# Immigration and the Commissioners of Emigration of the state of New York/Chapter 6

CHAPTER VI.
CASTLE GARDEN
THE Commissioners of Emigration organized on May 8, 1847, Organization of the Commissioners of Emigrationat the Mayor's Office in the City Hall, and on June 14 elected Mr. Win. F. Havemeyer President, who resigned, however, in February, 1848, and was succeeded, on March 1, 1848, by Mr. G. C. Verplanck, who has ever since held that office.
The work of the Board was originally apportioned among several standing committees, four of which are still existing, Standing Committeesnamely, the Ward's Island Committee, consisting of six members, and the Auditing, Finance, and Purchasing Committees, of which the two former consisted each of three, and the latter of two members. In the course of years, owing to the increase of business, four other committees were added to the original four, namely, the Castle Garden (1855), consisting of six members; the Railroad (1867), of three; the Agencies and Counties (1867), of five; and the Labor Exchange (1868), Committees, of five members. The Marine Hospital Committee, the most important of the original four, consisting of three members, ceased to exist when, in 1859, the Commissioners gave up the Marine Hospital.
The Commissioners had their first official quarters in the old Quarters of the CommissionersAlmshouse building (where the new Court-House stands at present). There they remained until January 19, 1854, when the building was destroyed by fire. They then found a temporary place in Franklin Street, between Broadway and Elm Street, for the meetings of the Board, where the offices of the Vice-President and Secretary, the examining physicians, and the receivers of applications for relief or admission to the hospitals, were also located. Another office was kept in Canal Street, for the reception of applications for employment, advice, or similar aid. But an alarm soon arose from the apprehended introduction of contagious diseases in the neighborhood of both locations, which was intensified by the fear of the owners of adjoining real estate of a depreciation in the value of their property. ​Injunctions were applied for and granted as to both offices; but, after an injurious interruption of more than two weeks, the injunction against the Canal Street office was dissolved. Before the other case could be brought to trial, the cholera made its appearance in the city, and the almost vacant Franklin Street office was taken possession of by the Board of Health as a cholera hospital. Towards the close of the year an opportunity occurred of hiring on lease a large and unoccupied building in Anthony Street now Worth opposite the hospital grounds, a few doors west of Broadway, erected and formerly used as a church edifice, a location where little or no danger could be apprehended to the neighborhood. Here the Commissioners remained till the spring of 1858, when all their offices were removed to Castle Garden.
It is not the purpose of this essay to give a detailed account of all the proceedings of the Board within the last twenty-three years; but its design is to point out only that part of their history which has at present a direct bearing on the protection of the emigrant. To this end we shall first describe Castle Garden and the offices connected with it, and next the institutions on Ward's Island. This chapter will be confined to Castle Garden.
Compulsory Landing Act of 1848The Commissioners were not long in discovering that the benevolent intentions of the law creating their Board could not be realized as long as they had not the absolute control of the emigrant, and as long as they were thus prevented from protecting him against the frauds practised on him by forwarders, boarding-house keepers, agents, and runners. They therefore, in the first year of their existence, applied to the Legislature for an act authorizing them to lease a dock or pier, where all the emigrant should be landed; where no outsiders would be allowed to enter without permission of the Commissioners; and where the emigrants could be cautioned and admonished against all the wiles of those who lay waiting for him on his arrival. The law of April 11, 1848, authorized the Commissioners to purchase or to lease such a pier or dock, and by virtue of this act, on May 8, 1848, they leased from the Common Council, for a term of five Renting of Hubert Street Pieryears, the large and commodious pier at the foot of Hubert Street Street, at an annual rent of $3,000.
​It was anticipated that this pier would be in proper order for Injunction against sameuse by the middle of July; but, to the surprise of the Commissioners, they were, immediately after the execution of the lease, served with an injunction, obtained by some of the residents in the neighborhood. This injunction was granted and sustained against the appeal of the Commissioners on the ground that the landing of emigrants at the foot of Hubert Street, in the vicinity of St. John's Park, would bring into a quiet part of the city a noisy population, without cleanliness or sobriety; would endanger the health and good morals of the ward, and seriously affect the value of real-estate.
The Commissioners now endeavored to get some other landing-place Difficulty of securing a suitable landing-placein the lower part of the city, where the nuisance, if such it could be called, already existed, and where the emigrants for a number of years had been landed. But, though the Common Council, whom they considered bound, in a measure, to furnish a pier, seemed favorably disposed, yet none could be procured and rendered suitable for the purpose. Consequently the Commissioners could not reach the emigrant before he fell into the hands of the plunderers who stood ready to deceive him; frauds which had formerly excited so much indignation and sympathy were practised with as much boldness and impunity as ever, and all the exertions of the Commissioners, though beneficial in many cases, were quite insufficient to put an end to these abuses.
In spite of repeated petitions to the Legislature to provide Act or 1855efficient remedies by giving to the Commissioners exclusive possession and occupation of a pier for the landing of newly arrived emigrants, it took just eight years before that body, by the Act of April 13, 1855, complied with that wish. This act was as important as the one creating the Board of the Commissioners, for it first gave the power to afford really efficient protection to the emigrant. It required the transporting and conveying companies to deliver to the Mayors of New York, Troy, Albany, and Buffalo, in each and every year, a written or printed statement of the price or rates of fare and the price for the carriage of the baggage of the emigrant; it specified the penalty for violating the provisions of this act, and authorized the Commissioners of ​Emigration "to designate some one place in the city of New York, as they should deem proper, for the landing of emigrant passengers; providing further that "it should be lawful for such passengers to be landed at such place so designated; and likewise (meaning the Commissioners) to purchase, lease, construct, and occupy such wharves, piers, and other accommodations, in the city of New York, as may be necessary for the accommodation of emigrant passengers."
Lease of Castle GardenThis important act finally enabled the Commissioners fully to carry out the benevolent objects of their trust. From that time only the Board could be said to be clothed with the necessary powers and to have become responsible for the well-being and protection of the emigrant. The Commissioners, on May 5, 1855, leased the old fort at the foot of Manhattan Island, known as Castle Garden, and immediately proceeded with the fitting up of the premises in a manner suitable to the designed purpose.
Obstructions"Owing, however," says the Commissioners Report for 1855, "to the extensive repairs required, and the obstructions thrown in the way by those who, on different grounds, apprehended injury to their private interests, the place was not in readiness for use until the first of August, when it was formally opened as the Emigrant Landing Depot.
"It is not deemed necessary to allude to the efforts made to obstruct the execution of the law in this instance, further than to state that, where that effort was resorted to with the design of rendering nugatory the power conferred, and for the ejectment of the Commissioners from the occupancy of Castle Garden, the courts have sustained the law in its beneficent objects, and the Commissioners in the possession of the premises for the purpose of carrying the law into effect; and that, where violence threatened with a strong hand to lay waste and destroy, the police authority of the city, by prudent and decisive action, effectually checked the thoughtless and lawless in their course, and preserved a valuable property from destruction or damage, and the reputation of the State from disgrace.
​persons, during which period no accident of any kind has occurred. All have been landed safely, without accident to themselves or property. When landed, proper means have been used to secure their comfort and protection. They have been screened from the intrusion of that class of persons who have heretofore abused the confidence of the emigrants, and despoiled them of the means they had provided to convey them to their ultimate destination, and to sustain them after they had reached it who have long been in the practice of taking possession of the person and property of confiding emigrants, and seldom permitting them to pass out of their hands without damage; in many cases reducing them from comparative affluence to destitution, and making them subjects for relief by the funds of the Commission; but in a larger proportion crippling their means to an extent which has affected their after life.
"Every facility is provided at the Depot, for those whose destination is to the interior, to proceed without unnecessary delay; and without need or pretext for intercourse with the class of persons in the city before mentioned. By this arrangement, much for the benefit of the emigrant, the shipper, the Commission, and the community at large, has been accomplished. Among these benefits may be mentioned:
"First.—To the emigrants. In a more safe and speedy To Emigrantslanding of their person and effects: In the greater safety of their effects after having been put on shore, depredators being limited to fellow-passengers, and but slight opportunity existing for successful pillage by them. In relief from the importunities and deceptions of runners and bookers. In being enabled to continue their journey without delay from the same wharf where they had just landed. In relief from all charges and exactions for landing, 'baggage smashing,' and porterage; and, where they are proceeding to the interior, from cartages. In being enabled to obtain passage tickets at the lowest rates directly from the various transporting companies. In having their baggage accurately weighed; and in being relieved from excessive charges for that which is extra. In obtaining reliable information relative to the various routes of travel throughout the country. In being relieved from ​the necessity of transporting their baggage to boarding-houses when exigencies require a temporary sojourn in the city of New York. And thus in being enabled to depart for their future homes without having their means impaired, their morals corrupted, and probably their persons diseased.
To Shippers"Second.—To the shipper. In the greater readiness with which passengers are discharged where freight and merchandise do not interrupt the process. In the ship being relieved of its passengers at once, and immediately on arrival. In the consignee being relieved from the supervision of the landing of the passengers.
To the commission"Third.—To the funds of the Commission. In the increased facility afforded for the discovery of cases liable to special bond. In the opportunity for ascertaining the means of passengers for support. In the reduction of sickness and distress among Emigrants. In the diminished proportional number that will become a charge to the Commissioners; and in the means to readily discover paupers and criminals transported hither.
To statisticians"Fourth.—To the statistician. In furnishing reliable data of the fiscal means of emigrants on arrival; in developing the points of individual destination; thus exhibiting the number of persons who, at the time of arrival, are destined for each State, and the money-means with which they are provided.
To the community"Fifth.—To the community in general. In the diminution of human suffering. In the reduction of calls on the benevolent throughout the country; and in the dispersion of a band of outlaws attracted to this port by plunder, from all parts of the earth."
​feared or thought their pecuniary interests affected, the opposition did not since extend beyond acts of inferior but continued annoyance, originating with those who had formerly profited by taking advantage of the ignorance of the newly arrived and friendless strangers. As stated in a preceding chapter, during the first year of the working of the institution several hundred emigrant runners, unable to follow this business any longer in New York, left for California. When those who remained here discovered that by applying to the law or by threatening and abusing they could not undo what the Act of April 13, 1855, had brought about, they in the end either disappeared or submitted to the new state of things.
A successful experience of fifteen years has now confirmed the Superindendents of the Landing Depotutility of the establishment at Castle Garden. The able and efficient Superintendent, Mr. John A. Kennedy, who first organized that department, discharged the duties of his station until June, 1860, when he accepted the appointment of Superintendent of the Metropolitan Police. He was succeeded by the present Superintendent, Mr. Bernard Casserly, who has most efficiently performed the duties of his office. It has contributed largely to the success of Castle Garden that the services of two very able executive officers were secured, that during the whole time of its existence only one change has taken place in the highest executive office, and that consequently uniformity and regularity in the service could be maintained.
A description of the several departments, among which the Departments of the Landing Depotvarious duties are divided, will give an idea how business has been and is now carried on at Castle Garden.
I. The Boarding Department.—On arrival at the Quarantine Boarding DepartmentStation (six miles below the city), every vessel bringing emigrant passengers is boarded by an officer of this department, stationed there for the purpose, who ascertains the number of passengers, the deaths, if any, during the voyage, and the amount and character of sickness, examines the condition of the vessel in respect to cleanliness, and receives complaints, of which he makes report to the General Agent and Superintendent at Castle Garden; he remains on board the ship during her passage up the Bay, to see ​that the law prohibiting communication between ship and shore before emigrant passengers are landed is enforced. On casting anchor in the stream, convenient to the Landing Depot, he is relieved by an officer of the Metropolitan Police force, detailed at the Castle Garden, and the passengers are transferred to the care of
Landing DepartmentII. The Landing Department, under the supervision of which the Landing Agent proceeds with barges and tugs, accompanied by an Inspector of Customs, to the vessel. After an examination of the luggage, it is checked, and the passengers, with their luggage, are transferred to the barges and tugs, and landed at the Castle Garden pier. On landing, the passengers are examined by a Medical Officer, to discover if any sick have passed the Health authorities at Quarantine (who are thereupon transferred by steamer to the hospitals on Ward's or Blackwell's Island), and likewise to select all subject to special bonds under the law as blind persons, cripples, lunatics, or any others who are likely to become a future charge. This examination being ended, the emigrants are directed into the Rotunda, a large-roofed circular space in the centre of the Depot, containing 50,000 square feet, and with a dome in the centre for ventilation, about 75 feet high, with separate compartments for English-speaking and other nationalities, to
Registering DepartmentIII. The Registering Department, where the names, nationality, former place of residence, and intended destination of the emigrants, with other particulars, are taken down, thus forming an interesting record for future reference. The passengers are then directed to
​the immense quantity of baggage, which numbered at times 7,000 Baggage Roompieces. The new building, which was finished in October, 1869, at a cost of nearly $75,000, is 200 by 350 feet, and is amply sufficient to accommodate 15,000 pieces of baggage. The very perfect system by which the thousands of trunks and boxes are distinguished and delivered safely to their respective owners is well worthy of explanation. A brass ticket, with any letter of the alphabet from A to F inclusive, and a number from 1 to 600, is delivered to the emigrant on landing, and a duplicate fastened on his piece of baggage. The trunk or box is then placed in the baggage-room. This room has six bins, designated by the letters A, B, C, D, E, F, and each bin has six hundred numbers. Accordingly, when the emigrant produces his ticket, a baggageman at once goes to the bin indicated by the letter and number on the ticket, and delivers the baggage required. In case of necessity, all the letters of the alphabet can be used in a similar way.
The emigrants destined inland, on delivery of their check, take their baggage to the weigher's scales. After having been weighed and paid for, it is sent free of charge to the depot of the railroad or dock of the steamboat by which he leaves. Such emigrants as design remaining in this city and vicinity are directed to
V. The City Baggage Delivery, which ascertains the address City Baggage Deliveryto which the emigrants may desire to have their luggage sent, and takes their orders, exchanging the brass check received from the Landing Agent, on shipboard, for a printed paper one. The luggage is then promptly delivered in any part of this city and vicinity at a moderate rate of charges, approved by the Commission. At the same time, those having gold or silver which they may wish to have exchanged for United States currency are directed to one of three
VI. Exchange Brokers, admitted into the Depot, who changes Exchange Brokerstheir specie for a small advance on the market rate, which is set forth in a conspicuous place under the observation of the emigrant, the daily fluctuations in rates being duly noted.
These last three departments are conducted by responsible ​parties, who, while not officers, are nevertheless under the close and constant supervision of the Commission, and are required to keep a record of all transactions, subject to the inspection of any member of the Board.
Information DepartmentVII. The Information Department.—When the foregoing operations are completed, the emigrants are assembled in the Rotunda, and an officer of the Commission calls out the names of those whose friends attend them in the waiting-room at the entrance of the Depot, and to whom they are directed. At the same time are called out the names of those for whom letters or funds are waiting, which are then delivered to the proper owners through the Forwarding Department. Emigrants who desire to communicate with friends at a distance are referred to
Letter-Writing DepartmentVIII. The Letter-Writing Department, where clerks, under standing the various Continental languages, are in attendance to write; the emigrant, while waiting a reply, if destitute, finds a home in the institutions at Ward's Island.
Boarding-House KeepersIX. Boarding-House Keepers, licensed by the Mayor and properly certified as to character by responsible parties, are admitted to the Rotunda after the foregoing business has been completed, to solicit for their respective houses such emigrants as desire to remain in the city for any length of time. These boarding-house keepers are subjected to careful supervision and to certain regulations, which will be found in the Appendix, and every precaution is taken to guard the emigrant against the abuses and imposition to which he was formerly liable.
Forwarding DepartmentX. The Forwarding Department receives, through the Treasurer, all communications and remittances from friends of emigrants, sent either before their arrival or in response to letters written by the Letter Department, and applies them to the purchase of tickets. The amount of money and orders for passage received and disbursed through it will be found under the head relating to the Treasurer's duties.
Ward's Island DepartmentXI. The Ward's Island Department receives all applications ​for admission to the Institutions, and examines the records, to ascertain the right of the applicant to admission. It also keeps the records of all daily admissions to, and discharges from, Ward's Island, and examines the records in all cases of claims for indemnity from the several counties of the State for emigrants charge able to the Commission who may have received aid or support in such counties. Attached to this Department are two physicians, whose duties are to examine all sick and destitute applicants for relief, and to visit all such at their residences in this city, and report to the General Agent.
XII. The Labor Exchange.—A Labor Exchange was first Labor Exchangeestablished in 1850. The increasing number of persons demanding the aid and advice of the Commissioners, and the widely extended knowledge of their arrangements for the disposal of laborers, made it necessary to hire, in December, 1850, a large double building, Nos. 25 and 27 Canal Street, at which place emigrants desiring work, and persons desiring laborers, found ample opportunity for meeting their wants; while, prior to that time, useful employment and means of self-support had been procured to over 8,000 emigrants. Proportionably a far greater amount of service was rendered to them with the additional facilities afforded by the Canal Street establishment. Thus, in 1851, not less than 18,204 emigrants were provided with opportunities for self-support in such kind of labor as their previous habits best qualified them to perform. In 1862, 14,973 persons were provided with places or employment; but in the course of years this institution dwindled down to a mere intelligence office for city servants. During the seven years from 1860 to 1866, the number of females who found employment as servants through the Castle Garden agency amounted to 40,222, that of males to only 10,224.
In 1867, at the suggestion of Commissioner Philip Bissinger, the office was revived and re-established in its original condition. The present Labor Exchange is a spacious and well-arranged building, and was erected during the latter part of the year named. It is a one-story building, 80 by 52 feet, with a large ventilator in the roof, thus furnishing an ample supply of fresh ​air and light, and, being situated on the additional ground added to these premises in 1867 by permission of the public authorities, it is easily accessible without disturbing the arrangements of the landing depot.
In the centre of the floor, a sufficient space has been railed off, and reserved for officers and for use of employers. On one side are seated the male emigrants, and on the other side the females, thus securing a separation of the sexes. These again are subdivided, according to their several occupations and the length of time they have been here, and also into those with and without references. Each emigrant on entering is requested to enter his or her name, ship, date of arrival, and character of employment; while every employer is required to enter his or her name, residence, recommendations, references, and description of labor wanted.
This Labor Exchange furnishes an intelligence office, without charge, for emigrants desirous of finding employment or service in the city or at a distance; and undertakes to supply all sorts of skilled mechanical and agricultural labor to employers in any part of the United States, who come with a proper guarantee of character and other necessary qualifications.
The Labor Exchange, since its reorganization, has existed for a period of only two years; but the result obtained in this comparatively short time is sufficient to prove its usefulness. In 1868, it procured employment for 31,143 emigrants, namely, 18,114 males and 13,029 females; and, in the year 1869, for 34,955 emigrants, namely, 22,844 males and 12,111 females. In these two years, there were among the males 4,311 and 5,594 mechanics respectively; while the balance of 13,803 and 17,250 respectively were agricultural and common laborers. Of the females, there were 474 and 438 respectively skilled laborers (seamstresses, cooks, laundresses, etc.), but 12,555 and 11,673 respectively were common house-servants. In 1868, 351 families were engaged, consisting of 1,551 persons, and, in 1869, 452 families, consisting of 1,232 persons.
Those who were employed represented, in 1868, fifteen, and, in 1869, sixteen nationalities. Irish and Germans were predominant. Of the whole number, there were, in 1868, 9,269 male and ​11,975 female, Irish, Scotch, or English; and, in 1869, 11,703 males and 11,340 females, of the same nationalities. We find in the Germans and Swiss there were, in 1868, 8,034 males and 921 females, and, in 1869, 10,021 and 659 respectively; of Scandinavians, 414 and 78 and 477 and 75 respectively; Dutch, 6 males in 1868 and 62 males and 11 females in 1869. France, Italy, and Belgium sent 274 males and 35 females in 1868 and 39 and 7 respectively in 1869. As a curiosity, it may be stated that, in 1868, 6, and, in 1869, 8 Moors were engaged; they entered their names in Arabic letters.
Of the emigrants employed by the instrumentality of the Labor Exchange in 1868, 7,397 could not read or write, namely, 3,096 males and 4,301 females; and, in 1869, 7,139, namely, 3,498 males and 3,641 females. Among the 9,269 Irish, Scotch, and English engaged in 1868, there were 2,714 who could neither read nor write; and among the 11,703 individuals of the same nationalities in 1869, there were 3,058 unable to read or write. Among the 8,034 and 10,020 Germans and Swiss in the two corresponding periods, we find 279 and 321 respectively who could not read or write. Of the 23,315 Irish, Scotch, and English female servants engaged in 1868 and 1869, 7,682 could neither read nor write, and of the 1,825 females of other nationalities 260 were equally ignorant.
The States of New York and New Jersey in both years furnished employment to more emigrants than the rest of the United States together. As long as no means will be found to neutralize or avoid the difficulty and risks attending the transportation of laborers to more distant regions, this state of affairs will remain unchanged. In both years, the demand was much greater than the supply. Not the tenth part of the large orders for railroad laborers could be filled; and only a small part of the orders for farmers (Germans) and common laborers (Irishmen) could be responded to. Of the immigrant farm-laborers, only a small number remained in New York, the majority, and especially the well-to-do class, proceeding spontaneously to the Western and North-western States. Only a few German servant-girls asked for employment through the Labor Exchange.
It is very difficult, and at present almost impossible, to direct ​the European mechanic and laborer to the South, which has thus far tried in vain to attract immigrants, and this for the reason that most of the immigrants look out first for the place where they are sure of employment. It is in vain to tell them that, many tracts of land are to be had cheap or even for nothing. Work is more attractive for them than land, at least at first. For this reason, and in consequence of the large settlements of Europeans there, the immigrant is attracted to the West and especially the Northwest, where the fertile soil enables farmers to give ready employment to all the laborers that may present themselves.
Explanation of immigration to West and not to South.This is the whole explanation of the continual flow of emigrant laborers into those regions. There is work there. It is to be found everywhere, work which they understand, work which they can perform, work sufficiently remunerative to warrant the expectation of a happy future. This advantage they are sure of finding only in the West and North-west. Once employed, they easily arrive at independence. By saving their monthly wages, they secure the means of attaining it, and when the proper moment comes they have learned by experience where to settle and what they must do to succeed. The matter is simple, and requires on the part of the Western States no exertion of thought or money. On examining the conditions offered by the South, we can easily detect the causes which put that section at a disadvantage as regards the supply of labor. A class of farmers ready to receive the laborers who may offer themselves is almost everywhere wanting, and nowhere more so than in the extreme Southern districts, where there are only great planters, whose modes of cultivation have no attractions for the immigrants. The European immigrant detests the work in gangs as much as the negroes like it. His individuality is overlooked, his self-respect impaired, and he is viewed as a mere unit in the mass. He seeks not the planter, but the farmer.
The great land-owners who hold large tracts of land wish to cultivate them as before without loss of time. To attain their object, they must always keep a sound stock of freed slaves, which daily becomes more difficult for them, as the number of laboring hands is continually decreasing.
What will happen under these circumstances may be inferred ​from what has been said. The inability of these large planters to procure the needed labor will cause them to be superseded in the course of time by small farmers, who will work themselves, and who will be able and willing to employ the white immigrants like the Western farmers.
A modest culture is required with two or three hands, living, in a patriarchal way, with the farmer's family. Whenever that will be generally introduced, immigrants will come and remain, or, if they leave again, it will be to settle in the neighborhood. Farms should be laid out for the reception of European laborers, and it is upon the formation of these farms and the introduction of Europeans that the future of the South depends. Results more satisfactory to both the Southern people and the immigrants would no doubt be reached, if some such plan were pursued by other districts as that adopted by the district of Newberry, South Carolina.
Here an Immigration Society has been formed, under the Immigration Society at Newberry, S.C.auspices of Rev. T. S. Boinest, consisting of the most notable farmers and planters, who have raised a fund of $5,000 or $6,000 for the purpose of defraying the necessary travelling and other expenses of the European laborers they wish to employ. By this means, the society, though existing but two years, has induced about 400 immigrants to make the district (Newberry) their home, and according to the latest reports both the employers and employees are satisfied and content.
The society has appointed as agent, a European, Mr. F. W. Bruggemann, who is familiar with the character and wants of the immigrant, and forms the connecting link between the latter and their native employers, and to this circumstance is due the happy result of its efforts.
North of the Rotunda and adjoining it are the offices of the Offices of the CommissionersCommissioners. They consist of three rooms, occupying nearly the entire front of the building on the second floor, and include the offices of the General Agent and Treasurer, the Meeting-Room of the Board, and the General Agent's private office.
XIII. The General Agent's Office is a large vaulted room, the General Agent's Officecentral one and largest of the three, in shape a parallelogram, extending on its longest axis east and west, and containing about ​thirteen hundred square feet. Here is transacted all the executive business of the Commission, complaints are heard and investigated, grievances remedied, and the general correspondence, except that relating to the Treasury Department, conducted by a force of several clerks, under the direct supervision of the Deputy Superintendent. To this officer the chief clerks of the various departments make their reports, which are by him laid before the General Agent, who bases his instructions upon them. The General Agent, who unites with these functions the duties of Superintendent, is the chief executive officer of the Commission—the centre and focus of all its business. He controls the interior working machinery of the Commission, transacts its outside business, and conducts its correspondence. He receives all communications to be laid before the Board, and acts generally as secretary at its meetings. He also supervises the inland transportation of emigrants, and his vigilance is constantly exercised to prevent the extortions and impositions in the way of overcharges and delays to which they are subjected. It is his office, moreover, to regulate advances on the luggage of emigrants, which are made from time to time out of the funds of the Commission to enable the owners to proceed to their destination. The business of the Commission before the Legislature is likewise attended to by this officer, in securing such amendments to the emigration laws as the experience of the Commissioners from time to time may suggest.
Treasurer's DepartmentXIV. The Treasurer's Department is conducted by the Treasurer, Mr. George W. Wheeler, who has most creditably occupied that position since the formation of the Board, and by two clerks under him. It is divided into various branches, having severally charge of correspondence, of the money affairs, and of the business with the various counties and institutions of the State.
CorrespondenceA. Correspondence.—One of the clerks, under the authority of the Treasurer, receives daily from the New York General Post-Office all letters deposited in the box of the Commissioners of Emigration, comprising letters addressed to the Commissioners of Emigration; to the Treasurer, to the General Agent and other officers of the Commissioners of Emigration in Castle Garden; ​to the Castle Garden Railroad Agency, and its employees; to the Superintendent of Ward's Island, and physicians, employees, and emigrant inmates of Ward's Island; and to recently arrived or expected emigrants at Castle Garden.
The total number of letters received during the year 1869, including express packages containing remittances for emigrants, was 23,917.
All letters and express packages addressed to the Commissioners of Emigration, to the Treasurer, or to emigrants not in the institution on Ward's Island, are opened and read or distributed, as may be necessary. Those containing money or other remittances for emigrants are retained in the 'Forwarding Office,' a branch of the Treasurer's Department. A daily record is made of all receipts under appropriate heads, as follows: Number of remittance; date; amount; from whom received; for whom; name of vessel; nature of remittance; destination, etc.
Many remittances are received for emigrants after they have landed and left Castle Garden. Such remittances in due time are applied for by the sender, and returned immediately on application. Emigrants very often neglect to apply for remittances on hand, although duly notified that such are awaiting their call. Such remittances are also returned on application to the senders, either by mail or express, or to the parties in person who have made deposits with this department.
Its correspondence is large. In addition to that incidental to the return of uncalled-for remittances, replies are made to impatient senders of remittances for emigrants, who either have not arrived or have found employment from the Labor Exchange in Castle Garden, or perhaps are in hospital at Ward's Island. The parties so employed and for whom remittances have been received are duly notified to call at Castle Garden for the purpose of being forwarded to destination. The sender is also notified of the whereabouts of his or her relative or friend, and of the time when it is probable he or she will proceed to destination. From August 27, 1860 (the date on which the business connected with this subject was transferred to the Treasurer's Department), to December 31, 1869, the total number of remittances received for emigrants was 35,227, of an aggregate ​value of $481,955 21. The average value of each remittance received was $13 68. The following statement shows the increase of business in this one branch of the Correspondence Department:
| There was | received in | 1860, .... | $6,034 60 |
| " | " | 1861, .... | 9,465 09 |
| " | " | 1862, .... | 18,990 55 |
| " | " | 1863, .... | 46,147 91 |
| " | " | 1864, .... | 58,583 44 |
| " | " | 1865, .... | 62,288 88 |
| " | " | 1866, .... | 57,359 11 |
| " | " | 1867, .... | 66,865 89 |
| " | " | 1868, .... | 64,054 70 |
| " | " | 1869, .... | 92,165 04 |
| | | | $481,955 21 |
FinancialB. Money Affairs.—The commutation fund, created and deposited according to law with the Chamberlain of the city of New York, is under the control of the Commissioners of Emigration, and is drawn upon semi-monthly by the Board, to defray current and other expenses of the Commission.
Supplies are furnished to the institution at Ward's Island, on requisition of the steward, countersigned by the Superintendent of Ward's Island, and approved by the Ward's Island Committee.
The requisitions are filled by the authorized purchasers, who render original bills of all articles purchased. Drugs and medicines are supplied on requisition of the apothecary, countersigned by the Physician-in-Chief, and approved by the Ward's Island Committee. The requisitions are filled in the same manner as those of the steward.
The Treasurer receives from the steward and apothecary statements of all articles received by them on their requisitions. The bills are examined and compared with the statements, and all charges for articles not included in the statement are deducted.
Many articles and necessary supplies are furnished to the institution at Ward's Island in addition to those called for on regular semi-monthly requisitions, such as flour, coal, meat, fish, ​etc., etc. All bills for these articles are sent to the Superintendent of Ward's Island, and, if correct, are certified by that officer and the steward, and approved by the Ward's Island Committee. These and all other bills for supplies, for work performed, and all claims on account of Ward's Island and Castle Garden, are, previous to each semi-monthly meeting of the Commissioners of Emigration, submitted to the Auditing Committee, consisting of three members of the Board, upon whose approval they are presented to the Board of Commissioners, and ordered to be paid in the following manner: All bills and claims are numbered and entered in a book kept for that purpose. A warrant is drawn and signed by six Commissioners (this number constituting a majority and quorum of the Board), setting aside to the credit of the Vice-President of the Commissioners of Emigration, from the commutation fund in the hands of the City Chamberlain, a sum equal to the aggregate amount of these bills and claims. A check is then drawn to the order of each claimant (for the amount respectively due to him), signed by the Vice-President, and countersigned by one of the Commissioners of Emigration. Receipts corresponding with the number of the checks are taken by the treasurer in a book kept for that purpose.
C. Business with the Counties and Institutions.—Claims County claimsagainst the commutation fund for indemnity for expenses of emigrants who have become chargeable to any of the several counties of this State are made as follows:
The agents appointed by the Commissioners at Albany, Rochester, Suspension Bridge, Buffalo, and Dunkirk, or, where there are no such agents, the superintendent or overseer of the poor in the locality where a recently arrived emigrant asks relief or assistance, is required to render, under oath, to the Commissioners of Emigration, monthly bills, accompanied by an affidavit of the person who has received relief or assistance, in which the following facts have to be set forth, namely: Name and age of person; name of vessel in which such person arrived at New York; the name of the master of such vessel; last place of residence before coming to New York; and that he or she has no relations or friends in this country, able, at their own charge, to support ​him or her. This statement is compared with the record on file in the office of the Commissioners of Emigration, and, if correct, and the charge for relief reasonable and proper, the amount is allowed and paid to the superintendents or overseers in the same manner as other claims, except that payment for expenses of emigrants in the several cities, towns, and counties in this State is made but once during the year, namely, at the last regular meetings of the Commissioners of Emigration in the year.
Monthly bills for support and care of emigrants, accompanied by the necessary affidavits, are received (at present) from thirteen different charitable institutions and hospitals situated in the several cities of this State. These bills undergo the same examination and scrutiny as the county bills, and are paid quarterly. The total amount paid to the several counties in this State, including the city and county of New York, for care and support of emigrants, from the organization of this Commission, May 5, 1847, to December 31, 1869, was $994,279 92, and to institutions and hospital, the sum of $168,371 96; making the total amount reimbursed to counties, cities, towns, and institutions, $1,162,651 98, as will more fully appear from the table in the Appendix.
Castle Garden is open both day and night. The regular business hours are from 8 o clock A.M. to 5 o clock P.M.; but, in cases of necessity, the employees are obliged to remain till ten, and even later. There are seven private watchmen and seven policemen, whose duty it is to keep strict guard over the emigrants, and to preserve order and discipline.
The yearly rent of the Garden is $12,000. The buildings, furniture, and fixtures are insured at $50,000, and the baggage of the emigrants at $30,000.
The business of all the offices connected with the Staten Island Boarding Station and Castle Garden is performed by seventy-six officers and employees, from the General Agent to the night-watchmen. Together their yearly salaries amount to $82,894.