FIRST ANNUAL REPORT of the

UNITED STATES

SHIPPING BOARD

December 1 1917

Vii uv

GOVERNMENT PRINTING OFF
THE UNITED STATES SHIPPING BOARD

EDWARD N HURLEY of Illinois Chairman

RAYMOND B STEVENS of New Hampshire Vice Chairman

JOHN A DONALD of New York Commissioner

BAINBRIDGE COLBY of New York Commissioner

CHARLES R PAGE of California Commissioner

LESYEa SISLEa of Elorlda Secretary
CONTENTS

Organization of the Board 

Functions of the Board 

Emergency Fleet Corporation 

Construction program 

Disposition of ships commandeered under construction 

Division of Operations 

Requisition program 

Recruiting Service 

Transfer of vessels from Great Lakes 

Transfer of American vessels to foreign registry 

Admission to coastwise trade of vessels of foreign registry and of forei

built vessels under American registry 

Chartering Committee 

Interned enemy vessels taken over for the United States 

Protection of ships in warzone service 

New England coal situation

New England Coal Barge and Towers Association 

Stream bunkering at Ilampton Roads 

Regulation of rates and practices of water carders 

Carriers subject to regulation by the Board 

Jurisdictional anomalies 

Free transportation as constituting unjust discrimination 

Tariffs of interstate water lines 

Deferred rebates 

Conferences and agreements 

Rules of Practice 

FormalDocket 

Informal Docket 

Appendix

Table

Board

No 1 Compensation of employees of the United States Shipp

Table No 2 Personnel of the United States Shipping Board Emergen

Fleet Corporation 

Table No 3 Statement of receipts and disbursements of the United Sta

Shipping Board 

Table No 4 Statement required by section 2 of the sundry civil act 

June12 1917 

Table No 5 Statement of travel performed by officers and employees 

the United States Shipping Board 

Table No 6 Balance sheet of the United States Shipping Board Em

gency Fleet Corporation exclusive of the Division of Operations 

FIRST ANNUAL REPORT

OF TILE

UNITED STATES SHIPPING BOARD

WASIIINGTON D C December 1 

To the Senate and House of Representatives

The United States Shipping Board has the honor here

submit its first annual report covering the period of its e

to and including October 31 1917 except as otherwise note

ORGANIZATION OF TIIE BOARD

Section 8 of the Federal Shipping Act of September 7 1

Stat L 728 729 provides

That a Board is hereby created to be known as the United States 

Board and hereinafter referred to ns the Board The Board shall be c

of lice Commissioners to be appointed be the President by and with th

and consent of the Senate sald Board shall annually elect one of its 

as Chairman and one as Vice Chairman

The first Commissioners appointed shall continue in office for terms 

three four ace and six years respectively from the date of their 

ment the term of each to be designated by the President but their su

shall be appointed for terms of six years except that any person chos

a vacancy shall be appointed only for the unexpired term of the Comm

whom he succeeds

Pursuant to the foregoing provisions of the pct the Pr

on December 22 1916 nominated as Commissioners of the S

Board the following Mr William Denman of Califcrn

Bernard N Baker of Maryland 1r John A Donald o

York Mr John B White of Missouri and Dlr Theodore B

Louisiana

On January 19 1917 the Senate confirmed the appointme

Dfessrs Denman Baker White and Brent and on January 2

confirmed the appointment of Mr Donald

On January 2G 1917 the President accepted the resigna

Commissioner Baker and on January 36 1917 the Board 

constituted was formally organized

On March 12 1917 the President nominated Mr Raymo

Stevens of New Hampshire as a Commissioner of the Sh
FIRST ANNUAL REPORT UNITED STATES SHIPPING BO

Board vice Mr Baker resigned and the appointment of M

was confirmed by the Senate on March 15 1917

On July 21 1917 the President accepted the resignations 

missioners Denman and White and nominated as Com

in their stead respectively Mr Edward N Hurley of Illi

Mr Bainbridge Colby of New York those nominatio

confirmed by the Senate on July 25 1917 and Augus

respectively

On July 26 1917 the President accepted the resignation 

missioner Brent and on September 291917 nominated t

him Mr Charles R Page of California who was confirm

Senate on October 3 1917

On July 27 1917 the Board elected Commissioner Hur

Chairman and Commissioner Stevens as its Vice Chairma

On July 2 1917 Mr Lester Sisler then Chief Cleric of 

state Commerce Commission was transferred to the Board 

ant Secretary and on October 4 1917 lie was appointed Se

the Board

FUNCTIONS OF THE BOARD

Li reviewing the activities of the Board since its organ

twofold status should be borne in mind On the one h

a part of the administrative machinery of the Governmen

in times of peace to promote the development of an Ame

chant marine and to regulate foreign and domestic ship

the other handand especially since the United States e

warit has been given by recent legislation comprehens

of an emergency character intended to meet the shipping 

incident to a consummation by the Government of its vas

poses The Board in the exercise of these newly delegat

acts solely as the agent of the President

EMERGENCY FLEET CORPORATION

The most important of the Board swar powers are ex

through the instrumentality of the United States Shipp

Emergency Fleet Corporation the details of the organiz

purposes of which are as follows

The Board was authorized by the Shipping Act to fo

capital stock not exceeding 50000one or more corpo

the purchase construction equipment lease charter m

and operation of merchant vessels in the commerce of t

States The purpose of this authorization was to place 

petitive equality with private shipping vessels operated u

ernment appropriations by exempting the latter on the 
FIRST ANNUAL REPORT UNITED STATES SHIPPING BOAR

from governmental restrictions not adapted to commercia

tice and by withholding from them on the other hand such 

immunity in domestic or international law as is customaril

ciated with governmental activity The power under this 

operate ships is greatly restricted but the power to build s

limited only by the measure of the appropriations

Acting under the authority of the Shipping Act the Bo

April 16 1917 organized under the laws of the District of Co

with a capital stock of50000 what is known as the 

States Shipping Board Emergency Fleet Corporation and de

to that Corporation the execution of its construction program 

sequently the comprehensive powers conferred upon the Presi

the urgent deficiencies appropriation act of June 15 1917 in s

they relate to the construction of vessels were delegated by 

tive Order to the Corporation and the funds appropriated f

purpose were made available to it

CONSTRUCTION PROGRAM

The Corporation is now engaged in what is probably the g

construction task ever attempted by a single institution 

developed for this purpose within a period of six months an 

zation of more than 1000 employees including a large fo

technical experts many of whom have left remunerative occu

to assist in this vital enterprise

The Corporation has 1G offices in various parts of the c

It is supervising the building of 118 vessels in 110 shipyar

tributed throughout the United States It is disbursing 

construction of those ships something in excess of a billion 

per annum It is controlling substantially all the shipbuild

the country other than of naval vessels and its program c

the completion in 1918 of eight times the tonnage delivered i

When the United States entered the war American shipb

were principally engaged in the construction of ships for 

account principally British and Norwegian The yards were 

ing substantially at capacity The problem of the Corp

therefore was not merely to build strips but also to build new 

in which more ships might be constructed

To this end contracts were placed for a large number of 

ships most of them to be built in new yards it being foun

such ships could be built within certain limits without inte

with the steel ship program The Corporation has experience

difficulty in arranging for supplies of proper lumber bu

believed that this difficulty has been largely overcome an
11RST ANNUAL REPORT UNITED STATES SHIPPING B

the wooden ships may be expected to he completed w

degree of promptness

As to steel ships the Corporation has made every effor

ardize designs for steel construction but it is deemed ina

this time to publish the details of those designs

In order to speed up construction and to assure unity 

over shipyards the Corporation on August 3 1917 in 

with the President sorder of July 11 1917 requisitione

ships under construction of over 2100 tons dead weigh

As a result of this order the United States became posses

ships in various stages of construction of a total tonnage 

pleted of2937 503 tons Of these 33 of a total tonnage 

have been completed and it is estimated that the remaind

delivered within the nest 15 months The disposition of 

is discussed elsewhere in this report

The problem of compensating the shipbuilders has been 

the satisfaction of substantially all of them but the proble

pensating the former owners has not been definitely d

Negotiations are pending for the settlement of nearly all th

in a manner satisfactory to the former owners and at the 

inexpensive to the united States

The Corporation is making rapid progress in plac

contracts for ship construction In the following table is 

purposes of comparison the number of vessels under co

requisition on August 1 1917 and on October 31 1017

Type of vessel

Under contract

Wood Steel

Composite

Total

Raqulsitloned August31917 steel

Grand total

Aug 1 1917 

dcls NumToaaego of co

235 840 90 

70 E57 11f1I1 

58 207 0110 

363 1631 900 

361 1633 90 1

There are prospective contracts pending for the cons

199 additional steel ships of a total dead weight tonnage o

The estimated cost of ships requisitioned on August 3 c

be given for the reason that the ascertainment of just co

is as yet uncertain Estimated expenditures under contra

on or before October 31 1917 as shown by the follow

relate only to work under direct contract with the Corpo
FIRST ANNUAL REPORT UNITED STATES SHIPPING DOAD

Funds available for ship ronitruetlon appropriated or authoried 1

30

um

Type of vessel 1 rr Tonnage I ESlimalCd amount

Est half ed entmets in Iwo October 31 1917

I

o urn h ill t 101 nn0 31n1 2In000

wool ml lele UI 221800 3l InI 1x10

oin poiIG rent pletC IA

51 r1tmin tl

91 217 itsa0110 In II2771I 1 090 178

Furicated 4 tort 210 1 615 NA 207 411110

735 3820 90 54 113 40

Eaimaled inrea esin rst ofmaleriak

Oprmlion Ofshi

E

317510

timaleI lost of making rund to hips out of 314 wooden Lulls at 0now

Total

eIri t

I1 W Wn 010

G2 511 Oln

Ellimal td rest of wire les ins tall firm cu lnpleto ships 1305 410

1aim ltd addltrin Ico t of tmo steel haters 4111 11110

Ell ina Ved oIof D Lm ts eI nlrmeet and wavy for woodea shi Ps

E4 ins LLedeo4el Plants for fatsigated Rerl ships iii 010nn U0BOO

Ell mate muuunt of Lmnc ollilc metdistri 4IliC x to Lunn e 3030 1B1B 5 513 UOtI

Totsl etilotto lesportlitures an for coal rac t placed on or before Oct 31 1917 

flat19 at i ile

For

For ronarIndion

con cin tion

of

of

ships

pants 11001

012343 992 

The following is a statement of the appropriations avai

the Board and to th Corporation for the construction p

requisitioning and operation of vessels

rurplee of eppropriatlon nuthorited Amounts appropriated Amounts

t

I

SKIP con ant Lion I45I 019 nn8 5551 IMfNO 1 

shi pvard VI mtS 350 350uu

Regniationln ships SLi a190 331 01x1 x10 

Purehase ofsld pS Li1 PY 0110 1u0 109 out

Oprmlion

Total

Ofshi i OJO IM N1 S OOn INO F

831 030 M I1 W Wn 010 

The balance sheet of the Corporation as of October 31 1

pears in the appendix as Table No G

The mere placing of contracts and disbursement of fund

ever is a relatively small part of the wort of building sh

tables of ships under contract and estimated expenditures g

an inadequate picture of the Corporation stask In the last 

it is man power that builds ships and the mobilization of 

competent trained and willing force of workers for the sh

of the country has been among the most important of the C

tion sactivities An Industrial Service Department has been 

ized to aid in the solution of this problem

The problem has been a threefold onefirst getting m

ond keeping men and third fitting men for their respectiv

In procuring men for shipbuilding service the Corporat

had the cooperation of the Department of Labor in assistin

building officials as to ways of getting in touch with sources o

2716117 2
10 FIRST ANNUAL REPORT UNITED STATES SHIPPING BO

supply and in the intelligent use of state and federal em

offices A large development of this worlc will shortly t

when the Department of Labor in cooperation with the Co

shall have established shipbuilding recruiting centers

The retention by shipbuilders of men at their plants ha

it careful study of the problem of hiring and firing I

found that yards employ from two to six men for each j

the course of it year with obvious losses in efficiency and 

effort A weekly manpower audit of each shipyard is n

conducted by the Industrial Service Department which h

great assistance to shipbuilders in eliminating wasteful 

and in setting up nely standards of employment

With the cooperation of the heads of the international lab

a far reaching scheme of industrial education has been put 

tion An instructor training center has been established a

News to which from 75 to 150 skilled mechanics are to be 

by selected yards for it six weeks course to learn how to 

knowledge of their trades to recruits in the shipyards In 

of six months the graduates of this training center and of s

as may be established will be in a position to initiate 70n

workers mostly from kindred trades in shipyard emplo

The housing of the new workmen brought into the sh

work especially in connection with newly established y

presented a serious problem and plans are under consid

meet it in a comprehensive way

DISPOSITION OF SIIIPS CO IMANDEERED UNDER CONSTRUC

By ENecutive Order of July 11 the disposition of ship

tioned or otherwise acquired by the united States was con

the Shipping Board As vessels commandeered by the E

Fleet Corporation under its order of Angnst 3 have ap

completion it has become necessary to determine whether th

be returned to their former owners or whether title should be 

by the card The Board in determining this question 

guided by the following considerations

First the debates in Congress and the legislative histo

emergency shipping fund legislation indicate an intentio

part of Congress that the drastic powers conferred by th

June 15 1917 should be exercised in the development of a

can emergency fleet for war purposes It was felt that Am

view of the gigantic national effort which must go into the 

tion of so vast a fleet was entitled to the privilege of se

allied cause under ner own rather than under a foreign lag 

exception of four vessels virtually completed on August 3 
FIRST ANNUAL REPORT UNITED STATES SHIPPING BOAR

to the completion of which the Board has contributed noth

title to all vessels building for foreign account and comma

on that date has therefore been retained on behalf of the 

States The vessels so retained or others of equivalent tonna

been or will be diverted to the allied service in so far as the m

requirements of the United States will warrant

Second the Board was of the opinion that the former ow

vessels building for American account and commandeered on 

3 1917 should be given an opportunity to resume title on th

pletion of such vessels provided they would surrender to the 

the use of such vessels for the period of the war and six 

thereafter at the requisition rate established by the Board a

vided further that they could reimburse the Board for all e

tures incurred in completing the vessels including the cost o

ing up construction and would waive all claims arising out of 

of requisitioning The effect of this arrangement has been to 

to a considerable extent the hardship to shipowners invoked 

commandeering policy without any sacrifice of war needs an

the same time very substantially reduced the cost of the s

struction program

DIVISION Or OPERATIONS

The Executive Order delegating the authority conferred 

emergency shipping fund legislation empowered the S

Board to requisition constructed ships and to operate mana

dispose of vessels requisitioned or otherwise acquired but p

that the Board in its discretion might exercise those powers 

the Emergency Fleet Corporation The Board has recently 

itself of this privilege by assigning to the Division of Opera

the Emergency Fleet Corporation the operation of ships 

administration of the requisition program This division 

officers and crews directs the movements of ships and in 

is the administrative agent in charge of operation It is su

all times however to the direction and supervision of the Bo

The financial transactions of the Division of Operations a

rate and distinct from those relating to the construction 

the Corporation and are supervised by the Disbursing Office

Board The Law Division of the Board assists and repres

Division of Operations in legal matters It is believed t

arrangement properly carries out the spirit of the Executive 

As a result of this arrangement vessels unless actually 

in military or other governmental activities are operated 

chant ships subject to the navigation laws and to the j

tion of the admiralty courts and their crews are covered 

provisions of the compulsory seamen insurance law An
12 VIIINT ANNUAL RGPOET UNITED STATES SHIPPI GB

arrP would leave transferred to the Court of Claim

erable portion of the country sadmiralty litigation and w

resulted in grave injustice to persons suffering from co

other tortious injuries over which the Court of Claims ha

diction

Exccpt qualifying shares of directors the steel of the C

is owned exclusivel by the Uuitcd States as represent

Shippi gBoard

The ollicers of the Corporation are a follows Mr E 

Hurley pre ident Mr John A Donald vice president M

Piez vice president Mr Raymond 13 Stevous treasure

Lester Sisler secretary

The trustees of the Corporation are Mr Edward II

John A Donald Mr Raymond B Stevens Alr Bainbrid

Mr Charles R Page Mr Charles Piez and Admiral W 

While in legal form a private corporation the Emerge

Corporation is therefore in fact completely under gov

control The activities of the Corporation and of the Bo

closely interrelated that it has seemed expedient to pre

together in this report

ar QUISITIO PROGRAM

Extraordinary war demands on merchant tonnage of 

have necessitated a severe temporary dislocation of exis

ping and the task of procuring the requisite tonnage fo

purposes with the least possible disturbance of commerci

dustrial enterprises has devolved upon the Board

For obvious reasons the details of this work can not no

lished nor can statistics be given showing what tonnage 

Laken and of existing routes or to what service it has been 

The general purposes which have guided the Board how

be stated

The first consideration has perforce been the military 

of the govermuonts united in the war against Germany as 

by the military authorities To supply these nc2ds it ofte

necessary to take vessels out of trades which in normal tim

have been regarded as of great importance The Board in 

nection is pleased to testify to the patriotic spirit in which 

interests hale met the situation even where it has entail

individual loss

The Board has continually borne in mind however that t

a curtailment of commercial transportation would defea

ends Paw nmterials essential to the preduction of militar

and nitrates vitally needed to sustain the output of fa

not be neglected With the acute congestion of rail traffic 
FIRST ANNUAL REPORT UNITED STATES SHIPPING BOAR

be transported by water o that the war industries of the A

coast shall not he deprived of sustenance

In the emergency shipping fund section of the urgent defic

act of June 15 1917 the President was given power to requ

ships on payment of just compensation and this power by 

tive Order of July 11 1917 was delegated to the Board Th

poker was essential to a proper performance by the Board 

vast service will he vividly realized from an examination of 

and freight rates at the time of America sentrance into th

A few concrete instances will suffice to illustrate

Time charter rates on cargo stearncr in the spring of 1014 w

a prevailing rate of about 1 per deachveight ton per mont

average of six time charters of American vessels ranging from 

to sixth months made in July to September 1017 for trades 

the war zone gave a figure of 13SS per deadweight ton per 

For steamers on voyages to the war zone during the summer o

charters were made at rates as high as 21 per ton per 

for New YorkGenoa trade and 20 per ton per month fo

YorkFrance trade the charterer bearing war risk Time c

rates cn tankers in 1914 were at approximately 170 per 

weight ton per month for long periods and 340 for short p

In the snmtner of 1911 the prevailing rates were in excess of 

Freight rates have shown an even greater advance largely b

freight rates include war risk on vesels while under it time c

war risk is borne by the charterer Rates on cotton in the sp

1914 from Savannah to Liverpool were about 35 cents per 1110 p

and to Genoa about Cis cents From New Orle ns the rates 

about j0 cents higher hates in the scmmer of 1217 wore at 

of per 100 pounds to Liverpool and 10 per 100 pounds to G

with New Orleans rates about 25 cents to 35 cents higher Ra

petroleum front New York to Liverpool in 1014 were about 

ton By 1911 they had reached 50 including war risk on v

Rates on grain from New York to the United Kingdom ea

1017 were approximately S550 per quarter as compared with 5

per quarter early in 1914

A portion of three increases has no doubt been justified by 

costs of operation Because of the hazardous nature of the s

officers and crew are entitled to special oar bonuses The c

bunker fuel and supplies has advanced The hazardous natu

the enterprise perhaps justifies somewbat higher returns than 

on the capital invested The cot of warrisk insurance on the c

included in the freight rate Yet all these factors do not j

the progressive multiplication of charter rates nor the hi

inconceivable heights to which freight charges have advanced
14 IRST ANNUAL REPORT UNITED STATES SIIIPPING B

The market value of a ship bears a close relation to 

poker hence the price of ships also has steadily mounted 

which before the war would have sold at from 60 to S

cently changed hands at 300 or over per d w ton

After a careful investigation of costs and values and 

conference with representative shipowners the Board 

that the inflated war rates arising as they did from 

conditions due to the submarine and to the diversion 

for military purposes did not represent fair and legitim

of the kind that are conclusive in determining just com

The Board therefore fixed a tentative scale of requisition 

stantially higher than the prewar basis which took fu

of increased costs and legitimate increases in ship values 

nevertheless was substantially under the unjust market 

prevalent The rates so fixed became effective at once for 

requisitioned by the Board for military service

To single out certain vessels and to limit their earning

sonable level and at the same time to leave others operat

trades at rates forced to even more fantastic heights by t

tioning of competing tonnage would have produced a ma

crimination Moreover in it war in which the mobilizat

nomic resources is second in importance only to the service 

in the field the distinction between war service and comm

ice scarcely exists All commercial shipping connected 

American industries is engaged in war work

The Board has therefore recentlyadopteda policyof req

for Government account all powerdriven steel cargo vesse

tons deed weight or over and all passenger vessels of2500 

register or over adapted to ocean service The operatio

vessels is entrusted in large part to the companies by w

were formerly controlled but all receipts have been for G

account the owners being credited with the requisition ra

the Board The vessels moreover are under full cont

Board as to voyages cargoes and rates and as to safeg

their protection against the hazards of warzone serv

hoped that this policy will be the means of achieving t

which in the opinion of the Board are necessary Firs

unity of control over the distribution of shipping so that 

may be filled in the order of their emergency and secon

effective regulation of rates so that lie nations at war with 

may not be financially exhausted by extortionate tran

chares

Further experience may develop that consistent with th

above outlined some of the steamers not adapted to war s

prot tldv be released from requisition As to other l
FIRST ANNUAL REPORT UNITED STATES SHIPPING BOA

effective methods of regulation and control may prove to b

sary It should be borne in mind flint aside from the re

poker the Board at present has no jurisdiction over rates in 

trade and no jurisdiction over interstate rates except wher

are common carriers operating on regular routes If ex

shall prove it to he necessary the Board will recommend 

legislation to meet more effectively the situation arising f

acute dearth of tonnage

The freight rates to be charged to shippers on requisitione

left in commercial service or assigned to foreign Governme

been the subject of careful consideration The Board of co

no desire to profiteer at the expense of any Governme

ciated with the United Strafes in the war against Germ

of the general public On the other hand existing contra

ticularly these on a c i f basis and special market c

often present a danger that a reduction in rate will not inu

benefit of the consumer but will merely transfer from the sh

to favored shippers the monopoly earnings which it is inte

eliminate The policy of the Board therefore will be to 

freight rates based on the requisition rate whenever it ca

assurance that the benefit of these low rates will accrue to th

ican cr allied Governments or to the consuming public and t

higher rates whenever this fact shall not be so establish

application of this policy will no doubt present dilliculties 

vidual cases but it is believed in principle to be sound

The requisition program as yet Las been in effect for such 

period of time that no accurate statement of receipts and 

tures can now be made Accounts however are being k

scrupulrus care along sound and conservative lines and in du

will be presented to the Congress

RECRUITING SERVICE

The problem of recruiting and training officers engine

crews for the greatly enlarged merchant marine in prospec

ceived the careful attention of the Board On June 191 7 

ing service was established with offices in the customhouse 

at Boston

The first work taken up was the training of deck office

schoolship method of training eflicers while employed suc

by the Conunonwealth of Massachusetts and the State of Ne

proved too slow with too limited a number of graduates 

present emergency

A plan was therefore adopted of taking men already tra

experience in seamanship and giving them a shot intensiv

of training in special mivigation schools under the directio
16 IPST ANNUAL REPORT UNITED STATES SHIPPING BO

recruiting service In the five months in which this service 

in operation no less than 15000 men have applied for tr

officers From these applicants only those qualifying by e

as seamen have been accepted

During the months of June July and August 27 n

schools on the Atlantic Pacific and gulf coasts were e

by the recruiting service For this purpose the country 

divided into seven sections following as nearly as practic

geographical divisions employed by the United States St

Inspection Service The cooperation of that service with the 

service by the assignment of local inspectors to the wort o

ing candidates for admission to the schools has b en of the 

ralue Local advisory committees embracing generally m

perintendents of schools local inspectors of steam vessels or 

of customs and shipping interests have also been of inc

assistance

The teaching stall of the recruiting service has Ieen nw

the best available technical talent for the teaching of na

including experienced sea captains as well ts tcuhers fang 

schools and technical universities

For admission to the schools a minimum of twO ears c

at sea is required in accordance with the rules of the S

Inspection Service governing the fitness as scauun of non 

licenses as deck officers During the period of s howling 

receive no compensation from the Government and no allow

expenses The schools are not yet boing rnu to their ca

order net to produce licensed officers faster than they can b

lated by4he ships uvaiting rnmmission

The nest work to which attention has been directed is 

iog of engineers For this purpose the field for adv

through special training is open to oilers 11n1 v ater tenders 

ing seagoing vessels to engineers oil Great Lakcs steame

stationary and locomotive engineers of suitable experience 

purpose engineering courses under the supervision of the r

service have been established at the Massachusetts Institute 

nology Stevens Institute of Technology Johns Itopkins U

Tulane University the University of Washington Scathe 

Institute of Technology and the use School of Applied 

Another school of large attendance has been opened at Phi

on the steamer John Nearer

The placing of these men in service on private and 

Board ships has been put in charge of I seaservice burea

During the period from June 1 to October 31 there were g

from the navigation classes 601 men and from the engineerin

416 men
FIRST ANNUAL REPORT UNITED STATES SHIFTING BOA

TRANSFER OF VESSELS FROM GREAT LAKES

The Great Lakes shut off as they are from sealevel c

with the ocean have nevertheless contributed materially to 

of procuring tonnage for war purposes An unprecedented 

of newly constructed ships have been brought down from t

and in addition 21 steel steamers have been withdrawn fr

commerce and are being brought down for war service 

16 were too long to pass through the locks and it was nec

cut them in two bring them down in parts and reassemble 

the St Lawrence Twelve of the vessels were put togeth

an achievement never before accomplished Ten steel t

also been commandeered from the Lake fleet and are be

with surface condensers for ocean use

A committee has been appointed to advise the Board 

matter of just compensation to be paid for vessels from t

to which title has been taken and that committee is now at 

its task

TRANSFER OF AMERICAN VESSELS TO FOREIGN REGISTR

Section 9 of the Act provides for the transfer to foreig

or flags of vessels owned by citizens of the United States 

mented under the laws of the United States It requires th

any such vessel may be transferred to a foreign owner or fl

cation shall be made to the Board and further provides ap

penalties for the violation of its requirements

In the exercise of the powers conferred by this section t

has been compelled to deal with questions of extreme diffi

delicacy The authority so conferred is in the main a wa

It was obviously conferred upon the Board in order that the

be created that centralized control of tonnage which is req

its effective mobilization in the conduct of the war

In the exercise of this power therefore the Board acts as 

through which the allocation of tonnage for the dicers an

changing needs of war is sought to be effected In passing u

application it becomes necessary to seek to balance the pre

future requirements of our naval and military forces the 

ments of such of our trades as deal with the production of m

and military supplies the requirements of our Allies fo

purposes and for the transportation of foodstuffs and la

ordinary trade requirements of our citizens iri so far as the

conserved without detriment to the other demands

Prior to November 21 1917 applications for the transfe

vessels were made to the Board covering for the most part 

27161173
ADMISSION TO COASTWISE TRADE OF VESSELS OF FOREIGN REGISTRY AND

OF FOREIGNBUMT VESSELS UNDER AMERICAN REGISTRY

On October G 1911 an Act of Congress was approved authorizing

the Board to suspend the provisions of law excluding from coast

wise trade foreignbuilt vessels and vessels of foreign construction

This was a war measure designed to male possible a more economical

use of tonnage and the replacement of coastwise tonnage which it

had been necessary to divert to military service The Act authorizes

the Board to issue permits which must limit and define the scope of

the trade and the time of employment and the powers granted there

under expire automatically 120 days after the close of the war

This Act has not been in force for a sufficient length of time to

permit of any extended discussion of its effect and administration

During the month of October nine coastwise permits were granted

for single trips In administering the Act the Board has borne in

mind the manifest purpose of Congress not to overturn the policy

of our coastwise shipping laws but rather to make temporary excep

tions to that policy where war needs necessitate such action

CHARTk RING COIIAIITrEE

The program of control of shipping tbrough requisition covers

only American steam vessels over 2500 tons lead weight To exer

cise a salutary degree of control over other American and neutral

shipping in American foreign trade a chartering committee was

established with offices in New fork and with the assistance of the

War Trade Board all charters of neutral ships of American

steamers under 2500 tons and of sailing ships of any size loading

from ports of the United States to foreign ports must be approved

by this committee The committee has exercised this control with
FIRST ANNUAL REPORT UNITED STATES SIIIPPING BOAR

two primary objects in mind First so far as possible to induc

tral tonnage to assume its fair share of trans Atlantic trad

second to effect a material reduction in th3 high charter rate

vailing not only in transAtlantic but in South American and o

trades

INTERNED ENEMY VESSELS TAKEN OVER FOR THE UNITED STAT

When the United States entered the war there were inter

American ports 91 ships of German registry of an aggregate 

tonnage of 591 66 These vessels were at once taken int

tody by customhouse officials for safekeeping and for the pro

of navigation At the direction of the President the Board 

took the task of repairing these vessels and making them rea

service Funds for this purpose were allotted out of the n

security and defense fund appropriated in the act of April 1

To assist in this task the Board has secured the assistanc

board of survey composed of eminent engineers and office

been opened in New York and on the Pacific coast

By joint resolution of Congress approved May 12 1917 the 

dent was given formal authority to take possession and title 

vessels within the jurisdiction of the United States which were 

enemy ownership or register at the time of coming into such ju

tion and to operate lease charter and equip them for the ser

commerce of the United States An Executive Order of June 31

conferred on the Board authority to act under this resolution a

necessary steps were taken by formal seizure to confirm posses

the vessels an order under the Board sofficial seal in every in

being affixed to the vessel and due return thereof made under 

The legislation authorizing the seizure of enemy ships was gro

upon the constitutional power of Congress to provide for the f

ure of enemy property found in port at the outbreak of hostilitie

question of compensation to enemy owners could therefore ari

no moneys have been appropriated or paid out on account o

seizures The resolution provided however that the vessels 

be appraised by a board of survey to be appointed by the Se

of the Navy whose findings should be 1 considered as compete

dence in all proceedings on any claim for compensation

It has developed that there were at the time of seizure a num

claims of other than enemy citizens some of which in the o

of the Board may merit careful investigation with a view 

equitable adjustment These claims include maritime lien

supplies for necessary advances for wages of crews mortga

American banks made before the declaration of war and in 

cases alleged sales to American citizens or corporations N
20 IIIRST ANNUAL REPORT UNITED STATES SHIPPING B

chinery at present exists for the adjudication of these cla

appropriation is available for their settlement It is re

that such machinery and appropriation be provided

PROTECTION OF SHIPS IN WARZONE SERVICE

As to vessels requisitioned by the Board and operating 

ernment control full compliance with precautions and 

designed to conserve tonnage in the submarine zone ma

secured Requisitioning however devolves upon the Gov

sponsibilities and expenditures which frequently should 

curred Having itself no power directly to control the 

of ships not requisitioned the Board has found it necess

the cooperation of the Bureau of War Risk Insurance 

War Trade Board for the enforcement of rules relating 

conservation The Bureau of War Risk Insurance w

higher premium for vessels not complying with the reg

the ship protection committee and of the naval consulting 

the War Trade Board will deny export licenses to cer

of vessels the presence of which in the submarine zon

hazardous

American sailing vessels especially have been rigo

without exception excluded from waters in which the 

peril has been acute Subject to the uncertainties of 

weather liable to be becalmed in infested waters unsuite

voy and generally incapable of armament these vessels 

targets for the enemy Many of them however are valu

carriers for coastwise and South America trades replacin

withdrawn for trans Atlantic voyages

The Board recently published and distributed among 

and masters of vessels several thousand copies of certain 

regulations for the protection of ships imperiled by min

marines Additional copies of this publication may be 

request

The enforcement with the assistance of the Spar Trade 

regulations of this character however has been admittedly 

and it is essential that the Board be given full and complete 

to enforce such regulations directly and ii adequate 

High freight rates coupled with the practice of insurin

values against war risks often tempt shipowners to dis

dictates of prudence which would influence them in nor

and to lose sight of their responsibility to the United Sta

serving one of our most essential war resources The po

strain them should not be left indefinite Recommendatio

islation making effective the Board spowers in this resp

submitted at a later date
FIRST ANNUAL REPORT UNITED STATES SHIPPING n0AR

NEW PNCLAND COAL SITUAa IaN

NEW ENGLAND COXI iARGE All IM AR 1111A f111C

Early in September 1917 it becvue apparent that the Ne

land States would be confronted with a serious fuel shortage 

immediate steps were taken to augment and expedite the mo

of fuel from tidewater parts The New England Coal Com

consisting of representatives appointed by the governors of th

England States reported the facts to the Board and asked its 

vention to the end that textile mills monition plants and 

other industries engaged on Government wort be not compe

discontinue operations

An investigation was immediately instituted by he Boa

there was organized under its direction a voluntary cooperati

comprising the owners and operators of all tugs and barges e

in the New England coal trade This organization is known 

Now Eil land Coal Barge and Towers Association and its 

ofifce is in charge of a Supervisor of Coal Barge Operation

headquarters at Boston appointed by and accountable tothe D

of Operations of the Emergency Fleet Corporation The 

membership of the Association comprises mare than 40 carrie

controls an aggregate of approximately 40 ocean tugs and nea

seagoing barges

With the exception of a nominal salary paid to its Supervi

the expenses of the Association are assumed by the New E

Coal Cemmittec or by the individual members of that Commi

Under the rules of the Association the actual movements of 

are controlled by the owners of such vessels but are re

prcmptly to and recorded by the Supervisor As a result 

arrangement the position of every tug and barge in the ser

known at all times the movement of toles to and from New En

ports from and to coalloading ports at New York Philad

IIampton Roads and Baltimore is materially expedited an

and barges are being operated at their maximum efficiency 

factor to this end has been a reduction by the Association 

number of laydays for loading and discharging barges and 

crease in demurrage rates assessed by the members of theAsso

for the detention of barges beyond those periods

STREAM BUNKERING AT IIAMP 111N MAUR

There recently developed at IIampton Loads a serious cong

of vessels awaiting cargoes or bunkers at the piers It was 

upon investigation that older the priority rules of the port ste

awaiting bunkers were being given precedence aver cargo vesse
22 rIRST ANNUAL REPORT UNITED STATES SHIPPING B

that in many instances as much time was being consumed 

ing a few hundred tons of fuel coal as would have been r

loading several thousand tons of cargo coal It was fur

that this situation was not only retarding the movement 

New England but was seriously interfering with the eff

ation of American and allied vessels

With it view to the elimination of the congestion confe

held with representatives of the Fuel Administration o

England Coal Committee and of the railroads serving 

Roads the net result of the investigation being the as

that the situation could be remedied only by a practical 

ance of bunkering at the piers and the withdrawal to the 

vessels to be bunkered

Owners at Baltimore and Philadelphia in a commendab

public service have assigned to the Board for such per

may be needed highly efficient coal loading machines 

been transferred to Ilampton Roads where they are to b

by experienced stevedores acting as agents of the Emerg

Corporation

It is anticipated that this arrangement will relieve the 

and will materially expedite the movement of coal from 

Roads

REGULATION OF RATES AND PRACTICES OF WATER CAR

The function of the Board as contemplated by the Sh

is essentially one of regulation but since the entry of 

States into the war and particularly since the delegat

President of his powers tinder the urgent deficiencies ap

act of June lu 191T the regulatory functions of the Boa

tofore noted have been subordinated to the exigencies o

tion and operation

Current requirements with respect to the enforcenlents 

however have been given due attention and as a result o

already taken by the Board the regulation of the rates an

of water carriers may be made effective immediately upon 

tion of normal traffic conditions

The regulatory jrrisdiction of the Board extends to tw

water carriersfirst those engaged in foreign commerc

ond those engaged in interstate commerce The statute ex

empts from the category of foreign carriers ferry boats 

regular routes and cargo carries commonly known 

tramps The term ecmmon carriers by water in inter

merce as defined in the Act excludes carriers running o

routes intrastate lines and carriers operating exclusiv

inland waters of the United States Carriers engaged ex
FIRST ANNUAL REPORT UNITED STAIES SHIPPING BOA

the transportation of proprietary traffic also are exempted f

application of the Act

CARRIERS SLIDJECT TO REGULATION BY THE BOARD

In order to determine the carriers subject to the jurisdictio

Board as included or excluded by the foregoing classificatio

lars of inquiry were directed to more than 800 water lines 

ated or referred to in traffic publications Many of the ca

rdclressed did not reply either to the original circular or to 

mental inquiries while the enclosures in many other cases 

turned unclaimed

Reports received however from 634 carriers as of June 

showed their status respectively as follows

Dissolved or discontinued operntions 

Operating exclusively intrastate or between ports of foreign countries 

Operating exclusively on inland lakes Bed ricers of the United Stat

Engaged In towage lighterage or ferriage service 

Operating via irregular routes interstate traffic 

Operating us ocean trtnipsforeign traffic 

Engaged exclusively in proprietary or uonearyler service 

Subject to the exclusive jurisdiction of the Interstate Couuoeree C

miss ion 

Engaged in regular service on Chesapeake Day and Delaware Pay 

Ewagal in interstate commerce within the purview of the Shipping A

Engaged in foreign commerce within the purview of the Shipping Act 

The status of several of the carriers hcreinabove described 

ject to the Act has been so changed by the transfer of vesse

under requisition by the Government or through voluntary 

tion that a specification based upon reports on file with th

would not accurately reflect the scope of its jurisdiction

The status of some of the carriers moreover particular

operating on Chesapeake Bay and Delaware Bay has n

clearly settled owing to the absence of authoritative judicia

tions of the terms high seas and regular routes A

General Randolph in a formal opinion held that Delaware 

not a part of the high seas 1 Op Atty Gen 33S and i

conclusion 1vit11 respect to Chesapeake Bay was announced 

Court of Commissioners of Alabama Claims in Stetson Y 

States No 3993 Class 1 In the case of The Vartha Anne 

Cates No 9146 the District Court for the Southern District 

erk sitting in Admiralty held that Long Island Sound i

of the high seas

If it finally should be decided by the courts that Long Island 

Chesapeake Bay Delaware Bay and similar estuarial waters 

high seas within the purview of the Shipping Act the juri
24 FIRST ANNUAL REPORT UNITED STATES SHIPPING BOA

of the Board with respect to interstate commerce would be 

to the regulation of the rates and practices of fewer than 70 

or not more than onefourth the total number of water lines 

in the movement of traffic from State to State A slight 

of this juridiction may be found in practice to he necessary 

tuate the purpose of the Congress

2r ttsmCrnnm Ar ASO tALES

In this connection the following jurisdictional anomalies 

noted Section b of the act to regulate commerce as am

the so called Panama Canal Act of August 21 1012 provi

tand after tle frtflay of July uioetecu hundred and fourte

he unlawful for any railroad eonlPany orpther conrnun eirrler sub

Act to rogulnte omituone to omiIse operate cuuMd er have a

nbitsacvor by sbvlc mvuelship ur otherwise either direetly imlirect

tiny holding conUauw or by stockhohters or Qirech rsit euulluml or in 

intoner in anS cotiulmu artier by eater thron Ibe Panmwl Can

wLere with which said rtilrild or other carrier nfore iddues or 

pele far tnXic or ouy ves wl cu vying frd or pasotrrrs ulon 

roue ur elsr hoie mill Miirh aid laihnad or Other carrier ofurnid 

may ron pete for t1 11110 x If the Intelsiate Ciallne C

haul be of the opinion that any suih existing y mrific iservice by w

than through tho Panama Cnal is holm operated in We Inu rast of 

and is of advantage to the couvenienco full conuuerce of the people 

11111 extension ii ill neither exclude hrewcnt our reduce rolllpetilion o

by water antler ronsid rftiun the lnGrstntc Conuuene Coninik io

ordor oNtond the tittle Burin Nhich such service by outer nmp con

Opernted bcvun lluly first nineUwn huntlmd anal fourteen

The Pana nm Canal pct further provides that in every cas

extension the rates schedules and practices of such wate

shall be filed with and subject to the jurisdiction of the Co

to the same extent and in the same manner as is the railroad 

oonuuen carrier controlling such water line or interested in 

er in its operation

By section 33 of the Shipping Act it is provided that its te

not be held to affect the power or juridiction of the Interst

mei ce Commission or to confer upon the Board concurrent 

jurisdiction over any matter within the power or jurisdicti

Commission

TO illustrate the practical dilliculties of administration 

from this distribution of authority The Morgan Line a s

of the Southern Pacific Company a rail carrier by virtue of 

provisions of the act to regulate commerce and of the Ship

is subject to the exclusive jurisdiction of the Interstate C

Commission The Board is thereby divested of all contro

porttoport rates regulations or practices of that carr

CIvde and Mallory Lines on the other hand although in ac
FIRST ANNUAL REPORT UNITED STATES SHIPPING BOAR

petition with the Morgan Line are not subsidiary to it ra

Their porttoport rates regulations and practices therefore a

ject to the jurisdiction of the Board and only in the ma

through rail andeater transportation are they amenable to 

terstate Commerce Commission

Again a carrier operating exclusivel oil inland caters is n

ject to Lcgulation by the Board A competing line plying b

the same ports and operating to any extent on the hi0i seas 

Great Lakes is subject to the jurisdiction of the Board

By way of further illustration A regular line operating b

Duluth and Buffalo is engaged in interstate commerce with

purview of the Shipping Act A socalled wild or irr

steamer available for service between the same ports and pot

engaged in it competitive service is exempt from regulation 

Board

These anomalies during the continuance of the war wil

negligible importance but with the restoration of normal con

recommendations for remedial legislation will be submitted

FEEE TEA1Ssr0ETATID9 AS COSTITOTISG nSJVST DISCEAIISATIOx

The Shipping Act contains in terms no inhibition against th

ance by water carriers of free or reduced rate transportation 

tion 16 of the Act however provides

That it shall he unhllvful for any ennunon carrier by cater or othe

subject to this Act either alone or in conjunction with any other 

directly or Indirectly to make or rive any undue or unrea

preference or nilcantage to any particular person locality or descri

traffic in any respect whatsoever or to subject any particular person 

or description of traffic to any undue or unreasonable prejudice or disad

In any respect whatsoever

The foregoing provisions of the Act have inspired it num

inquiries as to whether or not a water line may lawfully tra

freee or at reduced rates the property of an eleemosynary 

tion such as the American Red Cross The Board in such 

while declining to commit itself to a ruling that it concessio

the regular rates and charges would constitute the giving 

undue or unreasonable preference or advantage has disclaim

thority to waive the provisions of the law in so far as they 

be held to inhibit the practice Amendment of the Act to in

the will of Congress in this respect may be in order

TAEIFFS OF INTE STATE WA LINES

The Board with respect to interstate commerce is empowe

the Shipping Act to prescribe just and reasonable rates regu

and practices to be observed by water carriers in lieu of othe
26 FIRST ANNUAL REPORT UNITED STATES SHIPPING BO

regulations or practices found by the Board to he unjust or 

able A determination of the justness or reasonableness 

water rates however is not within the province of the 

jurisdiction with respect to such rates being limited to t

tion or remoi of discrimination in their application

Foreign carriers moreover are not required to file th

with the Board and their regulations and practices are 

correction by the Board only in so far as they relate to o

nected with the receiving handling storing or del

property

Carriers by water in interstate commerce are required by 

of the Act to file with the Board and keep open to public 

in the form and manner prescribed by the Board tariff

their maximum rates fares and charges and are prohib

demanding charging or collecting rates in excess of tho

lished except with the approval of the Board and afte

public notice unless the Board for good cause naives such 

In pursuance of the foregoing provisions of the Act 

shortly after its organization tentatively issued as a bas

cussion certain proposed tariff regulations copies of w

furnished to all known carriers by water in interstate com

the invitation of the Board many of those carriers have 

amendments to the regulations and similar suggestions 

instances have been offered by traffic associations and othe

organizations The data so filed with the Board will b

anahud and considered in connection with a revision of 

Pending the pronndgation by the Iloard of formal regul

riers are being permitted to file with the Board copies o

tariffs and supplements which they are filing with the 

Commerce Commission or with the commissions of the vari

Freight or passenger tariffs or both have been filed by 

ing lines

Alaska Steamship Company

Ashley Dustin Steamer Line

Daltlwom Carolina Steamship Company

Beaufort Savannah Line

Benton Transit Company

Bridgeport

L

Port Jefferson Steamboat Company

runswick Florida Steamboat Company

Bull insular Line Inc

Chicago Duluth Georgian Bay Transit Company

Chicago Racine Milwaukee Line

Chicago South Ilavcn Steamship Company

Cleveland Buffalo Transit Company

Clyde Steamship Company

Colonial Navigotion Company

Crosby Transportation Company
FIRST ANNUAL REPORT UNITED STATES SIIIPPING BOAR

Detroit Cleveland Navigation Company

Dyer Trmesportvtiun Line

Lastern Steamship Lines Inc

E T Kruse

Fishers Island Navigation Company

Freilerica Philadelphia Navigation Company

Goodrich Transit Company

Graham Morton Transportation Company

Great Lakes Transit Corporation

Gulf Southern Steamship Company

IIartford New York Transportation Company

Hart Transportntion Company

hill Steamboat Line

Humboldt Steamship Company

Independent Steamship Line

InterIsland Steam Navigation Company

Macdonald Wilkins Company

Maine Coast Company

Mallory Steamship Company

Matson Navigation Company

Merchants Miners Transportation Company

Michigan City Chicago western Transportation Company

New England Steamship Company

New Turd Laltimore Transportation Line

New York New Jersey Ste uuhout Comp my

New York Porto Rico Steu nship Comp my

Northern Michigan Transportation Compnuy

Norwich New York Propeller Company

Pacific Steamship Company

Panama Railroad Steamship Line

I

IarrMcCurudck Steamship Line

cnsacola St Andrews Gulf Steamship Company

People sNnigation Company

Pere Ahn quette Line Steamers

Red D Line Atlantic Caribbean Steam Navigation Compa

Itoosevedt Steamship Company

Sar muah Idnfrton Steamboat Company

Seattle Steuinship Company

Southern Steamship Company

StarinNew haven Line

Sudden Christenson

Swayne Iloyt Inc

United Fruit Company

United States Dominion Transportation Company

White Star Line

DEFERRED EEDATE9

No substantive violation of sections 14 or 16 other than a few 

of deferred rebates has been reported to the hoard In those 

the matter has been taken up informally with the carriers of 

complaint has been matte their attention has been directed 

provisions of the Act and they have been admonished that sum

action would be taken with respect to further violations
28 171RST ANNUAL REPORT UNITED STATES sIIIPPINR B

CONFERENCES AND AGREEMENTS

Section 15 of the Act requires all carriers by water in 

or foreign commerce to file with the Board true copies o

memoranda of all agreements or conferences with other 

with other persons subject to the Act

fixing or regulating transportation rates or fares gfdng Or rece

rates nevinunodathms or other special privileges or mhantages 

regulating preventing or destroying eompeution pooling or appo

Ings losses or traffic allotting ports or reArirting or otherwis

the Dumber and character of sailings between ports lindting or 

any way the volume or character of freight or passenger traffic to 

or in an manner providing for an ecelusice preferential or coop

ing arrautirement

The provisions of section 15 have been brought by the 

the attention of all carriers subject to the Act and pra

the records required by the Act to be submitted to the B

been received and filed

RTLES OF ragCTICC

Eectiie August 1 1917 the Board formally prom

Rules of Practice governing proceedings under the Act 

these Rules are available for gratuitous distribution

FOR31AL DOCKET

Thus far only two formal complaints have been filed 

Board The first of these Eastern Shore of Virginia Pr

change v Baltimore Chesapeake d Atlantic IRailwag 

Docket No 1 involved the application by the respondent 

alleged unjust unreasonable and unjustly discriminatory 

the transportation of potatoes in barrels front carious riv

Northampton and lccomac Counties Virginia to Baltim

land

The respondent carrier filed a motion to dismiss basing 

cation Upon two grounds

First That neither the Chesapeake Bay nor any of 

tributary thereto and traversed by the lines in question c

sidered as part of the high seas or the Great Lakes with

view of the Shipping Act

Second That such water lines are owned and operated 

eoad with which they are in actual or potential competit

tatively found by the Interstate Commerce Commission 

ceeding under the Panama Canal Act and that the matte

diction as between the Board and the Commission can no

determined until the Commission after rehearing shal

nounced its finding in that case
FIRST ANNUAL REPORT UNITED STATES SHIPPING BOAR

Oral argument on the jurisdictional questions involved was 

on May 14 1917 and the case was taken under advisement 

then no action has been taken by the Board for the reaso

under the Act as now in effect an affirmative decision by the 

mission on the application of the respondent for authority 

tinue its oonership and operation of the water lines would 

matically divest the Board of any jurisdiction in the premis

would render unnecessary a consideration by the Board of the 

of Chesapeake Bay as inland waters or high seas within the p

of the Shipping Act

In the second complaint A George Schulz Co v Chicago 

and Jlilwaal ce Line Steamers Docket No 2 the complain

attacked as unjust unreasonable and unjustly discriminato

rates applied by the respondent to the transportation of pape

from Milwaukee Wisconsin to Chicago Illinois The resp

in its answer filed with the Board and served upon the comp

has denied that the rates in question are unjust unreason

unjustly discriminatory and the case being at issue will 

down for hearing at an early date

INFORMAL DOCKET

In addition to the foregoing cases on the formal docket a

informal complaints have been submitted to the Board of 

nearly all have been settlad through correspondence or con

with the parties The cases not already so adjusted are und

sideration to that end

Respectfully submitted

EDWARD N IluvLE1 Chairman

RAYMOND B STEVENS Vice Chai

JonN A DONALD Commissioner

BArNRRIDGE COLDT Commissioner

CIIARLES R PAGE Commissioner
APPENDIX

Table No 1 Compenaatlon of employees of the United States Ship

Table No 2 rersonnel of the United States Shipping Board Eme

Corporatioti

Table No 3 Statement of receipts and 1Ish1lrselnetlt9 of the U

Shipping Board

Table No 4 Statement required by section 2 of the Sundry Civil 

12 1017

Table No 5 Statement of travel performed by officers and emplo

United States Shipping Board

Table No B Balance sheet of the United States Shipping Board 

Fleet Corporation

TAm E No 1

Compensation of employees of the Unttr d States Fhippraff 1

In service prior to November 20 1917

Nano Designation Legal resldeneo poi

1Ap

Edward B Burling Chief counsel Illinois Au

Alfred kluge Admininy counsel South Carolina Jun

larvld 11 Elx y Special expect Californta Jun

Charles Yates doON Afa

William L Soleau Chic clerk disbursing oat Distriet of Columbia Fe

Offs Broil KenL Attorneyexaminer era Massachusett Ap

Fluent V Amlwrg Attorney IllinoY Se

lowanl r Gana d nNew Yorkork d

W 11 A ValcrSfu etal exlwr New Jersey Au

John E BaExaminer New York Jul

Frank n Lord do do Au

Gerard C Henderson Attorney Mossnchoscus Mo

Richard it thuh vJr Clerk to commissioner ladiet of Columbia i

Ap

Everett W Hawkins Ldo pmosylvauto Fe

Kathleen Lawler do Mtchigoo No

Louis Levy Ldo New Hampshire Ma

Roy if MerrillLda Afessnchux4Ca Fe

Frank W Seth Speialexpert Men land iAp

Edg ar S Culfey Attorney Norill Corol na May 

Waller It Atoxander do Ali clu l

rim 1

Fe

Brock Jun

n V Cohen Clerk Attorney

11 Slupardson du

Fcannelf Poo fio ng clerk

Vipond Aemunlant

nra2g Clerk

ousnknecht do

rlahertv

I Gardiner do

do

J Pierce do

AL lvoci do

ItFi4 Assistant examiner

Afan hurn Jdo

Afnsvcv do

la

1

Crarhart

IVelrh

Clerk

do

7

orrtson

cndron

do

do

0

Au

Ma

tts Oc

d

Au

la Ma

Ap

0c

No

Cts Ma

na Ma

Ma

Ma

to Jun

Se

its AuY 

6e 
FIRST ANNUAL REPORT UNITED STATES SHIPPING BOAR

Compensation of employees of the United States Shipping BoardCo

Name Designation

AI

Legal residence 1 pointed 1917 

Harrison VRouse Clerk Vlrglula Apr 16 

Clifton J hicks doMissouriI Oct 30 

Corral H Hunt doOhioJuly 26 

Lloyd It Roberts doIowa Aug 27 

Belen E Naumann Stenographer Illinois Oct 31 

Charles IIRowell Accountant Washington Aug 25 

Charles W O Brett Clerk New Ilampshire May 15 

William D Wcist ir do Ohio Mac 19 

Clarence G Clark Stenographer New Jersey July 16 

Libido A Pexa doFlorida Nov 1 

Fred A Quinn doPennsylvania Sept 5 

Frank 11 Renand doIl linois Aug 16 

Charles T Rippy doTenncssee Aug 30 

Jahn A Russell do Mh hican June 18 

Charles E Schuvler do District of Columbia Sept I 

Morns S Srhwartz do North Carolina Apr 28 

George 1 Shaw it California July 6 

Eleanor M Wadsworth do District of Columbia Aug 3 

John N Ht do New Jersey Aug 13 

Valentine G Breuer Clerk Now York Sept 24 

Blanton J Irony do G norgia Feb 13 

Rate P Butler do District of Columbia Nov 7 

Jay Goux do New York Oct I6 

Charles R Gmv Stenographer Pennsvhanla Feb 17 

Pauline V Reilly do District of Columbia Oct 22 

Celia Glazer do New York Nov 1 

Mary DL Mahoney do Connecticut Aug 6 

Anna M Scott doPcnns3 Ivala Oct 26 

Francis H Espe v doMaryland Oct 23 

Joseph A Gmnahan Clerk PennsvIvania Sept 24 

Jnhn W Rcehling doMissouri Ort T 

ones Iosep Tcephone operetoe New York Feb in 

a J1 do doApr 

T He r Deeklem ian Assistant messenger Sept 24 

Ca rolR Ross life ssnn boy DDistrict of of C Sep 

Ken Kenneth C MnrchallL

do Ohio Marr 190 

Frederick D 5lnhlcr of Columbia Disl tof Feb 17 

Richard Itrhahard T Tracy do Sept H 

Edward

R

J Cobb d do N 

aymond E do d nNovv 7 

Samuel E Fn trig iisn da doAug a 

Charles hobos do i Sept 22 

William T Ric O do 

o d Di i

DistrictoColumolumbia 19 Robertobert Tim Le close d do 0tOr 15 
32 FIRST ANNUAL RFPORT UNITItD STATP sSITTPPTNG BO

TABLE No 2

Personnel of the Llnitcd States Shipping Board Enterpenry Fleet 

As of October 31 1917

Division and department Employ ees Salary

Emploces 

EXECUTIVE AND Aleall9Ta 1TTVE DIVISION

Exeentive 7 11100

Department o and Flans ment rite imool de department

Stati nl elartment DDepartment partment ofmtment equipmernt primnting and supphas 2976945

31 940 O11

91620 0000 93 O 00 653319 W Mail deport meat

n an main sag a of Do Departm Dart e pvtmenment prov an I I ai te build Ing building

7

U31

7 00

179KS3 0000

Department oflibr libaryy and mapsl 5 583813 00

Total 21

DIVISION OF COSSTRCCTION

Olhee of rea noger 6 17700 00

Technical department

Department Of90Deral command rering

Inspe lisp and pregrcv department

industrial ser ircdepartment 442749 142 955 0041943 870 007891 00

1

Total

Di vision Of shipyard plants

Dicision ofcmrats

Purehaan4 diis tan

Im ml divi ion

Auditing diviion

Tra Ile diviion

Ship protection general committee

Committee on standard ship construct ion

Personnel dealing with labar

Submarine Boat Corporal ion

American International Shipbuildin Corporation

Merchants Shtphuikiing Corporation 9

46121

Total for home office 52

4485924

Boston dist19e t

New York di5tri

Baltimore diatrb t

Iacksonviilc

New

llouston

San Franck

Orleans

di Aid

III

di

dt tr

truI

t

trict

let

I

L

Seattle diarP4

Great

Philadelphia

Total

Lakes

for

diarPt

di

district

arb t

offices

L

L 5

6LIYARY

Total

Tote

for

for

home

district

o71

oIDc

e

e

i62

54

Grand totals I106
FIRST ANNUAL REPORT UNI TED STATES SILIPPING BOAR

TABLE NO 3

Klo teau nt of receipts and dishnrsements of the United States Shipping 

RIXE1UTS FOR FISCAL YEAR ENDINO JUNE 311 1917

Charter hire 1

R4PEIe1 8JULY 1 1917 TO UCTOol II01 1917

Sale of Junk from vessels 4391247

Charter hire and freight 4 212 360 G3

Miscellaneous receipts 400

Total 4 260

a1FBURtEAIEN TS11SOAL YEAR ENDING JUNE 30 191T

Salaries and expenses United States Shipping Board 1017 50

Permanent fund payment for capital stock of Emergency Fleet

Uorporation 60

National security and defense allotments 0

13

Settlements by Treasury Department from national security and

defense allutments7830

Total 14 85

DISBUIISE MENTS JULY 1 1017 TO OCTOBER 31 1017

Salaries and expenses United States Shipping Board 1017 1

Salaries and expenses United States Skipping Board 1915 7

Increase of compensation 

Permanent fluid payment for capital Steel of Emergency Fleet

Corporation 34 U

0

Operation of vessels 1 

Emergency shipping fund 7

0

National security and defense allotments 05

42 9

Settlements by Treasury Department 

24

Grand

4 23

4U 739 

55 618 

STATEMENT SIIOWING THE PECErF73 AND EXPENDITURES TRON THE OPERA

VESSELS FROM JUNE 1 1917 TO OCTOBER 31 1017

Charter hire and freight

Operating expenditures

4 266 

473 

1 792 
84 FIRST ANNUAL REPORT UNITED STATES SHIPPING B

TABLE No 4

Statement required by section 2 sundry civil act of June 13 1917 

tion 1ncrea ee of compensation United States Shipping Board 

of United States Shipping Board nrpanization as of Ort 31 191

persons Number of

1

Grade or character of position

Original

rate pensation ofcom

Costaccountant 51SOO 00 

2 Clerks 1 No 0

1 Clerk 1600 

1 Clerk 1600 00 

1 Attorney examiner 1500 00 

3 As istante cohers 1 

4 Clerks 1500 00 

3 Clerks 1900 00 

2 Clacks 1320 00 

1 Accountant 1320 00 

30 Stenographers and typists 12010

3 Clerks 1 200 0 

1 Stenographer and typist I ON g

1 Typist 1021

0 

1 Clerk 101100 

2 Stenographers and typists 10000 

I Clerk 900 00 

2 1 Tolephoneoper ators 91

00 

1 Messenger boy 6010

5 1 Messenger boys 51

00 

4 Messengerboys 49

00 

1 I fessenge rboy 42

00 

amount of increase of compensation for four months ending Octo

t nlblitiouni to calarles 924 27
FIRST ANNUAL REPORT UNITED STATES SHIPPING BOAR

TAnr F No 5

Statement of travel Performed by officers and employees of the Unite

Shipping Board during the fiscal year ending June 30 1917 in puua

the provisions of section 1 of an act approved 31aV 22 1908 35 Sla

Date Name of traveler Designation Destination Nature of busines

Mar 1315 Willlam Denman Chairman New York N Y On official bus

ness or the boa

Mar 2241 J A Donald Commlcsfoner Newport News Va Inspection o

steamships Mo

Clellan and

Meade

Apr p 810 do do New York N Y Organizing boar

L of survey New

York N

Do R M MorrlB Clerk to commis do do 

simmer

Devald Commissionerdo do 

Apr B 7 F A Eustis Special agent Phlladelphla Pa Inspection of new 

vessel

Apr159 F M Brown Clerk to commis Chicago III Official business 

stoner with Commis

Mar 21 T Brent Commissioner San Franciscoand sioner Brent Inspection ofship 

4p619 Seattle yards

lo 7Y Underwood Navel architect do do 

May 3tW L Solana Disbursing officer New York N Y Organizing dis 

homing oIDCro

May 123 do do do do 

May 1 920ddo do do 

2627 

Apr Denman itham Chairman do O busines

May 1931 T Drevt Commissioner do Insohiial 

mmolfocilities

DoFMBynum Clerk to commis do do 

May 12 J Y Underwood Naval stonerarchitect New York and Inspection of Ho 

June 4 Duluth beken termina

facilities and in

spection of

Jnne9 ll William DenmaaJ Chairman New York NlOOi nIbusmasso

Do J P lames Assistant to chair do Lthe doiboard 

lave 18 17 W L SOleeu Disbursing man officer do Organizing dis 

bnrsing of0er a

May 7527 1 A Donald Commiioner do

New Fork NY 

In re opcmtrov o

7une2223 T Brent dodo esscls do 

Do F M Bynum Clark to commis do

L

do 

stoner
36 IRST ANNUAL REPORT UNITED STATES SHIPPING B

TAaLE No 6

Balance beet of the Craned Stares shippirep Board Emergency 

7mrntin iIrchtsire of IL Division of IJprrations

Ax of October 31 1917

ASSEI S

Cash commandeering 1 

Cash construction 

4

Worldn funds 

Controlled rash deposit 

965

Inventory of materials 

Conmuandeered ships 1

86

Wood and composite ships trader construction 14 

Steel ships under construction 1

964

Completed machinery 

bigines and machinery under construction 

Plant and property 4 

Puruiture fixtures and apparatus 

Referred charges

District office expense 

General administrative expense 

Lumber inspection expense 

Consulting engineer shipyards 

Ship protection committee expense 

Consulting naval architect expense 

Organization expense 

United States Shipping Board current account 

Total deferred charges 

Total assets 65 

z1Amr 1T1ES

Audited construction vouchers 5

4

Audited expense vouchers 

Audited commandeered ships vouchers 

Deferred credits

Reserve for depreciation furniture and apparatus 

Interest on bank deposits 

Capital stock 40 

Cash received from appropriation June 15 1917

Commandeering 2

50

Construction 

90

Total cash received 65

0

Total liabilities G

460

O