this Corporation.

The Staff of this Department shall be:

The office employees required in addition to the staff of the Special Rehabilitation Committee.

DEPARTMENT E. LANDS AND BUILDINGS

This Department shall be in charge of Chairman Thomas Magee. It shall comprise all matters pertaining to the erecting of a municipal home for the indigent and aged.

The erecting of temporary buildings for housing the refugees.

The granting of bonus for the building of individual homes.

The buying of land and erecting buildings on same to be rented or sold on installments.

The collection of rent or payments for buildings rented or sold.

Any other provisions or plans for acquiring land, erection of buildings and the providing of homes for families.

The Staff of this Department shall be:

Employees of the Office of this Department.

General Business Manager and Assistants.

Architects, Draftsmen and Builders required.

Legal advisers necessary for the transaction of the business of this Department.

8
APPOINTMENT OF BOARD OF TRUSTEES RELIEF AND RED CROSS FUNDS, FEBRUARY, 1909

Results of Conference between Chairman Executive Committee of San
Francisco Relief and Red Cross Funds and Representative
American National Red Cross,
January, 1909

All active relief work to cease at once. A reserve fund of $100,000 to be set aside for the payment of all judgments or other legal claims, for all refunds due camp tenants, and for meeting the current expense of the corporation. All other reserve funds to be cancelled and the amounts reserved transferred to a General Relief Fund. All receipts and any balance left of the $100,000 reserve mentioned above to be paid into this general fund.

Specific appropriations were made out of the new General Relief Fund for certain philanthropic organizations to the amount of $150,000. The rest of this fund was to be used as follows:

The balance of the General Relief Fund, consisting of all the money in the hands of the San Francisco Relief and Red Cross Funds, a Corporation, not specifically reserved or appropriated as hereinbefore described, and all money hereafter received from cancelled reserves and appropriations and from collections, unexpended balances and receipts from whatever source as above provided, is hereby appropriated for the purpose of general relief. It is intended that this relief shall be of a character that will most speedily and effectually remove the needs and distress still existing or which may develop prior to April 18, 1911, as a direct or indirect consequence of the fire.

BOARD OF TRUSTEES OF RELIEF AND RED CROSS FUNDS

To the end that the purposes of the Executive Committee, as above described, may be carefully and thoroughly executed, there is hereby created a Board of Trustees of Relief and Red Cross Funds. This Board shall consist of five members as follows: F. W. Dohrmann, Oscar K. Cushing, D. O. Crowley, John A. Emery, A. Haas.

The existence of the Board shall terminate when its duties are completed, but in any event not later than April 18, 1911. The Board shall have power to fill vacancies in its membership, subject to the approval of the Executive Committee and of the National Director of the American National Red Cross. The officers shall consist of a Chairman, Vice-Chairman and Treasurer, to be selected by the Board, and the Board may partition its work into such departments or subdivisions as will expedite the discharge of its duties and increase its efficiency. Authority is hereby given the Board to defray from the fund in its hands, all the expenses necessary to the proper discharge of its trusts.

DUTIES OF THE BOARD OF TRUSTEES

The entire General Relief Fund remaining after the deduction of the amounts specifically appropriated as above described, shall be paid to the Board of Trustees by them to be expended at their discretion in such a manner and under such conditions as will strengthen the regular, organized, charitable and philanthropic agencies of the City of San Francisco.

In making grants to charitable organizations, the Board of Trustees may prescribe conditions which will safeguard the fund and assure its careful and proper expenditure. Every organization to which a grant is made, shall be required to submit vouchers to the Board of Trustees for all money expended.

The Board of Trustees shall fix the conditions under which specific grants shall be made, as above provided, to St. Luke’s Hospital, The Children’s Hospital, Roman Catholic Organizations, Jewish Organizations, German Organizations, such hospitals and kindred institutions as the Board itself is empowered to select.

It is expressly provided, however, that all grants to hospitals or kindred institutions are to be conditioned upon a return, by the institutions, of free service to the poor, of value equivalent to the amounts of the grants. Within this requirement, the Board is to have full discretion.

All current appropriations for individuals made in trust to the Associated Charities are hereby made subject to the Board of Trustees precisely as they were subject to the Rehabilitation Committee prior to February 1, 1909.

If the trust herein created is not terminated prior to April 1, 1911 the Board of Trustees, between April 1 and April 18, 1911, shall select organizations eligible under the terms of this trust, and allot to them in such sums and upon such conditions as it may determine, the entire amount of money remaining unappropriated in its hands. Provided, that any grant to a hospital or kindred institution shall be conditioned upon a return by the institution of free service to the poor of value equivalent to the amount of the grant.

Upon the termination of the trust, the Board shall make a full report of its operations and disbursements to the Executive Committee, and to the American National Red Cross, and the records and papers of the Board shall be turned over to the American National Red Cross for preservation in its archives.

Both executive committees adopted along with this plan the following agreement:

The American National Red Cross hereby agrees to forward to the Board of Trustees of Relief and Red Cross Funds the sum of $100,000 on or before March 1, 1909. This agreement is supplementary to the resolution of the Executive Committee of San Francisco Relief and Red Cross Funds, a Corporation, adopted February 4th, 1909, and will be without effect if said resolutions are rescinded or modified.

It is understood that the balance of the unreserved principal of the Relief Fund, remaining in the hands of the American National Red Cross, after the payment of the amounts herein specified, shall be held subject to such final disposition as the circumstances warrant.

This agreement before becoming effective shall be confirmed by the Central Committee of the American National Red Cross.

On February 4, 1909, the Rehabilitation Committee, at that time consisting of the men who had just been designated members of the Board of Trustees, met for the last time and listened to the resolution of the Executive Committee quoted above. After directing the Treasurer to return to the general funds all unexpended balances then in its hands, the committee adjourned sine die. On the same day they met as the Board of Trustees of Relief and Red Cross Funds and organized by the election of

Chairman,F. W. Dohrmann
Vice Chairman,Oscar K. Cushing
Treasurer,A. Haas

At the second meeting, February 12, the following committees were appointed.

CommitteeICare of the Sick,F. W. Dohrmann, Chairman
Rev. D. O. Crowley
CommitteeIIGeneral Relief,Oscar K. Cushing, Chairman
Rev. J. A. Emery
CommitteeIIIHousing and Sanitation,Rev. D. O. Crowley
CommitteeIVAccounts,A. Haas

9
LIST OF OFFICIAL CAMPS

Num-
ber		LocationOpened or
became
official		Maximum
population		Date of
closing
1Presidio, nr. Gen. Hosp.May 9, ’062053—May 9, ’06June 12, ’06
2Presidio, Tennessee HollowMay 9, ’06910—May 9, ’06June 12, ’06
3Presidio, Ft. Winfield Scott (For Chinese)May 9, ’06186—May 9, ’06June 12, ’06
4Presidio, Golf LinksMay 9, ’06329—May 9, ’06May 20, ’06
5Golden Gate Park, Children’s PlaygroundMay 19, ’063000—June 30 and Aug. 25, ’06Nov. 19, ’06
6G. G. Park, Speedway (For Aged and Infirm)June 1, ’06835—July 14, Sept. 26, ’06Aug. 23, ’07
7G. G. Park, LodgeMay 19, ’061606—May 30, ’06Dec. 17, ’06
8Harbor ViewMay 9, ’062840—Aug. 25, ’06Jan. 11, ’07
9Lobos SquareMay 9, ’064933—June 18 to 22, ’07June 30, ’08
10Union Iron WorksMay 9, ’062240—Aug. 28 to 31 & Sept. 1 to 8, ’06Dec. 1, ’07
13Franklin SquareMay 19, ’061116—Nov. 23 to Dec. 1, ’06Nov. 6, ’07
15Fort MasonMay 19, ’06850—May 19, ’06June 12, ’06
16Jefferson SquareJune 2, ’062000—June 2 to 21, ’06Aug. 23, ’07
17Lafayette SquareJune 2, ’06622—June 29 to July 1, ’06Feb. 2, ’07
18Mission Park (before cottages were built)June 5, ’06295—June 5-6, ’06June 6, ’06
19Duboce ParkJune 8, ’06650—Sept. 1-15, ’06Feb. 2, ’07
20Hamilton SquareJune 5, ’06702—Dec. 3-8, ’06Aug. 31, ’07
21Washington SquareJune 6, ’06593—Feb. 7-July 12, ’07Sept. 17, ’07
22Alamo SquareJuly 9, ’06857—Oct. 1, ’06Mar. 13, ’07
23Precita Park (Bernal)July 6, ’06520—Feb. 25-May 8, ’07Oct. 11, ’07
24Columbia SquareJuly 11, ’061500—Mar. 22 to July 12, ’07Nov. 26, ’07
25Richmond (Irregular boundary bet. 13th and 15th, Lake, and A Sts.)Nov. 20, ’064130—May 20, ’07Jan. 1, ’08
26Ingleside (Ingleside Race Track)Oct. 9, ’06809—Nov. 22, ’06Jan. 22, ’08
28South ParkDec. 3, ’06648—Feb. 15 to May 15, ’07Jan. 7, ’08
29Mission Park (after cottages were built)Nov. 19, ’061600—April 16, ’07Oct. 22, ’07
30Portsmouth SquareDec. 18, ’06388—May 27-28, ’07Oct. 11, ’07
11 A small unofficial camp at Bothin, Marin County.
12, 14 No camps were given these numbers.
27 Land at 18th and 20th and Potrero Ave., selected as a camp site but not used.
31 Garfield Park, selected as a possible site, but not used as an official camp.

10
GRANTS TO CHARITABLE ORGANIZATIONS

A. BY DENOMINATIONS AND NATURE OF WORK

Auspices
under which
grants were
administered		GRANTS
USED IN		All
grants
Non-
sectarian
work		Sectarian
work
Catholic$93,720$49,000$142,720
Protestant88,59820,500109,098
Jewish5,00034,00039,000
Non-sectarian285,600..285,600
Total$472,918$103,500$576,418

B. BY DENOMINATIONS

Organizations
aided		GRANTS ADMINISTERED UNDERAll
grants
Roman
Catholic
auspices		Protestant
auspices		Jewish
auspices		Non-
sectarian
auspices
Benevolent organizations$38,000$12,600$20,000$66,000$136,600
Homes28,0004,2003,00043,50078,700
Orphanages22,00020,693..13,50056,193
Organizations for aiding children27,50017,700..26,55071,750
Kindergartens220..1,00010,15011,370
Schools7,500......7,500
Hospitals10,00022,90510,00070,500113,405
Clinics......12,80012,800
Settlements3,0009,0005,00029,50046,500
Missions..1,000....1,000
Miscellaneous6,50021,000..13,10040,600
Total$142,720$109,098$39,000$285,600$576,418

In addition to the grants mentioned in the table there was paid from the New York Chamber of Commerce Fund, to St. Luke’s Hospital $25,000, and to the Children’s Hospital $25,000. The Massachusetts Association for the Relief of California sent to the University of California Hospital $100,000.

11
REHABILITATION COMMITTEE: DETAILS OF ADMINISTRATION

I. Directions given by the Associated Charities. For the use of workers in the seven civil sections.

1. A Section Agent will be appointed at the headquarters of each of the civil sections, to represent the Associated Charities, and to whom all the visitors shall report. The Section Agent shall have charge of the records, and it shall be her duty to see that the work hereinafter outlined is properly carried out.

2. Each application card, as it is brought in by the visitor, must be catalogued by name in a card index. After being approved by the Section Agent as to the completeness of the investigation, it should be passed on by the Section Committee, and should then be sent to the Rehabilitation Committee.

3. The recommendation of the Section Committee should be endorsed on the back of the card under the heading, “Investigator’s suggestions as to what should be done.”

4. All letters or other papers relating to the case should be fastened to the card by a wire clip, and should be sent with it wherever it goes.

5. When the card is sent to the Rehabilitation Committee, the index card prepared by the Section Agent should be sent with it and the Rehabilitation Committee will place on the index card the number given by it to the application card on its records. This number will serve as the receipt of the Rehabilitation Committee, and will also give the Section Agent a ready reference to the records of the Rehabilitation Committee. The index card must be returned to the Section Agent by the messenger who brings it to the Rehabilitation Committee, and the Section Agent must keep a proper record of the index cards sent in, so that she will be sure to get them back.

6. The Rehabilitation Committee will in due time report through the same messenger, to the Section Agent, the result of its action in each case. The receipt of the Section Agent will be taken in each instance. The character of its action will of course be based upon the merits of each case. In one instance, a request for transportation may be granted; in another, a check for a loan or grant of money may be furnished; in another, a requisition for certain supplies may be given; and occasionally, an application may be refused.

7. When the report of the Rehabilitation Committee is received by the Section Agent, a brief note thereof must be made on the index card, and a notice should be sent to the applicant, requesting him to call at the Section Office. A printed form will be provided for this notice. Except in cases of refusals, the receipt of the applicant should be taken on the index card for whatever is given to him.

8. In case a check is given by way of loan, it will be accompanied by a promissory note, which must be signed by the applicant when the check is given to him, and the Section Agent should sign the promissory note as a witness. This promissory note should then be returned to the Rehabilitation Committee by the messenger already referred to.

9. The Rehabilitation Committee, in reporting its actions in each case, will attach a slip, giving directions to the Section agent as to what is to be done. (For instance, stating if a promissory note is to be taken, or giving other directions of a like character.)

10. The visitor should notify the applicant in each case that he will receive a notice from the Section Agent as soon as his application has been acted upon by the Committee.

11. The Section Agent must keep the Chairman of the section advised as to the result of each application, so that the Chairman may know what provision has been made for the applicant, and whether or not the applicant should move from the camp, or be denied further food supplies or other assistance.

12. Visitors should indicate on the upper margin of the card,[287] just left of the words “National Red Cross,” the Section from which the card comes. Space should be left in the upper left-hand corner of the card for the number to be placed thereon by the Rehabilitation Committee.

[287] [Appendix II], [p. 428].

13. The name of the visitor and the date of the application should be written on the upper right hand corner of the card.

14. In cases where applicants require Housing and nothing else, the registration cards should be held at the Section Headquarters, and a duplicate separate index should be kept on such cards, catalogued by name. It may be necessary to hold other cards, and these should be filed and indexed in the same way.

15. One visitor in each section will be designated to act as a messenger between the Section headquarters and the office of the Rehabilitation Committee, so that she may keep in touch with the work of the Committee, and so that inquiries by applicants and such other questions as will naturally arise may be referred to her, to be taken up with the Committee when she calls. She will also bring back to the Section headquarters the result of the action of the Rehabilitation Committee, and should make at least one call a day on the Committee.

16. A general agent of the Associated Charities will have supervision over the work of all the sections. It shall be his duty to see that the records are properly kept and that the work is correctly and rapidly performed. All Section Agents and Visitors shall be under his direction. He shall report to the General Secretary.

17. A weekly report must be sent to the Rehabilitation Committee through the general agent, every Monday, showing for each section separately:

1. The total number of cases investigated.

2. The number of cases investigated during the preceding week.

3. The number of applications sent to the Rehabilitation Committee.

4. The number of applications for Housing, etc., held at the section.

The plan outlined above was carried out until the closing of the section offices.

II. Monthly Budgets. The monthly budgets of the Rehabilitation Committee, including those of the Associated Charities, from July, 1906, to June, 1907,[288] were as follows:

MonthNumber
of
employes		Total
expense		Expense
for
salaries		Expense
for
supplies,
etc.
1906
July134$8,600.00$7,800.00$800.00
August17011,500.009,573.501,926.50
September13210,000.008,000.002,000.00
October635,300.004,130.001,170.00
November806,300.005,300.001,000.00
December1108,235.006,735.001,500.00
1907
January1148,594.007,094.001,500.00
February1108,000.006,572.001,428.00
March?6,000.00??
April312,500.002,172.60327.40
May222,000.001,744.40255.60
June201,750.401,615.40135.00

[288] This does not include budgets of other bureaus of the Department of Relief and Rehabilitation. Some of the figures are only approximately correct. They include employes: both the Associated Charities staff and the employes of the Committee. They do not include volunteers. The question marks indicate that data are not available.

III. Method of Work Beginning July 7, 1906, in Connection with the District [Section] Organization. The system of entering applications and filing records was carefully worked out.

The applications recorded on the National Red Cross cards were taken to the Rehabilitation Office and put at once on the registrar’s desk. Each face card was clasped together with its continuation cards with an ordinary paper clip. The registrar and most of her assistants were young women who had had experience in indexing in the public and other libraries of the city. Duplicate index cards were each marked with the number of the case, which number was then entered on the National Red Cross card. The numbers were assigned consecutively. The cases were then placed in manila folders similar to those used in the index files of business houses, and were at once placed in boxes on the desks of the reviewers. At the same time the index card was placed in an alphabetical file with the number of the case. The surnames and Christian names of the applicants were entered in a book in consecutive order as the numbers were assigned.

Each case was read by a reviewer who made underneath the recommendation of the section committee his own recommendation, which might or might not be identical in terms. A paster[289] was used on which to enter the recommendation made by the section committee or by the reviewer. After October 1, 1906, the recommendation was entered on the paster by the sub-committee of the Rehabilitation Committee, and, when a grant was made, the number of the check drawn was also entered on the paster. If more than one application were made, or more than one action taken by the committee, a separate paster was used for each application and for each decision.

[289] See paster. [Appendix II], [p. 433].

During the periods of district organization, as soon as reviewers had made their recommendations the cases were put in consecutive order in large boxes, to be acted on by the members of the Rehabilitation Committee. After a boxful had been approved or disapproved, they were taken to the bookkeeper’s department. Expert bookkeepers were found to be essential. The bookkeeper made entry of grant or refusal of grant, of cases referred or not found, in consecutive order in a cash journal. Each grant was recorded in the appropriate column, as, “Business,” “Household,” etc. On the cash journal page a running account was kept with the bank in which the funds were deposited. In the debit column were entered the appropriations as they were deposited, as well as returns upon loans and canceled checks. In the credit column was kept the amount of checks issued. Upon each check was entered the corresponding case number, so that there might be a double checking. The checks were then attached to the front of the record cards, and were presented to the treasurer for signing. The treasurer corrected any mistakes in drawing checks, and observed whether the rules of the committee had been followed, and if the approvals were in regular form.

The signed checks were given to a responsible official, who reclassified the cases by sections. He then made a double memorandum receipt, and turned over the checks to the section messengers. The records were not returned to the sections with the checks. If a case had been refused, referred, or action taken other than making a grant, the record itself was sometimes referred back to the section. When the checks were received at the section office, notice was sent to those for whom they had been drawn. The banks upon which the drafts were made accepted the signatures of one or more salaried workers in each section.

The records were of necessity handled by a great many people other than those responsible for the financial management. It was, therefore, very early deemed advisable not to file receipts of the applicants with the case records themselves. These receipts were kept in a separate place, being filed according to case number and being readily accessible for reference purposes. In not over 10 out of a total of 27,570 checks, were the checks given to the wrong person. In all except one of these 10 cases, the person receiving them had the same name as the endorsee. The instructions were very strict in order to make identification sure.

As much exasperation and delay was at first caused by difficulty in finding case records when needed, a tracing system was introduced. Whenever a case was transferred from one person to another, or from one desk to another, a slip was made out, giving the number of the case and indicating from whom it was going and to whom. The tracing clerks had charge books with the case numbers in consecutive order. When each slip was received, the clerk entered against the case number the last charge, by initials or abbreviation, so that at any moment it would be possible to find who at that time had the case in charge. The rigid rule of the office was to note transfers immediately, and though there were violations of this rule, its importance was so deeply impressed upon the staff that the number of mistakes was comparatively small. Two thousand transfers were entered on one day, October 1, 1906. When a case was ready for filing, the fact was recorded in the charge or tracing book. Each person was required to keep the cases with which he was dealing, at all times in consecutive order. Four hundred cases might be awaiting the review of the committee; another 400 might be in the hands of the reviewers; and still another 400 in the hands of the filing clerks. The ability rapidly to find cases was materially increased by this simple arrangement.

A special clerk received the case records from the auxiliary societies. He kept a book in which to enter the name of each case, of the society which referred it, and the grant asked for. This clerk took the cases himself to the registrar, kept a list of them, and saw that they were transferred from the registrar to the table of the committee, and from the committee’s table to the bookkeeping department. After the checks were drawn, he made sure that the records and the checks were taken to the treasurer. After the checks were signed, it was his duty to see that they were placed in the hands of officials of the proper societies. If other action were taken, he was responsible for seeing that a memorandum was given to the proper persons.

The special duty of another clerk was to wait upon the sub-committees while they were passing upon cases. This clerk arranged the cases in consecutive order, saw that the committee did not omit any, looked up cases considered out of their turn, made memoranda of cases returned for further investigation, etc.

No applications theoretically were received at the Rehabilitation Office during the time of district or section organization. As a matter of fact, it was necessary to have at the central office from one to four reception agents. As far as possible the applicants who came to the Rehabilitation Office were referred to the Associated Charities office, but oftentimes it became necessary to treat a case as emergent. In addition to the interviewers, therefore, there were from one to four investigators at work from the center.

Many of the transportation cases, after being registered, were referred directly to the secretary of the superintendent, who was practically the corresponding secretary for the office. It was necessary closely to watch these cases, to follow up a first inquiry with a second letter and sometimes with a telegram, and even in some cases with a third communication. Where these brought no replies, it was necessary to reconsider the case to see if the transportation should be ordered, with the insufficient information on file, or whether some other action should be taken. With the transportation cases awaiting answers were filed cases which awaited answers from business references. It was found necessary to check this file regularly at least twice a week.

Upon the approval of recommendation for transportation, the cases were as in other instances sent to the bookkeeper. One of the bookkeepers entered in the Transportation Book the number of the card, the number of the order upon the railroad, the name of the applicant, the destination, the number of individuals, the number of tickets required, applicant’s contribution, railroad contribution, and committee’s contribution.

Letter of Information No. 2.

Regarding transportation. Sent to the Sections July, 1906.

With regard to applications for transportation it may be well to instruct you more fully as to what the railroads are doing for us and what we can be expected to do for applicants favorably recommended. As you know, the Rehabilitation Committee is receiving no free transportation from any of the railroads. The Southern Pacific is now quoting us two rates, the lower one to be used when the transportation expense is to be charged to this Committee, and the higher in cases only where the applicant himself is to pay. The best rate we can get for eastward bound refugees, when the whole expense is to be borne by this Committee, is that of one cent a mile as far as Chicago, St. Louis or New Orleans; half fare beyond in the Central Passenger Association, or Southern Passenger Association, territory to Buffalo, Pittsburg, and Atlanta, and full fare beyond any of these points to the seaboard. Where the applicant is himself to pay, he is charged at the rate of half fare as far as Chicago, which is equal to half fare as far as Buffalo or Pittsburg, and full fare beyond.

The California and Northwestern Railway Co., will transport refugees free for us whenever it is a case of this Committee recommending that they pay nothing.

In the matter of steamship transportation, the rates we are getting are not so favorable; the best seems to be a quotation of second cabin passage rates for first cabin accommodations, and perhaps a low steerage figure. We usually give the approved applicant a special letter to the Gen. Manager or Passenger Agent of the steamship company authorizing the company to charge us with the amount of fare and to make it as low as possible for this Committee. Of course, we demand nothing and only ask and recommend in each specific case.

With this information you may be better prepared to advise applicants who are seeking transportation out of the city.

IV. The Centralized System. The centralized system caused but little change to be made in the system of the Rehabilitation Office itself. With the organization of the sub-committees, a requisition blank was introduced. Whenever a committee desired a particular case, it was asked to fill out one of these blanks, and send it to the registration office. Secretaries of the committees had supervision of the clerical work done in connection with each of their departments. The bookkeeping and tracing systems remained practically the same.

V. Consideration of Cases out of Turn. The following letter was issued by the superintendent in July, 1906.

Letter of Information No. 5
Regarding Emergency Cases

“To all Sections:—

“A number of cases have been forwarded with emergency cards, which should not have had them. The Committee assumes that few emergencies can possibly arise after a lapse of 3 months, which require immediate settlement.

“An excellent illustration of a ‘mistaken’ emergency:—A carpenter, idle since the fire discovered eight days ago that he must have tools to go to a job the following date.

“The emergency card was taken off by direction of the Superintendent because the natural query arose why had he not been working long before at something. As he had not, he could very well wait until his case was reached in regular order. Carpenters are at a premium.

“Emergency cases delay appreciably the progress of other cases and should be reduced in number.”

The letter notes an important point; namely, the delays and inconveniences that are caused by cases having to be considered out of turn.

On July 23, 1906, the Rehabilitation Committee voted that ordinarily no cases should be considered emergent unless sickness or death were involved. It goes without question, however, that such a rule could not be strictly lived up to. Unusual situations arose which had to be attended to. From time to time cases were sent back when the Committee refused to handle them as emergent. It is probably true that this particular question cannot be adequately dealt with by rules. The necessity is for responsible committees to maintain the closest sort of supervision and to refuse to consider out of turn cases which obviously do not demand immediate attention.

With the establishment of Sub-committee No. 1, which had a revolving fund, the work was placed on a much better basis. With any letting down of the bars, the number of requests brought up, not only by paid workers, but by committee members, constantly increases. In the early days, the Rehabilitation Office was overrun at times by persons who were asking for special attention for families they knew. The need of taking up some cases out of turn is granted; the emphasis should be laid upon its regulation. It should be borne in mind that there is a high principle involved; that is, the rendering of strict justice to those families which have no friends at court, and which have not pressed their own claims.

VI. A Lesson Learned Regarding Records. In the review of the rehabilitation work, it is quite apparent that the theory that a case can be dealt with completely at one time is impractical. No set of rules could or should effect the result of a family’s being considered once only and then as a case be marked “finally closed.” A rehabilitation committee should recognize that a large number of cases may be re-opened, and plan its record system so that there will be no confusion in interpreting the re-openings.

The second Red Cross card[290] and supplementary blank cards for extended investigations, were the only general record cards in use. To the Red Cross card a “paster”[291] was attached by its gummed end, each time that a case was re-opened. The number of pasters on some record cards was from five to 10. The charity organization experience is that nothing can take the place of the chronological record. Owing to the use of the pasters without the carrying on of the chronological record the system failed.

[290] [Appendix II], [p. 428].

[291] [Appendix II], [p. 433].

Though the supplementary cards used in connection with the Red Cross cards made a chronological record of the facts possible, there was no uniformity in the keeping of the records. In connection with records of rehabilitation work, the important points are to learn the exact date of each application, the date upon which it was passed or refused by the committee, and the size of the grant, if any. These important points should be grouped somewhere for quick reference. In addition, a summary should state the kind of rehabilitation asked for in each application. The suggested form of summary to be filled in at the time that each application is passed upon would be as follows:

The sub-committees under the centralized system failed to maintain a uniform standard. The most orderly records were those of Committee VI, the business committee, and Committee I, the emergency committee. The housing committee used numerous blanks, but in order to trace a housing case it is necessary to wade through the entire correspondence, because the applications were frequently filed within the correspondence. In the examination of cases from the other committees for this Relief Survey, it was wellnigh impossible for the tabulators to learn in what manner, and at what time, and for what reason, the re-openings occurred. The only fact that was evident was that there had been reopenings, because there were successive pasters indicating refusals or grants. In some instances the reason for re-opening, instead of being placed in its proper order upon the chronological sheets was written on top of the paster itself in the space allowed for “Recommendation.” Sometimes by an exhaustive study of all the documents on file, it was possible to guess approximately the date of re-opening and why there was a re-application. If the various chairmen of sub-committees had been working in daily contact, as they were in the second and third periods, a better standard would have been maintained.

Two things have been absolutely demonstrated; first, that the records should approximate in form those used by charity organization societies. First, dates should be given for everything said or done, these dates should be arranged chronologically on sheets or cards in sequence, and the fact of the receipt of letters or documents, or of the sending of letters or documents, should be entered in their proper chronological order. Second, there should be a place upon the face of the card or immediately attached to it for the summary of applications and decisions.

VII. Loose Ends. The Rehabilitation Committee made endeavors to gather together the loose ends that resulted from the fact that small relief funds were distributed of which no record was given to the Rehabilitation Committee. Among such funds may be mentioned those in the hands of the Town and Country Club; the Doctors Daughters’, the Physicians’, as well as the Portland (Oregon) fund and the various church funds. In spite of there being special funds, for instance for relief of doctors, the committee was constantly receiving applications from physicians. It is hoped that the givers of similar funds in the future may be gradually educated to the point of insisting upon system and concentration of authority in their distribution; otherwise there is bound to be waste.

VIII. Bookkeeping and Registration Notes. The statement is axiomatic that the most effective workers should be at the places of greatest congestion. When a large relief problem is to be met these will usually be the bookkeeping and registration departments. It should be re-emphasized that in these two departments the very best help should be searched for. In the registration work the Rehabilitation Committee was fortunate in securing a number of library clerks for indexing. The system of filing correspondence was not uniform. Some of the secretaries, however, as the case records were in folders consecutively numbered, adopted the satisfactory plan of keeping an index of the persons written to, together with the number of the cases written about. In order to make possible a rapid separation of replies to letters there should be a centralization of correspondence. Under the section system this was not necessary, owing to the fact that letters were sent out with the addresses of the section offices, to which replies naturally went. Possibly the only centralization necessary would have been to keep a complete index of the names of persons written to, which would have required the various secretaries to send to some one person a duplicate card, giving the name of the correspondent and the case number.

The Rehabilitation Committee’s experience proves that the authority to give the numbers for the case records should be in one place, so that confusion through the duplicating of numbers may be avoided. The rigid standards of the best charity organization societies are none too rigid, when one realizes that while such a society may deal within a year with from 2000 to 6000 families, a committee such as the Rehabilitation Committee might have to deal with over 25,000. Another most important consideration is the need of impressing workers with an appreciation of the value of records and of the call for absolute accuracy. It should be realized that care with records does not mean red tape or loss of time, but added efficiency. It means not only less worry for the workers themselves, but quicker meeting of the needs of individual families. Every minute spent in hunting for a lost record or endeavoring to supply an omitted entry, means a minute more of delay to a number of other families. These minutes grow astonishingly large in number, so that by and by they may be computed in days. Not only were there such delays at times, but it became occasionally necessary to reprove workers who had on their own responsibility made changes in the records. In some cases, for instance, the names of members of particular families were changed, without the knowledge of anyone except the worker involved. As a worker close to the Relief Survey has well said, “There is constant need of impressing the sacredness of a record upon those who use it.”

12
GENERAL PLAN OF HOUSING COMMITTEE

The following plan for handling applications for cottages to be built by contractors was followed in the main by Committee V:

1. Original requests were to be received by mail only and references were to be consulted by mail; but in reality many persons came to the office to file their applications.

2. When this work was finished and the case indexed the application was placed before the Housing Committee for:

a. Such further investigation as it deemed necessary.

b. Action by Committee.

3. When the Committee decided to make a grant, directions showing the kind of house to be built, the amount to be paid to the contractor, and the amount of the instalments to be paid by the applicant, were written on a slip and attached to the application.

4. The applicant was then notified of the action of the Committee and was told that he must execute the proper contracts with the bank selected by the Committee, as follows:

a. If the applicant were the owner of the land, a note and mortgage binding him to repay the agreed instalments were drawn up and deposited with the bank, or

b. If the applicant were a lessee or had a contract to purchase the land, a conditional contract of purchase providing that the title to the cottage was to remain with the bank till paid for, together with a consent and waiver from the owner of the land, so that the owner of the land would not get a title to the house until all of the payments were completed.

c. The applicant was required to produce a receipt showing that he had paid to the Board of Public Works the necessary deposit for opening the street and making proper sewer connections.

5. When the above papers had been executed and presented to the bank the Committee was notified at once.

6. Orders were then given to the contractor to proceed with the building of the house.

7. Arrangements were made with the auditing department for drawing and forwarding the checks to be paid when so ordered and signed by a representative of the Committee.

8. The contractor was required to send notice by mail to the Housing Committee when each building was completed.

9. Thereupon an inspector was sent to examine the house and report back to the Committee in writing within 24 hours.

10. When a satisfactory report was received from the Committee’s inspector the contractor was paid and the house turned over to the applicant.

The above outline of the method of procedure followed by the Committee, while perhaps not adhered to strictly in every case, was, in general, the usual plan adopted and served to expedite matters to a considerable degree.

In order to clarify the matter of the kind of houses the Committee would erect, they provided drawings for four or five different styles of buildings. These plans, with the price of each attached, were displayed by the Committee to all applicants, who selected the one desired in accordance with the price they were able to pay. However, the buildings actually erected were changed in minor features by the applicant or contractor with the consent of the Committee. The Committee engaged various contractors in no way connected with those retained by the Land and Building Department for the erection of camp cottages.

13
STATISTICS FROM ASSOCIATED CHARITIES[292]

[292] Compiled from a statement supplied by the Associated Charities, December 31, 1912.

A. RECEIPTS OF SAN FRANCISCO ASSOCIATED CHARITIES FROM ALL SOURCES, BY MONTHS FROM JUNE, 1907, TO SEPTEMBER, 1912, INCLUSIVE

Month190719081909191019111912
January..$13,696.38$8,373.16$33,330.79$1,345.48$7,411.68
February..8,971.175,481.748,941.587,395.558,773.40
March..10,007.5235,261.6711,250.795,773.975,217.50
April..17,455.9810,934.1811,381.905,851.6614,972.31
May..14,073.686,947.418,005.5910,145.339,876.84
June$318.3118,318.5910,732.5611,743.5714,083.4016,221.65
July1,240.7610,303.647,655.227,066.971,426.3410,536.56
August5,577.916,704.8410,513.915,370.1416,576.942,057.50
September511.699,745.116,621.736,989.754,881.178,056.67
October26,054.158,370.008,518.8411,364.1011,354.83..
November8,733.614,794.5810,916.966,607.9514,252.44..
December13,027.637,143.049,637.7010,294.1417,850.90..
Total$55,464.06$129,584.53$131,595.08$132,347.27$110,938.01$83,124.11
Monthly average$7,923.44$10,798.71$10,966.26$11,028.94$9,244.90$9,236.01
[293] [294]

[293] For seven months only.

[294] For nine months only.

B. DISBURSEMENTS OF SAN FRANCISCO ASSOCIATED CHARITIES FOR RELIEF AND FOR ADMINISTRATION, BY MONTHS, FROM JUNE, 1907, TO SEPTEMBER, 1912, INCLUSIVE[295]

Year and
month		Direct
expenditures
for relief		Salaries
and other
expenditures
for
administra-
tion[296] 		Total
expenditures
1907June$4,239.74$1,916.60$6,156.34
July3,619.352,333.345,952.69
August3,204.021,932.655,136.67
September4,306.322,031.746,338.06
October12,829.131,588.1514,417.28
November7,009.65699.737,709.38
December5,911.581,815.487,727.06
Total$41,119.79$12,317.69$53,437.48
Monthly average$5,874.26$1,759.67$7,633.93
[297][297][297]
1908January$6,622.00$2,253.80$8,875.80
February13,714.342,463.7916,178.13
March11,011.522,738.3413,749.86
April9,611.493,423.2413,034.73
May13,846.072,407.3516,253.42
June9,322.524,560.4513,822.97
July10,852.823,099.1913,952.01
August6,314.71828.047,142.75
September7,716.843,795.4311,512.27
October7,115.432,429.449,544.87
November4,852.451,932.496,784.94
December4,376.882,036.406,413.28
Total$105,357.07$31,967.96$137,325.03
Monthly average$8,779.76$2,664.00$11,443.75
1909January$4,921.96$2,129.55$7,051.51
February8,245.752,150.0210,395.77
March7,394.843,004.1210,398.96
April7,417.482,074.639,492.11
May6,120.892,081.978,202.86
June6,872.411,878.568,750.97
July6,210.192,156.408,366.59
August6,816.132,447.939,264.06
September6,332.062,066.158,398.21
October4,931.472,027.766,959.23
November6,291.561,968.698,260.25
December7,919.002,473.4510,392.45
Total$79,473.74$26,459.23$105,932.97
Monthly average$6,622.81$2,204.94$8,827.75
1910January$6,672.87$2,596.15$9,269.02
February8,910.762,102.2211,012.98
March12,762.542,156.4814,919.02
April7,603.222,375.269,978.48
May7,696.272,317.4110,013.68
June8,118.112,691.0210,809.13
July6,465.312,565.349,030.65
August7,019.962,295.849,315.80
September6,349.542,119.418,468.95
October6,801.311,729.998,531.30
November6,479.832,091.958,571.78
December6,648.042,001.978,650.01
Total$91,527.76$27,043.04$118,570.80
Monthly average$7,627.31$2,253.59$9,880.90
1911January$6,232.45$2,415.48$8,647.93
February6,557.761,845.998,403.75
March6,694.311,997.208,691.51
April7,440.592,253.589,694.17
May6,963.053,030.289,993.33
June7,104.072,152.689,256.75
July6,061.512,088.628,150.53
August8,378.502,138.8810,517.38
September5,295.612,285.357,580.96
October5,352.322,456.617,808.93
November7,004.822,632.779,637.59
December7,072.072,213.529,285.59
Total$80,157.06$27,510.96$107,668.02
Monthly average$6,679.76$2,292.58$8,972.33
1912January$8,057.74$2,732.89$10,790.63
February9,869.412,383.1012,252.51
March9,162.642,545.8311,708.47
April7,209.242,356.189,565.42
May7,746.633,402.0411,148.67
June13,484.322,815.9916,300.31
July9,824.772,587.5512,412.32
August9,824.772,587.5512,412.32
September7,465.692,741.5210,207.21
Total$82,645.21$24,152.65$106,797.86
Monthly average$9,182.80$2,683.63$11,866.43
[298][298][298]

[295] Compiled from a statement supplied by the Associated Charities, December 31, 1912.

[296] Includes nursing service and child care.

[297] For seven months only.

[298] For nine months only.

C. TOTAL DISBURSEMENTS AND AVERAGE MONTHLY DISBURSEMENTS OF SAN FRANCISCO ASSOCIATED CHARITIES FOR RELIEF AND ADMINISTRATION, BY YEARS. 1907 TO 1912[299]

YearDirect
expenditures
for relief		Salaries
and other
expenditures
for
administration		Total
expenditures
Total yearly expenditures in
1907[300]$41,119.79$12,317.69$53,437.48
1908105,357.0731,967.96137,325.03
190979,473.7426,459.23105,932.97
191091,527.7627,043.04118,570.80
191180,157.0627,510.96107,668.02
1912[301]82,645.2124,152.65106,797.86
Average monthly expenditures in
1907[300]5,874.261,759.677,633.93
19088,779.762,664.0011,443.75
19096,622.812,204.948,827.75
19107,627.312,253.599,880.90
19116,679.762,292.588,972.33
1912[301]9,182.802,683.6311,866.43

[299] Compiled from a statement supplied by the Associated Charities, December 31, 1912.

[300] For seven months only.

[301] For five months only.

APPENDIX II
FORMS AND CIRCULARS

Appendix II
FORMS AND CIRCULARS

PAGE
First registration card (Face)[425]
First registration card (Reverse)[426]
Food card (Face and Reverse)[427]
Second registration card (Face)[428]
Second registration card (Reverse)[429]
Tent record sheet[430]
Camp commander’s report sheet[431]
Rehabilitation Committee
Report form[432]
Paster[433]
Circular[434]
Application Blank[435]
Circular letter of inquiry[436]
Bureau of Special Relief
Recommendation form[437]
Report form[438]
Medical service form[439]
Order form A[440]
Order form B[441]
Bureau of Hospitals
Hospital report sheet[442]
Application forms for business rehabilitation[443]
Application for bonus[447]
Land and Building Department. Notice[448]
Application for housing grant[449]