For fire the Hopi depends almost entirely on the rank growth of brush which is found along the ravines. This suffices to supply heat to the piki stone and the boiling pot, and enough to keep a fire on the hearth in the kiva. But now and then he must make a distant journey to that part of the mesa where the supply of stunted and scrubby pines and piñons has not already been exhausted; for by custom four kinds of fuel are prescribed for the kivas, and to keep the hearth replenished with these often necessitates long journeys. As the woman bends under her water jar, so the man staggers along under his load of fagots, often carried from a distance of several miles.
REFORM OF PUBLIC CHARITY.
By BIRD S. COLER,
COMPTROLLER OF THE CITY OF NEW YORK.
Abuse of municipal charity in New York city has reached a stage where immediate and radical reform is necessary in order to prevent the application of public funds to the payment of subsidies to societies and institutions where professional pauperism is indirectly encouraged and sustained. More than fifty years ago the city began to pay money to private institutions for the support of public charges. The system has grown without check until to-day New York contributes more than three times as much public money to private or semiprivate charities as all the other large cities in the United States combined. The amounts so appropriated in 1898 by some of the chief cities were: Chicago, $2,796; Philadelphia, $151,020; St. Louis, $22,579; Boston, nothing; Baltimore, $227,350; Cincinnati, nothing; New Orleans, $30,110; Pittsburg, nothing; Washington, $194,500; Detroit, $8,081; Milwaukee, nothing; New York city, $3,131,580.51.
No serious attempt has heretofore been made to reform this system of using public funds for the subsidizing of private charities. One reason for this has doubtless been the fact that until recently the local authorities were powerless to avoid or modify the effects of mandatory legislation which has disposed of city moneys without regard to the opinions entertained by the representatives of the local taxpayers. It has always been easier to pass a bill at Albany than to persuade the Board of Estimate and Apportionment of the propriety of bestowing public funds on private charities, and the managers of private charities seeking public assistance have therefore generally proceeded along the line of least resistance. The effect of this system was to make beneficiaries the judges of their own deserts, for the bills presented by them to the Legislature were usually passed without amendment or modification, and gross inequalities in disbursing public funds have arisen, different institutions receiving different rates of payment for the same class of work.
In 1890 the city paid for the support of prisoners and paupers in city institutions the sum of $1,949,100, and for paupers in private institutions the sum of $1,845,872. In 1898 these figures had increased to $2,334,456 for prisoners and public paupers, and $3,131,580 for paupers in private institutions. Private charity, so called, has prospered at the expense of the city until in some cases it has become a matter of business for profit rather than relief of the needy. The returns made by institutions receiving appropriations in bulk from the city treasury show that many of them are using the public funds for purposes not authorized by the Constitution. The Constitution authorizes payments to be made for "care, support, and maintenance." The reports of a large number of institutions show the money annually obtained from the city carried forward wholly or in part as a surplus. Different uses are made of this surplus, none of them, however, authorized by law or warranted by a proper regard for the interests of the taxpayers. In some cases this surplus is used to pay off mortgage indebtedness, in others for permanent additions to buildings, or for increase of investments and endowment. In one case the manager of an institution frankly explained a remarkable falling off in disbursements (so great that its charitable activities were almost suspended) by stating that it was proposed, by exercising great economy for a number of years, to let the city's annual appropriations accumulate into a respectable building fund. The flagrant nature of this abuse is so apparent that comment is unnecessary.
Appropriations for dependent children have reached enormous proportions. Out of a total of $3,249,623.81 appropriated for private charities in 1899, no less than $2,216,773, or sixty-nine per cent, is for the care and support of children. In no city in the United States will the number of children supported at the public expense compare, in proportion to the population, with the number so cared for in the city of New York. This may be partly accounted for by the extremes of poverty to be met with in the metropolis, especially among the foreign-born population, where the struggle for existence is so severe as to weaken the family ties; partly by the rivalry and competition which have existed between the several institutions devoted to this kind of work; partly by reason of the fact that the rate paid by the city for the care of these children is such as to enable the larger institutions, in all probability, to make a small profit; but, to a considerable extent, also from an insufficient inspection by public officers for the purpose of ascertaining whether children are the proper subjects of commitment and detention. In the city of New York 50,638 children in private institutions are cared for at the public expense. This is one to every sixty-eight of the estimated population of the city.
So much for the abuse and extent of public charity. Now for the reforming of the system that was fast approaching the condition of a grave scandal. The last Legislature passed a bill placing in the hands of the local Board of Estimate absolute power over all appropriations for charitable purposes, and for the first time in many years reform is possible. The discretion conferred by this act upon the Board of Estimate and Apportionment carries with it a large responsibility. If hereafter the city, in its relation to private charitable institutions, should either, on the one hand, be wasteful of public funds, or, on the other hand, should fail to perform the duties owed by the community to the dependent classes, the blame can not be shifted to the Legislature, but will rest squarely upon the shoulders of the local authorities.