USA > Ohio > Ohio legislative history, 1913-1917 > Part 12
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ELEEMOSYNARY INSTITUTIONS AND THE PUBLIC HEALTH.
The reports of the Board of Administration indicate that better facilities are sorely needed in certain of our eleemosynary institutions. Economy in the expenditure of public funds is greatly to be desired,
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nevertheless we must not be unmindful of our duty to care for the unfortunate and comfort the afflicted. Adequate appropriation is rec- ommended to carry forward the work of the State Department of Health in sanitary engineering, industrial hygiene and the prevention of communicable diseases. Provision should be made to furnish through this department free diphtheria anti-toxin, to all state institutions and to all indigents in the state. Very properly and wisely the state is now providing and making hog-cholera serum; some provision ought to be made for poor children who are so unfortunate as to contract diphtheria. The field of usefulness of the state Sanatorium for Tuber- culosis should be extended so far as the condition of the treasury will permit by allowing any citizen of the state to be treated in this institu- tion on the same basis as in other state institutions, the payment of fees for treatment to be placed in the hands of the Board of State Charities. Such action relative to the public health and our state in- stitutions will tend to preserve the health of the people and thus be of lasting service to generations yet unborn. I shall reserve for a possible future message during your present session recommendations concern- ing the civil service, the highway laws and other important matters. I trust that, with an eye single to the public welfare and with full under- standing of the grave responsibilities confronting you, early and con- tinuous effort will be put forth by the General Assembly to transact expeditiously and wisely the important public business before your honorable body.
You are the chosen respresentatives of the people and they look to you to crystallize their best thought into legislation. I am confident that when the record of your labors is made up it will not disappoint those whose confidence you enjoy. Yours is an opportunity for service not vouchsafed to many; that you under the guiding hand of the Al- mighty may improve it to the uttermost is the people's prayer.
FRANK B. WILLIS, Governor.
January 12th, 1915.
CHAPTER V Message of Frank B. Willis, Governor of Ohio
To the Members of the Senate and the House of Representatives:"
I N the discharge of your duties as law makers you will be called upon to investigate many important problems relative to the wel- fare of the people of Ohio and make final responsible decision on matters which may have been to you heretofore only questions for academic discussion.
No problem by which you will be confronted is fraught with graver consequences to the people of Ohio and to future generations than the question of how best to care for the unfortunate wards of the state and how to eliminate so far as may be possible the causes which bring mis- fortune and threaten the future well-being of society.
STATE INSTITUTIONS.
Extravagance and luxury in caring for the state's wards is not neces- sary nor even desirable, but these unfortunates must be provided for decently and comfortably as befits the dignity of the great state of Ohio and the demands of enlightened humanity. Much has been done in the last two years to alleviate the distressing conditions found to exist in various state institutions.
Special attention to housing conditions for the care of the unfortu- nates of the state has been given. Needed appropriations were made for the completion of two new cottages at the Institution for Feeble- Minded, as well as a hospital at the Institution; two new cottages at the Ohio Hospital for Epileptics at Gallipolis, in addition to an appro- priation for a new wing to the men's dining room, as well as an appro- priation for remodeling the kitchen and improving the equipment there ; two new cottages at the Massillon State Hospital in addition to a new laundry, one new cottage at the Columbus State Hospital and a tubercular cottage, as well as a new power plant; one new hospital at the Ohio State Sanatorium, Mt. Vernon, a new building for tubercular patients at the Cleveland State Hospital, together with a new laundry there, an appropriation for remodelling the old laundry into a female cottage and an appropriation for an additional wing to the female hospital at Toledo.
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The new cottages at Gallipolis, the Institution for the Feeble- Minded and the Columbus State Hospital provided primarily for but 100 patients to the cottage. The plans were changed so as to increase the capacity from 100 to 140 for each cottage, thus providing an in- creased capacity for 200 additional patients in the five cottages. In other words, the appropriation was so handled as in effect to provide the capacity of two additional cottages; or stating it another way, the per capita cost was reduced from $700.00 to $500.00, and 700 additional patients will be provided for instead of 500, as the original plans con- templated. This was made possible through the employment of prison labor on the work of excavating and building the foundations for these cottages. Briefly $1,040,866.59 was appropriated in the 1915 budget for construction and betterment at the various institutions under the super- vision of the Ohio Board of Administration, and the splendid humani- tarian accomplishments resulting therefrom are a credit to the state of Ohio.
It should be noted also that the various state institutions under the control of the Board of Administration have been economically managed. The operating expenses of these institutions were $108,504.47 less in 1916 than in 1915: It cost the state $3,820,177.32 to operate these in- stitutions in 1915 while in 1916 the cost was reduced to $3,712,026.90. The daily per capita cost at these institutions was less in 1915 than it was in 1914 and less in 1916 than in 1915. All this has been accom- plished notwithstanding the fact that the population of these institutions. was 196 greater in 1916 than it was in 1915 and the further fact that the prices of food stuffs and clothing have constantly advanced. In other words while the cost of living of every citizen has risen by leaps and bounds the cost of living of the wards of the state has been reduced. This result has been brought about not by any cheapening of quality or lessening of quantity of food served to the patients - the inmates. of Ohio institutions are better provided for than ever before and yet at less cost. How then has this been accomplished? Through the ap- plication of the best business methods, careful buying at bottom prices,. economical management and enlarged industrial and agricultural ac- tivities in many state institutions thus increasing the income of the in- stitution and at the same time benefiting the patients and inmates by furnishing healthful employment. But satisfactory as is this progress. much important work remains to be done. It is not enough to provide- food, clothing, shelter and amusement for the unfortunate; the state has. not done its full duty until it deals with the problem in a larger way; attention has thus far been given most largely to effects-it is now: time to consider causes and eradicate them so far as possible.
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OHIO LEGISLATIVE HISTORY.
It is, imperative that institutional facilities be provided for a large number of feeble-minded in the state who are at present sadly neglected. These unfortunates are not capable of caring for and protecting them- selves and unless cared for they become paupers and unless protected from evil environment they become criminals. The community which does not protect them becomes, in a measure responsible for their dis- grace and crime. Present buildings at the Institution for Feeble-Minded provide for approximately 2,200. There is constantly a long waiting list and accommodations should be provided at an early date for fully 2,000 more. The feeble-minded should have institutional care for their own comfort and also so that they might be, as far as possible, segre- gated from the general population in order that the taint of feeble- mindedness shall not be transmitted to future generations.
The Bureau of Juvenile Research, according to statute, is expeced to receive all children committed to the guardianship of the state, and such others as the State Board of Administration may receive from in- stitutions, parents, and guardians. These children the Bureau is expected to examine in every way known to medical and other science with a view to ascertaining the causes of delinquency and other troublesome traits.
In order to make such examinations, the Bureau must be equipped to care for these children during the time such examinations are in progress. Proper laboratory facilities for making medical and mental tests and arrangement for the complete separation of the sexes, and for the further separation of the young from the older persons should be provided for by appropriate legislation.
Another improvement in this regard which I would urge upon you would be the location of a central psychopathic hospital and general lab- oratory preferably in connection with the Ohio State University at Columbus. Should this plan be decided upon it is quite possible that the Bureau of Juvenile Research could be combined with the psychopathic ward and general laboratory and much of the expense it would re- quire as a separate department might thus be curtailed. Here special study could be made of border-line or questionable cases of mental trouble. As a matter of detail it could be decided whether all cases of mental derangement should be sent first to this hospital for a course of observation tests before being committed to any special institution or whether the cases in the hospitals where doubt exists. as to the mental status of the patient should be brought there after they had been received at the institution where first committed. I am convinced that many people are committed to wrong institutions in this as well as in other states. This is not said as a criticism of those who make the examina- tions as their judgment is doubtless sincere and honest in all cases, but a
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plea for more expert examination of unfortunates whom the state might aid by slightly different treatment.
I also urge that additional accommodations be provided at various state institutions as follows: A new dormitory at the Prison Farm, a new extension of the main building at the Ohio State Reformatory, a tuberculosis building at the Massillon State Hospital, at least 5 new cot- tages, a tuberculosis hospital and a new laundry at the Institution for Feeble-Minded, 2 new cottages and an addition to the male dining room at the Hospital for Epileptics; and a tuberculosis cottage at the Athens State Hospital; and that sufficient appropriation be made to enable the Ohio Penitentiary Commission and the Board of Administration to pro- ceed expeditiously with their work of constructing a new Penitentiary on the prison farm at London.
I heartily recommend speedy action looking toward the consumma- tion of the plans already made for the establishment of an Ohio State Home for Crippled Children. In a subsequent message I shall transmit to you the detailed report of the Commission appointed to investigate this subject. I content myself now by saying that humanitarian con- siderations render imperative the demand for immediate action by the General Assembly to the end that the lives of the little crippled children be brightened and cheered and they themselves so treated, trained and educated that they may become in large measurse useful self-supporting citizens, instead of a burden on society. Even in the economic sense the state will receive more than full value for every dollar invested in a Home for Crippled Children.
INDUSTRIAL PROBLEMS.
Much has been written regarding the high cost of living and the methods of reducing it. Platform promises have proven delusive and unsatisfactory and meanwhile the expense of feeding and clothing a family has increased out of all proportion to any increase in the earning power of the head of the family. It is undoubtedly true that through the feverish stimulation of business due to war orders wages have in- creased but this increase has not kept pace with the increase in the cost of living. To afford alleviation of the present distressing situa- tion I respectfully urge that without delay you proceed through a special Joint Committee of the Senate and the House of Representatives to investigate prevailing high prices of fuel, clothing and foodstuffs to determine to what extent the high cost of living is due to excessive transportation charges, or to abnormal demand caused by European war and how far if at all it is affected by ,conspiracy or other illegal practices. The inclemencies of winter render what might otherwise
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be temporary inconvenience a source of real hardship and possible at- tendant suffering. These circumstances make early action by the Gen- eral Assembly almost imperative. I therefore commend it to your prompt and earnest consideration.
I recommend as a further aid in the solution of this problem the creation of a Bureau of Markets under the jurisdiction of the Board of Agriculture. It is believed that at least a considerable factor in the present price problem is the fact that producers and consumers have difficulty in learning of each others wants and wares and consequently the economic equilibrium is disturbed. The suggested Bureau of Mar- kets under the supervision of the Board of Agriculture would be able to bring about closer co-operation between the people and the market officials of various municipalities, it would be a permanent Bureau of information for the prompt investigation of abnormal prices and by facilitating better understanding between producers and consumers ren- der invaluable aid in preventing the suffering and economic loss caused by abnormal fluctuations of prices. This work can be done by exist- ing officials and employes of the Board of Agriculture with but little additional expense and with great benefit to the people.
WORKMEN'S COMPENSATION.
In my message to the 8Ist General Assembly I said: "The humane principle of workmen's compensation is here to stay. The present law was placed on the statute book by unselfish, non-partisan effort; it is hoped that no amendment will be made to the law which will in any way decrease the benefits now enjoyed by working-men under its pro- visions and that so soon as the state of the insurance fund will admit of it the amount to be paid to injured working-men or their families in case of death or total disability shall be increased."
The Workmen's Compensation fund is now stronger than ever before in its history, amounting on December Ist to $4,913,923.91 as against $2,442,967.82 December Ist, 1914, an increase in two years of $2,470,956.09. Working-men are enjoying larger benefits under the law at the present moment than at any previous period, the amount paid to injured working-men and their families during the eleven months ending December Ist, 1916, being $3, 128,338.84 as against $1,325,828.54 paid for the same purposes in the first eleven months of 1914, an in- crease in the two years of $1,802,510.30.
In harmony with my former recommendation and in view of the strengthened condition of the Workmen's Compensation fund I recom- mend that the amount to be paid to injured working-men in case of
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total disability or to their families in case of death be increased from a maximum of $3,750 to $5,000.
Sections 1465-63 and 1465-67, G. C., provide for the collection of a certain amount from the taxing districts of this state for the public employe fund of the compensation act and the manner in which it shall be done. The operation of these sections places a very unequal burden on these different taxing districts. One may do its own public work, having in this way a great injury hazard; others do not do this and their hazard is of course much less.
In this way the public employe fund is made solvent as a whole by reason of the fact that the public school fund, the township fund and the county fund have furnished to the fund as a whole about $325,000, with an outgo of only approximately $48,000, while the corpo- ration fund has furnished only $151,000 with an outgo of $229,000. These facts are shown in detail by the following table :
Receipts.
Expenditures.
Corporation Fund
$151,356 20
$229,651 97
School Fund
265,873 26
15,898 14
Township Fund
14,229 42
2,174 32
County Fund
46,821 63
30,224 56
I accordingly recommend that the sections referred to be so amended that each of these different funds shall be put upon its own responsibility and each class take care of itself. I further recommend that Section 1465-54, G. C., be so amended as to require specifically that the Industrial Commission shall procure at the end of every six months' period to determine what the average loss ratio in each of the different classes is, so that one class of industry may not be compelled to make up the deficit caused by extra hazard in other classes.
Section 1465-89 should be so amended as to provide that in extraor- dinary cases by the unanimous approval of the Industrial Commission, the allowance for medical attention be extended to $300. In ordinary cases the allowance for medical expenses should remain at $200, but there are many cases where the injured working-men cannot be made whole on the $200, limitation ; in such cases private resources or charity should not be depended upon to make a well man out of the injured.
EMPLOYMENT AGENCIES.
In my message to the 8Ist General Assembly I further said: "Be- cause of the unfortunate industrial condition in the whole country many thousands of workingmen are out of employment in Ohio. To
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alleviate this distressing condition I recommend generous appropria- tion for the establishment of three additional free public employment offices and further legislation for the proper regulation of private em- ployment agencies."
The prompt response made by the General Assembly to this rec- ommendation made possible the establishment of additional free em- ployment offices which rendered workingmen most valuable assistance in securing positions at a time when 61,000 men were out of work in Cleveland alone and not fewer than 150,000 in the army of unemployed throughout the state during the lean months which preceded the period when the country began to fatten on the manufacture of war munitions.
The rights of the workmen and of the employers of our state are not sufficiently protected by the present law licensing and regulating private employment offices. A more satisfactory law is very much needed. During the last fiscal year employment was secured for more than one hundred and forty thousand persons through the State Free- Employment offices. The service rendered by these offices has been of inestimable value to workmen and employers. For the purpose of ex- tending the system of free employment offices, at least five thousand dollars should be appropriated for the use of the Bureau of Investiga- tion and Statistics of the Industrial Commission.
JOB SELLING.
In many large plants, particularly those employing foreign labor, there exists among some of the foremen and "straw bosses" the pernicious practice of charging a fee of applicants for work. The Bureau of Investigation and Statistics of the Industrial Commission during the past year collected a mass of evidence and successfully prosecuted a number of cases under the law regulating private labor agencies. There is urgent need for a law drawn to meet specifically this type of exploitation in industrial plants.
NORMAL SCHOOL.
The General Assembly at its last session provided for the appoint- ment of a Commission to recommend a site for a proposed new Normal School in eastern Ohio. Unfortunately it failed to make an appro- priation to pay the traveling expenses of the Commission while engaged in the performance of their duties.
Inasmuch as under the law no site could be purchased, no trus- tees appointed and no further action of any kind looking to the estab- lishment of another Normal School could be taken until the General
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Assembly sanctions the action already taken by making appropriation for the establishment of the proposed school it was deemed wise to give to the General Assembly through its committees or otherwise ample opportunity to review the report of the Commission appointed to recom- mend a site, to supplement investigations of the Commission, if the General Assembly deems such action advisable, by ordering through its appropriate committees public hearings or visitation or inspection of sites and thus give every community offering a site the most ample opportunity to set forth its advantages from the standpoint of its ability to render service to the cause of public education.
The General Assembly should provide for the reimbursement of the expenses incurred by the members of the Commission appointed to recommend a site, and if it deems any future inquiry desirable be- fore proceeding with the establishment of the proposed new Normal School should make appropriation to pay the expenses of its commit- tees or other agencies of investigation.
The report of the Commission I transmit herewith for your con- sideration.
SALARIES AND SINECURES.
The 8Ist General Assembly and administrative officials in full sympathy with its plans for economy in expenditure of the public funds commenced and successfully carried forward a most commendable work in the elimination of useless positions and the reduction of salaries. inordinately high. For example, the salaries of twenty-four important state offices were so reduced as to make a saving during the biennial period of $49,800.00 or an average reduction of approximately $2,000.00 each or $1,000.00 per year for each officer. Many other minor reduc- tions were made effecting savings of thousands of dollars per year. As further illustration of what can be accomplished by well considered legis- lation and careful administration attention is called to the fact that in the past two years in only ten departments of the state government almost $500,000 were saved through elimination of unnecessary posi- tions and reductions in high salaries. The desire of any individual, however worthy, to hold public office or draw a fat salary furnishes no reason why a position should be created or a salary increased for his accommodation. Salaries should be fixed and offices created only in response to a definite public need and not because of insistent private desire. The foregoing illustrations indicate what can be accomplished by conscientious effort and stern devotion to public duty in the direc- tion of economy. This program of abolishment of sinecures and reduc- tion of salaries now higher than the service rendered to the public would
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warrant should go on. Much larger savings can be effected than those already made without injuring the public service, and without working any injustice upon any public employe or official. I strongly recom- mend further effort in this direction confident in the belief that to save public funds and make possible the lightening of the tax-payers' bur- dens is a more commendable public service than to win the acclaim of office holders and office seekers by increasing salaries without regard to public need and creating sinecures to accommodate those seeking them.
DUPLICATE INSPECTIONS.
My brief experience as a state official has convinced me that Ohio is over-officered and over-inspected.
There is a tendency on the part of every state department to in- crease its prerogatives and build up an ever-growing number of bureaus, officials and inspectors without regard to whether the activity it is undertaking overlaps the jurisdiction of some other department. The inevitable result of this tendency is wasteful duplication of effort, multiplication of offices and exasperating repetitions of inspections and reports. The people and the business of Ohio are being inspected and reported to death. There must be consolidation and simplification of reports and elimination of duplicate inspection to the end that the public service may be made more efficient and private interests less harassed by frequent interruptions and inspections. Under the present system it occurs not infrequently that a half dozen different state inspectors, auditors, examiners or parole officers representing as many different state departments, or sometimes two or more of them representing dif- ferent bureaus in the same department may be sent into the same vil- lage on the same day. It is apparent that such arrangement results in needless duplication of effort and extravagant piling up of expense accounts. I therefore respectfully urge that you consider whether through proper legislative enactment many of these various ambulatory positions may be combined thus simplifying and rendering more efficient the public service, eliminating duplication of effort, and cuttng down expense bills.
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