DECEMBER 1 1918

WASHINGTON

GOVERNMENT PRINTING OFFICE

1918
TABLE OF CONTENTS

I UNITED STATES SHIPPING BOARD

Organization of the Board 

Functions of the Shipping Board 

Investigations bearing upon the Development and Regulation o

American Merchant Marine 

Legislation affecting the Shipping Board 

Recommendations 

Representatives of the Shipping Board on other governmental agencies

1 Allied Maritime Transport Couucit 

2 War Industries Board 

3 War Trade Board 

4 Labor Policies Board 

5 Exports Control Committee 

Relations with other departments of the Government

1 With the Navy Department 

2 With the War Department 

3 With the Department of Justice 

4 With the Department of State 

5 With the Treasury Department 

6 With the Department of Commerce 

7 With the Department of Labor 

8 With the Railroad Administrationn 

Summary and classification of vessels under the jurisdiction of the Ship

Board 

Table IAmerican and foreign steam and sailing vessels classified ac

ing to sources of acquisit ion 

Table IIAmerican and foreign steam and sailing vessels assign

and form of control 

Table III American and foreign tankers assignment and form of co

Table IVAmerican and foreign steamers assignment and form of 

trol0 0

Table VAmerican and foreign sailing vessels and auxiliary schoo

assignment and form of control 

Table VIAmerican and foreign steamers distributed between 

manned by the Shipping Board and those manned by other agen

Table VILAmerican and foreign sailing vessels distributed betw

those manned by the Shipping Board and those manned by 

agencies 0 0 0 

Table VIIIAmerican and foreign tankers distributed between 

manned by the Shipping Board and those manned by other agen

Requiaition of vessels 

Transfer of American vessels to foreign registry 

Transfers from one American citizen to another 

Admission of foreign vessels to American registry 
CONTENTS

Admission of vessels of foreign registry and foreign construction to United S

coastwisetrade 

Construction for private account domestic and foreign 

Coastwise lines 

Exclusion of vessels from the war zone 

Repairing of enemy vessels taken over by the United States 

Enemy tonnage secured from other countries 

Foreign vessels chartered by the Shipping Board 

Acquisition of foreign tonnage

Dutchships 

Tonnage derived from northern neutrals 

Japanese agreement 

Ships built in Chinese yards 

French sailing vessels 

Division of Operations 

Administrative organization of the Division of Operations 

Branch offices of the Division of Operations 

New York agency 

Boston agency 

San Francisco branch 

Great Lakes vessel s 

Maritime intelligence department of the Division of Operatio

Assignment of vessels 

Financial department of the Division of Operations 

Shipping control committee 

Chartering Committee 

Port and Harbor Facilities Commission 

Division of Planning and Statistics 

LawDivision 

Regulation of rates 

Recruiting Service 

Labor problems 

Marine and Dock Industrial Relations Division 

Shipbuilding Labor Adjustment Board 

National Adjustment Commission 

New York Harbor Wage Adjustment Board 

War Zone Pass Commission 

Board of Survey and Consulting Engineers 

Ocean Advisory Committee on Just Compensation 

Division of Insurance 

Ship Protection Committee 

Information Bureau 

II UNITED STATES SHIPPING BOARD EMERGENCY FLEE

CORPORATION

Organization and jurisdiction of the corporation 

Development

tion

of the organization and management methods of the corp

Removal of the offices of the corporation to Philadelphia 

Authorizations appropriations and commitments 

Legal problems 

Commandeering of vessels in course of construction 

Contracts for ship construction 
CONTENTS 

Management of the shipbuilding districts 

Extension of shipbuilding yards and facilities 

The Fabricated shipyard 

Steel ship construction 

Summary of activities and results in steel ship construction 

Wood and composite ships 

Development of the concrete ship 

Expansion of housing facilities 

Transportation of shipyard workers 

Protection of plants against fire and other hazards 

Determination

Board

of requirements for material Contact with War Indu

Centralized control of supplies 

Survey and development of power facilities 

Industrial rel ations 

Labor requirements section 

Education and training section 

Health and sanitation section 

Sanitary engineering at IIog Island 

Safety engineering 

Meld organization 

Publications and educational appeals 

Financial administration 

Auditing 

Comptroller soffice 

Insurance section 

Central staff work Organization and methods 
CONTENTS

APPENDIX

TABLE I a Compensation of employees of United States Shipp

Board in service prior to September 30 1918 

I b Names and compensation of employees of the Unit

States Shipping Board in service for some period with

the year ending September 30 1918 who have resign

prior to that date 

II Statement of disbursements from the appropriation Salar

and expenses of United States Shipping Board for 

fiscal year ending June 30 1918 

III United States Shipping Board and United States Shipp

Board Emergency Fleet Corporation consolidated balan

sheet as at June 30 1918 

1V Statement showing number of persons grade or character 

positions the original rates of compensation and the 

creased rates of compensation as required by section 2 sun

civil act June 12 1917 United States Shipping Board 

V Memorandum for the adjustment of wages hours and con

tions of labor in shipbuilding plants December 8 191

VI Table of delivered ships constructed by the United States Sh

ping Board Emergency Fleet Corporation 

VII a Monthly summary of keels laid hulls launched and sh

delivered up to November 1 1918 

VII b Condensed summary of results in ship production as 

November 15 1918 

VIII Summary chart showing monthly progress in ship production 

IX Condensed comparative balance sheet of the United Sta

Shipping Board Emergency Fleet Corporation as of August 

1918 and August 31 1917 I 

X United States Shipping Board Emergency Fleet Corporati

treasurer sreport August 31 1918 

XI Personnel table of the United States Shipping Board Em

gency Fleet Corporation as of September 30 1918 show

compensation of employees 

XII Details of housing contracts of the United States Shipp

Board Emergency Fleet Corporation 

XIII Legal arrangements involved in connection with the Em

gency Fleet Corporation shousing projects for shipyard e

ployees 

XIV List of municipalities which have furnished facilities in c

nection with housing projects of the Emergency Fleet Cor

ration with their approximate commitments 

XV Loans made by the Emergency Fleet Corporation to utility co

paniesin connection with housing projects 

XVI Dormitories and cafeterias constructed or planned for the Em

gency Fleet Corporation 

XVII List of contracts with the Emergency Fleet Corporation for t

construction of transportation facilities 

XVIII Special steamtrain service arranged for shipyard worker

XIX Arrangements for ferryboat transportation of shipyard worke

XX Disbursements and liabilities of the Emergency Fleet Corpo

tion at the Government agency plants at Hog Island P

and Bristol Pa 
I UNITED STATES SHIPPING BOARD

WASHINGTON D C December 

To the SENATE AND HOUSE OF REPRESENTATIVES

The United States Shipping Board has the honor herewit

mit its second annual report covering the period from Nov

1917 to and including October 31 1918 except as otherwise 

The activities and accomplishments of the Board during 

year have been necessarily controlled by the war emergen

has thrust certain imperative problems of tonnage control 

construction into the foreground for immediate solution T

has been unable to find precedents ready to hand but ha

formulate new policies in order to cope with the extraord

cumstances witlf which it has been confronted For this 

has seemed gesirable in presenting the results achieved by th

in the various phases of its activities to set forth in some 

the following pages the reasons for the various measures w

been adopted together with an account of the administrativ

zation which has been built up

ORGANIZATION OF THE BOARD

As noted in the First Annual report of the Shipping Bo

5 and 6 the original membership of the Board which was c

in January 1917 consisted of Mr William Denman of C

chairman Mr Bernard N Baker of Maryland Mr 

White of Missouri Mr TheodoreBrent of Louisiana 

o m A Donald of New York During the year 1917 Me

man Balser Vhite and Brent resigned and in their places 

dent nominated and the Senate confirmed the appointmen

Edward N IIurley of Illinois Mr Raymond B Stevens 

Hampshire Mr Bainbridge Colby of New fork and M

R Page of California Commissioner IIurley was chose

Board as chairman and Mr Stevens was chosen as vice chai

During the past year there has been no change in the me

Of the Board the members of which with the dates of the

mation are as follows Dir Edward N IIurley July 2

chairman Mr Raymond B Stevens Afar 15 1917 Mr 

Donald Jan 23 1917 DIr Bainbridge Colby Aug 8 1
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

Mr Charles R Page Oct 3 1917 Mr Lester Sisler is s

In February 1918 Mr Stevens was appointed by the Pres

the American representative on the Allied Maritime Transpo

cil which meets in London and Paris and lie has since been 

in that work

The expanding work of the Shipping Board has necessitated 

increase in its administrative organization during the year 

lowing new divisions and agencies were created Shipping 

Committee Division of Planning and Statistics Ocean A

Congnittee on Just Compensation War Zone Pass Commiss

and Harbor Facilities Commission Division of Regulation 

and Dock Industrial Relations Division Division of Insuran

sion of Transfer and Private Construction and the Info

Bureau In addition the previously established departmen

been expanded and certain cooperating agencies have been 

which are not strictly departments of the Board although t

form functions which are closely related to the Board sa

Among these are the Shipbuilding Labor Adjustment Bo

New York Harbor Wage Adjustment Board and the Natio

justment Commission

FUNCTIONS OF THE SHIPPING BOARD

As pointed out in the first Annual Report the Shipping Bo

originally created in times of peace for the purpose of re

shipping and promoting the development of an American m

marine The act establishing the Board was therefore draw

particular attention to the regulatory powers of the Board 

the making of provision for additions to the American m

marine by the construction of new vessels to be built thro

Emergency Fleet Corporation The act did not contempla

such vessels should be operated ordinarily by the Governme

the contrary it specifically provided that they should not be o

by any corporation in which the United States was a stoc

unless it should prove impossible to procure private enter

purchase or charter them under proper terms and condition

act thus stated the peace policy of the Nation at the time of it

ment as to the operation of the merchant marine

When the United States was brought into the war the far 

powers required by the exigencies of the situation were est

by Congress in the urgen deficiencies act approved June 1

The emergency shipping fund provision of that act conferre

the President far reaching authority to requisition constr

operate ships without limitations or conditions save such 

tions as resulted from the limits of appropriations These 

were extended by Congress directly to the President and no
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

Shipping Board or the Emergency Fleet Corporation The 

vided however that the President might exercise the pow

authority vested in him through such agency or agencies as h

from time to time determine and that all ships constructed pu

or requisitioned under the authority of the act or theretofore 

after acquired by the United States should be man agedopera

disposed of as the President might direct without any limitat

the President sdecision By an Executive order dated 

1917 the President delegated directly to the Emergency Fl

poration all power and authority vested in him relating to 

struction of vessels To the Shipping Board he delegated 

power and authority to acquire vessels already constructed 

operate manage and dispose of all vessels theretofore or th

acquired by the United States During the period covered 

present report most of the activities of the Emergency Fle

poration and the Shipping Board have been exercised und

delegations of authority from the President and not un

original act creating the Board The Emergency Fleet Cor

and the Shipping Board have acted as the direct representa

the President employing the very broad war powers conferr

him

The foregoing statement explains how it is that during th

of the war the Shipping Board has operated practically th

merchant marine as a national enterprise It has been a w

for the Shipping Board with the powers exercised by it find

source chiefly in war legislation

It should be noted that both the conditions with w

Board has to deal and the aspects in which those condit

pear are subject to constant change and developments and 

of policy may follow upon changed conditions or further 

the problems involved

The three main phases of the Board sactivities are 1 the 

tion of vessels 2 the operation of vessels and 3 the re

of shipping and shipbuilding

1 The acquisition of vessels includes the construction o

for the Shipping Board through its Emergency Fleet Corp

the requisition of American vessels built the commande

vessels the purchase of vessels at home and abroad the char

vessels at home and abroad the seizure of German and 

interned vessels and the requisitioning of Dutch vessels Th

sition of vessels has often involved important questions of po

complicated legal problems as for instance the question of 

pensation for vessels taken over by the Shipping Board 

rates relations with owners and builders contracts claims e

obtaining of vessels by contract or charter from foreign 
IO SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

private or governmental involved important relations 

State Department and the War Trade Board

2 The operation of vessels is performed by the Shippin

through the Division of Operations of the Emergency F

poration This function includes also the assignment of 

Board vessels to other governmental agencies to Governme

which the United States is associated in the war and to 

operating companies the allocation of Shipping Board 

to cargoes and trade routes through the Shipping Cont

mittee the control of charters of nonrequisitioned Amer

sels and of neutral vessels by the Chartering Committee 

various legal and financial questions involved in relatio

owners and operators the fixing of rates etc Under this h

comes the question of manning and supplying vessels repai

struction of vessels for war service salvage etc The ope

vessels brings into prominence the relation of the Shippin

to the Navy Department and to the Railroad Administratio

controls certain coastwise vessels

3 The regulation of shipping and shipbuilding includes t

lation of interstate and foreign freight rates and discrim

and of wages hours and conditions of labor for offic

seamen employees in ports and water fronts and e

engaged in shipbuilding It includes the work of the 

of Regulation of the National Adjustment Commission 

Shipbuilding Labor Adjustment Board and similar agencies 

the head of regulation also falls the Board s policies of e

certain vessels from the war zone regulating the sale of 

governing the transfer of American vessels to foreign regi

the construction of vessels for private and foreign acco

mitting foreign vessels to the American coastwise trade 

couraging American citizens to bring foreign vessels under A

registry

There are besides numerous incidental activities which a

iary to the three general functions of acquisition of vessels o

of vessels and regulation of shipping The Shipping Board 

nection with the War Trade Board has worked out 

gram of import restrictions in order to free tonnage 

purposes This falls under the jurisdiction of the Division 

ning and Statistics The Board is interested in the improve

our port and terminal facilities in building drydocks and 

yards in obtaining bunkering facilities and in coordinating m

with land transportation For this purpose the Port and 

Facilities Commission was created The management of an in

fund against maritime and war risk is intrusted to the In

Division The Board through the Recruiting Service is 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

in training thousands of officers engineers and seamen to m

merchant marine

Other important activities of the Shipping Board during th

year include the organization and supervision of Coal Barg

Toners Associations to meet coal shortages especially in New 

land the consideration of the policy of meeting the needs 

allies as to food and supplies the adoption of policies relative 

assignment of tonnage to meet the Army requirements and 

rection of American participation in the Allied Maritime Tra

Council

Investigations Bearing upon the Development and Regulation 

American Merchant Marine

One of the functions with which the Shipping Board ha

charged is the formulation of constructive plans for the develo

of the American merchant marine Section 12 of the shipping 

September 7 1916 provides

That the board shall investigate the relative cost of building merch

sels in the United States and in foreign maritime countries and the relat

advantages and disadvantages of operating in the foreign trade vessels unde

States registry and under foreign registry It shall examine the rules unde

vessels are constructed abroad and in the United States and the methods of cl

and rating same and it shall examine into the subject of marine insurance t

ber of companies in the United States domestic and foreign engaging in m

surance the extent of the insurance on hulls and cargoes placed or writte

United States and the extent of reinsurance of American maritime risks in 

companies and ascertain what steps may be necessary to develop an ample 

insurance system as an aid in the development of an American merchant 

It shall examine the navigation laws of the United States and the rules and re

thereunder and make such recommendations to the Congress as it deems p

the amendment improvement and revision of such laws and for the develo

the American merchant marine It shall investigate the legal status of 

loans on vessel property with a view to means of improving the security of su

and of encouraging investment in American shipping

The entrance of the United States into the war created an 

gency and to meet as quickly as possible the shipping problem

ing from the war needs of the Government the Shipping Board 

to employ without delay and to the best effect the emergency 

bestowed upon it through executive proclamation based upo

gressional authorization

Conditions arising from the war emergency have made it ve

cult to obtain proper data on which to base conclusions T

been true not alone because of the pressure for construction an

ation for war purposes which has taxed the powers of the or

tion but also because of radical changes in cost and practice

in fact in all of the conditions of ship construction and opera

The various departments of the Board have been for some t

gaged in conducting the specified investigations and reports 

more important questions are near completion but because 

interrelation of the different subjects it is thought that defin

ommendations should not be made until they are all complete
12 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

An investigation of ocean rates has been made to asc

charges were actually being paid for the transportation o

important imports and exports of the United States durin

ending June 30 1918 A compilation has also been made 

rates prevailing in the principal ocean trades The i

thus obtained will be of assistnce to the Board in exercis

powers as well as the regulatory authority intrusted to it 

17 and 18 of the act of September 7 1916

The Shipping Act of 1916 provides that the term oth

subject to this act shall include the business of forw

furnishing wharfage dock warebouse or other termina

in connection with a common carrier by water and 

July 18 1918 confers large powers upon the President 

port and terminal services and charges To secure the in

needed for the enforcement of these acts the Shipping 

made a thorough investigation of terminal charges in al

of the United States A report upon this subject whi

completed within a few weeks will contain a comprehe

entirely uptodate statement and analysis of port ch

services

The cost of building vessels in the United States has be

gated and the rate of return necessary to cover depreciatio

and amortization for vessels owned by the Shipping Boar

made the subject of examination and report by special ex

investigation into the relative advantages and cost of ope

sels under United States registry and under foreign regis

under way though because of war conditions it is difficul

at satisfactory conclusions in connection with this mat

present time

Conditions arising out of the war have also prevented th

tion of any investigation into foreign methods of classific

rating but the British Bureau of Trade Rules have been a

the American Bureau of Shipping and the Shipping Board 

working agreement with Lloyd sRegister of Shipping

The matter of marine insurance is receiving attention th

Division of Insurance and also through a special committee 

can marine underwriters and brokers appointed by the 

Board A complete report can not be made at this tim

investigations show that the American marine insurance m

been very much extended and strengthened during the 

years owing to the incorporation of new American marine 

companies and the establishment of marine departments in 

the strongest fire insurance companies

At the present time there are 74 American companies a

ciations authorized to do marine business in this country 

also 35 foreign marine insurance companies authorized to d

in the United States making the total number of marine 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

companies and associations authorized to do business in the U

States 116

LEGISLATION AFFECTING THE SHIPPING BOARD

In addition to the various appropriation bills providing the 

with which the Shipping Board and Emergency Fleet Corpo

carry on their work there have been a number of laws pass

Congress since the creation of the Shipping Board that have a

its powers usually in the direction of extending its jurisdict

more explicitly defining its authority Among the more imp

are the following

1 The urgent deficiencies act approved June 15 1917 alrea

ferred to is the foundation upon which the Board sactivities d

the past year have been chiefly based That act as already 

conferring upon the President the broadest powers to requisitio

struct and operate ships By the Executive order of July 11 

the President delegated this power in part directly to the Eme

Fleet Corporation and in part to the United States Shipping 

2 The espionage act approved June 15 1917 to punis

of interference with the foreign relations the neutrality an

foreign commerce of the United States to punish espionag

better to enforce the criminal laws of the United States an

other purposes authorizes the Secretary of the Treasury to 

trol inspect or seize possession of any vessels domestic or fo

or equipment thereof in the territorial waters of the United S

in the event of a national emergency and fixes punishment for 

to vessels in foreign commerce or interference with foreign 

merce by violent means To enforce neutrality it authorizes the 

dent to withhold clearance papers and require pledges of c

behavior During the present war it authorizes the Presid

control exports and deny clearance to such parties as refuse to 

by the rules and regulations governing exports

Under the authority of this act the Shipping Board for

exercised certain indirect control over commerce with the coope

of other departments notably the Treasury Department and th

Trade Board The act approved July 18 1915 and the presid

proclamation of July 29 1918 see below pp 1516 made t

thority of the Shipping Board more direct

3 The enemy trading act approved October 6 1917 auth

the President to provide by proclamation for the restriction 

ports and requires sworn manifests by shippers indicating 

signees It also directs the refusal of clearance papers to unsa

tory manifests

These powers conferred by the President on the War Trade 

have enabled the Shipping Board with the cooperation of the 

Trade Board to undertake a program of import restriction f

purpose of conserving tonnage and obtaining essential impor
14 SECOND ANNUAL BEBORT UNITED STATES SHIPPING 

4 The Senate resolution of December 18 1917 aut

Committee on Commerce to investigate the program pr

all matters connected with the building of merchant ve

the direction of the United States Shipping Board Emerg

Corporation and to report its findings and recommenda

Senate See Hearings before the Committee on Comm

Senate 65th Cong 2d sess on S Res 170

5 An act approved March 1 1918 authorizes and em

United States Shipping Board Emergency Fleet Corpora

chase lease requisition including requisition of use o

land and houses for housing purposes for the use of the 

Fleet Corporation semployees to construct sell lease o

such houses and to make loans to persons or corporations 

housing facilities Under this act the Passenger Transpo

Housin Division of the Emergency Fleet Corporation 

taken the work of providing housing accommodations for 

shipyards See infra pp 143146

6 The urgent deficiencies act approved March 28 19

ized the President to acquire title to the docks piers w

etc on the River owned by the North German L

Company and the Hamburg American Line Terminal a

tion Company Under this authorization the President o

1918 took over the abovementioned properties

7 An amendment to the urgent deficiencies appropriat

proved April 22 1918 authorizes the President or his 

agents to take possession of certain transportation syste

transportation of shipyard and plant employees The act 

thorizes the taking possession of lease or control of stre

urban railroad cars franchises etc necessary for the tran

of employees engaged in constructing ships or equipment t

the United States Just compensation is to be paid fo

taken over

8 An amendment to the war risk insurance act app

11 1918 extends protection to vessels of foreign reg

ated for the Shipping Board when such protection is oth

available except at unreasonable terms By this amen

Bureau of War Risk Insurance is authorized to insure 

foreign friendly flags when such vessels are chartered o

by the United States Shipping Board or its agent or ch

any American citizen

Such insurance is authorized only when the United S

ping Board or its agent operates the vessel or the cha

by the terms of the charter party or contract with the ves

required to assume the war risk or provide insurance pro

vessel owners against war risk during the term of the ch

9 An act approved July 15 1918 amends the act of Se

1916 creating the United States Shipping Board This a
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

the control of the Shipping Board over the transfer of American 

sels including those under construction to foreign registry o

foreign control It also extends such control to shipyards dry d

shipbuilding or ship repairing plants and to facilities and inte

therein

10 An act approved July 18 1918 confers upon the Presiden

the agent designated by him authority to prescribe charter rates 

freight rates and to requisition vessels and other powers The 

a war measure and the powers granted expire when the treat

peace is proclaimed between the United States and Germany un

on account of tonnage shortage the President by proclama

extends the provisions of the act for a period of not exceeding 

months

The act gives the President power to require charters of Ame

vessels their terms rates or provisions to be approved by him 

control was previously exercised by the Chartering Committe

cooperation with the War Trade Board through the contro

licenses for bunkers and stores The present act gives direct s

tory authority for such regulation

The President is also given power to prescribe reasonable fre

rates and conditions of shipment governing transportation of g

on vessels of the United States Previously the Shipping Board 

such power only over common carriers engaged in coastwise t

The act authorizes prescribing the order of priority in which g

shall be carried or other services performed by vessels and pro

for regulations regarding loading discharging lighterage sto

bunkering etc designed to promote the efficient use of tonnage 

ing the war

The President is authorized to extend the provisions of the a

foreign vessels under charter to American citizens

Direct authority is given to make rules and regulations rega

safety and protective devices in the war zone and to exclude ve

not fit for war zone service from the dangerous regions

The act further forbids the chartering of foreign vessels by A

ican citizens or persons subject to the jurisdiction of the U

States without the consent of the President This is a nece

measure of control over foreign tonnage similar to that exe

by England and France to restrain the unregulated bidding 

neutral vessels which threatened to inflate the neutral tonnage 

ket Through bunker control in cooperation with the Fear T

Board the Chartering Committee had previously accomplished 

purpose in part

The act contains several provisions concerning the requisitio

vessels designed to promote the effective administration of the r

sitioning program of the Board It authorizes requisitionin
16 SECOND ANNUAL REPORT UNITED STATES SHIPPING 

services as well as the possession of vessels and compels t

issue to the master of a vessel requisitioned such instruct

be necessary to place it at the service of the United States

The act further provides that the President shall tra

persons concerned a charter setting forth the hire which 

pensation for the use of the vessel and the terms which 

its use If the compensation is not accepted recourse m

the Court of Claims

The act authorizes also the requisition purchase or 

docks wharves loading and discharging facilities wareh

ment and terminal railways The priority of services p

these agencies may be directed and rules regarding the 

their business made

The act authorizes the operation of vessels dry doc

minal facilities and provides that net proceeds not dire

for the purposes of the act may be employed in the 

requisitioning or purchase of vessels

Violation of the act is punishable by a fine of not more 

or by imprisonment for not more than two years or bo

The powers conferred upon the President by this ac

gated in part by him to the Shipping Board by proclama

29 1918

Several bills affecting the Shipping Board are pend

gress Among these are

1 An act to provide for the establishment operatio

tenance of free zones in the ports of the United States

2 An act authorizing the President to create m

around shipyards where vessels are under construction fo

States

3 An act authorizing the President or his designated 

over and operate existing power plants or to construct n

RECODIDIENDATI ONS

Because all of the subjects which relate to costs of 

and to costs policies and practices in operation are so 

related the Shipping Board feels that it should not 

make any specific recommendations to the Congress fo

on the subjects under investigation and related subje

studies which the Board is now undertaking have been f

oped The force of present conditions limits tonnage 

commercial use for an indefinite period because such to

needed to supply our armies overseas and to bring them 

over Europe must be fed and supplied with the necess

to permit the reconstruction of devastated areas in or

our friends and our enemies may become self suppo

burden of feeding the world taken from our shoulde
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

the Board recommends generally that the program for the con

tion of vessels as modified to meet peace conditions should be ca

through and should be extended

It feels that until the situation is further developed it shoul

recommend specifically the degree nor the manner in which the 

gram should be extended In view of these circumstances the B

deems it advisable to submit to the Congress at a future date its 

ommendations in these particulars

REPRESENTATIVES OF THE SHIPPING ROARD ON OTIIER GOV

MENTAL AGENCIES

In the coordination of the work of the Shipping Board with 

of other departments of Government and of the policy of the U

States with that of the allies it is necessary that representativ

the Shipping Board should act on other governmental age

Among the most important of such contacts are the following

1 Anted Olaritfine Transport CouncilVice Chairman St

and Mr George Publee of the Shipping Board are the Ame

representatives on this body acting in an advisory capacity 

decision to create such a council was reached at the Paris Confe

in December 1917 Numerous factors made such a council nece

after the entry of the United States into the war The depend

of the European allies upon America for munitions and sup

the addition of the American military program to the burden o

world sshipping the unrestricted submarine warfare the nec

of eliminating competitive bidding among the allies for ship

most effective allocation of tonnage to the needs of the allies 

many other factors made necessary centralized control ove

world sshipping The first meeting of the council was he

London on February 15 and the permanent organization was eff

March 11 1918

The purpose of the council is to supervise the general condu

allied transport in order to obtain the most effective use of ton

for the prosecution of the war while leaving each nation respon

for the management of the tonnage under its control With 

object the council secures the necessary exchange of inform

and coordinates the policy and action of the Governments of Fr

Italy the United States and Great Britain in adjusting their 

grams of imports to the carrying capacity of the available a

tonnage having regard to naval and military requirements a

making the most advantageous allocation and disposition of 

tonnage in accordance with the urgency of war needs

The council has had at its service a permanent organization 

sisting of four sections French Italian American and Bri

the head of the British statistical section being secretary to the 

884270 182
18 SECOND ANNUAL REPORT UNITED STATES SHIPPING 

oil The council obtains through its permanent staff th

of the import requirements for each of the main classes 

imports and full statements regarding the tonnage avai

respective Governments It examines the import progra

tion to the carrying power of the available tonnage to a

extent of any deficit and considers the means whereby su

may be met whether by a reduction in the import progr

acquisition if practicable of further tonnage for impo

or by the more economical and cooperative use of t

already available

The members of the council report to their Governme

view to putting into effect in their respective countries th

of the council

Information is furnished regularly to this council by t

of Planning and Statistics of the Shipping Board and 

of the council is given consideration by the Shipping Co

mittee and the Chartering Committee of the Board

In June 1918 arrangements were made for even closer 

among the allies and the United States by the formation 

committees to coordinate supplies and requirements The 

these committees go to the Allied Maritime Transport Co

thus knows the full measure of its shipping task Much 

in allied buying and transport is thus prevented

The American section of the Allied Maritime Transp

besides cooperating with the associated sections has main

stant communication by cable and mail with the Ship

and other governmental offices in Washington

2 War Industries BoardSince the Shipping Board 

construction work of the Emergency Fleet Corporation i

largest users of raw materials and of finished products 

sorts its connection with the War Industries Board 

charge of the control and allocation of the fundamenta

used in industry is especially close Representatives of th

Board serve on the Priorities Division and the Requir

vision of the War Industries Board and representatives 

Corporation serve on the commodity sections that deal 

building materials

3 War Trade BoardThe War Trade Board which 

import and export policy of the United States includes 

bers who represent the Shipping Board Through these 

tives the Board negotiates with foreign countries to obt

for the use of the United States and recommendations a

the basis of expert statistical studies concerning the polic

lowed in the program of import restriction necessary to f

for essential war purposes
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

4 Labor Policies BoardThe Shipping Board is represe

the Labor Policies Board created May 1918 by the 

of the Marine and Dock Industrial Relations Division a

representative of the Emergency Fleet Corporation The 

Policies Board which includes also representatives of t

Department Navy Department Department of Agricultu

Industries Board Fuel Administration and hood Admini

considers plans for a central labor recruiting agency th

ardization of working conditions the establishment of an 

through which prompt information regarding the labor 

can be given to industries and the study of provisions 

industrial relations in Government contracts

5 Exports Control CommitteeTho Shipping Control Co

of the Shipping Board is represented by its chairman on the 

Control Committee appointed June 11 1918 It is the dut

committee to inform itself as to the probable amount of 

which must be exported for the prosecution of the war 

war freight can be best routed through the various po

much other essential export traffic has to be handled 

amount of the local traffic necessary for each port The c

has authority to select the port to which specified freight 

transported for shipment overseas and to decide the distrib

the combined amounts of all exports as between the vario

to facilitate its handling and avoid congestion

RELATIONS WITII OTHER DEPARTbIENTS OF GOVERN

In addition to those governmental bodies such as the W

Board the War Industries Board and the Labor Policie

on which the Shipping Board has direct representatives 

many other points of contact between the Shipping Board 

other administrative agencies of the Government The crea

new agency of Government especially one whose duties 

panded as rapidly as have those of the Shipping Board rais

problems of adjustment with other bodies concerned with c

lated duties Among the most important questions that ha

for adjustment during the past year are the following

1 With the Navy DepartmentMerchant vessels desired 

use are turned over to that department on a bare boat bas

Shipping Board Vessels so turned over to the Navy bei

naval control have been manned by naval complements thr

while all vessels under control of the Shipping Board whi

their character of merchantmen by virtue of such control are 

by civilian crews These crews have consisted of a given ra

perienced mariners in the various ratings supplemented by 

trained by the Shipping Board Recruiting Service The N

partment also cooperates in such measures as the installation 
20 SECOND ANNUAL REPORT UNITED STATES SUIPPING BOA

less camouflage painting and the protection of vessels from 

rine attach

2 11ith the War Department Themilitary program of 

and Navy Departments has been during the past year the 

factor in determining the shipbuilding policy of the Shippin

and the allocation of vessels to particular uses Numerous tr

have been turned over to the Army and a large fleet h

operated by the Shipping Control Committee in carryin

abroad for the Army A certain number of the Army tr

were manned by naval crews and certain others by m

marine crews which were provided in many instances 

Shipping Board and were recruited with men trained 

Shipping Board recruiting Service The Tar Department 

nished military protection for certain shipyards and armed 

on certain vessels The Army requirements insofar as 

fect the importation of materials into the United States 

transportation of materials to Europe have been revised in 

tion with Shipping Board experts with a view to saving 

Changes in routing substitution of materials avoidance o

hauls and other improvements have added efficiency to the u

of our merchant marine A plan of the War Department 

certain transports for its own use was abandoned after a co

with the Shipping Board

3 With the Department of justiceUnder the provision

Overman Act approved May 20 1918 the President by E

order dated lay 31 1918 directed that all law officers of 

ernment should exercise their functions under the supervi

control of the head of the Department of Justice In ac

with this order the law officers of the Board submitted to the A

General a full report of the organization activities and me

the Board slaw department All matters resulting in litiga

at once referred to the Department of Justice for handling 

of the increasing amount of admiralty litigation arising f

operations

control the

of

Attorney

the large

General

number

has

of

appointed

vessels under

a Special

the Goves

Ass

Admiralty who has direct charge of all admiralty litigatio

branches of the Government The operating and legal dep

of the Board maintain close relations with this officer who 

kept informed upon all matters likely to result in litigation a

the Board s methods of handling such matters Coope

also maintained with the Secret Service Division of the De

of Justice

4 11 the Department of StateImportant relations 

State Department arise from the seizure of German and 

vessels the commandeering of Dutch vessels the chart

purchase of vessels from foreign countries the trade ag
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

and restrictions on imports and exports the work of the 

Maritime Transport Council the cable messages sent and 

the work of the consuls and diplomatic representatives abro

many other questions which directly or indirectly affect the 

of the United States with other countries

5 With the Treasury Department Thecollectors of cu

the various ports cooperate in many ways with the Shipping 

especially with its local agencies and representatives The 

of War Risk Insurance of the Treasury Department ins

officers and men on the Shipping Board vessels

6 With the Department of CommerceCloso relations a

tained with the Bureau of Navigation especially with the 

boatInspection Service The Department of Commerce also 

ates in furnishing data concerning American foreign trade o

the lists of restricted imports are based

7 With the Department of LaborThe United States 

ment Service of the Department of Labor is engaged in fu

shipbuilding and Ion labor Many important ques

garding wages hours and conditions of labor for ship

workers longshoremen harbor employees and officers and c

board Shipping Board vessels demand the cooperation of 

partment of Labor

8 With the Railroml AdministrationThe Board has h

tact with the Railroad Administration through questions 

as to coastwise lines owned by railroad companies See infr

Coastwise Lines

SUMMARY AND CLASSIFICATION OF VESSELS UNDER TILE 

DICTION OF TDE SDIPPING BOARD

In the following series of tables a general statistical sum

given of all the vessels under the jurisdiction of the Shipping 

showing sources of acquisition forms of control the trades 

the vessels are operating and the distribution between those 

by the Shipping Board and those operated by others

Table I gives the number and gross and dead weight ton

American and foreign steam and sailing vessels of 500 gr

and over which are owned or are under some form of contro

Unied States Government excluding those owned by the A

Navy It is the purpose of this table to give a picture as of 

ber 1 1918 of the source of American awned and controlled 

There are 1812 steamers including tankers with a total dea

of8693 579 and 772 sailers with an estimated steamship eq

of 656 249 dead weight tons If the actual deadweight of th

be combined with the dead weight of the steamers the tot

weight of vessels owned or controlled by the United States 

tember 1 1918 is 1033196
22 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

Of the 1842 steamers including tankers of 500 gross tons 

307 or 167 per cent are new vessels constructed for the Em

Fleet Corporation Of the 99 esGetman ships taken ove

United States Government 87 including 4 from Cuba 

operation on September 1 The latter constitute 47 per ce

number and 69 per cent of the deadweight of steamers unde

can control The most numerous group of vessels shown in 

is that of merchant vessels the use of which is requisitione

United States Government These constitute 22 per cen

number and 30 per cent of the dead weight of the entire 

steamers Approximately 11 per cent of the deadweigh

vessels under control are foreign vessels chartered to the 

States Shipping Board In addition to these about 5 pe

the total dead weight are foreign vessels chartered to Unite

citizens

Table II gives a combined statement of steam and sailin

other than tankers while these three classes of tankers steam

sailers are given separate treatment in the three following t

Table III shows the American and foreign tankers of 5

tons and over owned or under some form of control by the 

States Government and gives the assignment or use on S

1 1918 as well as the form of control There are 1S6 tank

a total dead weight of1473 756 Of this amount the tanke

French service constitute 86 per cent of the number and 

cent of the dead weight Those employed in the Gulf reg

stitute 388 per cent of the dead weight and 382 per cen

number of all the tankers

Of the 186 tankers 689per cent of the deadweight are A

and under American operation while 21 per cent of the dea

are American tankers chartered to foreign Governments or 

The rest are foreign tankers and constitute 10 per cent of the 

Table IV shows American and foreign steamers other than 

of 500 gross tons and over which are owned or under some 

control by the United States Government There are 1616 s

not

7

including those unassigned with a combined dead w

028 37 Of this amount 299 making 185 per cent of the 

and 229 118 or 317per cent of the dead weight are assigne

Army The other major assignments are to the New Engla

trade and to the South American west coast trade constitu

spectively 73 per cent and 105per cent of the dead weight

The American vessels under American operation not in

those unassigned make up 144 instances This number co

71 per cent of the number and 70 per cent of the combine

weight A negligible proportion of the American vessels 

group is chartered to foreign Governments or citizens and 

cent of the total number is represented by foreign steamers c
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

to citizens to the Shipping Board or foreign Governments 

the approval of the Chartering Committee

Table V shows American and foreign sailing vessels and aus

schooners of 500 gross tons and over owned or under some 

of control by the United States Government This table give

assignments or uses as well as the sources of acquisition on Septe

1 1918

There are 172 sailing vessels totaling 656 249 dead weight 

when reduced to a steamship equivalent basis The major 

portion of these sailing vessels is used in the South American 

coast trade In fact this group constitutes 234 vessels30 pe

of the number and 305 per cent of the estimated deadweight 

sailing vessels owned by America or under American control

A conspicuous thing about the sailing vessel distribution 

proportion which is foreign Of the total number 58 per ce

American and 42 per cent are foreign Of the total dead w

48 per cent is American and 52 per cent is foreign

In the three remaining tables the vessels underthe jurisdict

the Shipping Board are separated into those manned by the 

and those manned by other agencies Table VI gives this c

cation in the case of steamers while Tables VII and VIII s

the same data for sailing vessels and tankers respectively

TABLE Iaurrican and foreign sight and sailing vessels 500 gross to

over oicned or under some form of control by the United States Gove

Sept 1 1918 c7assiffed according to sources of acquisition

Steamers including Soling ve

tankers

Sources of acquisition

Num Dead Num 

beg Gress weight her Gross 

Total 1812 c 406 358 9693 579 772 1093 745 

Built for Emergency Fleet Corporation

Coder turn met 88 393 870 46554

RoquuAtioued 219 91987 I llu 212

Built by Japan B 43533 66319

ExAustrian ships taken over by the United States

Government 1 8312 6500

ExGorman ships taken over by the tinted States

Government ncludin44 frontvba 97 579 95 698 816 7 15739 

Dutch vessels requisitioned 81 399 122 W1 772

United States vessels purchased by Shi pppine Board 1 20 47632 61900

Purchased Austrian vessels owned by Shipping

Board 9 40684 5908

Urated States merchant vessels requ isi boned Jar use 3 4081 99 VA 26550

Other regoisitumtd United States merchant vessels

released for operation by owners or others and

Pnited States merchant vessels too small to be

included in requisition order of Oct15917 475 2115 969 551

United States vessels operated by Latted States

U

situ re 402 45015 

ItdMetes vesselschartered to foreignrrs 39 42201 

Foreign Chartered vesselsto trailed States Shipping Board 220 600 46 944 238 111 234 590 

Chartered to United Statescitizens 113 318 40 462 fJ1 143 213 388 

Chsrtered to toreimllsunder approvalo L nitcd

States 52 199 913 26149 71 122 8 

Agreeing to return to United Slates 61 707 231 314 921

I Does not include the vessels owned by United States Shippinq Board movint in Greet Lake

r Does not include 31 vessels requisitioned an included under Built for Ealer RCy Flee

tloVessels owned by the Army or Navy are art included in the above table
24 SECOND ANNUAL REPORT UNITED STATES SHIPPING 

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SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOA

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SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

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SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

TABae VIAmerican and foreign steamers other than tankers 500 gro

and over otcned or under some form of control by the United States 

meat Sept 1 1918 classified according to assignment or use a

tributed between those manned by the Shipping Board and those ma

other agencies

Vessels owned by the Army or Navy are not Included In the above table

Manned by

Grand total United States Manned 

Shipping Board

Assignment or uso

Dead Dead 

Number weight Number weight Number 

tons tons 

Grand total 1656 7219 823 102 607 19 1554 

1610 7024 37 102 607 19 1514 

Total Assigned Unossign ed 40 191 46 40 

No 229 118 32 243 267 

Army Navy 56 2W 243 1 525 55 

Food Administration 3 14900 3 

New Fneland coal 132 512 803 19 87031 113 

Trans AGnntie

ltritish 26 191 943 1 680 25 

French 44 261 3 3 M IN 41 

Italian 49 2@1 216 6 14571 42 

Spanish 2 6

2 

Swiss96032 I 14 4 24750 l0 

Beician relief 25 139 071 25 

Russia 1 6700 1 67W

Mediterranean 2 7946 2 

Northern neutral 4 22675 4 

Other 11 41 it 

French cowtwme 37 S2 1 4360 36 

TransPacil

I ast Asian 27 115 S40 I

27 

Fast Indian 14 W ides 14 

Australian 17 75933 17 

BriH ah Indian 11 75680 11 

Iiawaiian 40 161 759 40 

Hawaiian Interisland 6 5

6 

Phdippine Inter island 2 1525 2 

South American west 137 735 39 5 264 45 132 

South Amcriran east s0 29396 5 24822 75 

NCest lrallsII 155 444 716 16 59003 139 

Caribbean 94 212 WS 94 

Gull A9 162 00 2 sMo 46 

Atlantic coast 6 182 864 5 7910 81 

Yerifc coast esduding 5fexico 107 16339 1 35W 106 

P9cifc coast Meltco 1 1 230 1 

PariGcAtlantic en route 5 13261

el ther coalig ise F05 

802 70654 1 ban 2 

UnAnaav Unasc imed 40 191 48 40 

Vessels owned by the Army or Navy are not Included In the above table
32 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

TABLE VILAmieriean and foreign sailing vessels and auxiliary sc

gross tons and over mcned or under some form of control by the U

Government September 1 1918 classified according to assignment 

distributed between those manned by the Shipping Board and tho

by other agencies

TAnr eVIILAmerican and foreign tankers 500 gross tons and ov

under some foist of control by the United States Government S

classified according to assignment or use and distributed bet

manned by the Shipping Board and those manned by other agenc

fanned by

Total tinted States Man

Shipping Board

Assignment or uso

Dead Dead

DeadDead 

wcight Number

Number weight Number weight Num

tons

tons

tons

186

Total 772 656 249 4 6020 

Food Administ ration 2 1373 

TonsAtkmti

Uey si ywed 1 8974

Bri 1 1641 

French 1 301

Navy

Spanish 1 30 

Fond Adminisratio

9i

Meditr roncme M1n 2 253931 

Other 2 f30

Fnch re

2 9 697 

Italian 10 76 150

Avast Asian 21 2594 4

Northern neutrals

East Irelkm

i

6 6 

Iii 14255 

Hanis Britilhh Indian 3 290 

Iawniiw 10 6 979

llawaiian

South Amerns west 27 31 99

Routh American west

South Americaeast 34 20052

South A east

West Indies 35 154

West leanice

Caribbean 11 4847

an Carib

Gulf

5 2952

Gni

Atltic an coast 30 2306

Pacific road mast Me

Pacific coast except Lies10 45 42764

PacificAtlantic toen rocutete

Unknowy 71 56724 

TAnr eVIILAmerican and foreign tankers 500 gross tons and ov

under some foist of control by the United States Government S

classified according to assignment or use and distributed bet

manned by the Shipping Board and those manned by other agenc

Vessels owned by the Army or Navy are not included in the above table

Manned by

GAmI total United States Man

Shipping Baird

Assignment or use

Dead Dead 

Number wcight Number weight Num

tons tons 

eased total 186 1473 756 3 14 

TetuhAssigned 185 1464 782 3

Uey si ywed 1 8974 14695 

3 2550 

Army Navy 12 109 934 1 5oe 

Fond Adminisratio 1 2300 

Trans Allmtic

British 15 105 769 

Fnch re 16 13n94 2 9 697 

Italian 10 76 150 

Northern neutrals 1 6400 

TransEastPacfic Asian 4 4300 

East Impan

British Indian 13 W7NoISO 

llawaiian 4 314100 

Routh American west 9 9a 3

South A east 2 20800 

West leanice 14 98 9I 

an Carib 3 20 SulI

Gni 71 572 093 I 

Pacific road mast Me 14 78419 

PacificAtlantic toen rocutete 1 1 122 

Other coast wise 1 1300 

Unasssigned 1 8979 

Vessels owned by the Army or Navy are not included in the above table
SECOND ANNUAL REPORT UNITED STATES SIIIPPING DOA

REQUISITION OF VESSELS

In the emergency shipping fund section of the urgent de

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

ships on payment of just compensation This poker was d

to the Shipping Board by Executive order of July 11 191

As has been set forth in its first annual report pp 131

Board after a careful survey of all the factors in the situatio

as the soaring freight rates the hazards of the service and 

and values involved decided upon a comprehensive scheme 

eral requisition The underlying purposes were to provide 

the wartime operation of our ships so as to secure m

efficiency in this most vital national resource and 2 for 

servation of the established commercial organization and th

ing of hardships necessarily incidental to such a time w

consistent with prosecuting the war to a successful conclusio

It became apparent to the Board from a study of the ex

of the Allies especially of England that the efficiency soug

best be obtained by the Government controlling ships thro

power of requisition and providing for their operation 

majority of cases by those persons and organizations who k

shipping business It was further believed that this would 

conserve tonnage but likewise result in reducing the cos

service and in securing the patriotic cooperation of the A

steamship owners

The first general step was taken on Anust 3 1917 when 

and materials in American shipyards intended for use in c

ing steel vessels of 2500 dead weight tons or over for priv

foreign owners were requisitioned This affected 431 vess

total of305600 dead weight tons For a fuller treatmen

subject see pp 116 117

The second general step involved the requisition of Amer

sels in actual service The problem was to meet the war requ

of the military arm of the Government and the war purpose

Shipping Board as well as to do equity to those whose prop

to be taken for public use In June 1917 charter parties a

ship documents were secured from many of the leading A

and foreign steamship companies Forms of wartime ag

in use by the Allies were also obtained and examined Con

were held with the Advisory Committee on Shipping of the 

of National Defense with the Quartermaster Goneral sCorp

Rar Department with the Commissioner of Navigation a

governmental agencies

884270 183
81 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

The following general principles were finally agreed up

the United States though not strictly speaking a charter

assume in practice that relation toward the vessel requisitio

the owner should in general be allowed to operate the vess

United States that the expenses of operation should be ap

between the Shipping Board and the owner in It manne

to that prevailing in normal times between owner and c

that the Shipping Board should assume the risk of war los

the owner in general assumed the rislt of marine peril losse

under bare boat charters that at the option of the Shippi

the vessel might be entirely taken over and operated by th

States without the aid of the owner and the Shipping Boa

again return the vessel to the owner for operation that t

of service should be for such time as the Shipping Board 

termine but should not extend beyond the first arrival of 

in an American port six months after peace unless req

Government purposes and that the Shipping Board shou

the right to terminate the agreement on five days notice

On the basis of these principles a general requisition o

issued on October 12 1917 to be effective October 15 1917 

all American steel power driven cargo vessels of 2500 dea

tons or over and all American passenger vessels of 2500 gr

ter suitable fcr foreign service were requisitioned

In most cases the Shipping Board did not wish to requi

title but merely the use of the vessel A requisition agree

therefore sent to the owners under which the latter ass

obligation to operate the vessel for the United States an

requisition charter setting forth in detail the duties and 

bilities assumed by the United States and the shipowners r

their joint physical operation of the vessels and fixing th

tion rate to be paid to the owners by the United States

There are two general forms of requisition charter U

the Time form charter the owner is responsible for man

supplying the vessel Under the other the Bareboat cha

owner is relieved of all operating duties The rates are f

certain amount per dead weight ton per month for cargo ve

per gross register for passenger vessels The rate paid to c

sels and tankers varies according to deadweight ton cap

speed passenger vessels are paid according to the numbe

sengers they accommodate gross register tonnage and spee

vary also according to whether the vessel operates under t

charter or bareboat charter The Board aims to charge ra

on the requisition rate whenever it is assured that the benef

low rates will accrue to the American or allied Governme
fact exceed the requisition charter hire and that there is no occasion

therefore for the Board to impose and collect it freight rate upon

the proprietary cargoes Pending further examination and consid

eration of the question which will require a careful study of the

conditions of the oil banana and other businesses involved it has

been the policy of the Board to concede the correctness of this posi

tion and not to require an accounting from the owners of the vessels

in this situation as to proprietary cargoes Under this arrangement

which is subject to cancellation by the Board at any time upon five

days notice the owners receive no charter hire The vessels are all

however covered by requisition charters to the Board and are at all

times under the Board sdirection and control Whenever they are

put into trans Atlantic service or taken out of the owners usual

previous service charter hire is paid and an accounting required

on the usual basis for freights fixed by the Board

Small steamships motor schooners sailing vessels tugs and barges

have also been requisitioned from time to time as the exigencies of

the war demanded and the rates to be paid for their use have been

specially determined in each case

Perhaps no phase of the Shipping Board swork has been more

difficult to adjust fairly and satisfactorily than that involved in the

requisitioning of ships for use Nevertheless most owners have co

operated with excellent spirit

The effect of the requisition program with its assurance of certain

earnings to owners on the efficiency of the operation of vessels in

the absence of competition threatened certain clangers The creation

of the Shipping Control Committee with its authority to allocate

tonnage and its close supervision over delays is in part an effort to

meet that danger

The number of United States merchant vessels under requisition

charter on November 12 1918 was 444 of2938 75 deadweight
ata e oot oe ta5000 opsoet oot oe ta

five years or both

By proclamation of the President on February 5 1917 a national

emergency as contemplated in the act was declared to exist and the

above provision was brought into effect This policy was Ileces

sary because many shipowners of the United States attracted by

the high rates then offered for ships were permitting their vessels

to pass to alien registers and to foreign trades in which the United

States did not participate As a result an insufficiency of maritime

tonnage to carry the normal commerce of the United States existed

Following this proclamation applications for transfer of registry

were numerous and a large part of the time of the Shipping Board

during its first meetings in February and Afarch 1917 was occupied

in considering applications for transfer of American vessels to for

eign registry and for chartering of American vessels by aliens

With the entry of the United States into the war this power of the

Shippin Board became of epecial importance as a means of cen

tralized control over tonnage and its allocation for the needs of the

Nation under war conditions The present and future require

ments of our naval and military forces the needs of such of our

trades as deal with the production of munitions and military sup

plies the demands of our allies for similar purposes and for the

transportation of foodstuffs and the ordinary trade requirements

jf our citizens in so far as they may be conserved without detriment

to other interests have demanded consideration

During the first few months of Shipping Board control a number

of transfers to alien registry was authorized The number of such

authorizations has steadily decreased however and on June 4 1918

it was decided to permit no American vessel of more than 100

gross register tons to pass to any foreign flag During the fiscal year

ending June 30 1918 there were transferred to foreign registry 117

American vessels of 94740 deadweight tons In these instances
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

special circumstances indicated that the chance would not in

national interest

In this connection certain defects and omissions in th

ping Act became evident which were met by an amend

ute approved July 15 1913 which was passed by Con

the request of the Shipping Board This amendment wa

sary because of systematic efforts made by foreign financi

ests to evade the original act and secure vessels of the A

merchant marine and because of defects and difficulties of 

istration revealed by practical experience in administering 

inal act By the amendment the prohibition of the tra

foreign registry without the consent of the Shipping B

extended to vessels under construction The original act 

only vessels completed or launched and offered a loophole for 

interests to secure foreign registry for vessels building in the 

States

The amendment also brings under the act vessels licensed 

enrolledie small vessels under 20 tons engaged in the c

trade The definition of what makes a corporation a citize

United States within the meaning of the act is also elaborate

vent foreign interests from obtaining control in law or in f

orporations formed under American law Dlortgages to fo

as well as sales and charters without the approval of the b

forbidden by this amendment as this had become a commo

by which foreign interests aimed to secure control of A

vessels

Besides vessels the act is made applicable to shipyards dr

Shipbuilding or ship repairing plants or facilities or any 

therein Under present war conditions shipbuilding has be

such vital importance that foreign control of shipbuilding 

is as much to be avoided as is foreign control of American s

Agreements or understandings transferring to foreigners st

trol of corporations owning American ships dry docks a

yards are made unlawful to prevent evasion of the act by fo

of dummy corporations

Appropriate penal provisions are provided and any sa

gage lease transfer documentation or agreement in violatio

section is declared to be void Consideration paid under such 

action is recoverable unless received in good faith This w

vent shipowners from retaining the proceeds of the sale and 

ing the burden of the forfeiture proceedings on the purchase

The practical enforcement of the new provisions is fa

by requiring a declaration to be filed with every bill of sale In

or conveyance recorded with a collector of customs setting f
8S SECOND ANNUAL RRPORT UNITED STATES SIIIPPINC BOA

facts relating to the citizenship of the vendee mortgagee 

feree and a heavy penalty is provided for any person who kn

makes a material false statement in such declaration Penal

provided for making false statements to the Shipping Boa

effort to secure its approval for a proposed transfer of regis

mortgage or charter

The Shipping Board is also authorized to grant approval 

transfers or other transactions subject to conditions It s

happens that the sale of a vessel especially appropriate to a 

lar foreign service essential to the war is deemed advisa

vided the purchaser makes certain agreements regarding th

the vessel and the control of its movements Several approv

been given by the Shipping Board on such terms Under t

nal law it was doubtful whether the violation of the agree

the new owner was punishable and the purchaser might r

the conditions imposed after securing the Shipping Board s

to the transaction Under the amendment any violation of t

ment nullifies the approval and renders the transaction pu

as if no approval had been given

The amendment furtber provides that vessels documente

the laws of the United States shall remain so until the surr

their documentation is approved by the Shipping Board T

vents the owner of a vessel from evading the law by pro

cancellation of its register or enrollment A proclamatio

President is necessary to indicate that the period of war or e

has ended during which the provisions of the act are effecti

expected that this amendment will facilitate the Board scon

essential shipping

Several violations of the prohibition against illegal tra

registry have been reported by the Shipping Board to the 

ment of Justice and are now in its hands

TRANSFERS FROM ONE AMERICAN CITIZEN TO ANO

The transfer of American ships from Americans to Amer

also in certain respects been subject to the approval of the 

Board The War Trade Board by virtue of its control ove

and stores licenses for which arc necessary to clearance 

that it would not grant licenses for bunkers and stores to a 

the vessel had been sold by an American to an American wi

transaction being approved by the War Trade Board and 

ping Board This latter requirement was subsequently res

the War Trade Board to the approval of the Shipping Bo

This control has been exercised primarily with a view to p
SECOND ANNUAL IIEPOBT UNITED STATES SIIIPPINO BOAR

American ships from getting indirectly into the hands of per

enemy affiliations or tendencies To a much less degree this 

was also aimed at keeping American ships out of the hands of 

demonstrated inefficient operators It was also deemed advis

exercise certain control over the sale price of such ships A

tions for the transfer of American ships from Americans to 

cans have been submitted to the Board in considerable numb

with relatively few exceptions have been approved The a

tions have referred mostly to small steamers and sailing vesse

Board has exercised no control over the transfer from Ameri

Americans of American ships under 100 tons capacity

ADMISSION OF FOREIGN VESSELS TO AMERICAN REGIS

The Shipping Board has followed the general policy of en

ing American citizens in their efforts to acquire merchant 

and bring it under the American flag Even before the cre

the Shipping Board acts of Congress and Executive orders 

President had made it easier to secure American registry for f

owned or foreignbuilt vessels By act of August 18 1914 t

ship clause of the Panama Canal act of August 24 19

amended making it no longer essential that foreignbuilt ves

plying for American registry be less than five years old 

same act the President was authorized to suspend certain pro

of law requiring survey inspection and measurement by off

the United States of vessels admitted to American regist

Executive order of September 7 1917 these requirements w

pended for two years from September 1 1917 provided the 

tary of Commerce is satisfied that the ship is safe and sea

By Executive order of July 3 1917 the President suspended 

duration of the war certain provisions of law requiring tha

officers of vessels of the United States engaged in foreign tra

be American citizens

By these and similar provisions efforts have been made by t

ernment to stimulate the admission of foreign vessels to A

registry and a large increase to the merchant marine un

American flag has been secured by this method since the outb

the war

Foreignbuilt vessels placed under American registry du

12 months ending June 30 1918 numbered 75 of 515 99 

weight tons This does not include vessels of Netherlands 

the possession of which was taken over on behalf of the 

States in pursuance of the proclamation of the Presiden

March 20 1918
40 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

ADMISSION OF VESSELS OF FOREIGN REGISTRY AND 

CONSTRUCTION TO UNITED STATES COASTIVISE TR

As early as the summer of 1917 the Shipping Board be

vinced that the volume of tonnage engaged in the coastw

of the United States was being constantly diminished 

because of the law prohibiting foreign vessels from en

United States coastwise traffic many such vessels were to

American ports either empty or partially laden An act w

by Congress and approved by the President on Octobe

authorizing the Shipping Board to suspend existing prov

law and grant permits to vessels of foreign registry and to 

built vessels admitted to American registry to engage in 

wise trade of the United States during the present war 

period of 120 days thereafter The provisions of this a

apply to coastwise trade with Alaska or between Alaskan 

The permits issued by the Shipping Board define the 

the trade and the time of such employment Applications 

permits may be made by the master owner or agent of the 

collectors of customs who forward them to the Director o

tions in Washington or the applications may be made direc

Director of Operations The applications must state in 

nature of the cargo ports of clearance and entry and the da

voyage unless permission is sought for a general permit 

exclusively in coastwise trade The Shipping Board res

right to modify or revoke the permit at any time

In the majority of cases permits have been issued for s

ages except on the Great Lakes where permits are issued 

dian vessels for the season of navigation By a resolutio

Shipping Board on February 11 1918 two Japanese compa

allowed to engage in the coastwise trade between San Fran

Honolulu carrying mails from San Francisco to IIonolulu 

and freight from IIonolulu to San Francisco Japanese 

permitted to carry firstclass passengers between Honolulu 

Francisco as are also Pacific mail steamers which are fore

but under the American flag Scarcity of shipping on th

necessitated this action

During the period from October 1 1917 to September 

permits have been granted to 342 different vessels 58 of wh

operating upon the Great Lakes while 284 were in coastwise 

on Atlantic and Pacific coasts

CONSTRUCTION FOR PRIVATE ACCOUNT D031ESTIC AND F

The Shipping Board has exercised a certain control over 

struction of ships for American private account and for fo

count in American shipyards By the emergency shipping f
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOA

vision of the urgent deficiencies appropriation act approve

15 1917 Congress authorized the President to require the 

or occupier of any plant in which ships or material are b

produced to place at the disposal of the United States the 

or any part of the output of such plant This authority w

gated to the Shipping Board by Executive order of the Pres

July 11 1917

Although the Shipping Board has no direct legislative au

tion to control construction for private American account y

tracts for private account involve certain priority concessi

assurances for the securing of which application to the S

Board is necessary Such construction depends upon priority 

for material and shipments which are granted by the War Ind

Board only upon the approval of the Shipping Board Conse

an almost universal practice of applying to the Shipping Bo

permission to construct for private American account has gro

Following the general order of August 3 1917 by wh

Shipping Board requisitioned hulls and materials in America

the first statement of policy regarding Elie construction of ves

private or foreign account was issued on September 22 191

plications must be made by the shipbuilder giving detailed i

tion concerning the vessel cost date of completion chara

registry name and address of owner location of shipyard 

firm building etc The United States has the option of taki

the vessel at any time prior to completion on the basis of the 

cost plus 10 per cent interest Permits to construct such vess

receive the approval of the Emergency Fleet Corporation a

not interfere with its building program or the work of the 

other governmental departments

Priorities as to both labor and materials rest with the Em

Fleet Corporation and the price to be paid for such vessels m

permit unfair discrimination against yards doing work for th

Corporation or the Government All such vessels are su

existing law regarding requisition and control no definite g

being given for the future

The material demands of the Navy War Department 

Shipping Board programs have in general not allowed the a

of applications involving the use of steel or steam propell

chinery This necessity has restricted private construct

American account with few exceptions to wooden sailing 

with or without auxiliary power barges both wooden and c

and smaller steam propelled vessels using reconstructed mach

By virtue of the above control and the additional control o

fers of ships to foreign registry the Shipping Board has f
42 SECOND ANNUAL REPORT UNITED STATES SIIIPPISG BO

beginning also exercised jurisdiction over the construction 

for foreign account either private or givernmental

Preference in permits for building wooden ships is 

American owners then to citizens or corporations of nati

which the United States is associated in the war then to ne

facilities for shipbuilding remain Ownership of vessels co

for aliens is generally required to be lodged in an American 

tion They then sail under the American flag and can be 

such trades under such terms as the Shipping Board ma

Vessels constructed for the Governments of England Fran

and Japan in United States yards may be allowed to fly th

the nation for which they are built

On June 21 1918 the Shipping Board adopted a resolutio

that it would permit the building of wooden sailing v

motor driven vessels up to 1000 tons deadweight for p

foreign account provided such building received the approv

Fleet Corporation

On September 19 1918 a resolution of the Board was pass

extended the limit to 1300 tons deadweight Such vesse

be free from commandeering during construction and up

pletion may be permitted to take the flag of their owners 

of military necessity however the Board reserves its 

commandeer

Direct legislative authorization for control over constru

foreign account was conferred by the act of July 15 1918 a

the shipping act which provided that when the United Sta

war or when a national emergency has been proclaimed by t

dent it shall be unlawful without first obtaining the app

the Shipping Board to enter into any contract agreement o

standing to construct a vessel within the United States for 

delivered to any person not a citizen of the United States wi

pressly stipulating that such construction shall not begin u

the war or the emergency proclaimed by the President has en

already noted the President has issued a proclamation u

act delegating the powers thereby conferred on him to the 

Board

In order to centralize the machinery for handling matters 

fer of registry and applications for permission to construct 

private account American or foreign the Shipping Board 

on October 9 1918 a Division of Transfer and Private C

tion This division investigates and prepares recommend

regard to the proposed sale or transfer of registry of ships 

with applications for permits to place foreign mortgages 
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOAR

as well as applications to construct ships for private account 

can or foreign

Particulars of permits grouted by the Shipping Board for construc

prtrate account as of Oct 15 1918

Foreign interests includes both Government and private account

COASTWISE LINES

Various modifications of the Shipping Board scontrol ove

wise ships have taken place With some of the companies e

in the New England coal trade special arrangements were 

whereby the companies were to carry coal for their own acc

rates fixed by the Board In this way the financial returns 

shipowner were controlled and the stimulus of a financial rew

Oliicient operation was preserved

Under the President sproclamation of December 26 1917 

control of certain railroadowned coastwise companies to th

road Administration that Administration tool control of th

of the Old Dominion Steamship Co Ocean Steamship C

Southern Pacific Steamship Co that were on that date not e

in overseas service by the Army Navy or Emergency Flee

poration The ships in overseas service are controlled by the 

ping Board

Under the President sproclamation of April 11 1918 th

road Administration tool control of the Mallory Steamsh

Clyde Steamship Co Southern Steamship Co and Merch

Miners Transportation Co effective April 13 1918 The ve

these companies engaged in overseas service are however co

by the Shipping Board

EXCLUSION OF VESSELS FROM THE WAR ZONE

When the policy of unrestricted submarine warfare was a

it became desirable for the Shipping Board to control the 

vessel that entered the war zone IIigh freight rates were te

many vessels to risk the voyage Even though the danger of d

American interests Foreign Interests To

Number

Number Nnmbor Number ofnnls rev of ves Tonnage of ves Tonnage of ves 

sets sels sole

Wood III types 72 146 221 01 105 212 40 251 

steel fell t 1 r3 1 400 82 126 u10 145 

Concrete aliestypes 12 bd 12Y 6JJ 55 

97 295 I 497 00 187 380 10 482 

Foreign interests includes both Government and private account

COASTWISE LINES

Various modifications of the Shipping Board scontrol ove

wise ships have taken place With some of the companies e

in the New England coal trade special arrangements were 

whereby the companies were to carry coal for their own acc

rates fixed by the Board In this way the financial returns 

shipowner were controlled and the stimulus of a financial rew

Oliicient operation was preserved

Under the President sproclamation of December 26 1917 

control of certain railroadowned coastwise companies to th

road Administration that Administration tool control of th

of the Old Dominion Steamship Co Ocean Steamship C

Southern Pacific Steamship Co that were on that date not e

in overseas service by the Army Navy or Emergency Flee

poration The ships in overseas service are controlled by the 

ping Board

Under the President sproclamation of April 11 1918 th

road Administration tool control of the Mallory Steamsh

Clyde Steamship Co Southern Steamship Co and Merch

Miners Transportation Co effective April 13 1918 The ve

these companies engaged in overseas service are however co

by the Shipping Board

EXCLUSION OF VESSELS FROM THE WAR ZONE

When the policy of unrestricted submarine warfare was a

it became desirable for the Shipping Board to control the 

vessel that entered the war zone IIigh freight rates were te

many vessels to risk the voyage Even though the danger of d
44 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

tion was great As early as May 1917 the Shipping Board 

the policy of refusing charters to American sailing vess

eigners to go into the war zone because of the danger of d

and because the owner would want to sell the vessel if it 

foreign port safely rather than risk a return voyage for 

freight rates were not so attractive The Board ruled 

President sproclamation of February 51917 requiring the 

of the Shipping Board for all charters of American vesse

also to sailing vessel charters issued before that date unless 

so chartered had already loaded and sailed

On October 10 1917 the Shipping Board advised by 

Department and the Shipping Advisory Committee of th

of National Defense that sailing vessels bound on voy

ports of the United States or its possessions to European 

terranean ports were subject to excessive war risk adopted 

of allowing no sailing vessel to clear for any voyage from 

of the United States or its possessions for any European 

terranean port The Exports Administrative Board was 

to refuse licenses for ship stores to such sailing vessels 

such voyages and to notify through proper channels the 

of customs of the various ports of the United States and 

sions respectively of this policy

Sailing vessels are obviously unsuited for war zone trad

larly as they furnish a ready source from which subma

obtain fresh supplies They are however valuable for 

vessels taken from the coastwise and South American tra

On February 20 1918 the Shipping Board excluded s

less than 2500 tons dead weight from trans Atlantic or o

voyage trade and requested the War Trade Board to refu

licenses to vessels which might attempt to disobey this r

was the judgment of the Shipping Board that vessels of sma

are uneconomical and unsafe in trades that lead through 

zone and that such vessels could be used to a better adv

coastwise traffic West Indian trade and similar services 

hibition against small vessels simplified the convoy pr

eliminating many vessels of low speed It also aided in 

tion of the exorbitant freight rates demanded because th

vessels were not within the requisition order of the Board 

ject to the specified charter rates fixed by the Board and 

in many cases making excessive charges With the elim

these vessels from the trans Atlantic trade the Shipping B

trols the rate situation through its owned requisitioned 

tered vessels
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

REPAIRING OF ENEMY VESSELS TAEEN OVER BY THE U

STATES

In the First Annual Report of the Shipping Board pp 

the action of the United States Government in tat in over 

vessels interned in American ports at the time the United 

entered the war was set forth The vessels were taken by 

seizure in accordance with the Executive order of June 3

and the necessary repairs were pushed with vigor See 

under the heading Board of Survey and Consulting Engin

Up to November 11 1918 the United States Shipping Boa

disbursed for repairs to exGerman and exAustrian vessels 

of919I S62 70 There are in addition certain outstandi

aggregating approximately2000

ENESIY TONNAGE SECURED FROM OTIIER COUNTRIE

On November 15 1917 the Shipping Board authorized 

tions for the purchase or charter of enemy vessels interned o

by other countries Accordingly efforts were made to acqu

tonnage from vaHous countries During December 1917 an

ary 1918 arrangements were completed for the chartering u

months after the war of two esAustrian vessels seized by Ch

the chartering for the duration of the war of two exGerman 

seized by Siam A number of Austrian vessels were purchas

of which were resold to the French Government At the 

time the Shipping Board owns nine esAustrian vessels acq

purchase totaling 58000 dead weight tons

Negotiations are under way with the Brazilian Governm

which it is anticipated that a large amount of exGerman 

will be made available for the common use of the Allies 

United States in the prosecution of their war purposes 

amount of Austrian ships interned in Brazil has also been pu

During the past year the United States Shipping Board 

gency Fleet Corporation on behalf of the United States sec

charter upon agreement with Uruguay the use of eight ex

steamers interned in Montevideo of 60701 tons dead weig

terms making them available for the common purposes of U

the United States and the Allies Uruguay agreed to repa

vessels and put them in a seaworthy condition thus reliev

repair facilities of that burden but the United States ship

necessary supplies to effect these repairs

From Peru the use of five steamers and four sailing ves

been secured under a time charter of similar terms with that 

with Uruguay and these vessels are made available for v

unrestricted trade
46 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

FOREIGN VESSELS CIIARTERED BY THE SHIPPING B

In its effort to relieve the scarcity of tonnage the Shipp

has chartered a considerable number of vessels from 

and neutral countries On September 1 1918 there were 3

vessels of a total of1094 98G dead weight tons under cha

Board Of these 220 vessels of 44238 dealweight tons w

ers and 111 vessels of 140 718 dead weight tons were sailin

The steamers include especially Danish Norwegian Sw

Japanese vessels The sailing vessels are chiefly French 

wegian These vessels are chartered at interallied rates 

cases they are chartered during the war in other cases for 

period in still other cases for a single voyage A portion 

vessels is engaged in trade with South America the We

Australia Hawaii and the coastwise trade of the Unite

although the charters of most of them allow for tranAtla

In order to influence the chartering and control of all neut

to the Shipping Board a resolution was passed by the 

April 18 by which it was provided that no charter of neut

leaving American ports should be approved by the Charte

mittee of the Board unless such vessels be chartered to th

States Shipping Board These vessels which were charter

Shipping Board were later assigned by the Division of O

to various lines for operation in the trades to which t

allocated

ACQUISITION OF FOREIGN TONNAGE

During the year negotiations have been carried on throu

matic channels with the cooperation of representatives of 

ping Board on the War Trade Board as a result of whic

agreements have been concluded providing for the acquisitio

from neutral and allied countries Under these agreements t

States governmental authorities agreed to license for exp

sary food supplies and other commodities for the use of thes

nations in exchange for their agreeing to charter for the 

Board all the tonnage which they could spare from their o

diate needs Various chartering agreements have been m

Sweden Norway and Denmark Japanese tonnage has b

available by charter purchase and construction contracts 

ing of ships in Chinese yards has been arranged and enemy 

seized or interned in South American countries has been m

able By a careful study of trade routes it has been possible 

a large amount of tonnage from South American and We

trades and to replace the larger types of vessels with sim

flying neutral flags so as to relinquish for trans Atlantic tra

hundred thousand tons of steamers
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

Dutch Ships

In January 1918 a temporary arrangement was made w

Dutch Government by which certain supplies were placed a

disposal and certain of their vessels were to be chartered 

United States Shipping Board for periods not exceeding 0

Among other things it was provided that 150 00 tons of Dutc

ping should at the discretion of the United States be em

partly in the services of Belgian relief and partly for Switz

on safe conduct to Cette France and that for each ship 

IIolland in the services of Belgian relief a corresponding 

should leave Holland for the United States Two Dutch s

United States ports with cargoes of foodstuffs were to proc

Holland similar tonnage being sent in exchange from IIolla

the United States for charter as in the case of other Dutch 

lying in the United States ports By this temporary arrang

460 00 tons of Dutch ships were to be chartered to the Sh

Board About 300 0 tons dead weight of their ships ha

chartered when Holland proved unable to live up to the con

of the agreement

The failure to secure shipping in accordance with this arrang

precipitated a crisis in the imperative military needs cf the 

States which could onl be met by he exercise of the 

ordinary power conferred on a belligerent known as the 

of angary to requisition for military purposes vessels of f

register within the territorial jurisdiction On March 20 10

President acting under authority of the act of June 15 1017 

accordance with international law and practice issued it pro

tion authorizing the Secretary of the Navy to take over the pos

of all such vessels of Netherlands registry as were necessary 

sential purposes connected with the prosecution of the war T

sels were to be manned equipped and operated by the Navy D

ment and the Shipping Board and the latter was directed to m

the owners full compensation in accordance with the princip

international law

Under the authority of this proclamation there were take

by the Davy Department 87 Dutch vessels of 533 746 dead 

tons lying in widely scattered ports of the United States inc

Porto Rico and the Philippines

To fit this great merchant fleet for service proved to be a 

the first magnitude Dlany of the ships were out of repair m

them required gun mounts and extra gumcrew quarters man

loaded with rich colonial and South American cargoes for 

storage space must be found All the Netherlands crews had 

removed and the vessels completely remanned from deck h

master with American civilian or naval crews The rapidit

which the vessels were put into service despite these obstac
48 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

been an achievement which only the large resources of 

Department and of the Shipping Board have made possi

In general the Dutch vessels assigned for trans Atlan

were manned by the Navy Department and those used in 

and South American services essential to the prosecution 

were manned by the Shipping Board In manning the lat

the Board did not follow its usual practice of assigning th

private corporations or to the Emergency Fleet Corporat

and operate for Government account but itself directly 

the crews

In addition to the operation of a substantial number of 

ships the Shipping Board has been charged by the Pres

the following matters directly arising out of the requis

the ships

1 Negotiations and settlement of terms of compensat

use of the ships

2 Maintenance and repatriation of the Dutch crews 

inert of indemnity for losses incurred by them

3 Care and disposition of the cargoes on the vessels 

ment of terms of compensation to Dutch cargo owners

In recommending the terms of compensation to shipown

the United States Government should offer to the Netherl

ernment the Shipping Board was guided by two cons

First that the terms of compensation for foreign ships 

force should be at least as favorable to the shipowners a

liberal terms which had theretofore been offered or agreed 

ships voluntarily chartered and second that the terms sh

far as possible the same as the terms proposed by Great B

the Dutch ships requisitioned by her

On March 21 the day after the issuance of the Presides

mation the Shipping Board cabled its London represe

discuss with the British authorities the compensation to b

the shipowners These discussions resulted in the determ

an equitable basis of compensation the United States as

risks and expenses except those involved in rendering the 

worthy In the event of loss it has been agreed to replace 

in kind after the war or if the owner desired to pay just 

tion It is believed that the prompt announcement and p

in Rolland of these liberal terms did much to quiet the fe

Dutch shipowners and laid the foundation for the friendly 

which all subsequent negotiations have been conducted

There were on the Dutch vessels at the time they we

tioned no less than 2934 seamen of Dutch Dutch colonial o

nationality Whatevep the technical obligations of the Uni
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

might be toward these men it was clearly of the utmost imp

that they be given the most hospitable treatment and that an

which they might sustain be repaid them liberally Many of 

were without funds and did not know the language and 

thrown them on their own resources would have caused them 

hardship

Instructions were therefore issued by the Navy Departm

inform all the Dutch crews that they should consider the

guests of the American Nation that their former wages w

paid them until they were repatriated and that their main

and traveling expenses would be defrayed The Bureau o

gration of the Labor Department then took charge of the m

arranged for hotel accommodations and transportation to t

from which they were to sail The Shipping Board saw to 

the men were kept in funds by advancing them through 

offices a half month swages

The Dutch liner New Amsterdam was due to sail on March 

all the men for whom accommodations could be found were ru

New York to catch this ship In all1651 sailed on the New 

dam In the haste of their departure many officers and m

obliged ti leave trunks and other personal belongings on the 

vessels In all such cases the Board either defrayed the 

of replacing the lost belongings or made adequate pe

compensation

The scarcity of sailings to IIolland and to the Dutch 

possessions necessitated long delays before the remainder of 

could he repatriated but by July 3 all but three of the men 

repatriation had sailed The three were detained by illness a

since returned During the period of waiting of course the 

States was under obligation to pay them wages and main

At first the policy was adopted of assigning the men to ho

instructing the hotels to bill the Government for their main

This course met with some objection since it left the men 

pocket money and led to complaints that certain hotels were 

advantage of them by furnishing inferior accommodations 

of maintenance allowances was therefore drawn up in con

with the Netherlands consul general and was paid to the men 

by the paymaster of the Shipping Board The scale was libe

the weekly disbursements because of the large number involve

necessarily heavy but it was felt that this was obviously no

in which undue regard for economy would be justified

As to wages the Shipping Board recommended to the St

partment that the United States Government pledbe itself to 

wages up to the date of repatriation or in the case of men who 

SSi271S
50 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

in the United States up to the date of discharge and in 

one month s wages to compentiate for loss of employmen

instructions from the State Department this proposal w

identical with that submitted by the British was made to th

lands Government by the American minister at The Ilag

rangements have been made by which the total amount so 

is being paid the men on their arrival by the Holland ship

panies the companies being reimbursed by the American co

eral at Rotterdam who in turn draws on the Emergency F

poration for repayment

In addition the Shipping Board has defrayed medical an

expenses of several members of Dutch crews who were inju

and the State Department on the recommendation of the 

Board has pledged the United States to assume insurance 

for Dutch crews in accordance with Dutch law It is not bel

there will be any expenses on this account since the return o

to Holland and the colonies occurred in every case withou

Twentyone of the Dutch vessels requisitioned on 3farc

tained cargoes owned by or consigned to Dutch subjects 

cated questions have arisen first as to the disposition of the 

and second as to the settlement of pecuniary claims of the 

the cargoes

In disposing of the cargoes the first consideration has n

been the freeing of the ships and of essential dock and stor

for war purposes The cargo was therefore stored wher

age space was procurable it being often necessary owing to 

gestion in the principal ports to send cargoes hundreds 

away to ports less congeAed In view of the uncertainty a

would be our liability the cargo was stored for account 

it might concern but the expense of transshipping an

the cargo was borne by the Shiping Board and the carg

covered by insurance at the Shipping Board sexpense

The second consideration of almost equal importance 

protection of the interests of the owners of the cargoes T

ciate the importance of this consideration it must be rea

the cargoes were of great valueindividual cargoes were 

to 2000that they were made up of a large numbe

vidual shipments represented by bills of lading widely 

throughout the banks and commercial houses of Holland an

onies and that the holders of the bills of lading were t

with serious financial embarrassment if their interests were 

tected If the most serious resentment in Holland was to be 

it was necessary to deal promptly and fairly with the own

cargoes
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

Every effort was made therefore to forward to the origi

tination on substitute vessels such cargo as it was possible to f

Cargoes in transit for South America were transshipped to 

vessels and small steamers unsuitable for trans Atlantic tr

Dutch vessel was chartered to forward cargo consigned to the 

East Indies Cargoes taken over on the Pacific coast or at th

ippines and consigned to Atlantic ports were forwarded 

original Dutch vessels At the present time virtually all th

capable of being forwarded has been delivered With re

these cargoes the Shipping Board recommended to the State 

ment that the United States Government agree to bear any 

due to the necessity of transshipping and forwarding the ca

yond the normal cost of delivering the cargo in the origina

This proposal was made by the State Department to the 

Government and accepted by the Dutch Government as fu

tecting the interests of cargo owners

Afore difficult to deal with were the claims of owners of ca

signed to Holland which could not be forwarded

A considerable portion of this cargo was damaged and in 

of rapid deterioration To avoid serious loss quick action w

essary it was not possible to consult the many hundreds of 

of bills of lading The Shipping Board therefore considere

entitled to exercise the discretion conferred by maritime law 

master of the vessel by selling the cargo for the interest of 

cerned The undamaged cargo has been held in storage 

receipt of formal authority to sell from the owners

A memorandum proposing a basis of settlement with th

owners was transmitted by the Chairman to the President 

him approved on April 16 It recommended that the United 

Government offer to reimburse the owners of the cargoes on 

of the prices the goods would have brought in Holland 

expenses of shipment from the United States to Holland T

posal was made to the Dutch Government by the State Dep

on June 7 The Dutch Government replied accepting the p

as to two of the vessels and proposing as an alternative fo

others comprising Dutch colonial cargoes a settlement on 

of values at place and time of shipment on shipped weig

qualities plus certain additions covering freight insuran

interest from point of shipment to the United States This c

suggestion was urged on the ground of its greater simplicity 

greater promptness with which settlements could be made 

volved a basis of value which was much lower than the one p

by the United States on the other hand it placed on the 

States the loss due to damage and shrinkage of cargo
52 SECOND ANNUAL REPORT UNITED sTATEs SKIPPING B

After a careful weighing of the alternative plans the 

Board recommended to the State Department that the 

proposal be accepted in principle The State Departme

vised the Dutch Government and a reply has been receive

ing the agreement as to these vessels

This settlement involves it should be noted the purcha

United States of the cargoes involved The Shipping B

undertake thereupon to sell the cargoes and arrangemen

direction are already being made under competent expert 

Much of the cargo is of value to the War and Navy De

and has been sold to them

The principles to be followed being thus virtually agr

there remains a large amount of detailed work in the app

these principles to the thousand or more individual claims 

A committee has been designated to represent the Shipp

in adjusting these claims and the work of gathering the 

data is under way

The net cost of these settlements will probably not be 

since receipts from the sale of the cargo can be set off a

expenditures

Tonnage Derived from Northern Neutrals

After a series of negotiations in which the War Trade B

the Shipping Board participated chartering agreements 

cluded by which a considerable amount of tonnage was sec

the shipowners of the northern neutral countries a fair p

of which was made available for warzone trading Unde

wegian agreement the United States secured about 6100

weight tons of steamers and approximately 275 000 tons 

vessels

The agreement with Sweden covered certain vessels lyi

Swedish North and South American and allied Europe

vessels trading to and from allied European countries o

those countries and Sweden and vessels chartered by th

Relief Commission Such ships as are actually require

service of Sweden are according to the terms of the agr

be operated in seven specified lines The vessels covered in 

ment are secured by uniform charter for the duration of th

one month thereafter The United States thus obtained 

steamers for unrestricted trade to the amount of 100 0 de

tons and an equal amount of steamers for use outside the w

The arrangements with Denmark provided for the re

that country of a stated amount of tonnage to take care 

porting necessary food supplies and other commodities O

surplus Danish tonnage above this amount the United Sta

cured 265 000 dead weight tons of steamers 88000 tons of 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

available for unrestricted trading 90000 tons to be used outs

tear zone and upward of 51000 tons for Belgian relief and

Swiss Government

Japanese Agreement

On March 15 1918 arrangements were made tbronhlr the Ja

Government for the chartering of certain vessels to the S

Board and charters were finally signed on April 26 1913 

vessels aggregating 151 275 dead weight tons for a Period 

months at interallicd charter rates On March 19 1913 n

tions were begun by the War Trade Board and the S

Board for the purchase of Japanese vessels and for the cons

in Japanese yards of additional vessels An agreement w

cluded under which contracts were made in April and Ma

providing for the purchase of 15 Japanese vessels either com

or nearing completion totaling approximately 125 000 dead 

tons to be delivered between June and December 1918 Th

agreed upon for these vessels ringed from 212 50 to 265 p

and the War Trade Board agreed to license the exportation o

of old steel ie steel contracted for at former prices to Jap

each dead weight ton of vessels delivered

On April 4 1918 the Japanese outlined terms according to 

Japanese shipbuilders would agree to build for the United Sta

proximately onehalf of the estimated total output of Japanese 

during the first six months of 1910 Contracts signed betwee

16 and 21 1916 provided for the construction in Japanese yard

vessels of 215 850 deadweight tons to be delivered between 

and August 1919 The price to be paid for the vessels was f

175 per dead weight ton and the War Trade Board agreed to 

the exportation of approximately 1 ton of new steel for every 

of vessels delivered The contracts were awarded to 13 Ja

yards building from 1 to 5 ships each

The total contracts to Japanese shipbuilders provide therefo

45 steel cargo carriers of almost 375 000 deadweight tons 

vessels will cost about 73000 and permits to export stee

about 250 00 tons The first vessel built in Japan for the Sh

Board was delivered on June 13 1915 and to date Oct 1 

vessels of 72990 deadweiglit tons built in Japanese yards hav

delivered and paid for

Ships Built in Chinese Yards

On July 10 the Shipping Board signed a contract with the 

nan Dock Engineering Works at Shanghai China to buil

steel vessels of 10000 deadweigbt tons each with the opt

building 80000 dead weight tons additional This company is 

and operated by the Chinese Government with the aid of a te
54 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

staff most of whom come from Scotland Steel will be e

China from the United States for the building of these 

terms similar to the arrangements for the vessels being 

Japanese yards for the Shipping Board Delivery of the v

begin six months after the delivery to the builder at Shangh

of such materials therefor as are to be furnished by the 

the first vessel

French Sailing Vessels

In the rearrangement of shipping facilities for more effic

zation of the allied tonnage the Shipping Board concluded 

ment with the French Government for the charter to th

States of certain French sailing vessels in return for a pro

cumber of American steamers assigned to the French B

the difficulty of operating the sailing vesels in the war zon

value of the vessels in trade outside the war zone thereby 

American steamers for warzone traffic this arrangement 

tinct value to the Allied cause

The Shipping Board takes these sailing vessels on a Go

form time charterie the Board assumes war risks and a

connected with the loading and discharging of the car

owners keep the vessels in firstclass condition pay fo

crew s wages food stores and supplies and all other exp

taining to ship and crew

A large part of this tonnage has been placed with our Go

for operation and the rest is being made available as the v

charge the cargoes they previously had on board before 

ment went into effect The United States Government is 

steamer tonnage to the French in order to replace the sailin

obtained under the terms of the agreement

DIVISION OF OPERATIONS

In the foregoing sections an account has been given of th

action along the line of acquisition of tonnage by roquiai

tering commandeering purchase and otherwise A p

greater magnitude which now occupies a central place in th

program is that of the operation of vessels Though rece

attention at first this phase of the Board sduties has been 

growing and this growth has necessitated a far reaching a

tive expansion and reorganization during the past year

The present Division of Operations has evolved from t

portation Committee of the Emergency Fleet Corporation 

later designated as the Committee of Operations and was a

to organize a transportation department and employ ag

September 29 1917 the Trustees of the Emergency Fleet 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

tion appointed a Director of Operations and the Shipping B

at carious times issued instructions to the Director of Opera

operate vessels on its behalf On October 18 1917 the Bo

ferred upon the Director of Operations the administration o

to admit foreign vessels to the American coastwise trade and 

permits thereunder in the name of the Board On Novem

1917 the Board resolved that all vessels owned by the Shippin

be chartered to the Emergency Fleet Corporation Division o

tions which was to hate charge of the vessels subject at all 

the direction and supervision of the Board

The general administration of the requisitioning program 

operation and direction of requisitioned ships was also ass

the Division of Operations and the division was given d

either to equip and man and operate directly the ships turn

to it or to assign any such ships for management and ope

existing shipping agencies created for that purpose Othe

have been added from time to time On December 13 1

Shipping Board delegated to the Division of Operations the 

out of the recommendations of the Ship Protection Commit

February 11 1915 the Shipping Control Committee was es

and located in New York to take over the duty of allocating 

Board vessels to cargoes and trade routes a function form

formed by the Division of Operations leaving to the latter th

sitioning of ships control of freight rates repairs and phyA

keep and all financial and business arrangements with own

operating agencies

Certain vessels used by the Fleet Corporation for its own p

such as those engaged in transporting lumber to build s

shipyards are operated by the Division of Operations as ar

nssiIned by the Shipping Board to certain other department

Government such as the Food Administration or Belgia

The Division of Operations has had charge of bringing cer

sels from the Great Lakes to the seaboard and refitting t

ocean service

The Shipping Board now owns Nov 21 455 new ship

ing 2468 892 tons dead weight 59 former German vessels 

206 tons G former Austrian vessels of 35262 tons and 36 oth

of 137 248 tons Of the Sl Dutch vessels taken over 52 of 

tons are managed by the Shipping Board and the rest by th

There are 328 foreign ships of 13GGX61 tons under charte

Board and 450 American ships of2910 166 tons under req

This makes a total fleet of 1386 vessels of749S O75 dead we

owned managed or chartered by the United States Shipping 

The Division of Operations is thus the largest ship o

concern that this country has ever known and serves as the 
56 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

contact between the Shipping Board and the private 

interests

Administrative Organization of the Division of Operations

In order to carry forward the far reaching activities of the 

an extensive administrative organization has been built u

home office and in the field The main lines of this organiz

as follows

The Director of Operations has jurisdiction over all fun

the Division of Operations and maintains personal cont

members of the United States Shipping Board

The Assistant to the Director of Operations assists in pro

general supervision and is particularly charged with contact 

Shipping Control Committee the Chartering Committee th

of Survey and Consulting Engineers the Car Navy and State 

ments and other branches of the Government He also m

contact with foreign embassies and missions and has directio

various agencies throughout the country

The Assignments Department recommends and records 

ments to managers and operators and makes notification

Same after approval of the United States Shipping Board 

junction with the Shipping Control Committee the departm

supervision of all freight and passenger steamers divided b

The Comptroller has general direction of all financial mat

The Contracts and Charters Department records and c

freight agreements charters and other obligations and m

contact with the Comptroller concerning these matters

The Forest Products Department has direction and su

over vessels handling mahogany for the Army timber and lu

the Fleet Corporation and forest products for the general tim

lumber trade

The Great Lakes Department has supervision over all mat

taining to the management and operation of vessels constru

the Great Lakes The jurisdiction of this department c

until the arrival of the vessels at Halifax

The Marine Superintendent supervisor all managers with 

to manning victualing and supplying This office has dire

repairs and is in contact with the Board of Survey and Co

Engineers

The Department of Maritime Intelligence has to do with t

of all records concerning veisel movements new construc

quirements charters and similar items of maritime informa

The Sailing Vessel Department in conjunction with the 

Control Committee directs all sailing vessels including Frenc

vessels time chartered to the United States Shipping Boa
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

wegian and other neutral sailing vessels controlled by the 

States Shippin Board American sailing vessels owned or 

sitioned by the United States Shippinrr Board exGerman 

seized by the United Stats Government and supervises gene

sailing vessel traffic through approval of charters by the Ch

Committee

The Tanker Department exercises general direction in conj

with the Shipping Control Committee over all bulk oil carri

The Traffic Department has to do with the fixing and issu

rates and the handling of claim for loss damage and overch

The Tug and Lighter Department in conjunction with th

ping Control Committee directs all matters pertaining t

lighters barge and other harbor equipment

In addition to these various administrative units of the D

of Operations it should be noted that there is a close connec

tween the Division and certain related parts of the Shippin

organization whose work beau directly upon the operation of 

such as the Marine and Dock Industrial Relations Divis

Shipping Control Committee the Board of Survey and Co

Engineers the Chartering Committee the Recruiting Serv

the Insurance Division

Branch Offices of the Division of Operations

The cumulative extension of the task of operating or direc

vessels owned or controlled by the Shipping Board and Em

Fleet Corporation has necessitated the gradual establishme

chain of branch offices at various ports The branches of th

sion of Operations fall into certain groups or gradations as 

Assistant Directorships lanaging Agencies General Agencie

cies and Sub Agencies

An Assistant Director as at San Francisco is in charge of t

ations of a certain district and maintains a supervising orga

similar to that of the Director of Operations at Washington

A Afanaging Agent covers representation at ports where th

management of vessels is handled the port at which his 

located being regarded as the home port of the vessels

A General Agent represents the Division of Operations 

where an organization is maintained for the husbanding of th

but where they are not actually managed by the agent

An Agent represents the Division at ports where an organiz

maintained for the purpose of dealing with general matters an

a husbanding organization is not maintained

In ports where afanaging Agent General Agent or Agent 

been designated and where it is necessary to establish pe

representation a SubAgent is appointed by the lanaging A

General Agent in charge of the district covering that port
58 SECOND ANNUAL REPORT UNITED STATES SIIIPPINC BO

There is an Assistant Director at San Francisco another 

who reports to the San Francisco office and another at New 

whose district comprises the Gulf ports from Galveston to P

There is also an Assistant Director at Washington Manag

Gies are maintained at Boston and New York general ag

Baltimore and Norfolk and agencies at numerous ports T

representative at Cleveland in charge of the Great Lakes op

and representation at Philadelphia is covered by a su

reporting to New Ymk

In general the duties of all agents are as follows

1 To represent and be responsible to the Division in a

which may be referred or assigned to them by the Division 

tions or the Shipping Control Committee reporting to the 

of Operations all matters concerning finance management 

which includes manning supplying physical upkeep and re

and the transfer of ships to or from operating companies

2 To represent and report to the Shipping Control Commi

ters pertaining to the allocation of tonnage to cargoes and tr

other matters specifically assigned

3 To cooperate closely with other agents in matters pert

their respective localities Agents thus represent each oth

same manner as if acting in the capacity of a sub agent

One variation from the direct line of responsibility has bee

essential in the assignment of accountants to the various 

The Comptroller of the Division of Operations assi n to eac

such auditors and disbursing officers as may be necessary pr

account for expenditures in accordance with the instruction

Director of Operations These accounting officers are dir

sponsible to the Comptroller but subject to the control of t

in the district involved in all matters not contrary to orders 

lations of the Comptroller

It is through this network of agencies that the Division o

tions is managing and controlling practically all shipping 

American ports with a constant eye for efficiency of operati

consequent saving of tonnage and time

New fora Agency Agreat part of the actual work of o

vessels under Shipping Board control must obviously be d

New York the port of departure and entry of most of the 

An organization is therefore maintained there to handle s

vessels which it is not expedient to put in the hands o

operating companies This management comprises the 

physical control and repairing of the vessels the enga

supervising of crews the supplying of provisions and the fu

of stores The New York Agencv acts in close cooperat

the Board of Consulting Engineers and the Chartering C

which occupy adjoining offices The administrative office 
SECOND ANNUAL REPORT UNITED STATES SrIIPPING BOA

agency includes an Admiralty Attorney who advises on le

ters that arise from the operation of vessels an Ac

Officer who acts as the New York representative of the 

troller of the Division of Operations a Shipping Anent who 

officers and crews for operating the vessh and a Deputy 

Commissioner who represents the Bureau of Navigation 

charge of relations between masters and seamen In additi

are certain sections of the wnrk in charge of a general superin

a superintending engineer purchasing and commissary dep

fleet surgeons and the superintendent of guards The Ne

Agency prepares the following valuable charts 1 A daily 

chart giving name tonnage speed protective device port 

of arrival and prospective trade of every agency ship in p

port and date of departure estimated date of arrival and o

tails as to ships at sea 2 a inonthly summary showing the 

plishments of each vessel 3 voyage records for each s

logs and particulars as to cargoes victualing charts sh

detail the cost of feeding officers and crews Valuable data 

from these charts which is of use in increasing the efficie

diminishing costs of operation

BoFfon AgencyShortly after the organization of the New 

Coal Barge and Towers Association it developed that th

engaged in the New England coal trade could not adequately 

the tonnage necessary to meet the demand for fuel grently ne

the textile mills munitinn plants and other industries en

Government work throughout New England Several of the 

regularly enraged in the coal trade had been withdrawn fr

service and allocated to other service and these colliers were 

by other tonnage to assit in maintaining the uornlal fuel 

But the demand for fuel increased with the intensified war in

throughout New England and in order that these plant 

with other public utilities should not be overcome by the 

situation they were facing in the matter of fuel shortage a

steam tonnage was assigned to the New England coal trao

crease the movement of fuel from tidewater points to p

distribution through the New England State

Tentative arrangements were made by the Diviion of O

with the supervisor of the New England Coal Barge and 

Association for the direction and operation of this addition

tonnage in the coal trade until the number of steamers emp

this service reached such proportions as to require the Div

Operations to be officially represented in Boston to keep jur

over the operation of these steamers in the New England d

The establishment of the Boston Agcncy absorbed the o

tion of the New England Coal Barge and Towers Associa
60 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

the supervision of the operation of this part of the coal carry

was maintained as a separate division

The New England Fuel Administration applied for additio

nago to transport the full quota of fuel necessary to avert a r

of the serious fuel shortage of the winter of 101713 In res

this application the Shipping Control Committee and the D

Operations allocated additional steamers to operating agent

ployment in the New England coal trade and there are 

steamers engaged in this trade

The fleet is composed of requisitioned American requ

Dutch exGorman Danish Swedish Norwegian and new 

lake steamers togethor with carious Panama Itailroad collier

steamers are assigned for charter at regular meetings of the 

committee of the Federal Fuel Administration of New Engl

The Boston Agency is kept fully and promptly informed 

operators of steamers as to their position and movements and 

this arrangement steamers are being operated at their m

efficiency

The port officials of the Boston Agency maintain repair m

victual all United States Shipping Board steamers as we

requisitioned Dutch steamers

In addition to directing the operations of the steamers an

in the coastwise coal trade the Boston Agency also repres

Division of Operations in New England and acts as agen

Shipping Board steamers operated by other agencies

San Francisco branchThe branch of the Division of O

at San Francisco is not analagous to the agencies at oth

Because of the importance of the Pacific district and the g

tance involved a branch has been established there which 

the supervising office on the Pacific and which reproduces th

ization features of the Division of Operations at Washingto

The chief duty of the San Francisco branch has been to lo

the interests of the United States in its trade with the Or

Australia As most of this trade is carried in foreign vesse

particularly desirable to safeguard the interests of the P

and Hawaiian trade against discrimination or neglect Th

lem was made more difficult by the diversion of many of 

vessels formerly engaged in this trade to the Atlantic for 

purposes The Hawaiian sugar crop was finally taken ca

using fishing and coastwise vessels The Alaska Packers 

vessels were requisitioned and used to carry the sugar crop 

released to their owners in time for the fishing season wh

from April to September Considerable reallocation of ves

been made on the Pacific Steel steamers are now used on

long steaming radius is necessary and they are being rapidly 
SECOND ANNUAL REPORT UNITED STATES sTIIPPING BOA

by wooden vessels built on the Pacific coast for the Emergen

Corporation The larger vessels built on the coast are trans

the Atlantic for military purposes

Trade with the Philippines especially in sugar hemp co

cocoa oil has been handled principally by the passenger an

steamers of the Pacific fail Steamship supplemented by 

steamers from the IIawaiian trade and by using exGerma

vessels as well as neutral ships subject to trade restrictio

Alaska Packers also turned over one vessel for this trade A

at least one passenger steamer voyage a month for the Phili

provided Freight rates to the Philippines have been held 

tively lower levels than the rates to other trans Pacific des

with comparatively small advances

There have been no serious labor difficulties affecting shi

the Pacific coast No strikes have occurred and all dispu

been settled by local boards without appeals to the Nationa

ment Commission

Great Lakes vesselsAs noted in the first anmial repo

board p 17 the Great Lakes have contributed considerab

merchant fleet built for war purposes Sixteen shipyards 

chiefly steel vessels are located there and are producing 

which will be transferred to the coast for oceangoing servi

sels have been commandeered from the Great Lakes fleet a

ferred to the transAtlantic service In many cases thes

were too large to be brought through the locks of the cana

was necessary to cut them in two and put them togethe

St Lawrence These vessels were put together while afloat 

neering feat never previously accomplished Considerable 

also had to be undertaken to prepare these vessels for oce

service

To mobilize the remaining Lake vessels for the nmA effic

zation the leading owners have formed a voluntary Lake 

Association which directs the movements and distribution 

freight on the Lakes and cooperates with the Shipping B

freight rates and other matters

Maritime Intelligence Department of the Division of Operations

The Department of Maritime Intelligence of the Division 

ations was created by the Shipping Board to secure clas

analyze information concerning coastwise and foreign tra

department collects information regarding the number 

of ships the amount season and importance of the com

which they are engaged and similar information bearing 

question of what commerce or portion thereof must be m

and what vessels may be temporarily or permanently di

strictly war trade with the Allies
62 SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

By means of data seenred from American collectors of 

statements from owners of vessels and information received 

the United States Navy and the British Ministry of S

a record is kept of the movements of all American seagoin

and of every foreign vessel that touches at American ports

In order that information may be available at all times re

the growth of the merchant marine the number of foreig

under charter the assignment of vessels arrival and c

etc the Board is kept regularly informed by the department 

the following compilations Ships in port showing arr

clearance at American ports in foreign trade Exact Loc

all Ships in which the Shipping Board is Interested Ass

Chart giving distribution of ships in various trades Expe

iveries of Steel and Wood Steamships List of America

under requisition to the United States Shipping Board F

ships under Charter to the Shipping Board Charters A

by the Chartering Committee of the United States Shipping 

Deliveries of Steel Seagoing Steamships from Great Lakes 

and 11 List showing ships removed from owner sservice or as

Operating Companies A complete file of all ships plans 

able for the use of such departments as may need them

Assignment of Vessels

In order to develop organizations capable of handling 

business of the great American merchant marine which 

built the Shipping Board is encouraging private enterprise 

assign tonnage to those who are in a position to properly ha

vessels and in whom the Shipping Board has confidence rat

build up new governmental agencies to do the work For 

purposes these assigmnents have been divided into two 

namely

Assignments to managers whose duties cover the engagin

cers and crew purchae of consumable stores deck and eng

supplies and general attention to the steamer from a huss

shipowner spoint of view

Assignments to operators whose duties are to attend to th

and discharging of the cargo pacing all port charges givi

tion to the proper stowage of the cargo collection of fre

murrage etc and in general terms to operate the steam

same manner as if she were under time charter to them

Both managers and operators are only acting as agent

Division of Operations of the Emergency Fleet Corporation
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

The tonnago may be divided into the following groups

1 New ships built by United States Shipping Board

2 American ships requisitioned on bareboat form of 

3 American ships requisitioned on time form of chart

d Seized German ships

5 Commandeered Dutch ships

G Chartered neutral ships

Military requirements draw from all groupq and ships a

to Army or Navy service are now for the most part exceptin

tered neutrals manned by the Navy hence neither commerc

agcrs nor operators are nominated for such vessels

The Dutch vessels not allocated to army or Navy ser

manned by Shipping Board agencies but operated by 

private steamship organizations for the Board saccount

The vessels requisitioned on time charter form are as far 

silde assigned to their owners to operate

The time chartered neutrals when not allocated to army 

or Belgian relief service are also assigned to existing st

organizations for operation

Whenever possible tonnage under bare boat requisition ch

asinod to the owners to manage and operate

The seized German ships not allocated to the Army or N

mana red by Shipping Board agencies but operated by priva

panies

Several of the seized German ships have been allocated 

Philippine Government and Panama Railway operations

All assignment are passed upon individually by the B

each cage and entered on its minutes These arrangements fin

form in agreements made by the Division of Operations 

Emergency Fleet Corporation with mnnngers and operators 

which managers are paid a fixed monthly fee and operators 

centage of the gross freight or a lump sum based on trade an

carried and services rendered

Operators are at all times subject to the orders of the S

Board as to voyages cargoes priorities of cargoes charter

of freight and other charges and all matters arising out of 

of the vessel

Managers and operators account to the Comptroller of the D

of Operations of the Emergency Fleet Corporation for all 

expended and collected in connection with the operation of the 

The Shipping Board may terminate the assignment of the ves

21 hours notice and the operator may terminate the agreem

30 days notice Bonds may be required of operators and d

growing out of the agreement are referred to the arbitration o
64 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

men one chosen by each party to the agreement and the th

by these two

Financial Department of the Division of Operations

It is the function of the Comptroller sdepartment to 

disburse all the expenses of the Shipping Board includin

aries and official expenses of its officers and employees 

ceive disburse and audit all the accounts of the Division 

tions It has nothing to do with the fiscal affairs in conne

ship construction which are in charge of the Comptro

Emergency Fleet Corporation

The work of the department covers the auditing of v

counts revenue auditing charter hire and freight reven

deliveries and movements accounts of vessels requisitio

auditing to avoid extravagance and profiteering the p

of financial statements and balance sheets and many detai

of vouchering and bookkeeping In general the division k

of all charters contracts income and expenditures and 

all proper income is received according to the legal oblig

curred and that all expenditures are for proper purpose 

erly vouchered and audited

The most important financial operations at first were th

concerned the repair of the German vessels and the rather 

operating activities placed in charge of the New York age

payments for these emergency activities in the absence o

cific appropriations were made out of the 100 0 fu

at the disposal of the President to be expended at his disc

the national security and defense By the urgent deficienc

June 15 1917 a fund of5000 was made available for 

tion of ships

The extraordinary conditions attending the early operat

ties of the Shipping Board presented unusual difficulties in 

and supervising accounts Owing to the fact that the shi

all parts of the world great delays are involved in obta

necessary vouchers for disbursements in distant ports 

culty inherent in the shipping business has been accen

the imperative demands of the war emergency Since th

of the country had to be suddenly marshaled for the prosec

gigantic overseas war the first efforts were devoted to the 

tion and operation of ships with a resulting volume of bus

made it difficult to keep the accounting abreast with the bu

operating activities

During the past year in spite of these difficulties impor

of organization have been accomplished rules and regula
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

been promulgated for accounts pertaining to the operation 

by United States consuls acting as agents of the Division o

tions standard forms of agency accounts have been prepa

instructions for agency accounting issued a system of 

registers journals and many forms of special ledgers have 

into operation accounting plans have been made to cove

deliveries and provide for the payment of charter hire a

siderable progress has been made in remitting payments on a

accounts to shipping companies The financial statement 

the accounts of the Comptroller sdepartment will be foun

appendix Table III

THE SHIPPING CONTROL COMMITTEE

As the scarcity of tonnage for both military and commer

poses became more and more apparent especially after the 

States entered the war the necessity for unified control bec

creasingly obvious In 1917 the Shipping Board through i

sion of Operations made a beginning of shipping control 

result of gradual developments in which the cooperation 

allied governments was obtained the Shipping Board finally 

ruary 11 1918 acting in conjunction with the War Departm

ated the Shipping Control Committee of three men one o

represents the British Ministry of Shipping

Briefly the powers delegated to the Shipping Control Co

may be grouped under two main heads 1 As the agen

Shipping Board it allocates the vessels owned by and un

control of the Shipping Board to cargoes and trade routes 

use the available tonnage to the maximum efficiency in t

essential trades 2 As the agent of the War Department t

mittee has entire charge of the operation of the fleet o

steamers engaged in transporting military material to the A

Army abroad This involves the upkeep manning supply

actual operation of the vessels assigned to the Army for ca

poses

The Shipping Control Committee therefore controls a 

about 1356 vessels of7224 862 dead weight tons Sept 30 

This number includes all vessels chartered to and requisitio

the Shipping Board as well as those owned by it

In order to carry on the vast amount of detailed work w

necessary for the efficient operation of this fleet the mach

the committee has been highly systematized A large staf

perts has been employed to carry on the technical work of t

8842718
66 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

mittee while the work in which the Army is directly int

carried on by a detachment of the Quartermaster sCorps

In order that the members of the committee may at all t

the information necessary to enable them to arrive at pr

clusions regarding the allocation of tonnage and in order 

the machinery with which to carry on the committee swo

ments have been constituted at the heads of which are civ

are prominent men in America sshipping These depart

tain and tabulate all the information possible accordin

particular branches of the work in which they are conce

from their records the information is supplied to the com

required The departments then carry out the allocation o

in accordance with the rulings of the committee

The greater part of the work is carried on by the D

Trades and Allocations through its subdivisions The d

charged primarily with the duty of assigning tonnage eit

or sail owned by or under the control of the United States 

Board for the movement of the country sessential import

ports This involves the distribution of a large volume o

to take care of such important requirements as nitrates m

ore sugar hemp wool hides tanning extracts and as the 

shipment of these commodities extends over the entire g

importance of the work must be apparent The committe

control over the place where new tonnage is tendered to it 

be on the Pacific or on the Atlantic and the employmen

ships until they get into a position to take care of a use

movement becomes at times a rather serious problem whic

with directly by this division The division is also char

the coastwise movement of coal to New England a trade 

a vast amount of tonnage and most careful supervision

The branch of the Division of Trades and Allocations 

of the allocation for trans Atlantic and trans Pacific ton

up to September 30 1918 allocated 125 vessels of a total dea

tonnage of 92801 These vessels have carried cargo amo

882 563 tons of which 110 81 tons were moved west and th

was moved east

The committee has charge of the allocation of all tankers 

controlled by the Shipping Board These steamers carry p

various kinds of oil although a small percentage of the 

is devoted to the carriage of molasses in bulk This bran

keep in touch with the status of the oil supply and stocks 

so as to determine where the tonnage must be allocated in 

obtain the maximum results The average monthly tonnage 

ers handled is approximately1400 0 tons dead weight
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

The branch of the Division of Trades and Allocations 

handles the trade with South America and the West Indies o

a tonnage of approximately 750 00 tons dead weight Fixtu

made for the carriage of coal and coke and some vessels are 

on a berth for general cargo A record is kept of the movem

all vessels to South America and the West Indies their ar

carious ports is reported to the committee and provision i

for their future movements in accordance with the instruction

committee General instructions are issued to operators re

the class of cargo that should be taken by vessels that are pla

berth and detailed instructions are given as to the nature o

that should be lifted on individual ships The more im

commodities moved together with the amount thereof up 

tember 30 1918 are nitrate 1274 96 tons copper includin

120 00 tons coal 1350 00 tons Other commodities hand

quebraco extract hides canned meats linseed sugar ir

manganese ore sisal fruit coconuts coffee sulphur and 

phate rack This branch also cares for transporting to the P

Canal by steamers that are assigned to load nitrates from t

coast of South America practically all the coal that is ne

the canal Up to September 30 1918 493 540 tons of coal h

moved to the canal by this service

The branch of the Division of Trades and Allocations in ch

sailing vessels keeps a complete record of the position of al

vessels irrespective of flag and follows up the dispatch of al

tonnage It also handles all matters pertaining to sailing 

under charter to or owned by the United States Shipping Boa

to September 30 1918 this department had under its direct 

185 sailing vessels and 4 steamers the latter being used to tow 

sailers in the nitrate trade

The Division of Despatch with branch offices at Boston 

delphia and Norfolk and with agents at all of the Atlanti

keeps in touch with all vessels in which the Shipping Bo

Shipping Control Committee are interested submitting repo

ering the handling of each steamer from the date of arrival u

date of departure and giving detailed information as to the d

ing and loading and also as to all delays This work has res

increased efficiency on the part of all operators at the variou

The division also assists operators and owners in securing 

clearance crews harbor equipment and drydockace prior

even acts as agents for the owners when necessary Up to Se

30 1918 it bad investigated and reported 602 steamer 

Besides the above work the division keeps a detailed daily 

showing the status of steamers in the New England coal c
68 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

trade The division was originally part of the United Sta

ping Board Emergency Fleet Corporation but was consolida

the Shipping Control Committee on March 16 1918

The effects of the committee swork have been far reachin

of the economy which has been obtained in the use of tonn

a result in large part of this economy there was made ava

tonnage to carry to France the large number of men and 

of supplies for the Army which were sent over during the 

months

The committee has removed from all essential trades every 

over 5000 tons capable of going trans Atlantic and mainta

necessary convoy speed The results that have been acco

in bringing the necessary imports into this country have bee

accomplished with chartered neutrals and sailing vessels 

portion of the American fleet which is not capable of going 

Notwithstanding the fact that it was necessary to rely upon 

lowest class tonnage in view of the Army necessities the 

Control Committee has nevertheless succeeded in carrying 

program laid down by the Division of Planning and Statis

necessary requirement of the Nation sneeds

CHARTERING COMMITTEE

When the Shipping Board decided to adopt the requisi

gram whereby all steam vessels of 2500 tons dead weight 

came under its direct control it was realized that steps wo

to be taken to bring the balance of our merchant marine i e 

of less than 2500 tons dead weight and sailing ships u

direction

In addition there was also the fleet of neutral vessels st

sail trading to and from the United States which it was n

to supervise closely in order to have it engage in services mo

tial to the United States in the prosecution of the war an

sonable rates of freight

On September 6 1917 the Shipping Board resolved that n

should be chartered to an American or neutral without the 

of the Shipping Board and on September 29 1917 a C

Committee of three was appointed to administer this contro

The committee has exercised its power with several mai

in mind First to induce neutral tonnage to assume its fair 

trans Atlantic trade second to effect a material reductio

high charter rates prevailing especially in trans Atlantic 

in South American and oriental trades and third to secure 

for the trades and commodities that are considered most n

under present war conditions
SEOOND ANNUAL REPORT UNITED STATES SHIPPING BOA

The committee has the authority to approve disapprove 

turn for revision all charters not under the direct contro

Shipping Board It also fixes outward and homeward chart

and in large measure decides the freight rates to be charged 

chandise shipments Acting in concert with the Shipping Bo

the Shipping Control Committee it decides where tonnage 

used to best advantage and secures it for such purposes

On March 29 1918 the Shipping Board informed A

charterers of neutral ships that they must carry such carg

such voyages as might be directed by the Shipping Board a

if they declined to do so the Shipping Board would requis

charters of such ships

While the Chartering Committee had secured effective co

far as charter rates which are the basic ones are concerne

found that this did not go far enough in bringing about con

reduction in berth rates by which is meant the rates charg

vidual shippers on a particular vessel Reducing the basic or 

rate while it tended to force berth rates downward and did 

left the situation open to the rapacity of the charterer wh

first instance secured the tonnage at the reduced basic rate 

still continued to charge individual shippers the rates th

current prior to control

Realizing the need of correcting this situation the Shippin

on April 18 1918 resolved that thereafter no charters of 

vessels should be made except to the Shipping Board The S

Board knowing the costs and having the vessel in absolute 

was then in position to fix berth rates in keeping with the 

charter rates which has removed the criticism that atten

former ineffective supervision

Since that date one of the principal duties of the comm

been to effect charters of neutral tonnage for account of the 

These include both time and voyage charters

It has been the endeavor of the committee to secure this 

on terms most satisfactory to the Shipping Board as charte

negotiations with foreign owners are conducted with the same 

for getting it as reasonably as possible consistent with fair tr

to the owner as would apply in ordinary business

In effect the basic chartering of neutral steam tonnage f

done by the entire country has been centralized in this co

This action of the Shipping Board does not mean that the 

will operate the vessels themselves forthough the vessels are c

to the Shipping Board they are assigned to American shippi

panies for operation for the Shipping Board s account T

operators who receive compensation on a commission basis a
70 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

direct control of the Shipping Board in handling the ve

these carry cargoes as designated by the Shipping Board

The bulk of the time charters effected for account of t

is for periods which give it freedom of action in shifting t

about enabling the tonnage to be used in trades deemed m

tial at the moment

To date the committee has chartered 320 steamers of14032

dead weight Of course this large total includes vessels re

In addition to steam tonnage 55 sailers totaling 1291 t

been chartered

In illustration of the wholesome effect control has had o

may be pointed out that in 1917 prior to the formation of 

tering Committee time charter rates for trading between t

States and South America reached the unprecedented figure 

per dead weight ton per month The South American m

vital to us for its ores nitrates copper etc bad been mo

neglected by the foreign owner for other trades that yie

greater rewards and the resultant scarcity of tonnage force

rates on merchandise moving between the United States a

America to extreme levels bringing in its train specu

manipulation in freight room Through gradual reduction

ter rates and by employing means available to them the C

Committee succeeded in bringing about a readjustment T

time charter rate for neutral vessels trading between th

States and South America is 833 a reduction from the fo

level of more than 30 per cent

A sufficient amount of tonnage was diverted to this ma

the result that there has been a constant flow of importat

much needed commodities from South America

The berth rates are now down to such levels as 35 a t

from Buenos Aires by steamers and 30 by sailers where 

while uncontrolled these rates had reached 100 a ton

The Statistical Department of the Chartering Committe

its work and keeps a permanent record of all its decisio

reports are prepared covering charters approved disappr

celed or returned for modification and a record is kep

individual charter approved These reports are forwarded 

to the various departments of the Shipping Board W

Board and other interested Government organizations

Special reports on specific trades are periodically ma

United States Food Administration the Joint Committee 

Indies Transportation the Shipping Control Committee 

departments as required

The indirect control over American vessels not requisitio

cised by the Shipping Board through the Chartering C
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

with the aid of the War Trade Board scontrol over granting 

for bunkers and stores for imports and exports and through 

toms and inspection service of the Treasury Department wa

a direct control by the act of Congress approved July 18 191

act grants to the President or the agency designated by him 

to approve or disapprove of the charters of all vessels of the 

States of any specified class or description to determine a

scribe reasonable freight rates and conditions of transporta

prescribe priorities in transporting goods by water control p

ment of bunker fuel etc The President may by proclamation 

these provisions to foreign vessels under charter to United 

citizens and may require that no citizen of the United Stat

charter any vessel of foreign nationality unless the charte

proved by the President or his authorized agent By procla

of July 29 1918 the President delegated to the Shipping Bo

authority to pass upon charters A penalty of fine imprisonm

both now enables the Shipping Board to exercise direct cont

the chartering of the small American vessels not taken over b

well as over the freight rates charged the cargoes carried 

chartering of foreign vessels by American citizens The procla

does not apply to small vessels ie sailing vessels under 50 

steamers under 250 tons nor does it cover vessels in the 

Lakes rivers or inland waterways nor those engaged exc

in the coastwise trade

During the year ending September 30 1918 the committee 

upon 7139 charters of which 5201 were approved and 1878 w

approved canceled or returmil for modifications Of those ap

2081 were for steamers and 2580 for sailers In the followin

the charters approved are given by flags It will be seen 

American Norwegian and Danish flags predominate

Charters approved by the United States Shipping Board Chartering C

front Oct 1 1917 to Sept 30 1918

Number of char

Nationality Steam I 6alang 

American 599 1674 

Brlish

11 255 

Danish 911 103 

Dutch 124 24 

French 3 83 

Inpmese 60 

Mixeilaneous 40 65 

Norwegiao 754 354 

6wediah

147 22 

Total 2 6C1 2 SRO 

Estimated dead weight tonnage 1006 49 3741 465 
72 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

PORT AND HARBOR FACILITIES COMMISSION

The Port and Harbor Facilities Commission was crea

resolution of the United States Shipping Board dated 

1915 to meet a need developed by existing conditions T

had found congestion at some ports while others were idl

found delays in the dispatch of vessels due to inadequate 

cargo handling facilities as well as to the lack of effective u

of those already provided It had found that present coa

ing and repair facilities would soon prove entirely inade

the rapidly growing merchant marine It saw a need for 

tral authority to collect and furnish information regardin

stimulate and guide sentiment and action looking towar

port development and control and to make recommenda

plans for the most effective utilization of each port to 

needs of the great maritime commerce of the United State

tremendous fleet of merchant ships

The Commission has begun investigations as to harbor a

nal facilities in every port of the United States and the 

tive cost and efficiency of various methods of handling 

cargo It is inquiring into the location and quality of 

able for bunkering so as to obtain types most efficient f

ing purposes and to secure maximum speed for ships 

for dry docks and repair plants has been studied as well 

ties for coal storage and bunkering at the various port

reports are obtained as to the use of present piers d

and repair plants which show where idle or misused 

exist to which tonnage may be sent Mechanical devices 

and cargo handling are being investigated so as to secure 

efficient terminal arrangements possible Representatives o

the leading manufacturers of light and heavy coal and c

dling and conveying machinery have been assembled and 

ganized cooperation has been secured in the improvement o

design and construction Fueloil storage and bunkering 

are also being investigated

The Commission realizes that a general coordination o

minal facilities is necessary for an economical handling of th

trade of the United States and that without such coo

our newly developed merchant marine can not operate 

greatest dispatch A study of the routing of shipments 

given special attention on the basis of obtaining facts r

the points of origin and destination of all export and imp

ness so that plans may be worked out to secure the shortest 

expeditious movement of freight and to provide reciproca
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

wherever possible The Commission recommends the poolin

harbor facilities at the principal ports and the appointm

each of a dictator to have absolute authority over all termi

floating equipment for the period of the war

Local and State port authorities are being advised and t

terest as well as that of the public generally is being stimu

port improvements and to this end all available informa

value regarding port conditions is collected and distributed 

ble firsthand suggestions obtained by a thorough inspec

English and French ports have been brought back by the ch

neer of the Commission who has just returned from abroad

One of the important phases of the Commission sactivity h

that of carrying out a systematic inspection of ports The C

sion has inspected or caused to be inspected by its agencies t

of New York Philadelphia Boston Portland Ale Wilm

N C Charleston Savannah Brunswick Jacksonville San 

Los Angeles San Francisco Tacoma Portland Oreg and 

After a thorough investigation of conditions and of individ

posals the Commission has recommended to the Shipping B

construction of dry docks or marine railways and commens

pair plants at Boston New York Philadelphia Norfolk Pe

Astoria Oreg Seattle Portland Oreg San Francisco 

Angeles and has arranged for the conversion of five bar

floating repair plants for use at New York Norfolk Phila

and Baltimore

The Commission has also secured authority for the purcha

coaling machines for more speedy bunkering at Hampton Ro

has arranged to have 10 new steel tugs reinforced for the 

ready for ice breaking in the coming winter

Authorization has been secured for the immediate con

by the Emergency Fleet Corporation of two 20000ton a

10000ton floating dry docks which are to be located in t

where the need is most urgent

The Commission is doing work which is of vital importanc

successful prosecution of the emergency shipping program 

the solution of after thewar shipping and trade problem

studying trade and traffic conditions with a view to secu

most efficient distribution of business among the various port

providing such special appliances and conveniences as may 

foreign trade It is endeavoring to work out a consistent 

enabling the country to use all its available port facilities 

present full capacity to develop them to a higher efficienc

provide additional facilities of the very best type
74 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

DIVISION OF PLANNING AND STATISTICS

In order to act upon the best scientific guidance in the con

and maximum utilization of tonnage for essential war 

the Shipping Board on May 13 1917 ordered that inf

should be compiled as to the needs for tonnage of the vari

modities coming into the United States and that data s

gathered showing the supplies of each kind of article ava

shipment and for use in the United States the vessels en

such trades and similar facts

By the end of 1917 it became evident that considerable 

must be diverted from commercial to military use and 

as remained in trade must be utilized to maximum efficienc

carrying of such commodities as are most essential to th

under war conditions

This program required the close cooperation of various 

mental agencies especially the War Trade Board the 

Board the War Industries Board the War and Navy 

ments the Department of State the Treasury Departmen

Food Administration Since the departments directly 

were the War Trade Board which has authority by its 

system to prohibit or restrict imports and the Shippin

which controls the tonnage a Division of Planning and 

was established by the Shipping Board on February 11 

secure the necessary information and the director of this 

was made a member of the War Trade Board

The duties of this division are to keep a record of the m

and characteristics of ships and to plan voyage schedules s

Board may use all ships to the limit of capacity to ob

available figures and through the advice of experts and 

men knowledge of the commodities imported their esse

substitutes possible sources of supply and their relation to 

perity of this and other nations so that the ships left in co

service after the Army needs are satisfied might be assign

Board to the most essential trade routes The services of 

experts were engaged for the Board as well as experts fam

commodities sources of supply trade routes and shippin

It soon became necessary to secure information from t

and importers affected to cooperate with them as far as pos

to educate them to the demands of the war For this 

Trade Hearings Section was established in March 1918 an

because of the nature of its work was transferred to the W

Board Building On account of the special importance o

products in time of war the large demand on ship tonnage 

in their importation and their significance in the work of th
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

dustries Board a joint committee on minerals represent

Dlineral Section of the War Industries Board and the Divi

Planning and Statistics of the Shipping Board was created 

ary 1918 to make recommendations to the War Trade Boa

cerning necessary importation of minerals especially those 

the manufacture of munitions In June this committee wa

ganized and its scope broadened in order to develop better c

tion in the mineral work of the several war boards The ch

of the former committee became mineral adviser for the W

dustries Board but continues in advisory charge of the work 

Shipping Board This group now serves as a clearing house 

eral questions especially those related to import and export 

Shipping War Trade and War Industries Boards

The work of the Division of Planning and Statistics has de

along two important linesfirst the study of commodities an

and second the study of ships and their employment Un

first heading comes the investigation of all the factors affect

import program such as uses of commodities possible sub

stocks on hand essential requirenfents of Government and c

cial bodies countries and ports of origin and shipping requ

import On the basis of these studies lists are prepared of 

to be prohibited or restricted In general no import licen

granted by the War Trade Board for luxuries and articles cla

nonessentials in war time and even strictly essential impo

reduced to a minimum

From time to time the division recommends to the War 

Board such revisions of restrictive rulings as changing condit

unforeseen developments warrant So far as possible it is de

act in cooperation with the trades affected and in hearings 

trade agreements have sometimes been made by which im

bind themselves to support certain restrictions

It has been found necessary to have at hand the significan

concerning current imports and accordingly a regular mont

tenday tabulation of quantities and sources of all essential i

is carried on by the statistical staff of the division The move

restricted commodities is watched and many special stud

prepared such as reports on the effects of restrictions upon th

of the United States with foreign countries the tonnage n

Pacific countries the oil and coal bunkering facilities of the 

the general problem of ballast for sailing vessels the transpo

of oil the tanker building program and the balance of the 

and export trade of the United States with various regions

It is often necessary because of the shortage of shipping in 

areas to recommend priorities among essential imports from 

countries or ports to make studies of the trade of entire 
76 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

with a view to eliminating erosshauls efficiently combini

and defining standard shipping routes to advise the d

tonnage to more essential commercial or military uses an

on the cargoes of ships already waiting at foreign ports

The statistics compiled on ships and their movement co

variety of facts The division has on file special informati

from the sources concerning the number and types of ve

age draft size cargo capacity speed motive power m

construction number of decks holds hatches fuel consu

Records are kept of the daily movements of ships in all p

world of the dates and ports of entry and departure and t

employed in the different trade regions Charts and dia

prepared to show the assignment of vessels to given trades 

of voyages and stays in port the performance of vessels 

carrying specified commodities etc

Directly connected with this work on ships are many spe

on such subjects as the control of vessels chartering and s

in losses and acquisitions of merchant ships the efficiency 

of different sizes the movements of ships and cargoes by p

erage and stowage repairs and underloading as well as 

the suitability of American vessels and foreign vessels un

ican control for transfer from trade to Army use and from 

to another

The work on commodities and on ships heads up in 

monthly survey of the shipping and import situation i

balance is struck between the tonnage required to lift nec

ports from the various trade regions and the tonnage a

service in those regions Important special studies coord

phases of the work likewise as for example the comprehen

on the relation of the shipping situation to the propose

program which dealt with available tonnage limiting fac

shipbuilding program the types of ships needed and im

of port facilities

The Division of Planning and Statistics acts as a gener

house for information needed by the Shipping Board in t

phases of its work Information regarding the shipping 

is furnished regularly to the Allied Maritime Transport 

London with which close contact is maintained Data 

ship cargoes trade regions ship movements and import 

furnished daily through a resident representative to the 

Control Committee in New York to serve as a basis for i

allocating Shipping Board vessels to cargoes and trade ro

division also cooperates closely with the Chartering Com

guidance in its policy with reference to neutral vessels and 

steam and sailing vessels The problem of manning our ne
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOAR

tile fleet is being worked out by the Recruiting Service of th

sion and a group of experts is malting a detailed study of 

freight rates

In June 1918 a coordination of the Statistical and Inform

Services of the Shipping Board the War Industries Board a

War Trade Board was effected The Director of the Divis

Planning and Statistics of the Shipping Board was made he

similar division of the War Industries Board and the Bure

Research and of Statistics and Tabulation of the War Trade 

were placed under his direction In this way much duplica

securing data and holding hearings is prevented and the in

tion secured by each Board can be easily placed at the disp

the others Certain investigations begun by the Division o

ning and Statistics of the Shipping Board such as that on 

have been transferred to the other Boards which they more 

concern Certain other investigations such as the revision 

commerce classification of imports and exports have been und

in cooperation with the several Government bodies

LAW DIVISION

The Law Division of the Shipping Board advises the Bo

legal matters and handles the current legal work arising ou

Board s activities By resolution of the Board it is also 

with the law work of the Division of Operations of the Em

Fleet Corporation To aid in this purpose legal representat

stationed at several of the important branch agencies of the C

tion notably at new York and San Francisco to handle th

tions chiefly of admiralty law which arise in connection w

operation of Shipping Board vessels

The Law Division furnishes legal assistance to the vario

sions and bureaus of the Board It handles the preparation 

ters requisition papers operating agreements and contract

necessary by the Board scontrol over shipping and assists in th

aration of needed legislation for Congress It also renders as

in some activities not of a strictly legal character such as 

relations with the State War and Navy Departments t

Trade Board and other Government departments or bureau

tions relating to the transfer of ships to foreign registry the 

of ship construction contracts for foreign account and relatio

the Cable Censor soffice

Among the important questions with which the Law Divis

been concerned in the past year are the following The problem

compensation for vessels the title to which was requisitioned 

Shipping Board or which were lost while in its use the examin
78 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

title papers covering vessels requisitioned discussions with 

and Navy as to terms on which Shipping Board vessels are 

turned over for the use of those departments and as to 

ning and operation of such vessels arrangements with fore

tries including Japan Uruguay and Peru for securing 

examination of ocean freight and charter rates question

with the Railroad Administration over coastwise vessels t

by it requisition charters and agreements covering the op

tankers and fruit vessels the legal questions involved in 

mandeering of the Dutch vessels and the disposition of 

goes the compensation of employees of the Shipping Boa

Division of Operations of the Emergency Fleet Corporation 

injured or tilled by accident in the course of employment 

ing of the new legislation adopted by Congress during 

amending and strengthening the provisions of section 9 of 

inal shipping act which prohibits the transfers of America

to foreign registry during the national emergency and 

for the regulation of charter and freight rates and the c

charges and services for dry docks and terminal facilities 

many incidental legal questions to which the requisition of 

vessels and the operation of the vast merchant fleet controll

Board naturally give rise

The Admiralty Section of the Law Division takes cha

cases of collision stranding salvage general average a

maritime questions especially those arising in connection 

operation of vessels All such cases are directed in their pr

stages and any actual litigation resulting therefrom is re

the Department of Justice In that Department there has 

been appointed a Special Assistant to the Attorney Genera

with the responsibility of handling all admiralty litigation 

the Government is interested whether originating in connec

vessels operated by the Shipping Board or in connection w

operated by the War or Navy or other departments

REGULATION OF RATES

The function of the Shipping Board as originally con

by the shipping act was essentially one of regulation and a 

able portion of its first annual report was devoted to the reg

rates and practices of water carriers See First Annual R

United States Shipping Board pp 2 29 At present th

tory functions of the Board have been subordinated to the 

construction and operation In this process the Shippin

by requisition charter purchase and construction has secu

control over a large part of the American merchant ma

through the Chartering Committee exercises considerable 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

over the remaining American vessels and over neutral t

Foreign freight rates for American commerce therefore are in 

measure determined by the Shipping Board The Board c

to exercise regulatory control over the rates regulations an

tices of interstate coastwiso water lines operating on regula

from port to port except as such control has been restricted 

aforesaid requisitioning of vessels and the taking over by th

road Administration of several coastwise lines which had pre

been subject to the jurisdiction of the Board

During the past year the Division of Regulation has also bee

ested in the reorganization of the New England coal transp

service increasing the efficiency of tugs and barges engaged 

service over 40 percent Long Island Sound barge operators h

conferences with the division and have made arrangements to tr

considerable tonnage through the inside routes Bunkering 

ties at Ilampton Roards were also increased to relieve con

and a considerable net profit is derived by the Shipping Boa

the facilities it has installed there

The chief difficulties during the past year arose on the 

coast with special reference to increased rates between Alas

Puget Sound ports and the question of tonnage for the A

trade In Afay and June 1918 a number of hearings were 

the examiner of the division at Seattle and other Pacific coa

on complaints as to Alaskan freight rates and the Alaskan t

situation A report in the premises is now in process of prep

A considerable number of complaints have been settled 

the year by correspondence and negotiation Three forma

are now pending

RECRUITING SERVICE

The work of recruiting and training officers and crews 

rapidly growing merchant marine was undertaken by the S

Board on June 1 1917 when it authorized the establishment 

Recruiting Service with its headquarters in the customho

Boston Dfass

The first work undertaken was the training of deck officer

schoolship method of training officers was considered too slow 

emergency then existing and a plan was adopted of takin

already trained by experience in seamenship and giving 

short intensive period of training in special navigation s

under the best available talent including experienced sea c

as well as teachers from scientific schools and universities

For admission to navigation or engineering schools can

must be American citizens between 19 and 55 inclusive
80 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

The first free navigation school to be conducted under t

tion of the Shipping Board was opened at Cambridge Ma

4 1917 The work of organizing additional schools went 

43 in all were established on the Atlantic Gulf and Paci

and on the Great Lakes Of these at present 20 are in ope

For administrative purposes in establishing and mainta

schools the country was divided into seven sections 

closely the geographical divisions employed by the Unite

Steamboat Inspection Service of the Bureau of Navigation 

ment of Commerce This service from the first has cooper

the Recruiting Service by assigning local inspectors to exa

didates for admission to the schools and by maintaining t

ards required under the regulations of the Department of C

as to the necessary experience and ability for candidates 

merchant officers licenses

The system of instruction makes it possible to impart t

having the requisite qualifications and experience for ad

groundwork of the theory and practice of navigation su

enable him to pass the examination of the United States S

Inspection Service entitling him to a license as master or 

ond or third mate The average time required to com

course at a navigation school is about six weeks Student

of practical experience are sent to sea in the capacity of re

cers for a further period of two months before assumin

sponsibility of an officer s position The graduates fr

schools from June 1 1917 to November 9 1918 numbered 3

The next work to which attention was directed was the 

of engineers Classes are now maintained at 12 engineerin

chiefly at technical colleges the course of instruction cove

riod of four weeks Some of the men graduated require ad

ing at sea not exceeding six months before becoming e

licenses

Another kind of training is for chief engineers for turb

who are sent to the shops of the manufacturers buildin

engines so that they may know these engines from the b

and be able to make repairs Similarly assistant engineers 

the shops where the boilers are being constructed to becom

with their construction and with their installation in the v

The number of marine engineers graduated from the e

schools between June 1 1917 and November 9 1918 was 29

Of the 6261 graduates from the navigation and engineeri

of the Recruiting Service in the period named the rec

that as many as 3164 have received officers licenses Durin

six months that the schools were in operation however 

possible to keep record of the number of men licensed an
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

the graduates entered the Navy and hence do not appear in 

of licensed officers

The average cost of training officers in the period nam

found to be about 55 per man for deck officers and 65 per 

engineer officers including all overhead expenses This cost i

compared with the cost about 1000 per man of training 

by the schoolship method used by some of the States It s

noted however that thePecruiting Service candidates hav

ously had two years experience at sea

One noticeable effect of the board srecruiting campaign 

efforts to secure American citizens qualified to serve as 

and engineers in the merchant marine was the impetus g

men qualified to take the examination for officer slicense

out going through the Recruiting Service sschools Fro

1 1917 to October 1 1918 11618 officers licenses were gra

the Steamboat Inspection Service This includes the licenses 

for the graduates of the Recruiting Service s navigati

engineering schools and also licenses that were extended o

ferred from fresh water to salt

By the autumn of 1917 the ship construction program 

Emergency Fleet Corporation had reached a stage that wa

the beginning of the second phase of the training plan nam

training of crews This involves the recruiting of large num

young men without experience in navigation or technical t

Aluch thought was given by the Recruiting Service staff to 

out it system of intensive training by use of training ships u

this purpose vessels that were unsuited for freight traffic o

Atlantic trade

In December the Shipping Board approved the plans su

by the Recruiting Service and on December 12 1917 annou

was made in the press that the service was prepared to receiv

cations from young Americans who wished to be trained for 

on merchant ships as sailors firemen coal passers oilers 

tenders cooks and stewards messmen In the three mon

lowing more than 7500 applications were received Up to No

8 1918 applications totaled 32014 The highest enrollme

in any one month was 11000 in September 1918

Inexperienced men who are American citizens 18 to 20 

age inclusive and 32 to 35 inclusive are accepted for tra

sailors cooks or stewards and those 18 to 35 inclusive are a

for training as firemen

The total number of men needed for this service was at f

mated at about 85000 The increased number of ships plan

undoubtedly will call for an extension of this total and it 

88427I8
82 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

mated that after the war the merchant marine will need a 

not less than 200 0 men

The administration of this department of the training se

begun as soon as authorized by the Shipping Board under 

visor of sea training There are seven training ships in the 

Squadron and four in the Pacific Squadron besides a ship 

Orleans and one at Cleveland The training ships now in 

a total capacity of more than 4500 apprentices

The training course is of an intensive character There 

structor to each 10 apprentices who work under constant 

all day every day except Sunday during their stay on the 

vessel The period of training is from a month to six w

which the apprentices receive pay at the rate of 30 per mo

As far as possible the recruits are allowed to select t

line of work and they may enter either 1 deck 2 fire 

3 steward sdepartment In the deck department they ar

to be sailors In the fireroom department they are train

firemen and coal passers In the steward s department 

trained to be cooks bakers or stewards messmen In Chi

between 18 and 35 years inclusive who have had experience 

or water tenders are further trained for these grades in 

Shipping Board course at the Joseph G Branch School 

neering Firemen also are given special training at this s

Deferred classification under the selectiveservice regula

plied to regular members of merchant crews while appren

rolled for training in the Shipping Board Recruiting Serv

held to be not available for military service If such men 

merchant marine however they were liable to immediate d

When the apprentices have finished their intensive train

are added to the regular crews of the merchant marine on 

ratio to experienced men carried In the deck department 

is four apprentices to six able seamen carried By this me

hoped to secure full crews for all ships added to the mercha

the Shipping Board

The recruiting problem was greatly simplified by the 

chain of more than 6000 drug stores placed at the dispos

Board an official enrolling station being established in each 

In order to keep in close touch with the merchant marine 

cruiting Service established in July 1917 a Sea Service 

whose work is to find positions for the officers and crews t

the Recruiting Service and to find officers and crews for 

vessels in need of them Graduates from the schools were 

board ship by this department at first through cooperation o

steamship interests and later also on ships controlled direc

Shipping Board Without the work of this bureau there wo
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

been a serious shortago of mates and assistant engircCrsin 19

before the Shipping Board sconstruction program began to 

new vessels

LABOR PROBLEMS

In order to free the movement of water transportation fro

ruptions and stoppages arising from conditions of work co

with the operation of vessels and to stabilize and rend

effective industrial relations as they affect water transporta

Board has employed special labor experts and has entered i

tain agreements with labor organizations and with other 

mental departments

It is the Board spolicy to adjust without stoppage of w

differences arising between employers and employees eng

carrying out its operating or construction program By 

standardization of wages and work and by the creation of m

for arbitration and conciliation in all branches of water tr

it is hoped to avoid serious disputes Efforts are also bein

to develop through conferences propaganda and personal 

a spirit between employers and employees that will elimina

tion It is hoped that the jurisdiction of adjustment boards 

provided for shipbuilders and longshoremen may be exte

cover all men and operators engaged in the operation of 

Plans are now under way to unify all arbitrations for ma

ployees of the Shipping Board the War Department and t

road Administration

In order to make intelligent recommendations to the S

Board concerning wage scales to be adopted for officers e

and crews on Shipping Board vessels and for men emp

harbors and on water fronts the following information is b

lected 1 Copies of all agreements between operators a

engaged directly or indirectly in the operation of vessels 2 

scales now in force in all United States ports for all classes 

directly or indirectly engaged in the operation of vessels 3 

increases granted since August 1914 4 schedules showin

and other working conditions for each class of men in a

g

5 names officers and strength of employers and emplo

mizations 6 minimum cost of living in important ports 

careful investigation by its labor experts the Shipping Bo

issued various rulings concerning wages hours and cond

labor for men employed on Shipping Board vessels

The special agencies through which the Board works in 

out its labor program are the Marine and Dock Industrial R

Division a department of the Board which has general su

of labor questions pertaining to the operation of vessels and 
84 SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOA

equipment the Shipbuilding Labor Adjustment Board a

pendent organization which acts as an adjustment agency in 

of construction the National Adjustment Commission a coo

agency representing also the War and Labor Department

serves the same purpose for longshoremen and the New Yo

bor Wage Adjustment Board which has a similar function 

operators of harbor boats at New York An account of these 

organizations is given in the following pages

MARINE AND DOCI INDUSTRIAL RELATIONS DIVISI

Because of new industrial questions constantly arising 

operation loading and unloading of vessels and in order t

out the Shipping Board s organization by establishing a 

analogous to that existing in other governmental departm

Shipping Board by resolution under date of September 

created the Ttarine and Dock Industrial Relations Division

It is the duty of this new division to act as a coordinating 

in all labor matters affecting the Board to supervise labor q

which pertain to the operation of vessels and marine equip

cluding the work of loading and unloading to secure pea

justment of disputes to establish better relations between e

and employees and to handle the problem of deferred 

classification as it applies to marine and dock labor The 

will steer agreements to arbitrate disputes and will operate in 

to promote industrial harmony

Before the establishment of this new division the work h

carried on by the Shipping Board but without a formall

nized division During the past year many marine labor d

were adjusted without any serious stoppage of transportation 

is a growing tendency on the part of vessel operators and th

to refer matters in dispute to the Shipping Board for deci

to continue to work pending an award

SHIPBUILDING LABOR ADJUSTMENT BOARD

The Shipbuilding Labor Adjustment Board created Au

1917 is a body composed of three members entirely indepe

the Emergency Fleet Corporation one member being a

jointly by the Emergency Fleet Corporation and the Unite

Navy Department one representing the public appointed 

President of the United States and one representing the labo

and appointed by the president of the American Federation 

The Labor Adjustment Board was established for the pu

adjusting disputes which might arise concerning wages ho

working conditions of labor engaged in the construction or 
SECONL ANNUAL REPORT UNITED STATES SHIPPING BOAR

shipbuilding plants or of hulls and vessels in the shipyards 

contract with the Emergency Fleet Corporation or the United 

Navy Department

The awards and decisions of the Labor Adjustment Board 

with equal force to employees shipbuilders the Corporation a

Navy Department as related to work in private yards and are b

on all parties unless appeal from the decision rendered by the 

Adjustment Board by any of the parties is made

In an amended agreement under date of December S 19

terms under which the Board acts in the adjustment of dispu

well as the pledge to submit controversies to the Board are fu

forth For the text of this document see Appendix Table 

The purpose of the Adjustment Board has in general been 

as the maximum production of ships without interruption by 

trial disputes In following out this general purpose the du

the Board have been to standardize wages and conditions of e

ment select district examiners investigate conditions and dis

hold hearings and bring about more stable conditions by their 

The first important case taken up by the board was that 

shipyard workers on the Pacific coast a wage scale for whom wa

in October 1917 A 10 per cent wage increase was grant

the Shipping Board and the Navy Department to the Pacific 

workers as a bonus or war service payment and by an 

ment which became effective February 1 1918 this increas

made permanent and was to be applied against any increase 

cost of living after October 1917 which increase was to be reg

as a component element in the fixing of wage rates A dispute 

between the board and the Seattle Dletal Trades Council as 

right of the workers to a further increase and as to the actu

in the cost of living The Shipbuilding Labor Adjustment 

estimated that the actual increase was 81 per cent and that 

the terms of the existing contract the shipyard workers we

entitled to any higher scale The Trades Council of Seattle d

with the board on this point and for the adjustment of this d

an appeal board was created in accordance with the con

specified in the memorandum of December 8 1917 In all 

points touching the interpretation of the contract the appeal 

sustained the decision of the Shipbuilding Labor Adjustment B

but in order to secure the most accurate statistics the appeal 

decided that the situation with regard to the cost of living o

entire Pacific coast should be reviewed by the Shipbuilding 

Adjustment Board as of July 1 1918 and that appropriate 

justment be made retroactive to February 1 1918 This is the 

case in which it has been found necessNry to put into actual 
6 SECOND ANNUAL REPORT UNITED STATES SIIIPPIe B

that portion of the agreement which applies to the cre

appeal board

On December 1 1917 the trustees of the Emergency Fle

tion voted to cooperate with the War and Navy Depa

establishing a common policy involving a liberal wage 

prevent so far as possible the abuse of enticing men fro

yard by the offer of higher wages and varying conditions 

divided the country into districts in which uniformity of 

conditions prevailed By a series of decisions the va

tween districts were eliminated until at the present tim

only two scales of wages one for the Pacific coast and 

Atlantic coast Great Lakes and Gulf

For administrative purposes and for the machinery 

ment the board has accepted the eight districts establis

Fleet Corporation The board is represented by an E

whose duty is to enforce and interpret the awards with

tricts He also cooperates with the Industrial Service Se

Fleet Corporation

The most significant features of these awards are 1 

ment of a uniform wage scale for the Atlantic and Gulf 

yards whereby the labor turnover which hampered produ

the former variable wage scheme is in large measure rem

cific coast awards were in general somewhat higher 2 

ment of a basic 8hour day with time and a half for ove

maximum working time of 00 hours per week 3 no 

tion between union and nonunion men 4 limitation of t

tion of the board to shipyards which have direct contracts 

lump sum contracts for submarine chasers for the Navy D

5 creation of machinery for settling minor disputes by 

craft and shop committees conferring progressively wit

superintendents higher yard officials district examine

necessary the Adjustment Board and 0 reconsidera

decisions every six months In addition to making t

awards the board prepares for possible readjustments o

putes by keeping in constant touch with conditions of la

and cost of living and by adjusting various minor question

personal controversies accusations of discriminations etc 

liable to spread into open and disastrous strikes

NATIONAL ADJUSTMENT COMMISSION

In order to facilitate the settlement of labor dispute

longshoremen and avoid interruption or delay in the vi

tial work of dispatching vessels the National Adjustme

sion was created in August 1917 by an agreement b
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOAR

Shipping Board the War and Labor Departments the In

tional Longshoremen sAssociation the American Federation 

bor and the principal shipping operators While the commis

not a part of the Shipping Board yet its relation to the board 

close and its services are of great importance in the arbitra

disputes which vitally affect the board sactivities

Local adjustment commissions have been created in the im

ports each of which consists of four members one to repres

Shipping Board and War Department one to represent the In

tional Longshoremen sAssociation and two shipping repr

tives one of whom acts in cases involving foreign trade wh

other serves where coastwise trade is involved

In the agreement creating the commission it was stipulate

the basic standard should be the union scale of wages hou

conditions in force August 1 1917 that any differences aris

any port should first be adjusted by the local commission if p

that the case might be appealed by either party to the Nationa

mission that there should be no interruption of work and t

National Commission sadjustments should be binding on all 

The activities of the commission have been very extensi

have involved many thousands of men During the course 

year cases have been arbitrated and adjusted at the following 

Atlantic and Gulf district

Iiey West

New Orleans

Charleston S C

Savannah

Pbiladelphta

Mobile

Baltimore

Boston

Galveston

Norfolk

New York

Portland Me

Providence

Great Lakes district

Buffalo

Ashland

Escanaba

Chicago

Duluth

Cleveland

North Tonowanda

Pacifie coast dis

Puget Sound

Portland O

San Diego

San Francis

Ilonolulu

Seattle

It will thus be seen that the National Adjustment Commis

the recognized agency for arbitrating longsliore disputes mad

it general arbitration agreement to which the union of longsh

is a party In addition the commission as well as the local c

sions is available for the adjustment of any other disputes 

may be referred to it by special agreement involving mutual 

of both parties For a complete statement of the work of th

mission see First Annual Report of National Adjustment C

sion August 1918
88 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

NEW YORK HARBOR WAGE ADJUST31ENT BOAR

An independent adjustment board known as the New Yo

Wage Adjustment Board has been created by two dual a

on the one hand between the Shipping Board and the ch

boat operators in New York and on the other hand the 

Board and the representatives of the four unions involve

Under the age ement of October 20 1917 the employer

ployees engaged in the operations of tags barges light

boats etc in the port of New York agree to submit to 

board all differences concerning Wages and conditions 

which can not first be adjusted by the employers and 

concerned Pending the decision of the board work is to 

interrupted The board has no authority to pass upon th

of open or closed shop or the recognition of union me

board has the power to determine questions of discriminati

WAR ZONE PASS CObibiISSION

On recommendations of the National Adjustment Comm

Shipping Board on January 22 1913 authorized that com

appoint a commission at the port of New fork to pass upo

pension and revocation of passes to longshoremen in the 

on the New York water front A commission for this pu

appointed in February consisting of three members who 

respectively a the Government and the public b the 

interests and e the longshoremen

BOARD OF SURVEY AND CONSULTING ENGINE

This board was organized on April 7 1917 because of 

sity of surveying and repairing speedily the German and 

vessels acquired after the United States entered the war 

in record time 30 German and Austrian vessels not 

those taken over by the Navy Department aided in b

steamers from the Great Lakes to the seaboard and des

rebuilt these vessels for saltwater service made a rep

Shipping Board on the value of requisitioned vessels taken 

Great Lakes and at present has charge of the repairing an

of all vessels operated by the Shipping Board except thos

to the Army and Navy It also surveys assigned vessels fo

ping Board and makes recommendations as to their purchas

uisition It supervises the repairs and alterations made on 

Board vessels which private operating companies operate 

boat basis The board also investigated and reported on t

of dry docks the chief obstacle to its work It investig
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOARD 

of damage collision etc and acts in general in an advisory cap

on all questions requiring technical knowledge of ship constru

and repairing

OCEAN ADVISORY COMMITTEE ON JUST COMPENSATION

Permanent machinery for determining just compensation t

paid in accordance with the provisions of the urgent deficiencies 

propriation act approved June 15 1917 for vessels requisitione

lost while in the national service was established on April 1 

when the Ocean Advisory Committee on Just Compensation 

appointed 1 y the Board The committee is composed of four m

bers of whom two are marine surveyors and engineers one a m

insurance expert and one an exjudge of the Supreme Court of 

York

Primarily the duties of the committee are to recommend to 

Board the amount to be paid as just compensation for 1 vess

which title has been taken and 2 requisitioned vessels lost by 

assumed by the Government while under requisition charte

should be noted that it is the Board spolicy to assume only the 

risk on vessels requisitioned on time form and operated by the ow

and to assume both war and marine risks on vessels requisitioned 

boat ieoperated entirely at the Board sexpense and by its a

or by the Army or Navy

The committee is purely advisory in function It holds hea

at which the owners interested have opportunity to present 

claims in detail and after collecting all relevant data it subm

formal report to the Board embodying its findings and recomm

tions

The Board then passes upon the committee sreport and m

such award as it deems proper Under the provisions of the 

owners not satisfied with the awards of the Board may accept t

fourths thereof and sue in the Court of Claims for the ba

claimed to be due them Up to October 17 1918 the committee 

held hearings and submitted reports on a total of 59 vessels in

ing the sum of26152 675 designated as just compensation

Prior to the appointment of the Ocean Advisory Committee 

responding functions with regard to some 32 vessels requisitione

the Great Lakes were exercised by a Great Lakes Advisory 

mittee

DIVISION OF INSURANCE

On September 28 1917 an Advisory Insurance Committee wa

pointed to advise the Shipping Board on all questions of marine 

risk and protection and indemnity insurance and to superin

the operation of an insurance fund to be created by the Ship
90 SECOND ANNUAL REPORT UNITED STATES SHIPPING 

Board for the above purposes subject to the direction a

of the Board The active work of organizing the ins

was begun on November 12 1917

By resolution of the Board of October 9 1913 the 

Insurance was created to take the place of the Adviso

Committee This was done because of the growing im

the insurance work and because it was considered nece

a division authorized to make salvage and wrecking con

no time might be lost in arranging for assistance to 

endangered vessels

The marine and war risk premium rates are fixed 

mittee the former in general following the comme

while the latter follows very closely the rates fixed by 

of War risk Insurance of the Treasury Department

The finances are handled by the Comptroller of the 

Operations who arranges that the premiums are charge

operating expenses of the vessels All claims before b

the insurance fund are submitted to the committee for a

The general nature of the duties performed by th

which is concerned only with the operation of vessels a

their construction are as follows

1 Advising as to all operating contracts and charte

as any question of insurance is concerned also as to 

of liability for damage to cargo or insurance of crew T

conference with the Legal and Operations Divisions 

in the requisition charters and charters made with for

Recommendations have also been made as to the app

general average adjusters

2 The management of the insurance fund which prote

assumed by the Shipping Board and the Emergency Fl

tion as owners or charterers In this fund are entered

a Marine and war risk insurance on vessels in acc

the liabilities assumed by the Shipping Board and the 

Fleet Corporation The number of vessels owned c

chartered is about 1400 of which 500 are requisitione

tered and 400 owned

b Marine and war risk insurance on freight wh

risk of the Shipping Board and the Emergency Fleet C

3 Recommendations as to salvage operations and the 

salvage cases

4 Arrangements to enter vessels in the American 

Owners Mutual Protection S Indemnity Association 

protects against the steamer sliability for damage to ca

personal injury to the crew
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOA

5 The management of the charterer srisk fund which 

the liability risks known as charterer sP I risks to w

Shipping hoard and the Emergency Fleet Corporation are 

as charterers of ships of foreign flag

On January 26 1918 the Shipping Board passed a resolu

propriating 10000 to the insurance fund to be used in 

claims but so far the premiums have been sufficient to take 

losses and it has been unnecessary to draw upon this appro

Since the organization of the insurance fund the work 

fund as well as of the committee has constantly expanded 

number of vessels owned by the Shipping Board has increas

other steamers have been chartered from foreign owners and 

ments Not only does the work of keeping the vessels cov

insurance increase but more and more the committee is actin

advisory capacity to the Division of Operations

THE SIIIP PROTECTION COMMITTEE

The purpose of the Shin Protection Committee is to consid

suggestion received by the United States Shipping Board the 

gency Fleet Corporation and the Naval Consulting Board w

any way concerns the defensive side of merchantship protect

The Committee holds regular meetings at which numerous 

with ideas or inventions are given ample opportunity to 

them in person Very soon after its organization the Co

presented a number of recommendations which were imm

approved and which were all more or less directly put into 

These recommendations covered

1 The arming of merchantmen

2 The provision of smokeproducing apparatus

3 The application of low visibility painting or camouflag

later came to be called

4 The provision of an approved form of smokeless coal 

through the war zone

5 The consideration of means for throwing depth bombs

6 The installation of reserve or permanent buoyancy to 

ship afloat after it has been torpedoed

The first two recommendations were given consideration 

Navy Department the matter of arming being put into e

rapidly as guns were available and the development of 

producing apparatus being started at once

The third and fourth recommendations were put into e

the United States Shipping Board in cooperation with the Bu

War Risk Insurance of the Treasury Department a penalt

established for noncompliance The depthbomb thrower wa
92 SECOND ANNUAL REPORT UNITED STATES sIIIPPINO BO

careful study in cooperation with the Navy Department 

recommendation for added buoyancy was immediately a

the Shipping Board

Large numbers of inventions and ideas are daily receive

viewed by the Committee many of which demand either 

conferences or extended correspondence In the Commits

ings every phase of the submarine problem is carefully c

It is felt that in this work alone the Committee has rendere

able service to the country as it insured that no idea of m

sented to the Government would fail to be recognized a

available The Committee has exercised the greatest patie

attention to the countless overtures made to it by the many 

of citizens who were striving so patriotically to serve the

in its hour of peril

In connection with the Federal control of all shipping 

Shipping Board assumed on October 15 1917 the Committe

ered and passed upon many important matters and it se

valuable counsel and guide to the Chairman Numerous co

were held with representatives of our Allies and data w

exchanged

During the latter part of 1917 the Committee began som

mental work in cooperation with the United States Naval 

ing Experiment Station at Annapolis Md and with certa

individuals who bad submitted ideas appearing to have 

possibilities Some of these were developed to a point wh

thought advisable for the Navy Department to take them up 

Others were carried on through the winter by the Commit

In the spring of 1918 sufficient evidence was at hand to 

extended experimental organization to try several ideas whi

to contain possibilities of success Accordingly with the 

tion of the Secretary of the Navy an experimental depart

established at New London Conn where the Navy Depart

previously established an experimental station on antis

work During the spring and summer continuous work 

tinder way at New London the trials of the apparatus bei

out with naval vessels in the waters adjacent to New Lond

During the past summer the experimental work both at 

don and at New York has been carried out to definite e

which the Committee has made recommendations to the Uni

Shipping Board

The recommendations called for trial installations of sev

of protecting equipment on merchantmen to be put int

service through the submarine zone and it is felt that th

ence which will be gained in these trials will determine t
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

possibilities of the several forms The confidential nature 

Committee sactivities makes it inadvisable to disclose further 

relative to its work

INFORMATION BUREAU

In March 1918 an Information Bureau was established 

Shipping Board The main office is in Washington with a 

office in Philadelphia that furnishes information as to ship co

tion housing conditions labor situation and similar matt

garding the wort of the fleet Corporation

The Washington office serves as the clearing house for all in

tion relating to the work of the Shipping Board and the Eme

Fleet Corporation supplying data to chambers of commerce 

of trade merchants associations and other commercial organiz

prepares articles for technical publications and trade journa

nishes the press with special articles and such information a

quired and attends to the numerous inquiries from far and ne

the progress of construction and other matters in which the 

is interested
H UNITED STATES SHIPPING BOARD EMERGENCY 

CORPORATION

ORGANIZATION AND JURISDICTION OF THE CORPORA

The United States Shipping Board Emergency Fleet C

was incorporated under the laws of the District of Columbia 

1S 1017 under the authority of an act of Congress dated S

7 1016 to which there was added an Emergency Shipp

Provision dated June 15 1017 The Corporation was 

with a capital of 50000all of which with the except

qualifying shares held by the members of the Board of T

owned and was subscribed by the United States Governm

jurisdiction and duties as defined in this act and further d

various executive orders of the President of the United Sta

provide by purchase requisition commandeering or by co

a ship tonnage adequate to satisfy the war needs of the Unit

and to provide a means for operating such ships

The controlling authority of the United States Shippi

Emergency Fleet Corporation is rested in a Board of Trust

Board of Trustees and the officers of the Corporation are as 

TRUSTEES

Edward N Hurley President Charles R Page

John A Donald Vice President Charles Day

Bainbridge Colby Vice President John H Ro seter

E F Carry

OFFICERS NOT MEMBERS OF TILE BOARD OF TRUSTE

Charles Al Schwab Director General J L Ackerson Vice Presid

Charles Piez Vice President and General sistant General Manager

Manager Stephen N Bourne Secretar

Howard Coonley Vice President George T Smith Treasurer

The assigned duties and jurisdiction of the United States 

Board Emergency Fleet Corporation fall naturally into two 

groups of activities 1 Those concerned with the const

ships and 2 those concerned with the operation of sh

construction functions are exercised by the Corporation 

direct delegation of authority from the President the 

functions are exercised under appointment of the Shippin

to whom the President delegated operating authority in 

instance The present section of this report deals enti

construction activities which the Corporation has carried 

the President sdirect authority

94
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

Development of the organization and management methods of the corpo

Since the organization of the Corporation the following c

have taken place in its management Mr William Denman t

President of the Corporation resigned July 24 1917 and Mr 

IIurley became President July 24 1917 Maj Gen George IV 

thals who was appointed General Manager on April 26 1917 re

July 27 1917 being succeeded by Admiral W L Capps who re

on December 3 1917 because of ill health Mr Charles Pie

elected Vice President of the Corporation on November 11 191

appointed General Manager on December 15 1917 By this 

through a change in the bylaws dual responsibility was abo

all authority was concentrated in the hands of the President 

Board of Trustees with power to delegate and the Corpo

managership was made an appointive office

As a result of the German drive in Dlarch 1918 the already 

program which the Corporation had under way was materially 

to by additional demands of the War Department which wer

sented in April The great expansion of facilities which thi

program necessitated justified the enlistment of Charles M S

as Director General to whom Mr IIurley and the Board delegat

control of the construction work of the Emergency Fleet Corpo

Mr IIoward Coonley joined the organization in May as Vice Pre

in charge of the Administrative Departments and Mr J L Ack

was later elected Vice President and appointed Assistant G

Manager assisting Mr Piez Vice President and General llfana

The present scheme of internal management and organizat

the Corporation has taken shape during the past year a resu

gradual evolution effected since the submission of the last a

report Instead of having a plan of control predicated upon t

dividualities of the executive officers the aim has been to bu

organization into which men of all management grades cou

fitted and refitted without disturbing its fundamental processes

The development of the new organization had to be carrie

without the assistance of any adequate precedent and in such 

as to facilitate the immediate speeding up of ship construction 

call for ship tonnage during the spring of 1918 was so urgent t

was impossible to sacrifice anything of the present even for a g

return in the future It was an emergency problem in which 

was the only fundamental consideration The organization tas

therefore to tear down an old bridge while building around i

through it a new bridge without any interruption of traffic

Briefly summarized the principles which have guided the bu

of the organization are these Service and helpfulness to the 

builders geographical decentralization to eliminate long dela

decisions alignment of the organization in the Rome Office to 
96 SECOND ANNUAL REPORT UNITED STATES SHIPPING 

form to the problems of policy and administration a 

guiding controlling and policy determining organizat

Home Office and a supervisory general service and local m

agency in the field

Removal of the offices of the Corporation to Philadelphia

Not the least important of the changes which made 

rapid completion of the management organization was the 

the Corporation s offices from Washington to Philade

various war activities were literally swamping Washington 

early months of 1918 and the Emergency Fleet Corporatio

pressed to find sufficient building space to house its ad

force It was impossible to secure living quarters for the 

whose number was rapidly increasing By Alay the of

Corporation in Washington had spread over 23 buildi

such conditions it was impossible to keep the various p

organization in touch with one another and the mov

entire office to Philadelphia was ordered The moving 

June 1 and was practically completed within one week

AUTHORIZATIONS APPROPRIATIONS AND COMMITM

A comprehensive statement of authorizations appropr

commitments of the United States Shipping Board Emer

Corporation as at October 15 1918 is presented herewi

according to the following order of treatment

INDEX

SectionAAuthorizations Appropriations and Commitments

1 Authorizations and Commitments Complete

2 Authorizations and Commitments Recapitulation

3 Balance Available from Authorizations

4 Authorizations Appropriations and Expenditures

5 Summary Authorizations Expenditures and Cash Requiremen

6 Estimated Cost of Freight and Labor Increase

SeetlonBRequisitioned Ships

1 Authorizations Appropriations and Commitments Requisition

2 Number of Requisitioned Ships

3 Requisition Ship Summary

Section CContract Ships

1 Contract ShipsAuthorizations Appropriations and Commitm

2 Contract ShipsContracts and Commitments

3 Contract ShipsExpenses to be prorated

Section DSteel Ships

1 Steel Ships Summary of Contracts and Commitments

2 Steel Ships Additional Cost

3 Steel Cargo Vessels

4 Steel Tankers

5 Steel Troop Hospital and Refrigerator Ships

6 Steel Tugs

7 Steel Barges
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

Section EMood and Composite Ships

1 Wood and Composite Ship Summary

2 Wood Ships Additional Cost to Complete over Contract Price

3 Wood Ships Complete Contracts and Commitments

4 Wood Ship Hulls Contracts and Commitments

5 Wood Tae Contracts and Commitments

6 Wood Barnes Contracts and Commitments

7 Composite Ships Complete Contracts and Commitments

Section FCorterete Ships

1 Concrete Hulls Contracts and Commitments

2 Concrete Hulls Additional Cost to Complete

SectionGForeign Yards

1 Summary Foreign Yard Ship Construction

2 Ships under Contract and Commitments

Section ILPlant and Property

1 Authorizations Appropriations and Commitments

2 Summary Plant and Property

3 Investments in Fabricated Yards

4 Investments in Shipyards and Other Plants

5 Small Tools and Plant Protection

Section Ilousing and Transportation

1 Authorizations Appropriations and Commitments

2 Housing Contracts and Commitments

3 Transportation Contracts and Commitments

Section JDry Docks and Marine Railways

1 Authorizations Appropriations and Commitments

2 Dry Docks

3 marine Railways

A AUTHORIZATIONS APPROPRIATIONS AND COMMITMEN

1 Authorizations and Commitments Complete

Balance

1 Less estimated

acailabla

increase in materials and labor

Balance 

1 Freight advance ordered in July estimated 10000 and Labor award October M est

150 00not provided in the above

S3i27137

Authorization Commitments bal

Regnlsitloned ships 1515 000 3479 447 F2 

Contract ships 2 8nl Ono OrA 2641 963 071 

Plant and property 177 0oll 000 14S 495 600 

1loluing 75 oldM 6s Otxi 65 

Transportation 20 Y 0 000 1071x191 

Dry docks and marine railways 21 0 0 OX 7202 10 

Foreign shipyards 55 ox oxi 5023 71 

3671 000 3416 679 414 

Balance

1 Less estimated

acailabla

increase in materials and labor

Balance 

1 Freight advance ordered in July estimated 10000 and Labor award October M est

150 00not provided in the above

S3i27137
98 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

2 Authorizations and Commitments Recapitulation

Authorization

Requisitioned ships 5

0

Contract ships 2884 0000

See below plant and property 80 000 0000

2 80

Plant and property 122 000 000 00

See above contract ships 80 000 0000

202 000 0000

See below dry docks and marine rail

ways 250000

17

Housing 7

0

Transportation 2

0

Dry docks and marine railways see above 2

Foreign ship construction 5

0

Total 3 67

Commitments

Requisitioned ships 524 889 0000

Reconveyed 4501 173 00

47

Contract ships 26

90

Plant and property 1

40

Housing 6

Transportation 

70

Dry docks and marine rail ways 

Foreign ships 5

870

Total 34

640

3 Balance available from authorizations

Requisitioned ships 3

510

Contract ships 12

Plant and property 250

Housing 

Transportation 

Dry docks and marine railways 1

Foreign shipyards 

Total balance availabl e 2

3

Less increase material and labor estimates t 20

Balance 

35

t Freight advance ordered In July estimated 750 00 WO and labor award Oct 26 

6150 OW000not provided in the above
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

4 Authorizations appropriations and apenditures

1 This balance wonid be available If the Treasurer bad not drawn against the same for other 

whlch were not Included in our estimates

4 Includes expenditures for transportation

5 Summary authorizations and apenditures and cash requirement

Total authorizations 367

00

Expended to June 30 1918 770 694 057 30

Estimated expenditures to June 30 1919 2399 756 942 70

Estimated expenditures to June 30 1920 500 549 0000

3 671 

Expenditures and requirements

Expended to Aug 31 1918 1041 806 92371

Estimated expenditures for September 1918 196 979 440 00

Estimated expenditures for October 1918 200 902 610 00

Estimated expenditures for November 1918 218 625 907 00

1658 314 88071

Estimated expenditures to June 30 1919

based on 5 months expenses and taldng

increase into account 1 512 1369 29

3170 

Balance of authorization estimated expenditures to June 30

1920 50

4

3671 

6 Estimated east offreight and labor increaseEight million tons at 25 

ing 200 0estimated as increase in labor and freight on contracts pl

to Labor Adjustment Board sdecision March 22 191

Authorize tialm Approfela Gong Expends Lures

1 ppropria

none paoraded rdal

a

Requisitioned shipa CanGact ehlpa 1515 2804 00 OWW00W 1415000 00IF54 41 000 W83Nfi14 783 132 888 2763x1 KZ 1105 216 33 73249 31x6119 E

0

Plant and property 177 03000 171 00030 100 258 840 90 7641 1690

Rousing 750003 7501000 r 18353 274 41 58848 725 59

are portatlov 2000013 20 000 0003 20 000 OW 00

Dry docks and marine

F

railways ZSOW003 W 260000 1278 481 31 23723 518 89

shipyardscon acci structlon 65003 rOW0 550000 SS

Total3671 000028451 00001041 806 923 71 1583 644 076 290897

1 This balance wonid be available If the Treasurer bad not drawn against the same for other 

whlch were not Included in our estimates

4 Includes expenditures for transportation

5 Summary authorizations and apenditures and cash requirement

Total authorizations 367

00

Expended to June 30 1918 770 694 057 30

Estimated expenditures to June 30 1919 2399 756 942 70

Estimated expenditures to June 30 1920 500 549 0000

3 671 

Expenditures and requirements

Expended to Aug 31 1918 1041 806 92371

Estimated expenditures for September 1918 196 979 440 00

Estimated expenditures for October 1918 200 902 610 00

Estimated expenditures for November 1918 218 625 907 00

1658 314 88071

Estimated expenditures to June 30 1919

based on 5 months expenses and taldng

increase into account 1 512 1369 29

3170 

Balance of authorization estimated expenditures to June 30

1920 50

4

3671 

6 Estimated east offreight and labor increaseEight million tons at 25 

ing 200 0estimated as increase in labor and freight on contracts pl

to Labor Adjustment Board sdecision March 22 191
100 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

B REQUISITIONED SHIPS

1 Authorizations appropriations and commitments requisitioned s

Authorizations

Act June 15 1917 250 00

Act Oct 6 1917 265 000 5

0

Appropriations

Act June 15 1917 150 00

Act Oct 6 1917 200 0

Civil appropriation 1918 65000 

Unappropriated 

Commitments

Ship construction 524 889 000

Recouveyed 45 

Balance available 

2 Number of requisitioned ships

Number of ships requisitioned 

Released as per statement attached 

Canceled

Harlan d Hollingsworth hulls 450451 

New York Shipbuilding Co hulls 208 209 

Newport News Shipbuilding Co hulls 200 214 

Hanlon Drydock 4 Shipbuilding hull 8051 

American Shipbuilding Co hulls 466526 

Transferred into contract

106 Bethlehem Shipbuilding Co hull 176 

297 Columbia River Shipbuilding Co hull 4 G 7 8 9 10 

2034 Manitowoc Shipbuilding Co hull 96 

191 Union Iron Works hulls 150153 

Total requisitioned ships under construction 

3 Requisitioned ship summary

Type

Numbe

of slugs 

Car Tankers

Refrigerator

go 3

Colliers 

Transports 

Total 4

The term requisitioned ships is used throughout this report w a means of conven

cover ships constructed by the corporation from hulls and materials requisitioned in 

Aug 3 1917 As a matter of fact the Fleet Corporation requisitioned no completed 

materials and hulls in various amKes of incompleteness

s This balance would be available If the Treasurer had not drawn against the same for 

Imes which were not included in our estimates
SECOND ANNUAL REPORT UNITED STATES SBIPPINO BOA

C CONTRACT SHIPS

Noaler

of slips

1 Authorizations appropriations and commitments contract ships

Domestic

10513 905 302400 292

Authorizations

42 298 5o0

Urgent deficiency act June 15 1917 500 0

Urgent deficiency act Oct 6 1917 734 000 000

29e

Sundry civil appropriation 1919 1 650 000 000

Tolsl

Foreign maame ioI

2 834 000 000

295 850

Set aside for plant and property 80 000 000

2714 1422 255 

280

Appropriations

Urgent deficiency act June 15 1917 250 000 000

Urgent deficiency act Oct 6 1917 50000

Sundry civil appropriation 1919 1 438 451 000

1034 451 000

Set aside for plant and property 80 000 000 1 85

Unappropriated

Urgent deficiency act June 15 1917 250 000 000

Urgent deficiency act Oct 6 1917 481 000 000

Sundry civil appropriation 1919 211 549 000

94

2 80

Commitments

Ship construct ion 2 G

Balance available 1

09

Foreign yards

Authorized and appropriated

Sundry civil appropriation 1910 5

Commitments 

87

Balance avail able 

2 Contract ships Contracts and commitments

Type

Noaler

of slips Tonnage 

Steel Wood and compoeac 1034AN 10513 905 302400 

292

Concrete

Extras

42 298 5o0 

Tolsl 29e 13x35 40 

59

Foreign maame ioI

34 295 850 

Toto1 2714 1422 255 

3 Contract ship construction expenses to be prorated over ships

Home and administrative expense 3

Plant investments 

Total 4

10
102 SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOA

D STEEL SHIPS

1 Summary of contracts and commitments

ham Number orships Tonnage Contractvelue Additional 

Car Te o

1296 877 605 51626 278 70W 423q2 27 00166

er

Transportsorts 94 737 000 787 20862 0000RO6 825 W

433 0000

573 400

1625

00 234

IIReefrigerators

2

4

20000 7000M0 12200 00 

Tankers

Tugs

60090 40 2400 

arg s

112

18

5480 32815 0000 633 2200 

54800 5 904 1OL W 

Total 1604 10513 905 2053 59 81700 4416372 00 20

72

2 Additional cost over contract value to complete

Cargo vessels

1296

2

ships wireless6100 per ship 

96

710 40 tons material 12 per ton 

58

441 600 tons steel 42 per ton 

4

Tankers

80 ships wireless 6100 per ship 

Transports

94 ships wireless6100 per ship 

Hospital ships

2 ships wireless 6100 per ship 

Refrigerators

4 ships wireless 6100 per ship 

Ocean tugs

104 ships wireless6100 per ship 

Harbor

8 Ships wireless 6100 per ship 

SUMMARY

Cargo 4

32

Tankers 

Transports 

Hospital 

Refrigerators 

Ocean tugs 

Harbor tugs 

Total 4

1
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOAR

3 Steel cargo ships

trat

Shipbuilder utshipsr 

2 Merrlll Stevens Co 4 

4 Los Angeles Shipbuilding Dry Dock Co 8 

10 Stnuer Fddy 6 

13 Seattle Construction Dry Dock Co 10 

18 Moore Shipbuilding Co 

20 Baltimore Dg Dock Shipbuilding Smpbng Co 8 

30 Downey i Co 100 

33 Shipbuilding e 4 

Western Steel O 

57 on Y Groton Iron o1din 6 

61 ip 1b 6 

63 Lang Lon SeSCIr c Shi hi uilildingS Co 383 American I e Shipbuilding CO atCo hip

110 

F6 Subbmarineri Best 130 

Merchants Sipy Shipbuilding 0

Co Sbipb 60 

91 Shipyards ar 10 

92 LAn Los Angeless IIIY Dock o Shipb 22 

95 o

Federal etding Co 10 

97 Oscar Danam ls Co 0 

Shipbuilding Co 1l0 

100699N BaysAmeris aqS hipyards Shipbuilding Co 4B 

1077140 d

rifc

34 

142 Pacific Coast Shipbuilding dCo 10 

I

I

Co

2317 2361 2045107 292134n302Y215 6A30 297 301

309 3031124 3562 3179211

ICa lg Co

70

mCnin co

gCoPorpn
104 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

3 Steel cargo shipsContinued

Con I wait 6hipbuilder Nnmh r of ships

323 Great Lakes Engineering WWrka 24 

329 Skinner Eddy 35 

334 J F Duthie Co 5 

416 Mobile Shipbuilding Co 12 

424 Wenern Pipe steel Co 4 

425 Southoestern Shipbuilding Co 13 

433 Todd Shipbuilding Co 24 

435 Moore Shipbuilding Co 10 

49041 Los AlibiAnEngine tiles Shi building Machme CoW or ks 104 

442 HanlonShip buLdng Co 6 

443 Pensacola Shipbuilding Co 6 

447 Skinner Eddy 12 

453 New York Shipbuilding Co 1 

455 Globe Shipluiding CO 5 

458 Northwest Steel Co 10 

466 Long Beach Corporation 4 

467 do 1 

503 Standirer Consoueli nCo 5 

511 Newburgh Shipyards 2 

Total I1216 

4 Steel tankers contracts and contantmrnts

tract Shipbuilder of ships 

153 More Shipbuilding Co 6 

177 Bethlehem Slupbuilding Corpn 12 

178 do 3 

179 do 3 

183 do 3 

197 Baltimore Dry Dock Shipbuilding Co 12 

206 do 6 

215 Terryy Shipbuilding Co 10 

226 BeNehem Shipbuilding COrpn 4 

T19do 3 

300 do 

301 do 

314 do I 3 

436 Moore Shipbuilding Co a 

Total FO 

5 Steel troop hospital and refrigerator ships contracts and commitm

tract Can Shipbuilder p Numbeships 

TROOP SHIPS

93 American International Shipbuilding Co 7

151 New York Shipbuilding Co 

182 Bethlehem Shipbuilding COrma 

403 Newport News Shipbuilding Co 

418 New York Shipbuilding Co 

419 do 

420 do 

465 Bethlehem Shipbuilding Corpn 

Total 9

HOSPITAL SHIPS

151 New York Shipbuilding Co 

STEEL REFRIGERATOR SHIPS

18 Moore Shipbuilding Co 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

6 Steel tugs contracts and commitments

tract Co Shipbuilder Number otships 

IW Bethlehem Shipbuilding Corpn 20 

108 Johnson Iron K orks 6 

207 Northwest Engineering Works 2 

204 Providence Engine Co 10 

214 Ravies Shipyards 2 

218 Whijney It ros 10 

313 Rethehem shipbuilding Co 10 

SQ Northnas Eng necvng WOriS 6 

3S7 Newburg Sh ipbuit inCo 3 

396 New Jersey Dry Dock Transportation Co

Laka k Ocean ariga ion

2 

398 412 Co

F annithai CO 103 

432 W 11 Gahacan 10 

439 Chas L Seaburyy

Bayles Ship

3 

505 4 Northwest Lugiueering

ards

Wr 9a 

Total 1

SCe HARY

Oeean

Earbor 8

104

Total 112

7 Steel barges contracts and commitments

E WOOD AND COMPOSITE SHIPS

1 Wood and composite ship summary

Type Number of Tonnage Contract

tract Con Shipbuilder Nouraber umber ship 

42 Alabama Dry Dork Co 2 

415 5lerrill Stevens Shipbuilding Co

707 50 596 615 332

W Nashville Bridge Co 8 

1811 000

Total la 

E WOOD AND COMPOSITE SHIPS

1 Wood and composite ship summary

Type Number of Tonnage Contract Additional 

slap

value

Completc 181 707 50 596 615 332 313 57150 3

8

IIU1N 519 1811 000 169 FS9 F10 150 W2 20 

Barges 140 35900 2702 0 

Tugs 162 28 994 son 366 000 

Composite 32 118 000 615 0080 14261 200 

Total I 037 3024 000 337 189 572 155 9f0950 M
106 SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

2 Wood ships additional cost to complete over contract price

Complete

Wireless 181 ships 6100 per ship 

Lumber 181 ships7500 per ship 

Material 624 700 tons 850 per ton 

Machinery 14 Ships 200 0 per ship 

Installation machinery 12 ships 250 00 per snip 

Total 

Hulls

Wireless 519 ships6100 per ship 

Lumber 519 ships 7500 per ship 

Material1622 800 tons 350 per ton 

Machinery installation 519 ships 250 00 per ship 1

Total 62

Tugs

Wireless 60 ships 6100 per slip 

Composite

Wireless 32 ships 6100 per ship 

Material 116 000 tons 50 per ton 

Lumber 32 ships 7500 per ship 

Total 

SUMMARY

Complete 

IIulls 

62

Tugs 

Composite 

Total 

9
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

3 Wood ships complete contracts and commitments

tract Shipbuilder Number 

3 G M Standifer Construction Co 10 

5 Peninsula Shipbuilding Co 4 

6 Sloan Shipyards 16 

22 Newcomb Life Boat Co 4 

M Trayler Shipbuilding Go 10 

25 Lake Ocean Navigation Co 1 

32 National Shipbuilding Co 12 

34 Grant Smitb Porter Co 12 

40 do 16 

143 Meachom Babcock i6 

154 Coast Shipbuilding Co 4 

IM R J Chandier 2 

172 Peninsula Shipbuilding Co 4 

176 G M Standifor Construction Co 6 

gt Pacifle American FEshenoe 7 

336 National Shipbuilding Co 16 

384 Continental Shipbuilding CO 1 

389 Supple Bailin 4 

wd Kiermn Karn 4 

428 Grant Smith Porter Co 8 

429 do 14 

438 Dierks Blodgett 6 

445 Patterson McDonald 4 

437 Penhela Shipbrulclmg Co 1 

609 G M Stnedifer Construction Co 6 

iSl 

United States Maritime Co

Total

4 Wood ship hulls contract and commitments

tract Con Shipbuilder Number

of ships 

7 Grays harbor M S Co 4 

8 Co Shipbuilding Co

ll Sanderson porter

12

14

Maryland

Foundation

Shipbuilding

Co

Co

15 Groton trop Wmks

16

19

Ship

RnsseB

Construction

Ship Co

Co

8 

20 Universal Shipbuilding Co 12 

21 McBride Law

28 Union Bridge Co

D Jahncke Shipbuilding Co

35 G1lders0eeve Shipbuilding Co

36 Lone Star Shipbuilding Co

37 Kingston Shipbuilding Co

38 Jehnaen 3 

39 Dirks Blodgett fi 

45 J N McCammnn

46 Hammond Lumber Co

49

47 Alahama

Mumao Shipbuilding

Dry Dock

Co

ShipbuildingCo

50 G A Gilcrist

62

61

Southern

Aod Shipp

Dry

C

Dock ShipbuildingCo

54 Midland Bridge Co

55 United States Maritime Co

56 North Carolina Shipbuilding Co 2 

58 Morey Thomas 

69 Cumberland Shipbuilding Go 9 

ding ildinR cask CoCo

building Co

Co

ast

4 

I 6 

2 

6

li 

6 

4

19 

1 

2 

i

3 

4 

6 

4 

4 

8 
108 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

4 Wood ship hulls contract and commitmentsContinued

tract Shipbuilder ofship

77 St Helena ShipbuildingC 

78 Barham Bros 

79 R J Chandler 

80 Ynint Shipbuilding Cc 

812 Benec Wright ecla Shipbuilding yards Co 

84 c h IlBmmee 

95 TaBan Tacomoma pCo 

8899 cr Shtrot CoHeldee B ros

W Hammond ammo Lumber C 

98 sc rn Shipbuilding Co a

1

149 Gr H

Puget Harbor M B Co 1

159 Puget Sound Bridge Dredgingt

170 of BhlPbuild g lire bookck Co 

189 S B Rolph Cig

Bon

193 Allen Shipbuio lding Cco 

201951 Barbara Cons Da S Slydpbuildmg C c 

212 Wright Shipyard ais 

213 Fulton Shipbuildingg C 

mpo Cc Shipbuilding g

not 320 Wilson h iudn o

31025 Tacoma FultonC ShipbuildingCoC

32fi RI anlei RJChandle 

3 27 Hammond Lumber Cc 

324 n Shipyards 

339 Wrightigh Shi S vd 

300 ern Slit lit building 1

33123

Sommaera

C

hipbudng Cc Co Wilson h

Coca WilsonBaysBipiuhh b m Cc 

33 5 Meacham Babcocu BBabcock 

337 Helens B u dlnC Cc 

338 Be l

aFhipbubuihidilpng 339 PG F Rodgers Shipbuilding Cc i 

341 L e 

342 Penne y h Brenner 

377 JaKnees h Banks 

379 J N Murdock I 

385 Rissouri ValleeCc 

338 Rol Shipbuildingng Cou 

395 H hgo Shipbuilding Co 

392 Sdi e Shipbuilding

g

445 St Jobeo Riverc Shipphibuilding hi 

411 Beaumont Be Shi building Cn 1

4 07 Tampa Dock 

431 Shipbuildingng 

393 Milidand d Bnu 

430 C

434 Johnson Johns n Shipyards Sh s 

H4 Morey Thomas oya 

459 Ralph S hippbuilding building Co 

458 Southern b h Shipbuilding Co 

488 Arses Harboro M S 

477 American b a dlgcCo 1

484 North racoonna SihiP ingCo 

484 Bros 

485 aBarbara Meacham Babco Babcockck 

488 Nililson e 

409 Cuma Shipbuildingng C 

490 Held tets Bros 

491 McBride McBr h Law 

492 Beneath Shipbuilding Go 

493 Russell Shipbuilding 

497 Cc 

498 Wilson WWilsonn Shipbuildinglli C

C 

499 Gen Rockers Rodeo 

504 St Helena sgChinn bo 

608 t on

u Co O

510 S Jhntru Steer Riv Shipbipbuilding uln C St oT

Shi 

512 H T Smith Bros 

513 Felton Shipbuilding Cc 

Core United States Maritime Cc 

Total 51
SECOND ANNUAL REPORT UNITED STATES SIIIPPINO BOAR

5 Wood tugs contracts and commitments

tract I Shipbuilder

Com16994 211 39 4322 457784

OmanM M Davis San

Cmwfiadu ld Shipbuilding Co

Southland Shipbuilding Co

Crowimhuld Shipbuilding Co

Universal Shipbuilding Co

M M Davis Son

Sydney C Me Louth

Continental Shipbuilding Co

Main Iron Worts

Sydney C McLonth 

Total

218 3781 4041721 431607714689YS7Leathern

Coup 4956 502

Harbor Nothwest Fngineering Works

Leathern Smith

Northwest Engineering Works

Capt Gen F Pilkington

Clans L Seabury

Cumberland Shipbuilding Co

International

Fastern

Barger Boat

Shore

Co

Shipbuilding

Shipbuilding Co

MarineCo

Chance Marine Co

Gibbs GasFngdne Co

Jut W Sullivan Cn

Vinvard Shipbuilding Co

John H Machias Co

Dnrbel Carter Moat Co

Smith

A C Brown Sons

Smith Williams

Ward Pride

Northwest Engineering Works

Weehawken Dry Dock Co

374

Total

5

SUMMARY

375

Ocean Harbor 

4

Total 

6 Woodship barges contracts and commitments

tract Con Shipbuilder

b r

ofships 

343 Union Bridge Construction Co 3 

374 Houston Shipbuilding Co 5 

375 American Shipbuilding Dry Dock Co 4 

376 Coastwise Shipbuilding Go 5 

380 Gull Coact Transportation Co

381 Machias Shipbuilding Co

388 Kelley Spear

390 Atlantic Gulf Pacing

391 Jshncke Shipbuilding Co

393 Midland Bridge Co

INAmerica Lumber Co

397 Smith Terre

400 Mississippi Shipbuilding Co

402 Cumberland Shipbuilding Co

405 John H Sultry

406 White Haven Shipbuilding Co

409 Calais Shipbuilding Co

409 Anclote ShipbuBdi gCo

410 Newcastlg Shipbuilding Co

411 Beaumont Shipbuilding Co

414 Sandy Point Shipbuilding Co

423 Cnirassal Shipbuilding Co

427 Crisfield Shipbuilding Go

446 Richard T Green

443 Johnson SIUDvards
110 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

6 Woodship barges contracts and commitments Continue

tract Can Shipbuilder Num

of sh

450 filexom nrm 

451 Sawyer Shipyards 

454 Darien Shipbuilding Co 

462 Francis Cobb Co 

463 Nachos Shipbuilding Co 

400 Crosby Navigation Co 

471 Standard Shipyards 

474 11 E Croak Idnbuildin Co 

475 Aulick Kendrick Cobb Tueker 

4N0 Narregenset Ship building Co 

494 Bangor Brewer Shipbuilding Cc 

501 Elliott Bay Shipbuilding Co 

C

507 J W Me ammon 

ore E lames Tall 

Total 

7 Composite ships complete contracts and commitments

tract C Shipbuilder Num

of sh

I Merrill Stevens Co 

9 Terry Sbipbuilding Co 

3144 Supple Mobile Shipbuilding shin Co

306

F CONCRETE SHIPS

1 Concrete ship hulls contracts and commitments

tract Con Shipbuilder Numb

of shi

147 Liberty ShbTdh j Co 

INS Fougmer Amede iConcrete Steel

San iRbg

305

c ee

A Bond Q 6elnm

306

Fredd T ILege G 

307 Scofield Evyrxirg smg Co 

229 L4bert Sh7pbetlding CO 

Total 

2 Additional cost to complete concrete hulls

42 ships wireless 6100 

38 ships machinery 500 0 per hull 

4 ships machinery 250 00 per hull 

38 ships labor and material 100 0 per hull 

4 ships labor and material 75000 per hull 

Total 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

G FOREIGN YARDS

1 Summary foreign yard ship construction

China

Japan 30 

4 

Total 34 

2 Ships under contract and commitment for construction tin foreign ya

tract Co Shipbuilder

Number

of shi ps 

344 Asahl 1 

345 Fuginigata 1 

34rr347 Iforima Co 2 

U4 349 Ishikawalima 2 

3504 Nawasakl 5 

155 Nitta 1 

3965Y Yokohama 3 

35960 Asano 2 

351

3a4

303

5

Uraga

Ifitsua BusSan

3

2

36r 357 Nitsubishi 2 

3769 Uchida 2 

0373 Osaka 4

399 Elangnan Dock Engineering Co 4 

Total 34 

H PLANT AND PROPERTY

1 Plant and property authorizations appropriatiow and commitme

Authorizations and appropriations

Urgent deficiency Oct 6 1917 35000

Sundry civil appropriation bill 87 000 000

122 000

Transferred from ship funds 80 000 000

202 00

Set aside for marine railways and dry docks 25 000 000 10

Commitments

Summary 40

Balance available 

2 Plant and property summary

Fabricated yards 80

Shipyard and other plants 

Small tools and plant protection 

Tot al 

40
112 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

3 Investments infabricated yards

Hog Island 

Submarine Boat 

Merchants ShipbuildingCo 

Wilmington Steel 

Concrete Yards 

Total 

4 Investments in shipyards and other plants

Newport

Do

News Shipbuilding Co 

McClintock Marshall 

Ralston Steel Car Co 

Standard Steel Car Co 

Baltimore Car Foundry Co 

John Brennan Co 

Pressed Steel Car Co 

Bethlehem Shipbuilding Corporation Harlan 

Bethlehem Shipbuilding Corporation Sparrows point 

Bethlehem Shipbuilding Corporation Union 

Bethlehem Shipbuilding Corporation Liberty 3 

Seattle Construction Drydock Co 

Midland Bridge Co 

New York Shipbuilding Co 

Newburgh Shipyards 

Total 

5 Small tools and plant protection

Small tools fire protection dredging 

Plant protection 

Total 

I HOtiSING AND TRANSPORTATION

1 Authorizations appropriations and commitments housing and trans

Housing

Authorizations

Housing act Afar 1 1918 50000

Sundry civil appropriation bill 1919 25 000 000

Appropriations

Sundry civil appropriation bill 1919 

Commitments 

Balance available 

Transportation

Authorizations and appropriation

Sundry civil appropriation bill 1919 

Commitments 

Balance available 

I

2

Two

This

ways

contract

canceled

has since

on

been

Oct

canceled

15 reducing cast to 2
SECOND ANNUAL REPOItT UNITED STATES SIIIPPING BO

2 Housing contracts and commitments

Atlantic Corporation Portsmouth N II 

Newport News Shipbuilding Dry Dock Co Newport News 

New York Shipbuilding Co Camden 

Pusey Jones Gloucester 

Bethlehem Shipbuilding Co and Posey Jones Wilmington 

Bethlehem Shipbuilding Co Sparrmcs point

Chester Shipbuilding Co Chester 

Texas Shipbuilding Co Bath 

Merchants Shipbuilding Co Bristol 

American International Shipbuilding Co Philadelphia 

Sun Shipbuilding Co Chester 

J Al Standifer Construction Co Vancouver 

Bayles Shipbuilding Co Port Jeff ervon 

American Shipbuilding Co Lorain 

Merrill Stevens Co Jacksonville 

Westinghouse Electric Co Essington Pa 

Terry Shipbuilding Co Savannah 

Traylor Shipbuilding Co Cornwells Ileighis for tents 

Pensacola Shipbuilding Co Pensacola 

Pacific Coast Shipbuilding Co Suisun Bay Cal 

Detroit Shipbuilding Co Wyandotte Jfich 

Manitowoc Shipbuilding Co Manitowoc Cis 

Groton Iron Works Groton Conn 

Newburgh Ship Co Newburgh 

Louisiana Shipbuilding Co Slidell La 

Reserve 15 per cent 

Expenses 

Total 

3 Tranxportation contracts and commitments

Texas Shipbuilding Co Bath Me 

Bethlehem Shipbuilding Co Pore River 

Staten Island Shipyards Staten Island 

Foundation Co Fearny N J 

Submarine Boat Co Newark N J 

New York Shipbuilding Co Camden N J 

Pusey Jones Co Gloucester 

American International Corporation He Island 

Chester and Essington plants 

Baltimore Shipyards Sparrows Point 

Newport News Shipbuilding Dry Dock Co Newport News 

Terry Shipyards Savannah Ca 

Tacoma Shipyards 

Portland Railway Light Co PortlandOreg 

foore Shipbuilding Co Oakland Cal 

Bethlehem Shipbuilding Co Oakland Cal 

Jlobile Light Railway Co Mobile 

Duluth Street Railway Duluth 

SS427188
114 SECOND ANNUAL REPORT UNITED STATES SKIPPING BOA

Lone Star Shipbuilding Co Perry equipment 

Tidewater Power Co Wilmington N C 

Lake Shore Michigan Southern R R Co 

Municipal Railway System Seattle Wash 

Arthur W Horton Portsmouth N H 

Total 

7

J DRY DOCKS AND MARINE RAILWAYS

1 Autkorimtions and appropriations and commitments dry docks and marine 

Authorizations and appropriations

Transferred from plant and property 2

A

Commitments

Marine railwa3 

Dry docks 

Balance availabl e 

75

2 Dry docks

Bethlehem Shipbuilding Corporation 

20

Alabama Dry Dock Co 

Terry Britain Savannah 

Terry Britian Jacksonville 

Beaumont Shipbuilding Dry Pack Co 

Galveston Dry Dock Construction Co 

Jahncke Shipbuilding Co 

Services Wm T Donnelly 

Goo Leary Construction Co 

Total 

3 Marine railways

Cumberland Shipbuilding Co 

Crowinshield Shipbuilding Co 

Newcomb Lifeboat Co 

R S Salas 

Terry Britain 

Tampa Dock Co I 

Henderson Shipbuilding Co 

Barnes Tibbetts 

Crandell Services 

Total 

LEGAL PROBLEMS

The Emergency Fleet Corporation is a new departure in t

chinery of government It is in form and in many respects in 

a private corporation and yet the ownership of its stock 

United States and the delegation to it by the President o

duties and powers have made it in many respects a Gove
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOAR

agency This dual character has raised many novel ques

law and procedure resulting in unusual demands upon th

Division

It has been necessary for the Legal Division to grow rap

keep pace with the enormous increase in the work of the Em

Fleet Corporation During the last year it has grown from 

of 7 attorneys located in Washington to a staff of 32 scattered t

out the country Of these 23 are located at the house o

Philadelphia 1 each in Washington Boston New York Cle

Seattle and Portland Ore and 3 in San Francisco Wh

chief activities of the division are at the home office it h

found necessary to have assistant counsel at the principal sh

ing centers In addition to this local counsel have been sele

certain points to advise the representatives of the Corporatio

necessary

The legal services for the Corporation include the drafting 

tracts not only for ships but for practically everything th

with them and for the extension of shipyards and other f

necessary for the production of ships in the quantity and w

speed required by the present emergency Legal advice and 

ance have been given the various other divisions of the Corp

in construing the contracts and meetin the innumerable qu

that arise in the prosecution of the work including those inci

the dual character of private corporation and Government 

One of the most important tasks which the division has enco

is making settlement with the shipbuilders and also with the 

of hulls and materials in shipyards which were requisitioned in 

stages of incompletion the amounts involved in some cases r

many millions of dollars

Another task which has demanded much of the time and at

of the division is the housing of shipyard workers It soon 

evident that the Corporation would have to aid to a greater 

extent in housing the workers at many of the shipyards and 

was found which gave it authority to do so properly Ad

power was conferred by an act of Congress authorizing the a

tion of property the making of loans and expenditure of mo

this purpose at the same time giving the Corporation po

requisition property or its temporary use for shipyard worker

der the plan adopted the housing facilities are secured throug

to the shipbuilders or subsidiary companies The appr

methods of legal procedure for exercising these powers bad 

formulated proper housing had to be provided for the s

workers with due regard to the rights of the public whole v

have been built involving questions of municipal governme
116 SECOND ANNUAL REPORT UNITED STATES SIIIPPING BO

many claims for just compensation for property taken h

presented As indicating the success with which this pro

been handled practically all claims and matters of differe

been settled by negotiation in a friendly spirit and no litiga

resulted In a number of cases the means for transporting 

to and from the yards proved inadequate and it has becom

sary to assist the transportation companies in meeting th

ordinary demands upon them in order to avoid retard

production

Congress has been asked for legislation giving the Co

power to prosecute criminally those attempting to defraud 

poration on the ground that such action is in effect an at

defraud the United States In a number of instances effor

Corporation to purchase property of prime necessity for the 

tion of ships have been met not in a spirit of patriotism 

spirit of profiteering An extension of the requisitioning p

been asked so that such property may be acquired prompt

a fair price The enactment of these laws and the grantin

appropriation which has been asked are deemed of vital im

to the success of the Corporation sundertaking and the pro

guarding of the Government sinterests Bills embodying 

lation desired are now pending

COMMANDEERING OF VESSELS IN COURSE OF CONSTRU

On August31917 the Corporation acting under the urgent 

cies act commandeered all hulls and material in American s

to be used for the construction of steel cargoarrying vesse

2500 dead weight tons capacity The purposes of this com

ing order were to secure to the United States a tonnage wh

wise would have gone very largely into foreign ownership to 

construction by simplifying the designs of many of these ship

vent interference by these ships with others which the Co

proposed to construct to acquire control over the Americ

building industry which could not be acquired except by ou

direct relations with the shipbuilders and to be in a positio

times to allocate material and equipment between these s

others At the time of the commandeering order practically 

available shipbuilding capacity of the country was taken up 

the building of ships for the Navy or in building these comm

ships These ships were in various stages of incompletenes

some cases only a few materials had been acquired by the 

The shipowners particularly the foreigners who contro

half of the commandeered tonnage were loath to surren
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

ships and to settle on a money basis because of their very 

needs for ships until after it was very persuasively pointe

them that the United States really had no other course O

thirds of all of these foreign claims are settled and negotiat

pending for the settlement of many others The American c

some instances have been settled by retransfers of the ship

ment of our investment in them and a charter securing th

the ships to the United States during the war

The construction problems were more important The 

tion soon after the commandeering sent experts to consid

changes could be made in these ships so as to simplify th

hasten their completion These changes were made togeth

others to adapt the vessels for immediate service in the w

they have been dealt with precisely as other ships buildin

direct contract

The results of this commandeering order have been far mo

factory than was at first believed possible All except a v

of the earliest ships have been retained either by the Shippin

or by the American citizens who immediately chartered th

to the Shipping Board Out of a total of 414 ships of2804

covered by the commandeering order excluding canceled and 

tonnage 255 ships of 1596 831 tons have been completed 

October 1 1918 The case of the New York Shipbuilding C

tion may be cited as an instance of the acceleration of produ

a result of the Corporation scontrol Only 5 ships of a to

nage of 38424 tons were completed and delivered in their pla

ing 1917 During the first nine months of 1918 13 ships o

tons have already been delivered and there is a very strong 

bility that 3 more ships of 2600 tons will be completed 

livered before the end of the calendar year 1918 This is an 

case but there are many others where production has increas

rapidly after the commandeering order

The Corporation feels that all things considered the comm

ing order of August 3 1917 has abundantly justified itself

CONTRACTS FOR SHIP CONSTRUCTION

Originally it was supposed that the main function of the 

gency Fleet Corporation would be that of developing desig

placing contracts for ship construction With the expansion 

war program and with the increased demands for quantity 

tion it gradually developed that in order to cope successfully w

situation it was essential for the Corporation to assume mo

tive control of sonic of the managerial functions of the sh

An important part however of the work of the Corporation 

around the consideration preparation and execution of contr
118 SECOND ANNUAL REPORT UNITED STATES SKIPPING B

build ships and also contracts for dry docks for marine 

and for the installation of machinery and equipment

On the basis of the construction program as approved by 

ping Board shipbuilders are notiliod as to the numbers 

tonnage of vessels for which the Corporaeion will consider 

they submit detailed proposals accordingly with full data 

producing capacity labor supply availability of materia

standing etc This data is carefully sifted by the appropr

ions of the Corporation and by district representatives b

tracts are entered upon In general the Emergency Flee

tion has preferred to utilize and expand existing plants ra

to encourage the creation of new plants which compete 

established plants for labor and disrupt their organization

The number of contracts granted to a certain yard is limi

ways available other contracts being made as facilities fo

are completed In the case of new yards approved by tle E

Fleet Corporation contracts are considered up to two a

three vessels per way The Corporation however reserves 

to cancel contracts for vessels not yet begun reimbursing t

of the plant for expenditures made in getting the plant rea

After the Contract Division of the Corporation has ma

necessary investigations and agreed upon the terms of con

advances to be made to contractor for improvements and e

etc the proposed agreement is submitted to the vice pre

charge for his approval If approved the Legal Divisio

Emergency Fleet Corporation prepares an agreement 

approves as to form and which the Contract Division ap

to substance

In the case of wood vessels there are two general type

tracts1for the completed vessels and 2 for hull only 

latter case the Emergency Fleet Corporation furnishes an

the engines and equipment Even in the case of contracts 

pleted vessels the Corporation reserves the right to furn

parts of the equipment as it can supply more cheaply an

standard equipment is regularly furnished by the Corporati

vessels constructed by it

Contracts in the earlier period of the Corporation were 

either 1 a lumpsum basis by which the shipbuilder su

certain definite figure for which he would build a certain 

ship or 2 a fee basis by which the builder submitted a pr

build for a sum not to exceed a certain figure and to take 

fee in return for his services with provision for bonus shared 

builder and Corporation in case actual cost fell below the 

cost Except in the contracts to agency yards built from 

tion funds and in the case of new or special types of vessel
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

tracts are now made on a lumpsum basis In such contra

builders are protected by the Corporation against increases in 

of constructional material and against increase in labor cos

changes in wages made by the Shipbuilding Labor Adjustmen

Terms are also agreed upon as to alteration delays cancel

contract loss of vessels before completion and terms of pay

From the time of its organization up to August 31 191S 

poration had negotiated 495 contracts aggregating 295 

with a total of 141930 dead weight tons involving an es

cost of82319 2604

MANAGEMENT OF SHIPBUILDING DISTRICTS

The functions of the original organization of the Emergenc

Corporation centered largely around placing of contracts 

development of proper standardized designs for ships It 

apparent very early in the life of the Corporation howev

owing to the peculiar conditions growing out of the prosec

the war shipyard owners were in large degree unable to contro

the material or the labor supply of their yards and it th

devolved upon the Corporation to build up an organization 

would supplement the functions usually served by the yard m

ments and would in many cases in fact supersede them This 

in the functions of the Emergency Fleet Corporation threw 

mendous load on the central management and it became a

that if success were to be achieved a scheme of decentralizat

to be developed

For the purposes of administration the country had been 

into 11 districts and there was placed in each district a represe

of each one of the operative and administrative divisions 

Corporation These representatives reported directly to the 

head at the home office and acted therefore merely as trans

agents for difficulties in question that arose in the field

As a first step in the decentralization it was determined to 

in each district an organization which to all intents and p

was a cross section of the organization of the home office co

all matters affecting the district being placed in the bands 

district manager who reports directly to the vice preside

general manager

The actual change from the old to the new district organizat

a matter of comparatively slow growth because the district 

were given time to develop experience before they were charge

the full responsibility of the new scheme The districts wer

ranged several of the old ones being consolidated and the n

was reduced from 11 to S
120 SECOND ANNUAL REPORT UNITED STATES SDIPPING BO

EXTENSION OF SIIIPBUILDING YARDS AND FACILITIE

When the United States entered the war there were 37 

building steel vessels and 24 shipyards building wooden 

over 3000 tons in the United States There were 142 tra

steel yards and 73 shipways in the wooden yards Abo

cent of the ways in the steel yards were constructing vesse

Navy and many of the wooden yards were unfit for mod

building purposes In order to procure ships it was 

necessary to expand the existing yards and to build new on

The means to accomplish this expansion of shipyard fac

sisted in advancing funds on the contract with permission 

them to plant construction The encouragement thus len

many contractors for wood hulls to provide facilities out o

with the number of hulls ordered or the prospects ahea

the ways in steel shipyards made available for Emerge

Corporation work were increased from 142 to 393 by No

1918 those in wood yards were increased for a much smalle

from 73 to 41S The number of steel yards taking part i

program has been approximately trebled and wood yards q

since the United States entered the war

The Emergency Fleet Corporation has provided for the 

of four large fabricating steel yards at which standard

vessels are assembled a large part of the cork being done in 

facturing establishments that furnish the steel

These agency yards as they are called are the Ameri

national Shipbuilding Corporation at IIog Island Pa the 

Shipbuilding Corporation at Bristol Pa the Submarine 

poration at Newark N J and the Carolina Shipbuildi

Wilmington N C These four yards now practically com

have a total of 91 ways and when in full operation are e

produce in a year more tonnage than the largest annual p

of any country prior to 1918

There are five Governmentowned yards for building 

vessels These yards are located at San Diego Cal Oak

Wilmington N C 111obfle Ala and Jacksonville Fla 

has four ways and is capable of considerable expansion s

necessity arise

There were on November 1 1913 19S yards which had 

for the construction of vessels for the Emergency Fleet Co

These yards have a total of 1083 ways completed or b

structed of which 939 are for Emergency Fleet Corporation 

144 for the Navy or private work

For convenience in administration the shipyards buildi

for the Emergency Fleet Corporation can be divided into fo

as follows
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

1 Government agcney plants These as stated before includ

yards building fabricated steel vessels and five yards building co

vessels These plants were built with Emergency Fleet Corp

funds by agents who contracted to build the yards at cost W

exception of the Submarine Boat Corporation which builds 

on the lumpsum basis these yards build vessels for the Eme

Fleet Corporation on the cost plusfcc basis Ships are con

for at a certain figure estimated to cover the cost of the vesse

the contractor receives a fee from 3 to 71 per cent of the est

cost with a bomis in case the vessels are built at a cost less th

estimated figure or in case of delivery before the scheduled 

The Emergency Fleet Corporation bns an option to purcha

real estate from the contracting company in the contracts w

Merchant Shipbuildin Corporation and the American Interna

Shipbuilding Corporation In case the Corporation does not e

its option to purchase the contractor may purchase the improve

at an appraised valuation

The Emergency Fleet Corporation owns the land upon whi

Carolina Shipbuilding Co splant is located The contractor h

option to purchase the land and the plants In case of the 

marine Boat Corporation the Emergency Fleet Corporation 

lessee of the land and is renting the plant at a fixed sum 

Submarine Boat Corporation

2 Investment plantsThe Emergency Fleet Corporation fur

the major part of all of the funds needed for plant constructi

most of these and retains title to the property paid for by it

The contractor as a general rule has an option to purcha

plant and the Fleet Corporation in some instances has the ri

purchase the real estate of the owner

3 Contract yards These are yards operated by private 

building companies which receive contracts to build vessels f

Emergency Fleet Corporation The majority of the shi

belong to this class Contracts have been let to these yards 

lumpsum basis the cost plus fee basis the cost plus fee and 

saving basis and the per dead weight ton basis In a num

cases advance payments on account of the vessels have been 

to assist in plant expansion Repayment as a rule is secured 

bond and mortgage and the Emergency Fleet Corporation is f

given the right to retain the amount advanced out of the a

due the contractor on the purchase price of the vessels Co

tions have also been made by the Emergency Fleet Corporat

increase the plant facilities of the contractor in some cases on 

tion that the contractor expend a certain stated amount of h

funds for the same purpose

4 Requisition yards these are yards whose output has 

requisitioned by the Emergency Fleet Corporation Such yard
122 srcOND ANNUAL REPORT UNITED STATES SHIPPING 

secure contracts to build additional vessels if satisfactor

be arranged when they finish the construction of the r

vessels Most of these yards have been receiving con

time to time as the requisitioned vessels are completed 

ingly may also be classed as contract yards

Shipyard Plants Division

The work of the Division of Shipyard Plants is primar

ing and technioal The engineers of the division examin

on all plans for plant work and supervise the construct

yards industrial plants dry docks and marine railwa

yards and other similar plants including grounds build

fronts dredging sbipbuilding ways handling and yard 

railroad tracks and equipment street and roads water 

drainage systems fire protection systems power plants 

bution systems installations of tools and all other parts o

equipment necessary for the building of ships in which the 

Fleet Corporation is financially interested

They examine shipyards and other establishments at 

tracts are proposed to be placed with reference to th

facilitic3 and capacity to carry out proposed contracts an

possible extensions and in some cases also investigate e

cost They also inventory at the various plants all p

which the Emergency Fleet Corporation is financially inte

see that it is properly marked

District plant engineers having jurisdiction over cert

districts are appointed to represent the Division of Shipy

in their respective districts Resident engineers are a

supervise particularly plants in which the Emergency F

ration is financially interested or when it is deemed a

assign an engineer in such plant Supervising or residen

are stationed at agency yards to represent the division at 

The home office maintains a consulting force of experts o

fire protection power supply and on various other phas

yard construction

To September 1 1918 the Emergency Fleet Corpo

invested or contracted to invest in shipyard plants app

150 00 Of these investments the largest were at th

and plant estimated cost to complete 63000and a

of the Submarino Boat Corporation estimated cost 10

the Merchant Shipbuilding Corporation estimated cost 10

the New York Shipbuilding Corporation estimated cost150

and the Carolina Shipbuilding Co estimated cost 5300

Emergency Fleet Corporation had investment interests 
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOARD 

authorized in 41 shipbuilding plants the majority of these i

nection with contracts to build vessels the usual proceeding 

to authorize the contractor to use a certain proportion of ad

payments for improvement or expansion of his yard facilities

The expenditure of approximately 10500 0 for Scotch 

plants and for steel fabricating plants was also authorized

In the two following tables will be found 1 a summary tabu

of shipyards engaged in constructing vessels for the Eme

Fleet Corporation showing grouping by districts and 2 a 

the shipyards of each district indicating the location of each 

and the type of vessel building therein
124 SECOND ANNUAL REPORT UNITED STATES SIIIPPL NG 

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0

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SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

List of shipyards engaged in construction for the Emergenry FIcet Corporation Oc

1918

NORTH ATLANTIC DISTRICT DISTRICT NO 1

Name Location

Sfeel shipyards afr30001a a

Gen A Gilrhrest

Gminn Iron Works C retain Conn Atlantic Corporation

Bcthh hemShipbuilding CarprationLld Ibrtsmonth N II

Quire y Mass

Tesas ShipbuildingCo I

Bath Efe

Wood and concrete shipyards aver30001ona

H

conch Freeport Me

Russell ShipbuildingCc Portland Me Gen A Gilrhrest

Downey Shipbuilding Corpration

Newburggh Shipyard Idc

Thomaston Ere Cumberland Shipbuilding C d Me L 11 Shattuck Inc Yort hin FreTrt po Shipbuilding Cc

The eiley Spear CO

H

conch Freeport Me

The Sandy Point Shipbuilding Cnqemlinv

Bath MC

Sandy Point Me

Wood nya sad Dar e

shoiags

Newcastle Shipbuilding Co

Newburggh

F

N Y uppe

Ilzebelhpert NJ

Domarisrotte Me

Crosby Navigating Cc Rkhmend Me

pbuildingCO

Arverne L IN Y

RT

South SOmrrsrt Mass ree Green build

The Foundation Co

MR Cllrlsra At 3 achias i ng Cc

Nauvk Cann

Al ins Me Francis Cobb Shipbuilding ding Co

ion

Gildersleeve Shipbuilding Co

lfoekland Me

NORTH ATLANTIC DISTRICT D tiTCICT NO 2

stff 8h 1detr3000 tO11A

Downey Shipbuilding Corpration

Newburggh Shipyard Idc

Arlington N Y

Federal Shipbvlding Co Newburgh N Y lowe

Kearney N

Bayles Shipyard Inc

J

Pert Jogaawn L Lt N

Standard Shipbuilding Co I Shoooters N Y

submarine

Staten island

Boat

Shi building

Corporation

Cn farina rV NY

Newark N J

shoiags

BNewburgh ethlehem ShipVya Shipbouting IvaCorporation Newburggh

F

N Y uppe

Ilzebelhpert NJ

Providence Engineering Corpora ion

New Jersey Dry Deck Transportation CO

City Island 9 Y

EIvnbethport

W 13 Gahagav Inc

N J

Arverne L IN Y

Wood and concrete shi pyards over3000 ions

The Foundation Co Newark N J

Groton Iron Works Nauvk Cann

Ship Construction Trading Cc

Tre lot Shipbuilding Coravat ion StavingtonKCann

Gildersleeve Shipbuilding Co CTvllsGildersleeve Conn

Kingston Shipbuilding Cc

Job Housatonic I ousatonicShlpvard Shipbuilding Cnrpomrton Co Inc

DY

KivFston Dranners Iiaiher N Y Stturn rd Conn

Continental Sldpbuddmg Corporal ion Yonkers N Y

Fougner American S C Shipbuilding Co North Busch L IN Y

Wood lug and bargrs

International Shipbuildingg Marine Engineering Corporation

G w as Engine k Power Co C L Seabury

Nyack N Y

IeMorris IIeluits New Yo

J 11 Mathis Cc Camden N J

Jahn W Sullivan Co Staten Izlund N Y

A C l3nown Sects Tottenville N Y

DELAWARE RIVER Disaster DISTRICT NO 1

Steelshipyards oeu 30001ons

Bethlehem

P

Shipbuilding Corporation Ltd Wilmington Del

osey Jonra Do

Sun Shipbuilding Co Chester Pa

New York Shipbuilding Corporatton Camdev N J

Do

Camden N1south ya
126 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

List of shipyards engaged in construction for the Emergency Fleet Corporatio

1915Continued

DELAWARE RTvER DrSTIQLT DISTRICT No 10Continued

Name ILoca

Steel shipyards Peer 3000 tonContinued

Chester Shipbuilding CI Chester Pa

Cramp ew Sons Ship Engine Building Co Philadelphi Pa

Jersey ShlnboM ng Co Gloucester 7

pbuilding

Alexandra Va

Pennsylvania S Co Do

OosesnmentownedfaDricaarg plants

Shippyard Ca

Newport NewsWV

AlaV ren Intervnto n d Shipbuilding Corporation Uag island Pa

Merchant Shipbulkling Corpomtion

nrunsInek Ga

Bristol Pa

XfICPLE ATLANTIC DIsTRfCT DISTRICT NO 3

Slcel shipyards over3000 tons

Baltimore Pry Dark Shipbuilding Co Baltimore Aid s

Do Baltimore Md l

Virginia Shipbuilrljng COrpmoion Alexandra Va

Bethh4aoa Shipbutldtng Corporation Ltd Sparrows Paint 

New News Shipbuilding Dry Dock Co

Shippyard Ca

CIE

Newport NewsWV

lxi Shipbsstldmg Corporaion Wilmington 

Wood and mnerete shipyards one 3000 fen

nrunsInek Ga

Tampa pockk

M land Shipbuiding Co Sellers Point Md

QI Teelmyy Co

smith Sons

amptan Va Baltimore

Sea Ii Bridgea Iraln

U ET arittma Corporation

e a

kSi lit CnrporatioomTan 0a u6iverer Shlphmldmg y SlaStiihipb

Morcv d Thomas

IvSt Paitntr Va

Wilr N 

Korth N Caroelinna Spuildmg Shipbuilding CoO

I4atilinnI Shipbuilding DYY Dock Co

Morehead City N

Wood taps and harprs

LJbrty Shipbuilding CO

A Bentley Sons CO

IL M Davis Sans Ine

Wend to Sad barges

SOJOTRWIe Md

SldMivildiog Co

Southland SteamshipCo CO

Baltimore Md Nb 70anls rtelaven 6hybni Ping Ca Whitehaven Md

2ibbs G J PGas Engint J ilkiygton

lcakte Mears Shipbuilding Co Sharptown Id

6race Maxine Ctmstruetion Co

Ward Pride

Annapolis lid

II P OraokCo Baltimore bid

V

DavLS Shipbuilding ShipbuildingBeCo

Cambridgge Md

A tltmd Del Smlth imardWilliams Co SUduury Md

DISTRICT No

Stce shipyards ooer S use tons

Merrill Stevens Shipbuilding Corporation JeeksonvhledaFla Terry Shipbuilding Corporation savannah

Oscar Damcls CO Tampa Fla

Wood and concrete shipyards over3060 tons

St 7obns River Shippyard Ca Tacksnnville Fla

Amertean Shipbuilding Ca nrunsInek Ga

Tampa pockk Oo Tampa Fla

JM FSurdceA Jaeksoc elleFla

U ET arittma Corporation Brunswick Ga

Morcv d Thomas 7acksonvdlq Fla

I4atilinnI Shipbuilding DYY Dock Co I SaTtu v dt Ga

6

LJbrty Shipbuilding CO

A Bentley Sons CO Jacksanvillq cks Fl Fa

Wend to Sad barges

Southland SteamshipCo CO avannah Ga

outb Jtu 6nvlll

2ibbs G J PGas Engint J ilkiygton Jffami Fla

Ward Pride South JacksOnv
SECOND ANNUAL REPORT UNITED STATES SKIPPING BOARD 

List of shipyards engaged in constmetionfor the Emergency Fleet Corporation Oc

1918Continued

D1sTRIC rNo S

Name I

Location

Steel sAtpyards ore 1000 tons

Mauston Ship Channe

Beaumont Tex

Morgan City La

Orange Tex

Beaumont Tea

Orange Tex

Houston Do Tex

Beaummq Tea

Rockport Tex

Alabama Pry Doek Shipbuilding Co Pinto Island Ala

Pensarain ShIpbuilding Co

Doullut Pillton s Shipbui ding Co

Pensarals Fia

New Orleans L0

Mobile Shipbuilding Cis Mobile Al

Steel tugs

Western Pipe Steel Co

Johnson Iron Works Ltd New Orleans I

Wood and counters shipyards ever 1000 tans

Long Beath Shipbuilding C o

Aferrill Stevens Shipbuilding Corporation Slidell La

Dierks Blodgett Shipbuilding Co PaseagmAo Miss

Murnan Shipbuilding Corporation Pinto island Sle

Hodge 6h1p Co Inc Point kiss

Dantzler Shipbuilding Dry Durk Co j

tossDo

Jahncke Shipbuilding Co Inc IMadisonville La Alabama Dry trade Shipbuilding CO Mobie Ala

F T Ley Co Ina Do

Wood tags and barges

Kruse Banks Shipbuilding Co

American Lumber Co Afillvllle Fla

Nashville Bridge Co Nashville Trnn

GULP DISTRICT onver Lr DITRICT No 6

Wood and concrete shipyards are 1000 bus

Universal Shi pbuilding Co

McBride Law

Union Bridge Construe ion Co

National

Lone Star

Shipbuilding

Shipbuilding

Co

Co

J M McCammon

Southern Dry Dock Shipbuilding Co

Midland Bridge Co

Beaumont Shipbuilding Dry Dock Co

Heldentels Bros

Mauston Ship Channe

Beaumont Tex

Morgan City La

Orange Tex

Beaumont Tea

Orange Tex

Houston Do Tex

Beaummq Tea

Rockport Tex

SOUTHERN Ie Cletc DISTRICT DISTRICT No 71

Steel shi pyards aver 1000 tons

Los Angeles Shipbuilding Dry Dock Co Les Angeles Harbor C

Moore Shipbuilding Co Oakland Col

Western Pipe Steel Co outh San Francisco C

Southwestern Shipla ildmg Co San Pedro Cal

Long Beath Shipbuilding C o Lang Beach Cal

Pacific Coast Shipbuilding Co Suisun Bay San Franc

Hanlon Dry Doe Shipbuilding Co Oakland Cal

Bethlehem Shipbuilding Corporation Ltd Alameda Cal

Do San Francisco Col

Union ConsWUCtionCo Oakland Cal

Wood and concrete shipyards aver JWO tans

Hammond Lumber Co

Kruse Banks Shipbuilding Co Humboldt North BendBayrev gCal

Fulton Shipbuilding Co

Coos Bay S 1pbui Wilmingtonbreg Cal ing Co

Ralph J Chandler IncJ Afarshfield Wilmington Cal

Benicia Shipbuilding Corporation Benicia Ben Calal

RalphSnShipbuilding Co Humboldt Bay Cal

Francisco Shipbuilding Co San Frsnci co Bay Ca

Scofield Engineering Co San Diego Cal

Bnod tugs and borg s

Main Iron Works Oakland Cal
12 SECOND ANNUAL REPORT UNITED STATES SKIPPING BO

List of shipyards engaged in constructionfor theFnergency Fleet Corporatio

1913Continued

NuRIPFCN PACn Ic DISTRICT DISTRICT NO 8

Name ioeati

Steel seipyards ourd0o0 tons

Skinner kiddy Corporation O Lard No 1

Skinner Eddy Corporation yard No

Todd Dry Dock Construction Corpora lion

Seattle Narth Pacific Shipbuilding Cc

J

G

F

M

Duthie

Stauffer

Co

Construction Corporation

Northwest Steel Co

Columbia River Shipbuilding Corporation

Albina Engine Machine R arks Inc

Ames Shipbuilding Dry Dock Co

Wood and mc vtr shipyards over 3099 inn 9

Sloan

Do

Shipyards Corporation

Grays Harbor M S Corporation

Sanderson Porter

Grant SmithPorter Ship Co

Nilson Sales Shipbuilding Corporation

Seaborn Shipyards Cc

Barbara Bros

Wright Puget SoShipyards Bridge Dock Co

Pacific American Fisheries

Alien SlAphuilding a

Tacoma Shipbuilding Co

Meacham Bahcack

Patterson McDonald Shipbuilding Co

Seattle Wash

Tacaina Do Rash

Seattle Wash

Fancoucer Do Was

Portland Greg

Seattle Do Ito Wash

Auacortes Rash

O13 mpia fyash

9berdeen Wash

Re ro2Rhas

AhenleenI4 ash

Seattle 6 nsb

Tacoma Rash

SeattleDo Rash

South heilinghar

Seat We Wash

TJfan13 IN ash

Seattle Wash

Do

D11TRICS NO 11

Wood end corc dshipyards over 1000 tons

G M Standifer Construction Corporation Portland Oreg

Do

Peninsula Shipbuilding Co Vancouser Portland dreg Nas1

Coast Shipbuilding Cc Do

SOmmarstrom Shipbuilding Co Columbia City O

Wilson Sbipbuilding CO Astoria Oreg

Gen F Rodgers C Do

S ns Shipbuilding CO StOreg

Fvy eeny ii

Tillamookarno kOreg

p CO ernit ShipCo Astoria

Grant Grant SmithPrate Ship Co s Joh ns Portla

Supple Ddlin Lortla intla Oreg

Kiernan Fern Do

GREAT LAKES DISTRICT DISTRICT NO 9

Steel shipyards over3090 tons

Saginaw Shipbuildir Saginaw Mich

American

Do

Shipbuilding Co Buffalo N Y

Chicago Ill

Do Cleveland Ohio

Do Wyandotte hfic

Da

Do superior Lorain thinWis

Toledo Shipbuildingo Poled Ohio

Globe Shipbuilding Co Superior R is

Great Lakes Engineering Works Ashtabula Ohio

DO licrose Mich

McDougall Duluth Co Duluth Minn

Menitoerm Shipbuilding Co slanitowoc Wis

Steel toga

Northwest Engineering Works Green Bay is

Whitney

Lake Omm

Bros

Shipbuilding

Co

CO

Superioq 5is

leceland Ohio

Foundation Co Port Huron Shipyards fort lluron Mic

Wood IC and harycs

S C McLouth Marine City51s Mic

Burger Boat Co i3I11towor

klnh arsal Shlphuild ing CO Sturgeon Bay W

Leatham brothTIV Co llo

DachelCarter BoatCO I Denton Harbor 
SECOND ANNUAL REPORT UNITED STATPS SHIPPING BOAR

THE FABRICATED SHIPYARD

Mien the magnitudo of the emergency construction task 

viding tonnage to move the millions of fighting men to Europe 

replace the enormous war losses was appreciated it was realiz

all existing expedients for securing ships were wholly inad

A capacity of from 6000 to 10000 dead weight tons 

was needed in order to allow a safe margin whereas our be

building year 1016 had produced less than 300 0 dead wei

of new ships A wholly new plan of ship construction was t

necessary in order to supply the enormous number of ships 

in the limited time available

The limited capacity of existing shipyards offered little pro

sufficient expansion if the old plan of manufacturing all the 

the ship in the yard was to be followed Many steel shops fo

tural and bridge work were idle because of the cutting off 

material and hence the idea developed of utilizing their e

capacity for the preparation of parts which would be sen

shipyards for erection into the completed ship After pre

consultations and investigations the plan of the fabricat

was designed i e a ship whose parts are prepared in ste

cating shops and assembled in the shipbuilding yards

This involved standardization of design and a ship was d

with simple lines flat decks and few curves so that many st

could be preparing plates on the same pattern

New assembling yards had to be planned to be built fully e

for assembling and outfitting a large number of ships whos

were prepared outside The necessary capital for such an 

taking had to be enlisted and for this task private enterp

inadequate Moreover this was tho country sbusiness and 

found that direct governmental ownership and operation 

yards was the only satisfactory course to follow

After fully canvassing the possibilities it was decided to c

with governmental funds three great sbipyards oneat Ilog 

on the Delaware River just below Philadelphia one at Bristo

the Delaware River near Trenton N J and one on Newark B

These yards when completed were to be operated by the con

also with Government funds for the assembling and outf

ships the parts for which were to be fabricated or manufac

hundreds of existing shops throughout the country For p

constructing and operating these yards the contractors w

the status of agents of the Government were to be paid a fe

upon the estimated cost of the ships actually built in the ya

no fee for their services in planning and building the yards 

fee becomes payable on the completion of each individu

the contractors get no revenue for at least a year after b

83427189
130 SECOND ANNUAL REPORT UNITED STATES sIIIPPING BO

work The estimated fee is 5 per cent of the cost of the ships 

be increased to about 6 per cent or reduced to about 4 pe

case the ships actually cost less or more than the amount 

estimated The Government assumes the risk of increa

through authorized advances in wage rates or material pri

The yard at Bristol is that of the Merchant Shipbuilding 

tion an organization which is associated under practically 

ownership with the Chester Shipbuilding Co of Chester Pa 

designing and engineering work of both companies is handle

same organization On September 7 1917 this corporatio

into a contract with the Emergency Fleet Corporation for 

struction and operation of a yard at Bristol Pa having 12 

for 9000ton ships with fittingout piers and sufficient shop 

to fabricate about 15 per cent of the steel required in the sh

cost of yard piers and shops is approximately 12000 

yard was ready for the laying of its first keel February 

about five months after the beginning of the contract

The largest of the yards is that of the American Inte

Shipbuilding Corporation at Hog Island This corporat

subsidiary of a great banking and promoting concern the 

International Corporation which also controls the New Yo

building Corporation at Camden N J The engineering e

of this long established concern has been available for the 

and development of the new organization Though dis

swampy in its original state Hog Island was chosen as an ap

site for an enormous shipyard because of its inland protected 

on deep water near a large industrial city with suitable railr

nections and in close proximity to the steel mills and fa

shops

The contract between the American International Shi

Corporation and the Emergency Fleet Corporation dated S

13 1917 called for the construction and operation of a yar

20 ways for 7500 ton ships and 30 ways for 8000ton sh

fittingout piers and shops for corrections and replacement 

for a very small portion of direct ship steel fabrication

During a winter of unusual rigor the work was pressed 

against the severest difficulties and on February 12 1918 

was 50 per cent completed and the first keel was laid

The cost of constructing the yard with its piers and 

approximately65000 It covers Sib acres with 250 b

includes 80 miles of standard railroad track contains300

of underground wiring and uses 20 locomotives with 165 au

trucks The 50 ways extend about a mile and a quarter 

river front and altogether there is a water frontage of 200

Fifty ships can be built on the ways while 28 are being ou
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

the piers making a total of 78 ships on which work may be in 

at one time

For the comfort safety and health of the workers the 

supplied with a hospital a Y 11 C A a hotel a cafeteria a

school and special attention has been given to the hou

transportation of the 30000 men employed The first ship 

at IIog Island the Quisteonck was launched on August 5 1

The construction and operation of a yard at Newark N 

provided for in a contract dated September 14 1017 with 

marine Boat Corporation which was engaged in the bu

submarine chasers before taking up its present work an

draws largely upon the engineering experience of men w

been identified with bridge and structural work Twentyeig

for 5000ton ships were provided for in this contract and 

was also to be supplied with outfitting pier and with s

fabrication of about 6 per cent of the steel required in th

The cost of construction of the completed yard is estim

17000 The first keel was laid December 20 1017 a l

three months from date of contract In this case a grea

construction work had been done by the contractors be

execution of the contract

All of the yards are fully equipped with machine shop

metal shops mold lofts and template shops administrat

engineering buildings railroad tracks and roads barracks 

houses mess halls and other social service buildings A g

of work has also been done in improving transportation facil

construction of permanent houses outside the yards

Shipbuilding contracts have been made with the three ya

described as follows

hate of Character of ship umbar Capacity weight Dead 

cmttrect ommg0

American International Shipbuilding

CarPo uhnn Ton

Sept 13917 Cargo ship 50 7500 375 000

Oet 231917 Cargo and troop ship i0 8o 56U IMO

May 7 918 Cargo ship 69 75U1 45U Gq 

Totat Ivl 1315 000

Merchant Shipbuilding Corporation

Sept 7 1917 Cargo Ship 40 9 fM0 36f1 fM10

Dec 23 1917 do 20 9Uq 180 00 

Total GO L 540 00

Submarine Boat Corporation

Sept 14917 Cargo ship 50I 5990 250000

Nov 16917 do 100 S LYO 500 q10

Total 1150 750 00 

The emtract with thisepeny was changed on May 18 1918 to a lump bas
132 SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

The grand total of ships and tonnage contracted for by the

yards all for delivery by the end of December 1919 and 

them by October 1 of that year is 390 ships of2675 000 dea

tons The total estimated cost involved is 494 80 00

These yards when in full operation will give work to abou

men whocan turn out about 40 ships with a total dead weight 

of 270 00 each month This will use 110 00 tons of stee

hulls into which must be driven 17500 0 rivets

Contracts have been made with other yards for the bu

ships which are in whole or in part fabricated in shops ou

shipyard Notable among these is the yard of the Federal S

ing Corporation a subsidiary of the United States Steel Cor

at Newark N J This yard has 12 ways and is buildin

9600ton cargo ships a total of 28S 000 dead weight ton

gether there are 9 yards with a total of 50 ways in additio

3 big Government projects which are building fabricate

They have under contract 144 vessels for delivery before th

1919 These vessels will add 1270 00 dead weight tons 

American merchant fleet

Summarizing the facts in connection with the fabricated 

find that the development of the structural steel ship and th

ment for the task of shipbuilding of the engineering experie

organizing ability and the mechanical skill of the trades w

built our bridges our great office buildings and other co

structures may be counted upon to add from 3500 0 to 0

tons of ships each year to our total

Three very significant facts should be noted with referenc

plan First if the yards had depended on their own fabricati

and facilities it would have been impossible to have deve

equal amount of new shipyard capacity for the manufactur

chinery and equipment in two or three times the number o

required under the plan adopted Second without the sh

cation work and the ship equipment orders hundreds 

throughout the country must have been closed down with 

losses to owners and employees Third the expense of n

installations at the yards if they had been built under the old 

would have run into hundreds of millions and the further 

tration of the additional workers in the already overcrowded 

districts would have required many additional millions for 

STEEL SHIP

The efforts of the Steel Ship Construction Division during 

year have been devoted to the following objects 1 To a

the construction of ships 2 to obtain ships suitable for our 
SECOND ANNUAL REPORT UNITED STATES SIIIPPING DOA

poses 3 to improve the quality of ships building to our o

to obtain ships at reasonable prices

In accelerating the construction of ships such progress h

made that in spite of the addition of many now yards the 

time consumed from laying keel to delivery was reduced from 

days in January to 203 7 days in August Our policy has 

assist the builders to construct duplicate ships of those they h

after selecting the most useful types in all yards building ex

for the Emergency Fleet Corporation This has practically 

in one class of ship being built in each yard a condition 

obviously conducive to maximum production New yar

likewise concentrated upon a single type so that upon co

of the first ship a substantial saving is effected in the followin

Serious consideration is now being given to the reduction of t

ber of types of ships which if adopted will materially 

production and simplify some of the problems of operation 

involving a slight initial delay

During the year ending August 31 1913 566 keels have b

353 ships launched 237 ships of1500 0deadweight tons h

completed and placedinservice and 9113 5S0 dead weigh

ships have been contracted for

A materially better accomplishment is confidently expecte

the coming year as the conditions in the yards up to the sprin

year were not very favorable owing to difficulties experie

obtaining and keeping the necessary labor Many of the ya

in process of construction and those on the Lakes and e

worked under very adverse weather conditions during the w

At present the labor conditions have been bettered to a gre

though there is still room for improvement the yards have be

pleted and the rate of production of ships is almost equal to 

tions One of the present troubles is the difficulty in securi

ery of our raw materials notably steel in proper sequence

A perplexing problem at the beginning of last year grew o

administration of the commandeering order of August 3 191

in an earlier part of this report This has in the main been 

torily solved both in our relations with the builders and 

former owners there being but one case in which settlement 

been made with the builders

The experience of the various yards during the past year in 

of management labor and material has demonstrated 

general policy of the Corporation in discouraging the estab

of new yards was correct as was likewise the policy of exten

building facilities of those yards which have demonstrat

efficiency in ship production inasmuch as the establishment 
134 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

yard requires the formation of an organization which could 

obtained by robbing the established yards already unde

whereas the extension of building facilities permits the reten

expansion of an existing organization

Gratifying progress along technical lines has been made du

past year particularly in the simplification and improveme

ships and the standardization of the many fittings requir

signs of proposed now ships have been closely scrutinized an

new designs have been developed one of which is known as 

line ship In this type there is curve in the outer she

one direction the other lines being straight The design 

pared with a view to the utilization of existing wood shipy

steel ship construction on the fabricating plan with a ve

increased plant equipment To this end complete details a

tural plans shop bills mill orders purchase schedules and 

tions have been prepared so that either the Corporation or 

builder can purchase and obtain every article used in the con

of these vessels This design provides for a twin screw ins

of Diesel motol sbut the compartments and other features h

so arranged that our standard twin screw of 700 horsepo

reciprocating steam engines with watertube boilers can be 

by providing suitable foundations Contracts have been 

the Emergency Fleet Corporation for sufficient Diesel motors 

36 of these straightline vessels but owing to administrative 

contracts for the hulls have not been placed

The Great Lakes have been successful in producing a ship 

4200 tons dead weight which could be passed through the 

Canal During the winter the builders on the Lakes devel

design of the largest ship that could in their opinion be b

the Lakes and brought through the canal in sections Th

contemplated a vessel of about 6500 tons dead weight the 

tions to be joined in the St Lawrence without the necessi

docking by the use of cofferdams Vter careful examina

consultation with the Lake builders it was ascertained that 

tonnage could be produced by continuing with their standar

of 4200ton size than by building the new design of larger 

the Operating Division now has sufficient ships of this sm

for their present needs the future construction of 6500to

on the Lakes is being considered

In order to eliminate so far as possible the laborious p

riveting the possibilities of electric weld ng have been 

studied by a committee of experts and this work has bee

developed that it is now possible to weld many of the steel p

ship A notable saving in the weight of the ship is thus m

sible as well as the cheapening and hastening of production
SECOND ANNUAL REPORT UNITED STATES sIIIPPING BOA

Besides ordinary cargo ships the Corporation has been cal

to produce transports tankers refrigerator ships tugs 

barges in large quantity After a survey had been made in 

tion with the Par Department and the Shipping Control Co

plans were prepared for the conversion of some of the cargo 

into transports In addition designs have been prepared fo

troop ships and it is believed that when completed they 

eminently suitable for the purpose intended and capable afte

served that purpose of being converted into useful vessels 

cargopassenger type Contracts for the construction o

troopers have been entered into with the Newport News Ship

S Dry Dock Co the New York Shipbuilding Co and the Be

Shipbuilding Corporation Seventy of the vessels to be 

IIog Island will when completed also he fitted out as cargo t

To supply the demand for refrigerator ships especially to ca

cargoes to France refrigerating machinery has been inst

cargo vessels and cargo spaces have been insulated Bes

conversion of existing ships a new design of a refrigerator s

consideration and it is proposed to place contracts during the 

year for the construction of this class of vessels which will b

signed that after the completion of the contemplated service t

be economically suitable for commercial use

During the year the Engineering Section has also designed 

ton wood ship of the Daugherty type and a 5000ton wo

Specifications as well as complete construction plans in ex

detail have been prepared for the 5000ton wood ship and t

ready for issue whenever it may be decided that this type 

should be constructed The Engineering Section has also h

pared under its direction plans of a steel ice breaker and t

which are ready for issue whenever it is decided that contracts 

construction should be placed The Steel Ship Construction 

has also obtained during the year plans and specifications f

towing barges ocean and harbor tugs both of wood and st

has contracted for large numbers of each Designs of a steam 

and a cargo and passenger liner are now being considered

To hasten construction the manufacturing facilities of the 

had to be taken into consideration in determining the pr

machinery and boilers necessary to secure sufficient hor

within the time required In many instances it was advis

specify geared turbines and watertube boilers Operating 

tions have revealed that the geared turbine is not at its prese

of development and with the present operating personnel 

suited for cargo ships as the reciprocating engines The ins

of electric propelling machinery has been considered and whi
I6 srcOSD ANNUAL REPORT UNITED STATES SHIPPING BO

perhaps not an ideal mechanism for cargo ships yet it is 

worthy of consideration This conclusion is reached not b

the large number of successful electrically driven ships in se

because of confidence in the ability of American electrical 

to obtain a satisfactory installation and further operating 

for this installation can be obtained from the engineers 

plants operating almost identical installations on land

The watertube boiler with a trained crew and proper sup

a very satisfactory steam unit but the conditions operatin

vent complete success for the geared turbines apply to the w

boilers Arrangements are being made to provide Scotch 

our ships whenever practicable

The necessary steps have been taken to secure adequat

flage painting for vessels as protection against submarine at

to this end the best artistic talent available has been sec

thorough instruction and equipment for camoufieurs has 

vided

Owing to the urgent need of tonnage ships have in some 

been accepted when incomplete as regards certain details o

thorough trial Some of these ships have experienced some 

in service which has been principally clue to trouble with 

pelling machinery or its auxiliaries which necessarily had be

factured and installed in haste

Steps have been taken to prevent the acceptance of in

vessels and to provide that vessels have a suitable trial t

strate their suitability A performance branch has been org

cooperate with the district executives and advise them as to 

means to be employed so that mistakes on previous ship

avoided and successful installation of propelling machinery 

This branch has established cooperative liaison with both 

sion of Operations and the Navy Department so that all 

difficulties arising on ours ships can be brought to their atte

matter studied and corrective methods determined and pro

One of the principal problems connected with this branch 

the determination of the reason for the troubles with turbine 

tion It is believed that the reasons have been ascertained 

ful corrective advice supplied

The closest cooperation exists between the Contract Div

the Steel Ship Construction Division and a complete agreem

the details of the ships to be provided is brought about be

builder and the Corporation before the final determination 

This enables the Corporation to require of the builder those 

which experience and operation have shown to be essenti

purposes for wbich the ships are used after completion and m
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

lightens and facilitates the work of the Enainecring Sectio

passing upon the contract plans and specifications

Valuable assistance has been furnished by the American Bu

Shipping and I1oyd sRegister of Shipping and their coopera

been very stimulating There should be established by law 

line for American ships to correspond to those determined 

rules of the British Board of Trade

The necessity of providing more drydock facilities in the 

the United States is urgent if our ships are to be run efficien

preserved from deterioration as it is necessary they be do

comparatively frequent intervals for cleaning and painting 

must also be considered the necessity for repairs to the unde

portion of the hull for which dry docking is essential

Summary of Activities and Results in Steelship Production

On September 1 1917 there were 46 shipyards actually 

ships for the Emergency Fleet Corporation and there were 1

on the ways of a total dead weight tonnage of 881 072 and 

in the water with a tonnage of 192 70 making a total of 1

and 1073 862 dead weight tons under construction

On November 1 1918 there were 76 shipyards in which k

steel vessels had been laid and there were 374 vessels of250

dead weight tons on the ways and 119 in the water of 798 622 

weight tons making a total of 493 vessels and 374 616 dead 

tons actually under construction In other words there h

an increase of 30 shipyards engaged in building steel ships 

amount

1

of ship construction being carried on has increased b

850 107 dead weight tons

The number of shipways assigned to the use of the Em

Fleet Corporation for steelship production as of November 

amounted to 480 of which 399 were available while the othe

vacant for various reasons or not quite complete

The following tables show 1 a summary of all contracts f

ship construction as of November 1 1918 2 construction a

and deliveries during the fourteen month period ending Oct

arranged according to districts and 3 a recapitulation of a

in steelship construction during that period
138 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

Summary of all contracts for steelship construction placed and outstanding O

I Does not include the 103 tugs as contracted for

Construction activities and deliveries by districts to Oct 31 191

Dls

No

Location of office Nuelber ofYards slug

Deliveries dur

ing period

Number Dead tonnage weight

Nuberm

Number 

REQUISITIONED VESSELS

Nb

1031245789

Boston Mac

New York Ch

Baltimore M

JW1 SmiQle Fla

New Sa Orleans La

Francisco Cad

Seattlq Wash

Clevolavd Ohio

Philadelp laPa

Total requisitioned ships Aug 31917 431 

LessCanceled Transferred from requisition to contract

Roleased from requisition 1213 109406400010 5 33 

377 2352

393 

Requisition list as revixd Sept 1 1918

Due to changes made in epecifteations the dead weight

tonnage on re ships was increased

Correct deadweight tonnage to this data 393 

LesDer previous to 1 1

DelivelMred 6ept 1 191 to NV1 19198 2711 172x 012930 Z12 

Requisitioned vessels to be delivered 121 

COATRACT VESSELS

Total ships contracted for

Less Contract ships delivered 1 1 4f0 lob 10 434 00 612 200

1354 

Remaining steel ships to be delivered NOV 1 1918 1475 

I Does not include the 103 tugs as contracted for

Construction activities and deliveries by districts to Oct 31 191

Dls

No

Location of office Nuelber ofYards slug

Number

assigned of ways

togooey Flet Lmer

CtiuLlion

Deliveries dur

ing period

tinder con I

struction 

Nuberm tonna weight Decdgo Number

Dead

tovn geweight Nb

1031245789

Boston Mac

New York Ch

Baltimore M

JW1 SmiQle Fla

New Sa Orleans La

Francisco Cad

Seattlq Wash

Clevolavd Ohio

Philadelp laPa 11749538 472G3618750942 10213

1594284

164 885 112 250 78203

396 736 39425 60249 470WO 2518M51671955 21675 13700 592 91554 030 4S1 US0771 75500 460300 13 

73 390 377 2352 409 12888 460 

2

Total

NoxsThis is exclusive of the agency yards

Activities in steel ship construction to Oct 81 1918

Reelslald IIulls launched Ships 

Number Dead tonnage weight Number Dead tonnage weight Numhe

Contract Requisition

Total

353 517 331 199 238 192 304 166 325 973 199 271 106 

870 5715 47 996 3139 523 377 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

WOOD AND COMPOSITE SHIPS

General supervision of the production of wood and compos

is in the hands of the Division of Wood and Composite Ship C

tion which was separated from steel ship construction and 

separate organization in December 1917 Several weeks w

quired to create a complete home office and field organization 

and analyze the data which had been intermingled with th

ing upon the steel program determine what had been don

that time and put the work on a satisfactory basis It h

necessary to build and install complete some 130 yards bef

construction could be begun and in addition to build and 

with all shop facilities some 30 installation plants Marked 

during the year has been made in these respects and also in 

stallation of machinery in the wood ships

An important step forward was taken by establishing a 

understanding with the American Bureau of Shipping and th

eration of this Bureau has restored the confidence of the shipb

quickened production and yielded results in increased launch

Beginning August 1 1918 the Emergeney Fleet Corporatio

wood ship production has averaged at least one complete re

service wood steamship per calendar day and will increase th

age and in addition will shortly produce for sea service both 

and tugs

The progress during the year may be further shown by 

that while there were 51 shipyards operating under the Wo

Division on November 1 1917 this number had been incre

130 by September 1 1918 Of these 78 were building cargo c

wood ships 4 were building cargo carrying composite vessels 

devoted to the building of barges and 20 to tugs

The fast authorization for the construction of oceangoin

was made early in the spring of 1918 and some of these wil

livered for service on or before January 1 Authorization for 

tug and additional ocean going tug was made in July Co

for these tugs have been let and construction is now begin

proceed

The following types of wood ships are now being constru

follows

Ferris singlocrew single deck three island type 3500 

weight tons

Hough twin screw two deck three island type 3500 dead 

tons

Dougherty singlescrew twodeck with poop and fore

4900 dead weight tons

Pacific American twinscrew singledeck three island type 

dead weight tons
140 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

Grays Harbor type twin screw singledeck three isla

4000 dead weight tons

Seattle or Geary singlescrew ffushdeck type 5000 de

tons

McClelland composite type singloscrew twodeck th

type 3500 dead weight tons

Allen singlescrew singledeck three island type 350

weight tons

Supple Ballin singlescrew twodeck three island ty

deadweight tons

Peninsula singlescrew twodeck three island type 40

weight tons

The tables which follow indicate succinctly the Corpors

tivities in wood ship construction during the past year

Number of keels laid

Number of launchings

By Nov 1 NIL Between and OctNov31 11918 017 By O

Number Tonnage Number Tonnage Numb

Wood comPaalle Barges Togs

12430 4H2W30UW 3312921 137t 45076n0 69 eta 5

Total 19 490 20 4i3 1 516 9W 6

Number of launchings

Number of deliveries

By Nov 1 1917 Between and OctNov31 119151917 By 

Number Tonnage Number Tonnage Numb

Wood hulls

compaslto Barge s

Tugs

None

do

do

22718

7

809 530 59000 V

81 29800

Total 250 M550 2

Number of deliveries

By Nov 1 1917 Between Nov 1 1917

and Oct 31 1918 By 

Number Tonnage Number Tonnage Numb

Wood bolls None 81 29800 

Composite

Barges

do

do

8 30000 

Tugs do

Total I

92 328 200 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

Number of hulls contractedfbr

By Nov 1 1917 Between 1417 andNov Aug 311 1444

By Aug 

Number Tonnage Number Tonnage Number 

Wood hulls

Wood rou lete

Composite Piece

Wood barges

Roodtugs

3146158 101 00

207J NOo 1212VX81 15502 N91M4wDq 311 500 910 469 n31218732 

Total 433 1537 900 939 100 9 872 

I composite canceled r Reduced since by cancellations

Number of men employed in various wood and composite shipyards

By Nov 1 1917 

By Aug 31 1913 

Increase 

Comparative statement of work completed on hulls between October 31 1917 

tember 1 1918

The increase in the total amount of work performed on wood and compo

under construction in all yards during the period from October 31 1917 to Sep

1918 estimated on the basis of stage of completion of every hull on which 

been done and expressed in terms of completed hulls is as follows

By October 31 1917 1422 hulls

By September 1 1918 299 59 hulls

Increase 285 37 hulls

The Wood Ship Construction Division has recognized tha

attention should be given to ships of larger size and after 

investigation decided to recommend that efforts be concentrate

the construction of a 5000ton flushdeck wood ship which w

as strong as the 3500ton type now being built and which c

produced at a saving of approximately 20 per ton

The soundness of Rood ships has been demonstrated in op

for all of the troubles which have developed have been due to 

ary causes such as green lumber which was not sufficiently 

and in certain cases lack of rudder power This has been bo

in reports received from masters and chiefs of ships now in op

As to composite ships the number under contract has been 

from 58 to 32 of which 3 have been delivered for actual 

Further comment can not be made upon their performance

results are known
142 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

DEVELOPMENT OF THE CONCRETE SHIP

The practicability of the conerete ship as an emergen

having been established by investigation and experimen

Emergency Fleet Corporation has entered upon a limited p

concrete ship construction As a carrier the concrete ship 

tedly less efficient than the steel ship but because the c

struction is estimated to be less than for wood or steel 

because the labor required is more easily obtained m

thought that large numbers of concrete ships should be co

The program has necessarily been limited however be

present hullproducing capacity of the country in steel 

ships is in excess of what may be termed the power and 

producing capacity for fitting out these ships and also b

labor connected with the installation of equipment is the m

skilled and most difficult to secure

As a result of the combined efforts of concrete experts of t

of Standards and other agencies a concrete aggregato has b

oped which is so light that it floats on water and yet has st

toughness greater than that of gravel or stone which is 

used The carrying capacity of the concrete ship as now d

approximately 8 per cent greater than wood ships of equa

only 5 per cent less than steel ships The present estimat

the concrete hull is 70 per dead weight ton and the ship 

150 per dead weight ton The site for a concrete shipyar

the same preparation as for any other type of shipyard bu

equipment is simpler in character

Contracts for the construction of five Governmentow

yards were signed in May and June 1918 and the com

the first way in each yard is scheduled as follows

Wilmington September 25 Mobile September 25 Ja

October 1 San Francisco October 1 San Diego October 

The construction of ships starts immediately upon the c

of the ways The yards are all scheduled for complet

February 1919

The Government agency yards have four ways each an

Mobile and San Diego also have outfitting plants The 

in time of completion is due largely to the difference in 

development work necessary

The present construction program provides for 38 ta

cargo ships of 7500 tons dead weight 3 cargo ships of 5

dead weight I cargo ship of 3000 tons dead weight

Of these the 38 large ships and two of the 3500ton 

being built in the Government yards at Wilmington N C 

ville Fla Mobile Ala San Francisco and San Diego 

Yost of these will be launched in December and all before S
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

1919 The date of delivery of these ships is scheduled for 10 

subsequent to time of Iaunchin

The 3000ton cargo ship is under construction at Brunswic

and scheduled for launching in the latter part of Octobe

3500ton ship is under construction at Flushing Bay N Y 

scheduled for launching in December

In addition to the above ships which are being built for the 

gency Fleet Corporation plans and specifications have been 

for and the Emergency Fleet Corporation is supervising th

struction of 21 barges of 500 tons dead weight for the Comm

Inland Waterways The first of these barges will be de

about October 20 and all are scheduled to be delivered befo

cember 1 The War Transport Branch United States W

partment has contracted for the following concrete ships Fo

130 foot river boats five 100 foot water tankers and twelv

foot car floats

Plans and specifications have been prepared for a 2500ton 

weight concrete schooner coal barge and bids have been req

Twentyfour additional barges are needed by the Corporati

it is anticipated that some or all of these will be constru

concrete Plans and specifications have also been prepared 

concrete harbor tug for the office of the Director General of M

Railways to be constructed and used in European waters 

and specifications have also been prepared for a concrete 

barge for the Director of Storage War Department and 

barge for the Lower Mississippi for the Committee on Inland 

ways

EXPANSION OF HOUSING FACILITIES

Confronted with the serious housing congestion which ine

attended the emergency program of ship construction Cong

act of March 1 1915 conferred on the Emergency Fleet Corp

broad powers to render effectual its plans for meeting the h

necessities of the shipyards including authority to secure lan

houses by requisition purchase lease condemnation or oth

to construct buildings and other improvements and to make 

to persons firm or corporations for a period not to exceed 10 

An expenditure of 150 00 was authorized for this purp

June 1 1913 and later increased to 75000

Of these amounts on October 1 1915 commitments to the a

of S61 802 S45 had been made to provide at 25 shipyards a

turbine plant housing for approximately 25190 shipworkers 

most cases their families a total of 9443 houses 60 dorm

95 apartment buildings 11 cafeterias and mess halls 27 bo

houses and 300 tents Of the amount thus appropriamun
144 SECOND ANNUAL PEPCRT UNITED STATEs SIIIPPING B

palitics and public utilities companies have arranged 

approximately3000to the Fleet Corporation to whic

bearing loans have been authorized to provide the public 

ments schools and utilities at the various projects

In some cases the Corporation spower to requisition h

been used to prevent profiteering and insure continued o

by ship workers

Since Government funds are involved on a large scale th

problem of the Corporation is not analogous to private 

development of industrial housing The problem was su

and in order to avoid paternalism and the placing of the Go

in the rdle of landlord the Emergency Fleet Corporation 

the position of mortgagee or banker lending Government 

safe security the main consideration being the forwarding o

struction program

Except at Hog Island and St Helena the land has bee

without cost to the Government either by u purchas

account of and with the funds of the shipbuilder or b purc

a fund contributed by citizens to the corporation forme

purpose as at Wilmington Del Local governments and pu

companies have in many instances financed such improve

schools gas electricity and water

These requirements designed to safeguard the investme

been met the Emergency Fleet Corporation has loaned on 

an amount sufficient to construct housing facilities to me

the immediate needs of the yard with provision for a limi

off of excess cost due to war time conditions But its inte

broader than that of a mere mortgagee or banker the Flee

tion has under its mortgage reserved the power to exerci

over the rentals sales and management of the project fo

the period of the war

These general policies have been developed against a ba

of conserving after the war both the Government investme

community itself from the disastrous results of overbui

this end wherever possible an enlargement or improvemen

portation facilities have been resorted to and the Tran

Department has endeavored to link up the yards with 

housing facilities in neighboring communities and for thi

loans have been made to finance extension by transporta

panies steamers have been placed under charter and sp

service arranged for by the Transportation Departmen

Toward the same end the structural design of houses 

planning of the project have even at a somewhat greater 

would otherwise have been required constantly carried 

the idea that the houses would after the war as well as a

find a market for rental or sale in competition with existing 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

and be a permanent benefit to the community upon the re

of normal conditions and the natural reduction of the 

demands

Before any project is inaugurated an elaborate field inve

is made regarding the class of workers to be housed the con

contracts and financial standing of the yard the existing b

accommodations in the neighboring communities facil

transportation etc The site for the housing 1roject is th

fully selected Negotiations are made for installing needed 

Suitable arrangements with municipalities are made and 

details are completed Where necessary loans are made t

utilities companies on a 5 per cent basis payable not later t

years after the war and secured by retention of title to the e

until such payment is made

One of the most pressing problems was to make provision fo

number of men employed at Hog Island In the autumn 

plans were developed for a housing operation west of the S

between the shipyard and the city but owing to the expense 

and the inadequate sewer and drainage facilities this was ab

in April 1918 and the Corporation purchased 436 houses in 

of construction in West Philadelphia which are now all occu

show a gross income in excess of 10 per cent This was d

cost of about 855 40

Two sites were selected for 953 new houses on Elmwood Ave

construction was begun in Tray This operation is 75 p

complete and practically all of the houses are rented about 1

now occupied A contract has just been made for the con

of 600 additional houses on a tract adjoining the present deve

and provides for the completion of the houses in Februa

When these developments are completed they will provid

houses

6

for employees at Hog Island which will have co

800 0 an average of3407 per house

Up to October 1 1918 buildings houses and dormitor

been completed and occupied at the following places Hog 

Philadelphia Bristol and Chester Pa Newport News Va S

Point Md Portsmouth N H Camden N J Tacoma a

couver Wash In addition 2483 buildings including 27 

tories apartments and boarding houses were under roof 

Island Philadelphia Newport News Va Sparrows Poi

Portsmouth N H Camden and Gloucester N J Ches

Lorain Ohio Wilmington Del Essington Pa Port Jefferso

Bath Me

Most of the housing activities have been on the Atlantic C

the restrictions in the matter of material labor and transp

were not so serious elsewhere

88427180
146 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

In the appendix will be found details of housing contracts 

ment of the legal arrangements involved in the housing pr

well as tables showing the municipalities which have coopera

their approximate commitments the public utility projects 

loans have been made and the dormitories and cafeterias w

been built or planned See Appendix Tables TII to SVI

TRANSPORTATION OF SHIPYARD WORKERS

A problem closely related tohousing is that of securing 

facilities for transporting shipyard workers Where it 

found necessary to construct additional facilities contra

been made with the various transportation companies u

terms of which the Emergency Fleet Corporation advances th

required to furnish the needed facilities In general the tra

tion companies perform all the work required paying t

Corporation 5 per cent interest on the full cost of the work d

period of the war and agree to pay the Corporation after the 

tion of the war the value of the particular item furnished its 

of repayment being determined by a valuation which in p

every case is limited to a minimum of 75 per cent of the 

advanced It is provided that repayment be made in equa

installments generally extending over a period of five ye

interest at 5 per cent on unpaid installments As securit

money advanced the Corporation retains title to all rolling s

equipment until repayment in full has been made and i

secured by deposits of bonds in collateral or by other 

deemed necessary to fully protect the Corporation sinterest

Investigation of all shipyards having contracts with th

gency Fleet Corporation demonstrated that additional 

were required at yards having contracts for 73 per cent of 

dead weight tonnage under construction or under contrac

Emergency Fleet Corporation

At all of these yards adequate transportation facilities h

provided to take care of the present situation and additio

ities contracted for to take care of the future trans

requirements

At yards representing 263 per cent of the tonnage pr

it was found that no additional transportation facilit

required

Approximately 66000 ship workers are already using facil

vided through the efforts of the Corporation and taking 

the present excess carrying capacity and the plans for furthe

sion it is estimated that 184 000 workers will be benefited

Transportation facilities have been installed and are in ope

Bath Me Quincy Mass Staten Island N Y Kearne
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

Newark Bay N J Camden N J Gloucester N J Hog 

Pa Chester Pa Essington Pa Curtis Bay Md Sparrow

Md Newport News Va Wilmington N C Mobile Ala A

Cal Oakland Cal Portland Oreg Superior Wis Duluth 

Jacksonville Fla Groton Conn Tacoma Nash and Be

Tex

Of special interest are the transportation arrangements 

workers at Hog Island During the winter and spring th

was almost entirely dependent upon steam railway trains o

over temporary freight tracks for the transportation of work

the yards In March contracts were made with the Phila

Rapid Transit Co to provide additional cars and for the exte

its doubletrack street line to the shipyard This extension o

and the terminal were completed in July and operations b

August 5 The cost of the extension power house and cars 

approximately2475 500 of which 900 0 were spent for 

and powerhouse additions The railway company is to purc

improvements at an appraisal after the war and appropriat

sions are made for the disposal of the cars with 15 additio

which are being supplied at a cost of about 175 500 T

transports from 25000 to 30000 passengers per day

About the same time a contract was made with the Phila

Railways Co to rehabilitate its line from Third and Jackson S

the Penrose Ferry Bridge and extend it thence to Hog Island 

an additional supply of cars at a total cost for constructio

house and cars of 693 000 under similar arrangements T

completed in July and is now handling 10000 to 12000 pass

day

Tables illustrative of the work in connection with passenge

portation will be found in the Appendix Tables XVII to X

PROTECTION OF PLANTS AGAINST FIRE AND OTHER HAZA

The Plant Protection Section as its name implies was o

for the purpose of furnishing protection to the various s

doing contract work for the United States Shipping Board Em

Fleet Corporation The work of this section covers plant g

fire protection the Investigation Bureau censorship opublic

and periodicals containing articles referring to shipyard activi

the issuance of shipyard and industrial passes throughout the 

The guard protection of the various shipyards is represe

about 10000 Federal and civilian guards about 50 per cent 

class The expense of providing barracks for the Federal t

met by the Emergency Fleet Corporation and upon comp

these barracks the troops are assigned and maintained by 

Department The cost of operating the civilian guard sy
148 SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

divided between the Corporation and contractors Each d

provided with a district guard inspector and a plant guard i

for each shipyard The fire protection of the yards is under t

supervision of the General Fire Marshal attached to this office 

is also a District Fire Marshal for each district and a plant fire 

for each yard The guard officials report weekly and the fire 

bimonthly to the home office through their respective distri

gers district officers or district supervisors

To the Bureau of Investigation is assigned the important 

investigating alleged cases of proGerman activities graftin

erism etc at the shipyards and home office This Bur

accomplished splendid results and is working in close harmo

the United States Secret Service Department and the Nava

gence and Military Intelligence Offices throughout the coun

OF REQUIREMENTS FOR MATERIAL CONTAC

WAR INDUSTRIES BOARD

The Requirements Section of the Emergency Fleet Cor

established on April 5 1918 is charged with the respons

determining the requirements for material and equipment 

construction of ships extensions to manufacturing plan

yards and all other undertakings which come under contr

the Emergency Fleet Corporation either at their or its expe

of maintaining liaison and cooperative relations with the 

dustries Board and other governmental and civilian agenc

cerned with requirements in equipment and materials Pre

the establishment of this arrangement the Corporation was 

ing materials where it could often competing with itself a

departments of the Government

Since shortages in materials equipment labor and fuel h

come more and more acute the Corporation through its 

ments Section has had to present to the Par Industries B

approval all proposals to build or expand plants housing 

marine railways or construction of any kind in which the Em

Fleet Corporation is interested before proceeding with the nego

It is likewise necessary to have all purchases cleared by the Wa

tries Board before negotiations to purchase are instituted
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

The head of the Requirements Section is a member of 

quirements Division of the War Industries Board and conf

other members representing the Army Navy Railroad Ad

tion Fuel and Food Administrations Allied Purchasing Agen

similar governmental organizations as well as with private m

turers regarding the relative importance of requirements and 

of material so as to get a broad picture of the needs and p

of all governmental departments and other purchasing agen

There is also maintained in Washington a branch office of 

quirements Section whose members attend all meetings of the 

Divisions and Sections of the War Industries Board to repre

Emergency Fleet Corporation Requirements for ships of 

and for other materials and projects have been determined an

fied and this information has been applied to the various c

in order to get a comprehensive view of the total requiremen

Corporation Information is being furnished as rapidly as 

veloped and in turn information received from the War In

Board is being transmitted to the heads and department m

of the Emergency Fleet Corporation as their functions and 

may indicate

CENTRALIZED CONTROL OF SUPPLIES

One of the essential tasks of the Corporation is that of 

curement transportation care and housing of supplies 

volves problems in civil and mechanical engineering freq

justment of financial and labor difficulties educational wo

lems in railway traffic and knowledge of building construc

storage A full list of the materials and equipment handle

Supply Division would include thousands of things in ad

such familiar requirements as boilers engines and anchors 

thing that a ship needsfrom 2800 horsepower engines to 

ing pans in the galleymust be procured not once but o

over to meet the requirements of approximately 150 shipya

tered along our coasts from Maine to Oregon

The centralized control of this important function is in th

of the Supply Division which is in close touch with manufac

every industrial center of the United States and some abro

Outfitting Department alone has dealings with more than 15

facturers of supplies and about the same number of ship

plants The Raw Materials Section deals with some 40 so

supply and about 60 consumers of shipbuilding plants The 

Department through the Fir Production Board on the Paci

and its yellowpine headquarters on the Gulf reaches out 

important sawmill in the great timber belts But in the last 

every phase of its work is made subordinate to a common p
I50 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

that of preventing any delay in the building or outfitting 

through lack of raw materials or equipment

Besides the home office force for handling supply proble

is also an extensive field organization the various distric

managers are stationed at important industrial centers for 

pose of following production in the various shops and expe

delivery of material to the utmost There is also a consider

of local purchasing agents who are emergency buyers In ca

rials or products are damaged or lost in transit or unforeseen 

occur it is their duty to supply the deficiency

The manager of purchases and production is in charge o

partments or sections whose supervisors are engaged in dire

purchase and production of engines boilers turbines elect

chinery pipes and valves deck equipment auxiliary m

machine tools and lumber

The organization of the Supply Division also includes a 

tion and warehouses department and a considerable staff o

assistants and research men

The important progress which has boon made in the sta

tion of fabricated steel plates for hulls ship machinery 

equipment has improved and increased the output while d

the cost In the case of some plants and factories standa

has increased manufacturing facilities as much as 35 per 

all cases a more common basis of cost estimate is possi

economy of standardization has been so apparent that it is 

pose of the Supply Division to effect it wherever possible

SURVEY AND DEVELOPMENT OF POWER FACILITIES

In carrying on its enormous construction program the Co

has been confronted with the problem of continuously f

ample power to shipyard plants The seriousness of the pro

been enhanced by various abnormal conditions such as the 

of mining and transporting suflicient coal but the whole situ

now been thoroughly examined and policies are being ma

meeting all power shortages

The Power Section of the Corporation created in June 

been making an elaborate survey of the power situation a

yards of the Atlantic Great Lakes and Gulf districts h

investigated Full data have been collected regarding t

needs of the yards the capacity and condition of power sta

distribution systems the class of industries or activities re

by present or prospective users the availability of water p

financial standing of power producing companies and 

charged
SECOND ANNUAL REPOLT UNITED STATES SHIPPING BOA

In many instances methods of relieving the situation ha

found which have involved little or no expense to the Cor

In some cases an overestimation of power demands on the 

the plants has been found or a more effective utilization of 

facilities has sufficed The installation of inexpensive dev

in some cases solved the problem thus avoiding the constru

new plants and in other instances power has been requisition

nonessential users

Where necessary however arran ements have been made 

struct new facilities Such systems are already under way 

andria Va and at Newport News and a new transmission l

the Public Service Electric Co of Now Jersey has been inst

the benefit of the Submarine Boat Corporation Special 

been taken to scrutinize the cost of proposed extensions an

way a considerable amount of money has been saved to the C

tion

Particular attention has been given to the power situation 

around Philadelphia and very detailed studies have been ma

means of a questionnaire sent to isolated plants in the Phil

district a considerable amount of excess power was discove

order to make this available however transmission meth

still have to be worked out An exhaustive study was mad

the customers taking power from the Philadelphia Electric 

well as those asking for more power with a view to elimin

limiting nonessential users and giving the preference to wa

tries Negotiations are pending for the provision of fund

loaned by the Emergency Fleet Corporation on the basis o

cent of the total cost of such additional facilities as may 

demonstrated to be required to provide power to take car

increased requirements for war industries

The Corporation has cooperated with other governmental 

ments in introducing into Congress the Sims bill giving to th

dent authority to give financial assistance to private power co

to make additions to existing power plants and to build n

INDUSTRIAL RELATIONS

Work in the field of industrial relations was begun 

Emergency Fleet Corporation in September 1917 with 

attention to the securing of labor At that time there were 

mately 60000 men engaged in shipbuilding and it was 

obvious that a tremendous expansion would he necessary to 

emergency The Industrial Service Section was a forerunne

present Industrial Relations Division and was principally co

with securing labor and teaching the shipyards scientific emp

methods so as to reduce turnover and keep workers on 
152 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

Later there were added the Department of health and S

the Education and Training Section the Safety Engineering 

and the Labor Section These various sections are well d

their respective names except the Labor Section which 

marily for the purpose of settling labor disputes On May 

all industrial relations work with the exception of passeng

portation and housing was combined under a unifiedd irecti

step was considered necessary because it had been found t

was much duplication of effort and much friction as a resul

lapping functions on the part of the different sections

The Industrial Relations Division of the Emergency F

poration is concerned with four main problems

1 The working conditions of shipbuilding laborers 

medical supervision supervision of sanitation in the ya

safety engineering for the prevention of accidents Shipb

analogous to other heavy construction work and is classifie

the more hazardous occupations which require that con

attention be given to accident prevention It was realized 

loss of considerable manpower could be overcome only by c

safety effort which led to the establishment of a Safety En

Section composed of experienced safety engineers whose d

to study the situation and render every possible assistanc

shipyards in organizing safety work and preventing injur

workers

2 The supply of labor for shipyards which includes the r

of the existing supply this being done largely through th

States Employment Service and the creation of a new su

methods of industrial education and training The que

deferred military service classification for shipbuilders 

creation of an available supply through the shipyard v

come under this head

3 The administration of shipyard workers which include

up an organization in each yard under an employment ma

hire the workers and assign them to proper jobs It involves 

the proper man to undertake the work and inducing the 

undertake the service

4 The question of wage control and the settlement of w

putes which come within the province of the Shipbuildin

Adjustment Board are given to the Industrial Relations Div

administration The Manager of the Division is also a me

the Shipbuilding Labor Adjustment Board and this point o

enables the Division to discharge this function properly

The present administrative machinery for meeting the f

problems comprises a director an assistant director a field 

five staff branches four sections and a field organization 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

district representatives each of whom has a representative i

of the yards in his district The five staff branches are as fol

1 Control which has the function of checking expenditur

exercising financial supervision over the activities of the divis

2 InvestigationThis staff assistant is charged with 

together material which may be of benefit and assistance 

division in She discharge of its work Much of this material ha

gleaned from English experience

3 Information and promotion which has to do with dissem

orders bulletins and interpretations of various Government rul

the shipbuilders to the officials of the Emergency Fleet Corpo

to the home office and to the field representatives This div

also charged with paving the way for the service of the divisio

those who may be somewhat prejudiced against this sort of w

4 Labor adjustment which has to do with adjustment o

disputes arising in the auxiliary plants or plants having co

for necessary ship material and under contract with the Eme

Fleet Corporation

5 ne Employment 31anagement Branch which helps the sh

managements in proper methods of hiring workers fitting th

jobs and so administering labor problems that the turnover 

within reason and there is the smallest possible dissatisfaction 

the workers

The activities of the various sections are as follows

Labor Requirements Section

The Labor Requirements Section is concerned with learni

labor requirements of the individual shipyards and with m

those requirements through cooperation with the United 

Employment Service

There is a great deal of statistical work involved in the du

this section and a statistical department is part of its equipm

An important feature of the Labor Requirements Section 

question ofdeferred service classification for men employed in 

yards and the transfer of men from Army cantonments wh

skilled in shipyard work The question of deciding which 

should be exempted in order to help build ships has been a 

one and it has required a very considerable organization to h

this matter so that the greatest possible man power should b

served and so that no injustice would be done

Education and Training Section

The plan of training shipyard workers by a systematic and 

process instead of depending upon the slow haphazard and 

ful methods of the apprentice system was begun by the Emer

Fleet Corporation September 15 1917 The plan as finally w
154 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

out and submitted to the Atlantic Coast shipyards provid

establishment of training centers to which bright mecha

yards could be sent and put through an intensive course of 

weeks learning to teach their own particular trade In 

every shipyard embarrassed by a shortage of skilled la

have a corps of practical mechanics trained to teach the

green men

The Fleet Corporation asked the shipbuilding plants to se

men to the training center and pay their wages while th

Corporation in turn agreed to reimburse the plants to the 

55 per day per man under training at the center The first 

established in the shipyard of the Newport News Shipbu

Dry Dock Co Newport News Va on November 15 1917 

five men representing 14 different trades from the yards i

of the country attended the first sessions February 2

center was opened at Hog Island and March 21 1918 an

established at the Sun Shipbuilding Co syard at Cheste

present the Education and Training Section operates 22 

9 of the 11 shipbuilding districts Twentyeight shipyards 

men giving instruction who have been trained at the ce

September 1 1918 816 men had been sent to the center

yards

In order to secure a staff of instructors to carry on the w

centers the Education and Training Section has estab

Instructor Training Branch which selects and trains staf

ors supervises instruction at the training centers ins

studies methods of training and prepares text books and 

Men with technical training and practical experience 

selected as staff instructors and given intensive training i

teaching methods The section has established two staff 

training schoolsone at Philadelphia which has completed 

and the other at Long Beach Cal which is now training sta

ors for the Pacific Coast centers At present the secti

staff instructors

The Education and Training Section encourages every 

which sends men to training centers to establish a definitely 

training department directly responsible to the yard m

that when instructors complete their work at the traini

they become members of the teaching staff of the yars

department To every yard which establishes a trainin

ment meeting certain definite standards the Fleet Corpo

a bonus of 81 per day for each man in training

A supplementary instruction branch develops special 

groups of men to make them more valuable by giving them 

edge of allied branches of their work This auxiliary kn
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

taught off the job outside of working hours and includes bl

reading ship construction nomenclature and foremanship 

Federal Board of Vocational Education created under the 

Hughes bill cooperates in promoting instruction of this kind

An electric welding branch is dtvoted to developing that p

carrying on experimental work developing symbols and 

clature and spreading its knowledge through the yards An 

welding committee containing various representatives of te

societies and aided by English experts who first used the p

has been established to further the work

Field representatives keep the home office advised as to the 

tiveness of the work of the section and the needs of the 

districts They are responsible for putting the education and t

idea into effect and establishing working relations with the sh

managements

A technical education and production development branch 

technical men for the shipyards This is done by special a

among the colleges and universities and by establishing int

courses for marine engineers and naval architects Special 

have been established at the University of California the Uni

of Southern California Throop College of Technology Lchig

versity and the Massachusetts Institute of Technology It 

the function of this branch to study efficient methods of prod

and to spread such knowledge throughout the shipyards

At first there was some doubt about the practicability of t

skilled shipyard mechanics by short intensive instruction b

results obtained so far have convinced not only the manag

shipyards but the workers as well

Health and Sanitation Section

The Health and Sanitation Section was organized to exercise 

vision over conditions of health and sanitation that might 

the physical welfare of the men in the yards Starting wit

basic elements as water supply the jurisdiction of this section e

to sewage disposal garbage disposal mosquito elimination e

tion of flies toilet facilities washing and bathing facilities 

general supervision over the sanitation in housing projects and 

quarters of the workers On the purely medical side the divisi

to it that proper facilities are provided for taking care of in

for prompt handling of epidemics and in many cases for a fr

pensary where the men can have their minor ills diagnosed and 

treatment suggested Through the field force of this divisio

of the shipyard plants in the United States has been visit

an average of once a month and the suggestions arising fro

reports of these investigators have been put before the sh

management with request for action
156 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

This section has been particularly active in cooperating 

health boards and with the Public Health Service in the 

cleaning up the territory surrounding shipyards which m

become a menace to the health of the workers

A sum of over 8000 000 has been kppropriated by loca

ties at the instance of the Health and Sanitation Sectio

sanitary engineers of that section have been very active in 

of mosquito elimination over large territories in the neigh

Camden Gloucester Wilmington Chester and Hog Islan

On November 15 the Health and Sanitation Section 

over by the Department of Public Health which will co

work in the future as the officer detailed from the Army t

that section and carry on its work was withdrawn in order t

struction work abroad

Sanitary engineering at Hog IslandWhen it was det

establish at Hog Island Pa a shipyard of unprecedented si

ing an army of thousands of workers it was realized that 

primary necessities was to carry out a project of sanitar

ing akin to that accomplished at Panama without whic

could have been built

In the fall of 1917 the Hog Island site was a low malar

infested with mosquitoes practically uninhabited The f

its reclamation was to organize a cooperative undertaking 

various governmental and commercial agencies The Stat

sylvania was perhaps the chief factor and the other agenc

in the project were the Emergency Fleet Corporation th

American International Shipbuildin Corporation the city 

delphia the Westinghouse Electric Manufacturing Co 

roads which donated important services the League Islan

ment under the Navy Department and the State Rifle R

The fly nuisance was abolished pigs were eliminated 

important of all the mosquitoes were exterminated This w

plished by a process of oiling ditching and draining tog

the construction of dikes and the installation of an equ

constant pumping

The project covers an area of 10000 acres and its cost i

8270 000 of which the Emergency Fleet Corporation spe

through the American International Shipbuilding C

Fiftyfive thousand gallons of oil have been used draining 

capacity of 180 00gallons per day have been employe

miles of ditches and channels have been constructed Veg

mowed over an area of1750 00 square feet to expose the 

the water for inspection and oiling

As a result the island as well as southwestern Philad

maintained on a high sanitary level during the past summ

practically free from mosquitoes
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

A similar cooperative plan of mosquito extermination ha

inaugurated along the Delaware River to a point south of Ches

in certain other shipbuilding centers

Safety Engineering

The Safety Engineering work of the United States Shipping 

Emergency Fleet Corporation was organized in January 191

branch of the Insurance Department Later with the establis

of the Safety Engineering Section it was made a part of the ac

of the Industrial Relations Group

The aim of the Safety Engineering Section is to conserve the 

trial man power by the creation and maintenance of better an

plant working conditions and every attention and assista

given to the plant officials in establishing efficient safety organiz

Under the direction of the chief safety engineer there is statio

each of the 11 shipbuilding districts anexperienced safety e

who directs the safety activities under the guidance of the 

officials and in many cases the larger yards have their own 

engineers Safety committees have been established in most 

shipyard plants which meet at intervals make suggestions and 

mendations consider new safety devices and promote in gene

safety activities of the plant or department

Considerable attention has been given to educational activi

gain the cooperation of all employees and instruct them in th

ciples governing accident prevention work Safety rallies f

ployees have been held and safety literature has been distribute

posted on the bulletin boards and the men have also been r

through the plant publications

In the largest shipbuilding plant under the control of the C

tion the annual accident rate has been reduced to about 6 pe

as compared to average figures compiled by the Bureau of 

Statistics before the war of about 22 per cent for men emplo

shipbuilding

Field Organization

In each shipbuilding district the Industrial Relations D

has a district representative who represents jointly the 

building Labor Adjustment Board and the Industrial Re

Division In his office are representatives of the four sectio

scribed above and he also has representatives stationed at the 

which fall within his district These yard representatives 

on the ground and in close contact with men and manageme

in a position to report conditions that need attention from the d

representative the Shipbuilding Labor Adjustment Board 

central office of the Industrial Relations Division thus bringi

various elements into the closest possible contact
158 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

PUBLICATIONS AND EDUCATIONAL APPEALS

In January 1918 plans were begun for publishing a wee

paper devoted to the interests of the Emergency Fleet Co

The first number of the Emergency Fleet News was publish

ary 28 1918 and this paper gradually increasing in size an

of its interests has appeared regularly at weekly intervals 

has a circulation of about 20000

The Emergency Fleet News has for its purpose the cre

common aim in the 7000 employees of the Corporation and 

lation of ship production through encouraging rivalry and 

as a medium for the dissemination of news of records un

formances and new methods and practices inshipbuilding 

to the personnel and officials of the Corporation and to the 

of the shipyards under its jurisdiction

The Corporation also issues the Bulletin for 

the shipyards to be read by the shipworkers and the 

Fleet Bulletin for posting in manufacturing plants produ

building materials the aim being to provide some conne

between the workers in these plants and the shipyards

A number of posters have been issued designed to arouse 

workers to greater effort and to stimulate public interest in 

building program Others have been prepared for the p

impressing upon workers in industrial plants the importanc

work In the preparation of these posters the Publication

has had the assistance of the country smost eminent artist

the cooperation of the Division of Pictorial Publicity Com

Public Information

Service flags for the shipworkers and flags for shipyards 

cating plants have been designed and distributed Specia

have been prepared to assist several of the branches of the 

tion among them the Industrial Relations Group the II

Sanitation Section and the Recruiting Service of the Shippi

Contests among shipyards and shipyard workers have been 

to speed production and to increase the efficiency of the p

For the allied war exhibit held in San Francisco in July 

Publications Section prepared an Emergency Fleet Corpo

play It has distributed to shipyard and other bands Th

teers a shipworkers march written by John Phillip Sou

suggestion of this section

Its general aim is to inform and stimulate the public esp

shipworkers by means of the printed word and pictorial pre

In this connection it carried on the campaign to enroll me

the United States Shipyard Volunteers a reserve force from 

draw shipyard workers
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

The National Service Section of the Emergency Fleet Corpo

was begun on February 4 1913 and is engaged in stimulating 

otic spirit among the workers in American shipyards The ob

to speed up production in shipyards and industrial plants sup

material to ships by a program of education and inspiration 

the management and men The appeal is made through a se

meetings addressed by a corps of experienced speakers milita

civilian and by the distribution of printed matter In additio

newspapers and periodicals have cooperated to a remarkable de

the creation of a wholesome public opinion The field covere

braces the entire coast of the United States including 172 shi

besides many contributory industrial plants Between Februa

October 4920 meetings were held with an attendance of502

and the results show an awakening of the shipyard worker

new ideal of citizenship an improved morale among the men 

gratifying increase in ship production

FINANCIAL ADMINISTRATION

Auditing

The sundry civil appropriation bill for 1919 contained a para

directing the Secretary of the Treasury to cause an audit to be 

of the financial transactions of the Corporation under such rulin

regulations as he may prescribe An audit of accounts is n

progress and it is believed that this audit will be of value in reas

those responsible for the expenditure of the moneys entrusted 

Corporation that the money is being properly expended and acc

for

The extension in activities of the Auditor sOffice has fo

naturally from the expansion of the whole Corporation On O

31 1917 the construction of ships under contract the comple

requisitioned ships and the construction of shipyards embrac

scope of the auditing work of the Corporation At present re

ship is maintained with the following classes of concerns

Steelshipyards 

Woodshipyards 

Concrete shipyards 

Tug and barge contractors 

Housing projects 

Hotels boarding houses etc 

Lumberyards 

Warehouses 

Steel fabricating plants 

Marine railways 

Drydocks 

Machinery and equipment plants 

Shipyards under construction 

Banks Sept 30 1917 
160 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

Banks Sept 30 1913 

Inventories of material at machinery plants 

Passenger transportation contracts

Ferry operations 

Railway extensions rolling stock and additional power 

In a great many industrial plants where no cost audit is 

the Emergency Fleet Corporation has large inventories 

raw materials which must be controlled and accounted 

lumber yards and warehouses enumerated are operated 

the Emergency Fleet Corporation and all operating and 

accounts are handled by the Auditor sOffice The marine 

dry docks steel fabricating shops shipyards and housing 

portation construction projects while operated for the mo

contractors or agents of the Emergency Fleet Corporation 

theless under regular audit by members of the auditing s

result of the problems introduced by the wage increases a

the Shipbuilding Labor Adjustment Board and the n

changing a number of ship contracts from a lump sum 

plus fixed fee basis the Auditor sOffice now has a reside

in practically every shipyard in the United States

Comptroller soffice

All financial transactions of the Corporation are conducte

the comptroller soffice and the approved vouchers or r

forwarded to the Treasurer for his action Contracts an

for financial assistance are received in this departmen

Vice President soffice for information and comment be

finally signed In addition the Comptroller soffice is ch

the preparation of estimates of financial requirements to 

the shipbuilding program

The Credit Department examines the financial respo

prospective contractors and is keeping a complete file on th

of contractors with whom business is transacted In a

invites the supplier of raw materials to report delinquen

part of contractors in paying for materials Without mak

collection agency the department is able to assist dealers 

collections thereby creating a greater desire to do busine

make prompt deliveries to contractors

Insurance section

The establishment of the insurance fund will result in the 

many millions of dollars which otherwise would have been p

premiums At the close of business August 31 1918 hull 

covering marine builders risk amounting to 503 372 757 

force and the saving of premiums amounted to 4253 878 93 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

losses sustained in connection with marine builders risk in

amounted to 164 999 15 The saving of fire insurance pr

amounted to 196 66 on insurance of 30496 688 The los

tained in connection with this branch of insurance amou

48100

On August 1 the Casualty Insurance Branch took over the 

ing of employees at the Hog Island yards and while the first m

operations are not taken as a criterion it is expected that the 

of premiums will amount to many thousands of dollars The 

ing of this insurance in its own fund gives the Fleet Corpora

benefit to be derived from the establishment of increased h

facilities and installation of safety devices which otherwise 

accrue to the benefit of the insurance company The c

insurance at all other yards owned by the Emergency Fleet C

tion will be taken over as rapidly as this department can be exp

CENTRAL STAFF WORK ORGANIZATION AND METHODS

Duties of the most urgent importance in the performance o

time was the one great element have led naturally to the cre

specific agencies under the Emergency Fleet Corporation 

agencies were organized with the single purpose of getting the 

done as quickly as possible and as well as possible As they hav

fitted into the other parts of the working machinery of the C

tion it has become clearly evident that there were within the op

scope of the Corporation duplications of work inconsistenci

overlaps in jurisdiction and other features of operation and a

tration which were a deterrent to the highest possible effective

It was decided to provide a central agency under the imm

supervision of the Vice President in Charge of Administra

advise and assist in the adjustment of these discrepancies and 

This staff which is known as the Organization and Methods S

has made studies of the separate activities of the Corporati

has made recommendations which have been the basis for a

trative changes and has assisted greatly in clarifying the dut

defining the responsibilities of operating units

Executive action by the officers of the Corporation is promu

by means of orders general special and technical To mainta

sistency and harmony in the effect of these orders it has been ar

that they clear through the Organization and Methods Section 

they are studied in the light of previous orders and with reg

existing authorizations and conditions This procedure alo

served to eliminate many duplications and overlaps of activity

8842718ll
162 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

An extensive study has been made of the duties responsi

salaries of different positions with a view of developing 

uniformity in titles and salaries based upon the fundamenta

duties performed must be the measure of value A complet

been developed and is now in operation This plan will b

without hardship to th employees a wellbalanced organi

from the confusion and irritation which inevitably arise 

of uniformity in salary and wages

The Organization and methods Section has also acted 

visory capacity to executive officers in the study and s

various problems of administrative methods and procedu

of the more important studies include the following

Development of accounting classifications for analysis o

tures establishment of schedules for personnel control an

payroll establishment of centralized control and decentral

cal location of home office service organizations such as Ste

Clerical Filing and messenger branches development of de

tract procedure preparation of regulations and procedure 

bursement to shipbuilders on account of increased cost 

development of principles and needs of uniform cost a

methods in the shipbuilding industry development of plan 

istration in Shipbuilding Districts development of plan and 

for inventory of plant property and equipment of the E

Fleet Corporation development of principles and procedure 

ardization of wages of labor engaged in war work developm

of mechanical equipment for accounting and cost accounti

yards

That only the more urgent staff studies be undertaken 

pleted at the earliest time a definite program of staff studie

cedure has been set up by the Organization and Method

Special staff work before being undertaken in any of tho d

the Corporation is presented by the executive officers to th

ment for approval and cleared through the Organization an

Section Through this method coordination of all staff stu

tained and opportunity is furnished for the exchange of the e

on aH staff work in the Corporation

Respectfully submitted

EDWARD N HURLEY aairma

RAYMOND B STEVENS Vice C

JOHN A DONALD COmmiSSiOn

BAINBRIDGE COLBY Commissio

CHARLES R PAGE Commissio
APPENDIX

TABLE I a Compensation of employees of United States Shippin

Board in service prior to September 30 1918 

b Names and compensation of employees of the Unite

States Shipping Board in service for same period within th

year ending September 30 1918 who have resigned pri

to that date 

II Statement of disbursements from the appropriation Salarie

and expenses of United States Shipping Board for th

fiscal year ending June 30 IM 

111 United States Shipping Board and United States Shippin

Board Emergency Fleet Corporation consolidated balan

sheet as at June 30 1918 

IV Statement showing number of persons grade or character 

positions the original rates of compensation and the i

creased rates of compensation as required by section 2 sund

civil act June 12 1917 United States Shipping Board 

V Memorandum for the adjustment of wages hours and con

tions of labor in shipbuilding plants December 8 191

VI Table of delivered ships constructed by the United States Sh

ping Board Emergency Fleet Corporation 

VII a Monthly summary of keels laid hulls launched and shi

delivered up to November 1 1918 

VII b Condensed summary of results in ship production as 

November 15 1918 

VIII Summary chart shoeing monthly progress in ship productio

IX Condensed comparative balance sheet of the United Stat

Shipping Board Emergency Fleet Corporation as of August 

1918 and August 31 1917 

X United States Shipping Board Emergency Foeet Corporati

treasurer sreport August 31 1918 

XI Personnel table of the United States Shipping Board Em

gency Fleet Corporation as of September 30 1918 show

compensation of employees 

XII Details of housing contracts of the United States Shipp

Board Emergency Fleet Corporation 

XIII Legal arrangements involved in connection with the Em

gency Fleet Corporation housing projects for shipyard e

ployees 

XIV List of municipalities which have furnished facilities in c

nection with housing projects of the Emergency Fleet Cor

ration with their approximate commitments 

XV Loans made by the Emergency Fleet Corporation to utility co

panies in connection with housing prokects 

XVI Dormitories and cafeterias constructed or planned for the Em

gency Fleet Corporation 

XVII List of contracts with the Emergency Fleet Corporation for 

construction of transportation facilities 

XVIII Special steam train service arranged for shipyard workers 

XIX Arrangements for ferryboat transportation of shipyard worke

XX Disbumements and liabilities of the Emergency Fleet Corpo

tion at the Government agency plants at Begs Island P

and Bristol Pa 

163
164 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

TABLE I aCompensation of employees of United States Shipping Board

Sept 30 1918

Name Designation Legal resldence 

Edward B Burling Chief cmmsel Dlinoi

Edwin F Goy Special export It rwhaactts

Ira A Campbell Admiralty counsel Californ

Henry S Dennison Special expert New Yor

Monte M Lemoon AtomeJmnisisn

W Murray Sanders Special expert Pennsylvan

William Prnaimw doMarylan

Sherman Whipple General emmscl Afassarhuse

Jahn W Griffin Admiralty counsel New Yor

Ames S Hebbl Special expect New Jerse

Paul T Cherimeton doMassachuse

Harold V Ambcrg Attorney Illinois

John E Barler Examiner New Yor

James

Frank

H

B

Collins

Lord do

do

Washington

do

D C

Arthur J If as cm IChief adsisory cngbnerr Illinois

Henry Van R Scheel

John W Rirddl

Specialexpert Office manager New New Jerse

fork

William C F wing SprriN expert Ma sarhuset

Bradford Boardan m doNew Yor

Edwin

Carson

H

S Dunenn

Abbot Jr Attnrnev Washington D C

Special expert Illinois

Horace

C E Schrcilxr

S Serrist

do

do

Wiscons

do

W L Soleav Disbursing officer Washington D C

Walter S Tower Special expert Massachusetts

Gerard C Henderson Attorney Washington D C

Donald Scott Spectral expert New Yor

Chester M Greenough do3fnssarhasr

Warren M PersonsdOColorado

Lewis Meriam do hlan

Miles M llawson Special examinee FsrdYor

Francis W Buxton Special expert Massschuse

CbarlesColby doIllinois

Walter W Stewart doMassachuse

Louts C Walker doMichiga

Walter S Medevther Examiner New

William C Weed Special expert do

L Mercer Examiner Washington D C

Edmund m E Day pert Massachuset

C

V C Finch

dodo New Wiscoi

York ns

Willis D Ronson doWashington

Albert D Brokaw do Illinois

C RugglesL

Ohio

o Mr Examiner E xama

New York

J G Roo each Special expert do Virgin

Geororgee BR Roc r

do Washingtono D C

John Palmer doPennsylvania

ArthurN Young New

Everett

Paul W

W

Garrett

Hawkins Examiner Pesyh New Ylor

or

an

HervyF Groutady do

do

Minnesota e

A a

R A Dc Edward

Hertvan

T

Bare

Kca Krnch

Attorney

Examiner

lexperertAf

Washington WashisD C

William Barter expert Specialex New

F P BuPnrkat e Special agent Aashing ngto D C

Fraudsnci W Pave iARchi

lia 0 ere doIcaosa William O leroggs RichardRaley o

Confidential clerkerk ngto

v E raSperi Washington ax set D

David ersey vid B Gray doneNew New Jerse

David M Watkins a

F

Pennsylvan

Thomas

Samuel S

O

Bickner

Mockkins n doSpecial d

expert 4FWisc

ash nGO9tonD

Walter T Fischer doIllinoi

Barbara W Lyndon do New Yor

William R Fitch Examiner Washington D C

Henry R Manghum dO Orego

William R llean doNew Yor

Louis Levy Confidential clerk New Ilampsh

Roy H Merrill doAlassachus

MIMellsokev F zaminee New fork

Mary C Underwood doMasssachuse

Joseph

Man Louise

A Scannell

Smith

I

I

Senior

Special

clerk

expert

do

d
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

TABLE IaCompensation oemployeea of United States Shipping Board in 

SSept 80 1918Continued

en 11 Connelly 1hoetalexpert Masarhusnls 

nine S W hitney Statistician New York 

S Gibson Seatclerk Maryland 

G RobertsdoIowa 

tee C Clark Stenographer New Jersey 

In Miller Assistant attorney South Carolina 

Is Amende Senior clerk Alabama 

it C Devoe dNew York 

wth Criswell Special expert Wyoming 

C

11

Mac

Hunt

ey

Clerk

Eminer

Ohio

Oklahoma 

tF Borg Spectatespert Connecticu

s T Rlppy Stenouap cTennessee 

t McBee Itxaminer New York 

Segall Special expert bflnnesota 

Ienderson Deputy disbursing officer Georgia 

due F Itretrer Clerk New York 

s W Brett do

SSpecial expert do

New Hampshire 

Skidmore do

do

Michigan 

rink IL Flinn do New Jersey 

Naumann Stenographer Illinois 

s

ce

H

J Fierce

Howell

Clerk Teunessee 

Accountant Washington 

o M Woods Clerk Massachusetts 

M Mahoney Stenraphar Connecticu

A Quinn doPennsvlvavia 

nine Southerland do New York 

Des LoveloY Clerk ashington D C 

t Le Fevre doOhio 

Noma Designation Legal residence 

Fred 11 Stern Special expert Massachusetts 

C E Griffin dcliliehigan 

W ItHea doIllinois 

Paul L Dildine doOld 

George C PaT

do New York 

Edward DI union toWyoming 

George Nichols doMassachusetts 

Oscar B Ryder doKentuck 

William FE Camp New 

John J Flaherty S

en or o 

Fred Il John Special Massachusetts 

Emoryy R Johns doo raylvarim 

71 Stewart Jacksnn do Maryland 

Kathleen awler clerk Michigan 

C J Gendrom Snoeenior clerk Massachsciplausettsetts

Charles S Brucko doFlorida 

Emory P

William Robertsonon SSpecial expert do Washington Pashito dng D C 

Jacob Viner do 

amts A Preston Missouri 

D Leslie Examiamine 

Edithh F Jones Special 

Robert It Robert C Exiornzamuwr nerpert MassachusettsBe amin V Cohen Attorney do 

A I Mhuff Specialexpert Connecticu

Achim If Bard doNew York 

Frank IL Townley Attorneydo 

K

E

West

rfcr Steno a her

do Ivdima fPennsykanfa

Clerk

S

do

ialex rt

Indiana

Ohio WallG Tennsore

1 doNew York
166 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

TABLE IaCompensation of employees of United States Shipping Board 

Sept 30 1918 Continued

Name Designation Legal residenc

Frances M Davidson Stenograpbee Oklahom

H

Mrs Marguerite Swartz do Ohio 

elen M Cook do Penns Ivan

Mild Leary dolowa 

C H Willingham doWashington D C 

Albert

E

D Davis Carpester Virgin

mma

M

von Tocrae Stenographer Wscoss

aude J Corey doNew Yor

Cecil M Brown doTexa

Caroline D Flanner Editorial clerk New Yor

Clara Luber Stenographer Washington D C 

Alice

M

M Brooks do New Jerse

argaret M Conners doMassachuse

Ernest E Briaene ClerkMontan

John G Reckert doWashington D C 

Winifred C Creney Stenographer 1tacsachuse

Mary 1 O Hara dolookout 

Ruth A Parkhurst Dictaphone operator Waahington D 

Amelia S Korn Typewriter do 

Marguerite Solomon Stenngraphee N11 16gan 

Nellie F Friel doWshmgtun D 

Mm Elsa Potter do New Yor

W E Sadler Clerk Illinoi

Clara L Upper StatisticalclerkWiscons

B N Hinwood Stenographcr Washington D C 

Isabelle M Jones Telephone operator New Yor

Mrs Lora S Cass Stenographer Oklahom

Annie Richards duAlabam

Mrs Kate Butler Clerk Washington D C 

Mabel P Frickey dodo 

Jay Goux doNew Yor

Abele S Iros Stenographer West Virgin

Florence Johns Schedule clerk Indian

Elisabeth L Jones Statisticalclerk New Yor

Marlon Kalousdi Stenographer Washington D C 

Murray A Fowler Addressogmph operator Musom

Adelia J Sardine Clerk Washington D C 

Edwin

K

E Richey SWnngrap her do 

atherine J Byrne doPennsylva

Peter

K

V Lomonto doTexa

atheryn F McLaughlin doMassachme

E Ledeper doIndian

E I Firmer Statistical clerk Naw Jerse

Hope C Norman Tyl ewritcr Illinoi

A M Richardson Washington D C 

Oli D Lange

StatisticalI Jerk

Stenograplmr Wiscons

L H Fergusson Draftswomas Now Mexic

L K Sproul SrWexpert Mess

husctt

D P Bonner Draftsweman Washington D C 

L Wagner Stenographer Minnesu

O O Slagel do New Yor

M W Rlands Statisticalclerk Illinoi

Elisabeth Ginning SWnographen Washington D C 

Emma Welsch Schedule clerk Nevad

EvaE Slack Clerk Wiseuus

Leon A le Bud Typewriter South Carolina 

Mrs Dorothy Bartlett Statisticalclerk New Yor

Marl C Boland Dictaphone operator Washington D C

El oy

MA

B

Youngsters

Bradley StenographerNebrask

do 

Sarah L McQueen

Statisticalclerk

Assistant librazian Marylan

Maxwell M Mincesky Typewriter Washmgtun D C 

Beulah Black Dictaphone operatordo 

Sarah Wilson I Typewriter Tenness

Mattis V Cary Statisticalderk Kentue

LobB Casper doOhio 

Dorothy Hewitt doMassachuse

Louise P Hodge do do 

Donald V Hops doWashington 11 C 

Ethel L Hoillt doWest Virgin

Mary J Baldwin SLen craphe Pennsylva

Mrs Harriet L Thomas Schedule clerk New Yor

Ethel M TSgnor Typewriter Virgin

Myrtle Peterson Iowa 

Mrs

Luoy

Amy

Robertson

Redford doStatistiealclerk Ohio Washington D C 

Ethel

M

L Kirke Scheduleclerk New 2terie

arguerite Kraus Statisticslelerk Wiscons

Erma L Kuhn Steno greener Florid

Lucile Loeb StstlAiaalclerkI Missou
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

TABLE I aCompensation of employees of United States Shipping Board tin 

Sept J0 1978 Continued

Name I Designation I Legal residence 

nubdu 0 Gco Stenograph eMinnesota 

It flauke Cataloguer and mdes r Washington D C 

ed Drariev T pewriter do 

R

W Ferebre Statistimiclerk North Carolina 

ebecca C Fiske Mar land 

dD GlIs doI tab 

ms A Imld cirt Stenographer Mar land 

crine F Wood doOhio 

Lmili F Lee File clerk Washington D C 

m C Miller StatisticalcInk Tpyas 

CKII R N1d sIauon dIllinois 

Agnes Illa Stenographer Missouras IV mum Special cipert New York 

J Fmior Swc LkalWk Maryand 

C Norman Ti pewriter

O

Illinois 

rlena U arrous Stemonapber Mar land 

McGuigan doMont u 

Blanche B McCord Catalog clerk New Jersev 

Mason Stenographer North Carolina 

er Wilson Typewriter Florida 

thyTocrue IN in 

Abe Bell Stenographer Ik iibbieto D6 

such Statisti atclerkAlal ama 

R Schwarz T pec itr 1 ashiretim D 

u Bric oe An Mar land 

he

Martin

Curry do1 ahingto D C 

do do 

odeHymen do do 

Anand dofssmluusetts 

Cantu dAn on 

uPscI o doIowa 

1 D Rbitworth Blue printer Washington D C 

S Schell Typewriter PennevP ania 

eth C MmAall Mimeograph operator Ohio 

tah

Wantlev

Fleming Typewriter Tenneym 

New York 

C

Fort

Nf a

d

do

I

do 

North Carolina 

inch Foster An INfi nud 

I L Stnt he I C1iftinui 

hove

Ke rau er doMarland 

d Indiana 

a G Clark IN ashingtdr D C 

Nero d 1enns laria 

Harriet

i

W Stairs do Washington D C 

West do do 

o B Pugh Stidi tedl lerk d 

F

L

C Ridgway Typewriter Irichhuan 

ausha v doPcns 1 ouni 

ds Leonard do IN ocdunctri PC 

Hamlin do Ncrth Caroline 

idne D MKadz d IN asdurneto D C 

Fthel M An Clerk To 

m Recede Typewriter writer New York 

vy Scutt Keresta 

derIfolliday do Washinxtxso D C 

eM Paul do do 

Florence Wilcox do Mar land 

C Holland Bollerith machine operator Wasinngton D C 

es N Prvor Fie ator operator do

Maud H raner Praftswormus do 

u D Zahn Tpewriter You land

nor L M inerson Watchman 11 ashaurton D C 

ittersen Tvpewriter do 

and Caner Watebecuun do 

1 H Brown do do 

yGleir do do 

amTWorsen do do 

L Robinson do 

BICoughlin dodo 

IICoien d 

mA

aM C Lawson o d0

do

rd S Tatt 

Bat God frey do do 

el W Eskridge Unskilled todinerr d 

a Jacks m do do 

or C Blount Skilled lobsterdo 

Wd Washington I Unskilled laborerdo 
168 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

TABLE I aCompensation of employees of United States Shipping Board 

Sept 80 1918Continued

Name Designation Legal residence 

Thomas A Ellis Unskilled laborer Washington D C 

FredB Pantcn dodo 

JosephRhon dodo 

AlbertGoo inin do do 

James Wright 10 do 

AlbertBarnes dodo 

Oliverooper do do 

RobertBoyd

B

dodo 

enjamin tarter lo do 

Lloyd hose doNew Yor

Guts Scott doWashington D C 

George RoAncy do do 

James F Hurlsy do do 

WalterJones dodo 

Nehemiah Lomax do do 

Julius Manns dodo 

Albert W Mays dodo 

John Cousins Typewrikcr Virgini

Fred D Mohlee Messenger Washington D C 

James Fletcher doVirgini

John Shugrue doWashington D C 

Edward 1 Cobb do do 

Julian Courteniy do do 

Robert Timberlake I do 

E V Walters Messenger Marylan

John EdwarIs do Washington D C 

Margaret Mattin dy dodo 

John A Jobnsun dodo 

Mrs

S

Elsie Wheeler Matron do 

amuel E Entriken Messengerdo 

Bella Marsh dodo 

J Elliott dodo 

James

B

A Carto11 dodo 

ernard C Garrison dodo 

Mm Frances Guernsey Matters d o 

Helen Barnes Messenger do 

MeybellCarlson do lo 

Monists Collins do do 

Rose Dorsey dodo 

Lenick I Pcnrce dodo 

JohnA Smit h do do 

Marion Brent Elevatoroperatordo 

Rachel Catrva Messenger do 

T H Nuent dodo 

Clara Moore doMarylan

Bertha V Ifarr Charwoman Iiasbin tonD C 

Mrs Mary E Davis do do 

Susie S Wise do do 

Annie E Wrenn do do 

Nand N Hammett do do 

Mrs Llzale Hit nor do do 

Martha Mitchell do do 

Mrs Virginia Moran do do 

Mary E Mullov do do 

Mrs Lillie 011erenshow do do 

Minnie A Osborn dodo 

Iota V Toombs do do 

DoraPettis do do 

AnnieMoran do d o 

Mrs Laura Simpson do10 

AnnieStmeks do do 

Bessie C Weckley dodo 

Floyd G Raniolph Elevator conductordo 

Phomas T Parker do do 

Edward B Passano Specialexpert New Yor

foseph

Kul Be

E

Laittre

Spurr do

Minnesot

Washington D C 

Henry Jr Porterg

foseph H Schaffer

dodoIllinoi

d 

Harty Fowl er doNew Yor

F A Eustis Specialagent Tfassachuse

George F Porter Spechdexpert Illinoi
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

TABLE IbAames and compensation of employees of the United States Shipp

in sere irefor some period uithtn the year ending Sept 30 1918 who have resi

to that date

Name

Dean G Acheson

Walter R Alexanler

Smyth G Allen

Julia Baggott

Iona llakersouth

T Tupper Barrett

Dorothy Stmss Bartleti

James F Bragg sr

Edger D limn leuburg

Lewis T Bremner

Raymond 11 Drown

James Arthur tsradl

Alton It Carty

Clifton C b n S ale

Thomas M urzan rra

Annie Davis

T

RaymonddDecke Decry

Joseph CharlesDi A Dtoice

Romosa or Mary Ionise Louisiseor Dorsey ey

Bess Fast

Mrs WilliamFrancramees Elliott Ebert

Mildred Ell

Rovey H Farquharquhar

Rosetta Mrs Gwendolyn VenFoxoly 1 Faoeg le

Obea Dlga

IIoward

IfM G

Gone as

M S Gassmansman

Eralbert rs Or tCC Geaart Gotten rh

Raymond Mercedes Benjamin

Joseph A

Gn

Grarchannhan

Gilson

n

Cross

DeAgOatlon

Assistant attorney

Stenographer harwoman Typewriter Attorney do

Statisticalclork

lord Specialexpert Examiner

Stenographer and ty

Typewriter

Special expert

Legal residence

New

New

do

York

Washington D C

do Ifan load

Washington D C

New Hampshire

Utah New Fennsylvania doYork

Washington D C

do

harwoman Assistant messenger

Messenger d0

Sperialexpert Messenger Statistical ElrctrieianMork

Charwoman TCpewriter Fesseneor

Suer tal export

8tenogmnher Tvpewriter Charwoman Typewriter Attornev Mosseneer Stenoeronh Information

Spools expert

clerk Statistical clerk

S pecial ex pert

Clerk Unsilled File clerk laborer

Charwoman

Clerk

el necht Cashier and clerk

award

bbard

Speoud

do

etiert

Admiralty counsel

Charwoman Wittrhman

fog Telephone operator

bfessen crSid

Attorney examiner

ist Special expert

Charwoman

Stenographer

Wy hman

Special

Messen er

evie t

er and typewriter

er

Ohio lif Missouri ssou rC9nla

New Massachusetts Jersev

South Carolina

Washington D C

doNew York

Missouri

Washington D C

Wisconsin

Washington D C

Washington D C

Washington

Texas

do

D

Michigan adoa
170 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

TABLE I b Names and compensation ofemp loyees ofthe United States Shi

in service for some period within the year ending Sept 801918 who have re

to that date Continued

Name Designation Lego residence 

Levtan A Minor TyMwriter 

William C Murphy AssistautettomeY 

Gustavus Myers

Elizabeth EOConner SpelmleaxpeVt Stennerapher New MassachuseYor

William 11 Odrick Unskilled laborer Washington D C 

MYmie A Osborn Charwomando 

Julia Parham Typewriter 

Dorothyy L Patterson doNew Yor

James J Payne Washington D C 

Charles Henry Peacock

Unskilled laborer

Messenger do 

Grant Pierce dodo 

Georgia Proctor File clerkKentuck

Mrs Katherine S Randall Charwoman Washington D C 

Lilly Bud Randall TceeriurOklahom

Mrs Carrie A Reynolds Charwoman Washington D C 

James R A Robinson Elevator conductor do 

Read V Rouse ClerkVirgini

Wilda E Sadler Statistical clerk 

Items S Schwartz Stcnogmphe North Carolin

Randolph Cadman Shaw Assistant examiner Massachuse

Wilfred R Shaw Sto expert 

Whitnev B Shepardsan AttomeY New fork 

Richard Shorter Unsklllad laborer Washington D C 

Irving A Slutzky Messenger do 

William

Mrs Mary D Smith Typewriter Colorado Washington D C 

R Snap

Anne R Sparks

Messenger

Tvpewriter 

Edward Sutton Clerk Illinoi

Arthur E Swanson Specialexpertdo 

Al exander W Tait Clerk 

Rose M Taylor Charwom mWashington D C 

Henry C Thomas Watchmando 

James H Tboram Unskilled laborer do 

Fred R Thomann Special export Ohio 

Richard T Tracy Ma eager Washington D C 

MaryF Tvler do do 

Gertrude Wo m to Charwoan m do 

Estella T Weeks SpecialexrtMarylan

William D Waist jr StenogrePher Ohio 

Joseph N Welch Attorney Iowa 

Alicia M Werten baker Ty wrPor e

Frank L Williams Typewriter mechanic 

IFoy YVashin ton D C 

John Wilt Seapher New Jersey 

William B Wright doDelawa
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

TABLE IIStatement of disbursements from the appropriation Salaries and 

United States Shipping Board for the fiscal year ending June SO 19

Salaries Commissioners and Secretary 42600 00

Employees and expenses 300 00

Investigation of foreign discrimination 175 0000

Total appropriation 5

0

DISBURSEMENTS

Pay rolls etc 220 416 63

Temporary employment 279 79

Subsistence 2568 90

Transportation 4752 62

Communication 4 2515 74

Printing and binding 5155 72

Stenographic reporting 2015

Miscellaneous services 3047 78

Stationery 1 444 25

Expendable equipment 408 18

Furniture 12058 60

Mechanical 8053 29

Books 1490 85

Miscellaneous office equipment 599 21

Rent office rooms 28 083 25

Periodicals 215 80

Clippings 437 27

Ice 523 24

323

Balance 1

26

Less investigation of foreign discrimination 1

Available unexpended balance 
172 SECOND ANNUAL REPORT UNITED STATES SLIIPPINO BO

TABLE III United States Shipping Board and United States Shipping B

geneg Fleet Corporation consolidated balance sheet as at June So 

ASSETS

Vessels Purchas ownede 2

486

Requisitioned on ways and completed by Emergency Fleet

Corporation 1

28

Constructed by Emergency Fleet Corporation 2

876

Miscellaneous expenditures on vessels not yet distributed 6 

202 

Plant and equipment 81996 538 06

Furniture and fixtures automobiles etc 907 966 26 8

Vessels under construction 431 655 457 87

Machinery under con struction 27 574 242 87

Charges by home office to districts not yet distrib

uted 13 776 602 25

Advances to contractors 1245 979 22 48

15

Materials supplies ships stores etc 5

102

Expenditures on ships requisitioned on ways reconveyed to former

owners see contra 2

12

Re airs to German interned vessels 810

Cash in United States Treasury in banks and on hand 107 

Notes and accounts receivable

United States War Department 29869 172 72

United States Navy Department 2 S71 89L 22

Insurance Department claims on account of

accidents 359 495 06

Other notes and accounts receivable 18 287 534 84 51 

Investments 

Incompleted voyages

Operating expenses and depreciation 57 459 442 52

Charter hue 56326 71 63

Maintenance repairs not yet applied to voyages 842 873 10 114 

Advances on account of wages and other expenses 704 6275

Cash accounts at agencies 26031 34

Advances by consuls and others for expenses 16695 47

Charter hire prepaid 300 856 01

Expenses of tugs and barges deferred 24 753 10

Expenses of Construction Division not yet distrib

uted 2 842 721 51

b 

Sundry suspense items 

Expenses and losses of Shipping Board

Expenses of Chartering Committee Board of

Survey etc less amounts charged to repair

accounts 5793 41

Salaries End expenses of United States Shipping

Board 415 722 57

Increase of compensation 4884 30

Dutch vessels expenses and repatriation of crews 283 725 01

Lake boats sunk or stranded not insured 888 860 54

1 

Total 1

61
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

Appropriations from United

States Government

Permanent fund for pur

chase of capital stock of

Emergency

ation

Fleet Corpor

Emergency stripping fund

National security and de

fense fund

Salaries and expenses

191718

Increase of compensations

LIAUMME6

Amount of Unexpended

Appropriation Balance Disb

50000 5

00

1 040 000 0000 233 095 154 38 800 90

19 561 211 07 1 047 304 98 18 5

617 500 00

4

179 903 30 457

940 26 

110 183 651 33 234 322 362 66

Refunds from former owners for requisitioned ships reconveyed to

them see contra

Accounts payable

Charter hire M 482 849 53

Marine and war risk losses estimated 11 123 383 00

Other accounts payable 6573 17 69

In completed voyage revenue 50 989 573 19

Charter lure revenue earned but unapplied to

voyages 2 087 909 52

Reserve for depreciation and amortization of vessels furniture

autos

partments

etc exclusive of vessels in service of Army and Navy De

Operating revenue of German interned vessels

Sundry suspense items

Net income of Division of Operations

Marine Insurance Departmentreserve for future losses being excess

of earned premiums over total estimated losses

Fire Insurance Departmentreserve for losses being total premiums

written less losses paid

875 8

24 42

142 2

53 0

9 2

8 3

1 2

186

2 3

Total 13

627 1
174 SECOND ANNUAL REPORT UNITED STATES SIIIPPINO BO

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SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

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176 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

TABLE V

MEMORANDUM FOR THE ADINSTMENT OF WAGES HOURS AND CONDITIONS 

IN SHIPBUILDING PLANTS

Dec 8 1917

When disputes arise conceming wages hours and conditions of labor i

struction or repair of shipbuilding plants or of ships in shipyards under 

States Shipping Board Emergency Fleet Corporation or under said Shipp

or under contract with said Corporation or with said Board or if questio

under the jurisdiction of the Board arise with reference to such constru

private plant in which construction is also being carried on for the Na

ment and attempts at mediation or conciliation between employers and 

have failed the adjustment of such disputes shall be referred to an adjustm

of three persons hereinafter called the Board one to be appointed join

said Corporation and the Na Department one to represent the public 

appointed by the President of the United States and one to represent la

appointed by Samuel Gompers President of the American Federation 

It is understood however that this memorandum shall in no wise serve 

edent for procedure in Government plants under the War or Navy De

except as may be authorized by such departments

The plants where such construction is being carried on shall be geo

districted by the Board In each district the contractors in whose plants 

struction is being carried on and the representatives of such internati

organizations as have members engaged in such production or constructi

plants and Be are selected for the purpose by the labor member of the B

be called upon under conditions to be laid down by it to agree upon a 

persons who shall act under the direction of the Board as Examiner or 

in such district If the Board deems it advisable itself to name an Ex

Examiners or if the representatives of the contractors and of the labor o

do not agree then the Board Shall by unanimous action select a person 

for such position The Examiner shall be subject to removal by the Bo

time by majority vote It shall bo the duty of the District Officer of t

States Shipping IIoard Emergency Fleet Corporation to report promp

Board and to the Examiner of the district if such Examiner shall hav

pointed any dispute with reference to Wages hours or conditions of la

he is unable to adjust satisfactorily to the principals concerned

As basic standards where such construction is being carried on the B

use the wage rate prevailing in the district in which such plant or plants a

provided such wage rates have been established through agreements be

ployer and employees and are admitted to be equitable Consideratio

given by the Board to any circumstances arising after such wages hours 

tions were established and which may seem to call for changes in Wage

conditions Where no such agreements exist and where as in the case of 

trial districts a proper basis of wages and conditions is difficult to dete

Board shall have the right to put into effect the rates which were awarde

investigation and determination in other districts in which living cond

cast of living are substantially the same The Board shall keep itself full

as to the relation between living costs in the several districts and their 

between progressive periods of time The decisions of the Board shall un

conditions be retroactive and it shall be the duty of the Board to make th

effective At any time after six months have elapsed following such rat

ment or any such final decision by the adjustment Board on any question a

hours or conditions in any plant or district such questions may be reope

Adjustment Board for adjustment upon request of the majority of the cra

at such plant affected by such agreement or decision provided it can 

that there has been a general and material increase in the cost of living 

sions of the Board will in so far as this memorandum may be capable o

such result be final and binding on all parties Provided however That 

employers or employees in any district may have the right to appeal from t

rendered by the Adjustment Board to a Board of Review and Appeal t

up as follows Three members to be named jointly by the United State

Board Emergency Fleet Corporation and the United States Navy Depa

three to be named by the President of the American Federation of Lab
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

It is hereby stipulated and agreed that this memorandum shall super

stand in lace of the Memorandum for the adjustment of wages hours 

ditions of labor in shipbuilding plants signed August 20 1917 and tha

become effective this Sill day of December 1917

Franklin D Roosevelt Acting Secretary of the Navy Char

Vice President and General Manarer United States Shippi

Emergency Fleet Corp oration William Blackman Assistan

eral Manager JamesOConnell President Metal Trades De

John I Nolan International Molders Union of North Amer

Franklin International President of Boilermakers Iron Shi

of America John Nilson President Pattern Makers L

North America Milton Snellings General President Inte

Union of Steam and Operating Engineers G C Van Domes 

Vice President International Brotherhood of Blacksmiths and 

F J McNulty byy J P International Brotberhood of E

Workers John J Hines President Amalgamated Sheet Me

ers of America William H Johnston International Asso

Machinists per P Flaherty

Tenna VrTable of delivered ships constructed by the United States Shippi

Emergency Fleet Corporation up to Nov 1 1918

864271812

Requisitioned Contractsteel Contractwoad and To

composite

Dead Dead Dead 

Number weight Number weight Number weight Number 

toys tow tons 

August 1917

October

eptemberr

12

8 4324 8 

Novwnb 13

81 32 

r

79410 13 

Duccmba 11 80990 11 

Jauaery

F

1918 10 82611 1 3800 11 

March

ebmary 15

19

115 850

153 400 1

1 8

B

05

800 20

16 

A

Nay

Ord 29 154 015 1 3 30 

J0

36 218 491 6 37Oso 1 3500 43 

32 181 A35 11 79287 5 18OW 48 

July 19 302 43 21 134 960 5

A

1B 000 93 

pt

22 129 095 22 132 550 22 73510 66 

Ecptcmbee rnber 23 101100 23 117 645 27 96 1000 73 

October 17 134 SOO s0 I66 408 32 114 700 79 

Grundtotal 271 1724 331 117 703 10 92 323 700 480 

864271812
178 SECOND ANNUAL REPORT UNITED STATES SHIPPING 

TABLE VII aMonthly summary of keels laid hulls launched and shi

to Nov 1 1918

KEELS LAID

HULLS LAUNCHED

1917

Steel Wood Composite 

Month

ROM Dead Num Dead

2

Dead N

bor weight her weight her b

20330

b

2222

tans

tons

4

tors 

1918

July 7 39835

April 1 8130

16 126 919

May

1 7500

12 6340

June

2 18530

17

July 4 42910

20 144

August 2 17500

23 152 330

SePemhep 1 7000 

October 6 3600

16 112 No

November 9 54230

26 153

December 4 32500

33 2t8 910

1917

4000 

April 29 165 730 18 550N0o

January 30 101 60

42 249 555

February 7 53996

26 151 30

March 13 111 36

68 436 050

April 23 155 724

46 293 750

May 25 159 915 4 15 000 

June 1 89730 3 11

296 775

July 11 695 10 35 2222 800

3140 561

Augu st 18 123 000 30 105 N000o 2 80000 

Septemberber 21 109 39 144 700 2 7000 

October 19 10960IN 136 5011o 8 21000 

November 37 25510 M55 191 000 3 105110 

December 30 214 80 39 135 000 4 34500 

1913

January 33 204S50 21 98500 5 18000 

February 45 290 425 23 83000 1 4000 

March 62 410 605 21 74650 4 14500 

April 53 382 225 21 87900 2 7 No 

May 62 391 700 32 64000 2 7N9 

June M 343 75 32 110 85 

July 83 510775 M 176 700 

August 62 390 808 w 163 700 

September 71 418 850 41 113 650 

October 80 543 191 51 130 70 

Total 871 573180 579 169750 31 112 NO 19

HULLS LAUNCHED

1917

April 2 12500 

May 3 20330 2222 

Noe 4 24400 

July 7 39835 

Augustt

16 126 919 

September 12 6340 

October 17 116 378 

November 20 144 

December 23 152 330 2 7500 

1913

armory 16 112 No 

February 26 153 4 34 NO 1 4000 

March 33 2t8 910 10 38 1 4000 

April 29 165 730 18 550N0o 1 4000 

42 249 555 30 103 20 2 7500 

tune Iune 26 151 30 22 7800 1 

Igust

68 436 050 53 187 700 3 Mono 

August September

46

59

293 750

361 750

33

3

107 80

110 200

4

3 105

144 NO

N0o

October 97 296 775 34 107 20 

Total 496 3140 561 235 813 350 16 59000 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

TABLE VII adlonthly summary of keels laid hulls launched and ships del

to Nov 1 1918Continued

snips COMPLETED

TABLE VIIbCondensed summary of results in ship production as of Nov 

Steel wood Composite To

Month Num Dead Num Dead Num Deed Num 

beL

ber weight ber weight ber weight ber 

tons

3537

tons

310 M5

tons

272 121

1917

too 1934 350 248 85310 89 

Composite 32

September 8 4324

Total 1 1524

8 

October 12 81 12 

November 18 79410 18 

December 11 9090 11 

1918

January 11 91441 11 

February I6 124 660 18 

March 20 162 2110 20 

April 30 162 8115 I

30 

May 42 2541 1 3810 43 

June 43 261 122 S IB nN 48 

July 40 237 316 5 IB no 45 

August 44 261 645 19 67 SJO 3 1I G6 

September 46 267 615 24 84510 3 lla0 73 

October 47 301 28 30 107 20 2 7500 79 

Total 393 242731 84 29700 8 30000 980 

TABLE VIIbCondensed summary of results in ship production as of Nov 

Reels laid nulls launched Ships d

Type

Num Deed Num Dead Num 

ber weight beL weight ber 

tonnage tonnage 

Reqursitloned steel

Contract steel 3537 2349132 401 18 310 M5 2021 59i 1253 775 272 121 

Wood too 1934 350 248 85310 89 

Composite 32 115 500 18 6500 8 

Total 1 1524 7942 463 781 198 211 496 
LGG ND

aftas Luo

Hws Lxuxnan

ISx es Deunneo

z

rte
TABLE VII bCondensed summary of results in ship production as of Nov 1 1918

Numher

272 121898 1731 6 316 200 75 9 30

1524

781

496

p

162 805 30 162 SU5

May 42 25541 1 3 43 259 041

June 43 261 122 S 180111 4K 279 122 July 40 237 365 5 18000 45 25365 August 44 261 645 19 67W 3 I1o00 BB W145 September 46 267 645 24 8490 3 llsoo 73 363 645 October 47 301 28 30 107 20 2 7500 79 415 908

Total 388 242731 84 2A700 8 30000 480 2756 131

TABLE VII bCondensed summary of results in ship production as of Nov 1 1918

ti

Reels laid Hulls launched Ships delivered

Type

15

Num ber tonnage weight Dead Numher tonnage weight Dead Numher tonnage weight Dead

Re9utvtioned steel

ebutmct steel

Wood Composrte 355 537 6002 2401 18 349132

I 934 115 500350 310 205481

2 02t 580

1253 775 60BSIt 350 50 272 121898 1731 6 316 200 75 9 30 Total 1 1524 7942 403 781 4198 211 496 2 M781

ti

15
182 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

TABLE XIPersonnel table of the United States Shipping Board Emergenc

poration as of Sept 80 1918 showing compensation of employee

DivLSion and department mployees 

Director or 3 

Vice Previ ent and Gene Manager 19 

publications 18 

Plant Protectlon 11 

Press Information 3 

Requirements 9 

National Service 86 

Vice President of Administration 22 

Statistical 107 

ExecutlVe 5

GENERAL OFFICE

Offlee Manager soffice 24 

Automobile Branch 21 

Building Operation Branch 312 

Information and Files 304 

Maihng Branch 68 

Maven

O1 Sop

er

ply Branch

277 

10251 

Pors r Records Breach 

Photo prints 56 

Repair Branch 0 

Stenographle Branch 217 

Telophone Branch 26 

Typing Branch 1790

Ceating Washington 

Personoel Homan 3 

Total j 1 

DDI910N 0E STEEL SHIP WNSTRUC110N AND ENGINEERING 

O tx of Menger

18 

Inspection and Production 102 

Engioee uag 159 

Camoufloun 125 

Concrete 142 

Total NO 

Division of Wood Ship Construction 61

Division of Shipyard Plant s 

Legal Division 10773 

Contract Division 12 

AMOITING DIVISION

ExecutlVe 5 

Home

Field

Ore 147 

42 

Housing IN 

Total WE 

SRPPLrDWRON

Administrative 8 

And

Aux

Hull

Deck

Cards

Mach 14

5

Boiler Fittings 11 

Distribution 7 

Dist Aux Peck Mach 16 

Dist Boiler Fittings

Dist

Dist

Elec

Em

Eq

3To

u Turb

Mash

20

11

Dist life Boats Chaim ais 

Dist

Dist

Outfitting

Pipe Volvo

Fuel 32

19

Dist Supply Off 15 

Elect Equip Turbines 11 

Eng Pro Mchy 18

Oro pp Ch Clearsnce 

Hull 1433 

ILO P D Inv

Impection

34

28

Life Boat Chains 12 

Lumber 67 

Marlines Tarts Prier

MW

12 

Material

Oft Supervision

Records

12

5

2
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOAR

TABLE IXUnited States Shipping Board Emergency Fleet Corporation 

comparative balance a set as of Aug 31 1918 and Aug 31 1917

Assets 1 1918 1 1917 1 In

Cash limits 894 548 251 7973867 409 92 790 

Requisitioned ships under construction

Steel slues under construction

Wood shiPS under coastmction

Togs and barges under construction

121 MO 796 09

21J0 476 MC 08

135 721 955 27

4 612 6M31

2387 8437683 099

8

59

158 2x6 79

Concrete ships under construction 2

595it156

Machinery under construction

Delivered reyuisitintied ships

Dell ered steel ships

Completed Delivered mood machery ships in

366 145 20

191 36573 2239272 430 81

59 763 4W 93

11596 923 163627 88

160 99416

398273

1323146

51913

Totalships construction 85469 22 9319624 85162 6238

Ivvevter of materials

Housing under cons traction

Pleats and ProPert

Drdocks end marine ralla as 1222

Frrrnitme fixtures avd ePPeratns

Automntais end to mches

Equipment of lumber yards etc

Accounts races ald

Investments stock

Deferred clmrges

89491 ro7 4099219 531 12653 274 41

1 27R 758 94412411 31

2U3 164979 161 47

4 961 137 23250000

34332805

754 568 23

798 565 04

302221

218 12221 19

89761

if

98 

1 

46

Total assets 165 6174102 25301 83411 1 1

3

Liabilities Cash received from sale of capital stock

Cash received from aPpropranan

Audited Rev ervesvouchers ivsuravice itsotl paymentstsforma former orwvers

WG10 0000

IP96 294 041 64

24370 457 28953 1420

23500 00

1801 934 31 10

24250699

Total liabilities 1 165 6174102 123 301 834 311 1

387

a This statement does not include any transactions of the Division of Operations

TABLE X17nited States Shipping

report

Board

August

Emergency

31 1918

Fleet Corporation t

CashUnited receiptsStates Treasurer

Capital

Funds for

stock

construc

50000

Reconveyed

tion

requisitioned

1086 294 041 64

ships

136 294 041 64

25 806 711 34

Interest on bank deposits 638 703 96

Interest on notes payable 6467 19

Waste paper and other sales 1855 37

Cash disbursements

Total 16

7485

Requisitioned ships and requisition ship

Ship

construction

construction 472 301 745 00

334 513 466 02

Machinery construction 39803 542 38

Housing construction 16353 274 41

Plant property and equipment 100 498 014 43

Furniture fixtures and automobiles 1 039 309 78

Advance

Inventories

to contractors

89481 097 40

7855 237 46

Accounts receivable deferred charges 5 313 048 10

Investments 250000

Total 106

8739

Balance on hand 9

505
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

TABLE XI Personnel table of the United States Shipping Board Emergency Fl

poration as of Sept 30 1913 showing compensation of employeeContinue

Division and department

SUPPLT DavisroN continued

Outfitting Fuel 19 

Paymaster 5 

Lila Valve 14 

Purch 8 

R R Claims 12 

Ram

R

Material 65 

anh 11 

Schedules 46 

S I Isuanm 39 

St graphh 7 

St woLs Dist 6 

Tranvi 64 

Total I 729 

30

PASNEDGER TRAWqPORTAMOV AND DOUSING

Passenger Transportation 35 

11cing 250 

Total 285 

American

Labor Adjustment

hot

Board 7 

Ship Protection Gen C am 16 

INDUSTIUAL RELATIONS Gen

Central Of1bo

IndustrialSvcv4m 14037 

Education Tmitung

Health Sanitation

Safety Lbor Enr4neenng S11854

Total 245 

Office of Secretary

0 dice of Treaso Der 335

Finance Division 48 

Total for Home Office 441 7

20

Submarine Boat Corporation

hlenchants S B CoriPerstion

Aprimn na international S B Corplu

Boston Nw York

BItinnore jackaon ill

New Orleans

11s4tDi S1 Francisco

Seattle love ldon

Portland Philadelphia Lumber Department

Carolina S B Company 29314W6 3M247 lis151 28630 145 ISO120W657

Total for Field 0 Mm 3432 60

16

Total for Division of0reatiom 8119 I 12

0 

Total for Port and Harbor FuffitlesCrandssitm 30 

SUICILARY

Total for Dam OM

Total for Field Office

Total for Division Port andofHarOterations or Facilities Commission 0

70

6 O

30 2

Grand total 8712 3

124
184 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

TABLE XIIDetails of housing contracts and expenditures

S ed in compliance with en act of Congress entitled act to and a

rph 

States set or of Emergency Fleet Corp to requisition 

oration

and

se leasee o

ano

to sal or otherwisee dispose spo of improve unimproved lovedland houses buildings a

poses approved Mar 1 1918

A LIST OF PERSONS OR CORPORATIONS WITH WHOM UNITED STAT

BOARD EMERGENCY FLEET CORPORATION HAS MADE CONTRACTS F

PROJECTS WITH PARTICULARS AS TO EXPENDITURES ETC

HOG ISLAND

Dormitories Ninetyfourth and Tinicum Streets

American International Shipbuilding Co

Land 

Wm Crawford construction contract fee 

W G Cornell Co heating do 

G B Bartlett architect do

Albert Pick Co 

furnishings lump sum 

953 houses Sixtyfirst and Sixty seventh Streets and Elmwood Avenue

Philadelphia Pa

414 houses H P Schneider

Land 

H P Schneider construction contract lump sum 

539 houses

Land

Moss Taylor Crawford

Moss Taylor Crawford construction contract lumpsum 

600 houses Seventieth Street and Elwood Avenue Philadelphia Pa

Land 

11 P Schneider construction contract lumpsum 

Public utilities for all the above projects 

This amount has been loaned to the city of Philadelphia

HILTON VILLAGE

Newport LandNews purchased ShipbuildinY by rest ty company Dry Dock Co Newport News Va

MellonStuart Co construction contract fee 

Blumenthal Kahn Electrical Co electric wiring and fixtures

lump stem 

Loan to the Newport News Light Water Co for water etc 

CAMDEN N r

New York Shipbuilding Co

Yorkship village

Land purchased by realty company

Tidewater Building Co construction contract fee 

MilesTighe Co engineering contract do 

F Sabin Co heating lumpsum 

C A Kuehnle painting do 

1 N Knight Co plumbing do 

Schneider Sheet Metal Works metal and sheetmetal

work lumpsum 

L K Comstock electric wiring do 

E D Litchfield architect fee 

LockwoodGreene Co engineering contract do 

First Haller 100 houses

Mark Haller construction contract lumpsum 

Morgan village 100 houses

Mark Haller construction contract do 

Fairview extension

Tidewater Building Co construction contract fee 

MilesTighe Co engineering contract do 

T AORourke Inc plastering do 

L K Comstock electric wiring lump sum 

LockwoodGreene Co engineering contract fee 

Schneider Sheet Metal Works roofing and sheet metal lump

7N

sum 

Knigbt Son plumbing gas fitting ranges etclump stem 

C A Kuehnle painting lump sum 

E D Litchfield architect fee 

Loans to the city of Camden and to privately owned gas and electric

companies for all public utilities for the above 4 projects total 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

SPARROWS POINT MD

Bethlehem Shipbuilding Co near Baltimore bid

St Helena Land 3

5

Consolidated Engineering Co construction contract fee 3

0

BiggsY Bi Distler Stringen plumbing beating and else

fee 1

0

Dundalk Lnd purchased by realty company

Consolidated Engineering Co construction contractdo 4

0

IL E Crook Co plumbing heating wiring and ranges do 1

Loans to the Consolidated Gas Electric Light Power Co for gas

and electricity 1

20

PORTSMOUTH N H

Atlantic Corporation

Land purchased by realty company

National Engineering Corporation construction contractfee 3

50

Kilham Hopkins architects do 1

0

Eastern Power Heating Co plumbing heating etc lump

sum 2

10

Loan to the city of Portsmouth for public utilities paving water

sewage etc not to exceed 19

Loan to privately owned electric company 1

NEWPORT NEWS

Newport News Shipbuilding Dry Dock Co Apartments

Land purchased by realty company

James Stewart Co construction contract fee 3

United Electric Construction Co wiring lumpsum 2

John Laura Co roofing do 

50

Wells Architectural Iron Co iron fixings do 6

Reliance Fireproof Door Co fireproof doorsdo 

0

btaricel Akers painting do 3

60

CHESTER PA

Sun Shipbuilding Go

Sun Village

Land purchased by realty company

Price Johnson construction contract fee 6

20

Rhodes Bros plumbing lump sum

Raney White mill work and stair material do 4

237

Sun U111

Land purchased by realty company

Price Johnson construction contract fee 2

0

Cheater Shipbuilding Co

Buckman village

Land purchased by realty company

McArthur Bros construction contact fee 5

Brumbaugh Simon Bassett architects including Cheater

Hotel fee 

0

Walter Puke Mellon plumbing heating and ranges in

cluding Chester Hotel laboronly 

0

0 H Bauer interior decorating and kalsomining including

Cheater Hotel lumpsum 2

Chester McArthur Hotel Bros construction contract fee 

0

J S Thorn Co skylights and vents lump sum 1

Wm A Wafer marblework do 1

Loan to the city of Chester for public utilities 50

Loan to privately owned gas company 10
186 SECOND ANNUAL REPORT UNITED STATES SHIPPING BO

LORAIN OHIO

American Shipbuilding Co

Land purchased by realty company

MoregoBurkham Construction Co construction contract fee 

Koblitz Plumbing Heating Co plumbing and heating

lump sum 

Loan to the city of Lorain for public utilities and street improvements

not to exceed 

BATH ME

Texas Steamship Co

L P Soule Son Co construction contract fee 

Loan to the city of Bath for public utilities and street improvements

not to exceed 

UNION PARK GARDENS WmMI NGTON DEL

Bethlehem Shipbuilding Co and Pusey Jones

Land purchased by realty company

Lynch Construction Co construction contract fee 

Wilmington Philadelphia Traction CO for electrical extension and

house service 

Loan to the city of Wilmington for public utilities 

Ivan to privately owned gas company 

BRISTOL PA

Merchants Shipbuilding Co

Land 

F A Collette Co heating lumpsum 

Wells Newton plumbing do 

Gent Construction Co electric wiring and fixtures do 

GLOUCESTER N S

Posey Jones

Land purchased by realty company

McArthur Bros construction contract fee 

Bissell Sinkler architects do 

Loan

ments

to the city of Gloucester for public utilities and street improve

Loan by Emergency Fleet Corporation through the realty company to

gas company owned

Company for railway toPublic Service Railwaye extension of electric

the housing project estimated 

ESSINGTON PA

Westinghouse Electric Manufacturing Co

Dormitories

Land purchased by realty company

Wm Crawford construction contract fee 

HousesLand purchased by realty company

Wm Crawford construction contract fee 

Loan to American Gas Co for gas installation 

Loan to Springfield Water Co for water supply and distribution

These loans include both projects

JACKSONVILLE FLA

Merrill Stevens Shipbuilding Co

Land purchased by realty company

W P Richardson Co construction contract fee 

H L Lee electric wiring lump sum 

Hooker Lightbody plumbing do 

Loan to the city of South Jacksonville for public utilities street im

provements etc not to exceed 

Loan through South Jacksonville Realty Co to gas company pri

Loan

vately

to Duval

owned

County

for gas extension

Fla for road construction 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

PORT JEFFERSON L I

Bayles Shipyard Inc

Iand purchased by Bayles Shipyard Inc

Mark Tredenmek Co construction contract fee 

Public utilities and improvements will be home by the appro

priation for the project Electrical installation will be fur

nished by the electric company at no cost to the project

WYANDOTTE MICR

Detroit Shipbuilding Co

Land purchased by realty company

Loan to the city of Wyandotte for public utilities street improve

ments etc 

MANITOWOC WIS

Manitowoc Shipbuilding Co

land purchased by realty company

Walter W OeBein Co Inc construction contract fee 

Lean to the city of lllanitowoc for public utilities street improvements

etc including electric extension not to exceed 

GROTON CONN

Groton Iron Works

And purchased by realty company

National Engmeenng Co construction contract 

Loan for the borough of Groton for public utilities street improve

ments including electrical extension 

Loan to the town of Groton for public utilities street improvements

including electrical extension 

In addition to the above there has been spent up to October 31 inclu

following amounts for labor and material including all projects

Material

Labor

1536

154

Total 29 
188 SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

q

m

89 m r Q

E fd yi S 7b 25 gYq k

p5SX S 

m m N m m oei r

03 N qq qq

mQS

oq

A

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e

I

F p

e

me a

g 83inE i6wg m Ncm

F prNNWrNmoG m CE3 iSmNO

e

aci ma

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c zc

b daz z

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q

pVOCz c9a wO 4dE 4br wo C F9 JCaaOcPSa

GaSy m NU pe 2o

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9wVa o 0 oC4 cQ3mo

ed

C

d hum m

a

eo6ma mAF @ 3 scnPP w rmQ qa

mFaasia t

OJV3 aR

ONO6O1 55Y FCyi Lim sm a fO g Jt

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89zmAoz Awa

s8

8em moaFw w

YSwo

eNz9RUmaz 4oa
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOA

C STATEMENT OF TOTAL COMMITMENTS OF HOUSING DEVELOPMENT

UNITED STATES SHIPPING BOARD EMERGENCY FLEET CORPORATION U

14 1918

Company I

Location 

Atlantic Corpomrfon Portsmouth N H 

Newport News Shippbuilding DryDock Co

New York Shipbuilding Co

New it NewsVa2projects

Camden N 1 4

Pusey Jones

projects

Gloucester N J 

Bethlehem Shipbuilding Co

Pusey Jones Wpmfvg onDel

Beth chain Shipbuilding Co

Chester shipbuilding CO

Eooarrows Point Md 2 prOjects

Chaser Pa 2

Texas Shipbuilding CO

pncets

Beth Me

Merchants ShlpbmldinR Co BristolPa 

American International Shipbuilding CO

Shippbuilding Co n

Phi adel hia Pa 4 projects

f2

G andifer Construction Co Vancouverr ash

Bayles Shipyard Port Lang Island 

American

Merrill

l ding Co Lorain Oh 

Stevens

atnc

Shipbuilding Co

ng CO house Electric Man

Jacksonville nville Fla

o

Essington Ga 2 pro jects 

Torry Traylcaylor Bh1pppnoi nggCCo

Savannah Ga

to Pa

o

Detroit Shipbuilding Co Wyandoandotte hitch Ah 

Manitowoc Shipbuilding Cc

Pacific Coast Shipbuilding Co Clyde Col 

Groton Iron Works Croton Conn 

Newburgh Shipvards lnc

Missouri Valley D Co

Newburgh

t

N Y 

Quantico a 

Total commit ment 

15 per cent reserve for Contingency 

Reserve for administration expenses compen 

Sotlan in requisition and guarantee of rentals

STATEME OF RESERVE FUND

15 per Cent reserve for contingencies as above 

Less commitment to New York Shipbuilding CO E1 315 01

Less commitment to American International Shipbuilding Co L 36150

15 per cent reserve for contingency 138150 207 172 

Number

Balance

of approved

in reserve

prolec s

Projects on winch preplans have been submitted 

Projects on which fml plans have been approved 

Project on which construction has beg ttn 
190 SECOND ANNUAL REPORT UNITED STATES SHIPPING B

TABLE IIILegal arrangemrats involeed in connection with the Eme

Corporation shousing projects jor shipyard employees

I a Shipbuilder is rewired to contribute cost of land to be develop

land is insured by responsible title company at expense of shipbuilder b Shipbuilder organizes subsidiary realty company which acquires 

in exchange for its stock for cost of land at par

c If land bewithout streets or public utilities shipbuilder or mu

required to furnish or contribute to cost of installation of same

II a Shipbuilder agrees with realty company advance money mo

ment to advance or cause to be advanced all further costs of developm

fee to shipbuilder or realty company

b Realty company executes its bond for all advances made payable 

10 years with semiannual interest at 5 per cent securinr came by blank

with proper provisions therein for releases in event of safes or individual 

yard workers

III Shipbuilder realty company and Emergency Fleet Corporation 

party agreement known as operation agreement which provides as follo

a Shipbuilder assigns advance money mortgage agreement and bond a

to Emergency Fleet Corporation

b Shipbuilder guarantees all undertakings of realty company there

to repayment of loan

r Shipbuilder pledges entire capital stock of realty company as col

guaranty see b reserving voting and other rights therein

d Upon any default of realty company or shipbuilder Emergency Fle

tion may sell pledged stock without notice and become purchaser at an

without affecting its right to foreclose mortgage

e After 30 months shipbuilder may assign stock of realty company to 

Fleet Corporation and be relieved of its guaranty if not then in default

f Emergency Fleet Corporation assumes obligation of shipbuilde

advances

g Realty company agrees not to increase capital stock without conse

gency Fleet Corporation

h Provision made for application of revenues of realty company from 

source derived

i Reality company limited to 5 per cent dividends on its stock until 

paidj Dividends thereafter limited to 0 per cent with option to apply exce

if any to amount of 2 per cent per annum of capital stock originally iss

its amortization and balance to improvement of unsold property

k Emergency Fleet Corporation controls sales renting and restriction

erty until six months after conclusion of war

O Upon sales Emergency Fleet Corporation grants release from blank

and accepts money mortgage on similar terms in lieu thereof

m Provisions for appraisal not earlier than two years not later than 

after conclusion of war time at option of Emergency Fleet Corporation 

of realty company prove insufficient to meet carrying charges including 

annual amortization of mortgage

As result of appraisal there may be maximum write off on mortgage of 

in recognition of excessively high construction costs

Individual purchasers may get the benefit of any such writeoff by lea

cent of the release value of their lots on bond and mortga

IV Emergency Fleet Corporation approves selection of architects 

contracts etc and determines amount of their respective compensations

V Resort is only had to power of requisition where price asked for land 

excessive or delay in securmg good title would otherwise occur
SECOND ANNUAL REPORT UNITED STATES SIIIPPING BOAR

TABLE XIVList of municipalities which have furnished facilities in connec

housing projects of the Emergency Fleet Corporation with their approximate 

meats

Wilmington Del including 175 000 for school facilities 

Gloucester N J including 75000 for school facilities 

Camden N J including 300 0 for school facilities 

Lorain Ohio including 100 0 for school facilities 

Bath Me including 25000 for school facilities 

Portsmouth N 11 including 75000 for school facilities 

Chaster Pa including 200 0 for school facilities 

Manitowoc Wis 

Wyandotte Mich 

Pensacola Fla 

South Jacksonville Fla 

Ducal County Fla for road construction 

Borough of Groton Conn 

Town of Groton Conn 

City of Newburgh N Y pending 

TABLE XVLoans made by the Emcrgen Fleet Corporation to utility com

connection with housing projects

Wilmington

2000

Gae 

Electricity 

Gloucester

Gas 

Electricity 

Camden

1848

Gas 

Electricity 

Lorain electricity 

St Helena

2000

Gas

Elctricity 

Dundalk

Groton cafeteria only

Gas 

Electricity 

IIilton Village water 

Port Jefferson electricity 

Portsmouth electricity 

Ch estergas

Jacksonville gas 

TABLE XVIDormitories and cafeterias constructed or planned for the Emerge

Corporation

Men to be het ed Menfedto he 

Hal island 2000 2000 

Eesington 600 fi10 

St Ilelena 1010 1848 

Cheater boarding house 144 144 

Chester hotel and enfeteria 3I5 2000 

Port Jefferson dormitories only 2l4 2a0 

Groton

Portsmouth

cafeteria

N 11

only

400 400

0

Bath Me 148 148 

Jacksonville Fla N1 t0

Peedin7
192 SECOND ANNUAL REPORT UNITED STATES SHIPPING 

TABLE VIIStatement of total commitments far passenger transportat

the United States Shipping Board Emergency Fleet Corporation as of O

Shipyard Company Location 

Texas Steamship Co Lewiston Augusta Water BathMe 

Henry Smith Sons Co

Ville Street By

do 

Bethlehem Shipbuilding Cor Bay State StreetBy Quincy Mas

Atlantic porDo Corporal inn Metropolitan Park Commission Portsmouth do N I

Downey Shipbuilding Corpora Richmontl Light R R Co Staten I Law N 

Statcn Lio island Shipbuilding Co

Standard ShlPbuil do do 

gCo

Johnson Ship building aromatics do

do

Submarine Boat Corporation Public Service Co New Jer Newark doBay

Federal Shipbuilding Co

of

dosay

N J

Kearney N J

The Foundation Co d o

do 

New York Shipbuilding Corpora do Camden N J 

rusty tion Jones Co do Gloucester N J 

American International Ship Philadelphia Rapid Transit Co Philadelphia In 

building Corporation

Portland of By Light Power CO Portlan5 Ore

Do Philadelphia RyeCodo 

Sun Shlpbullding Co Southern Pennsylvania True ChesterPa

Chester Shipbuilding Co

then

do

Co

do

Newport News Shipbuilding Newport News Hampton Newport News V

Dry Dock Co Bethlehem Shipbuilding Cor United By basRailways ElectricElectric Co Co Baltimore Md

Henry poration Smith Sons Co do do 

Baltimore

Carolina

building

Shipbuilding

Co

Dry Dock

Co

Ship do do

Liberty Shipbuilding Co

Tidewater PowerCo

do

Wilmington

do

N C 

Terry Shipbuilding Corporation Alabama Dry Doc S ipbuild Savnmah Mobile Light ElectricR CoIt Cc Savannah Mobile Al Ga 

Ing Co

Mobile Shlpbi llding Cc do do 

Fred

Love

T

Star

Ley

Shipbuilding

Co Inc

Co Chas

do

Swnk 1 Bea

do

Te

Moore Shipbuilding CO San Fr ODakWal nd Termi Terrill Sana Francisco Fruncisco C

not ys Co

Bethlehem Shipbuilding Coo do do 

6cho0eId pporationEngineeringCo San Diego San Diego

Todd Dry Duck Contruction Co City Tacoma Electric Co CaTacoma lIash 

Northwest Steel Co Portland of By Light Power CO Portlan5 Ore

Colu ip ng CoIfi7

Skimer Eddy Corrporation Citydoof Seattle Seattle d Was

Seattle Construction Dry Dock do do

Seattle Co North Pacific Shipbulld do do 

ing Co

Ames

J

MacDougall

CoF Duthie

Shipbuilding

Duluth

Co

Dry Dock

Duluth

do

do

Street ByCc

do

Duluth

do

Minn 

Globe Shipbu0din6 Co doSuperiorVie 

American Shipbuilding Co do do 

Great Lakes Engineering CO Lake Shore Michigan South Ashtabula Oh

era R R

Total commitments for pas 

stinger transportation in

ees

Add IS Per cent for contingencies 

Total commitments s of 

Oct 31 1918
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

TABLE VII Statement of total commitments for passenger transportation fac

the United Slates Shipping Board Emergency Fleet Corporation as of Oct 31 

Continued

Shipyard I Company I

Location I A

Foregoing commitments and ap

promiatians reduced

Sq

3

Bethlehem Shipbuilding Car San Francisco Oakiaad Teo

poretion mint nys

Skinner Eddy Corporation City of Seattle

Seattle Construction Dry do

Dock Co

Seattle North PaciOO Ship do

building Co

Ames

Doak

Shipbuilding

Co

Dry An

7 F Duthie Co do

Total amount of reduction

of commitments

15 per cent for contingencies

Total amount of reduction

Total commitments for passenger

transportation facilities

Total amount ofreduetiou afrom

mitmcnts

Net total of commitments

as of Oct 31 1918

San Francisco Cal 

Beattie linshI

do

do

I 3

SU4fMARY

Passenger transportation appropriation made by Congress

Less commitments as o1 Oct 33 1918 I

Sq

3

Balance available to meet any cost In excess of commitments etc and far additional

projects 

TABLE SVIIIpecial steam trainservice arrangedfor sh ipgard workers

Bethlehem Shipbuilding Corporation Fore River

L H Shattuck Inc Newington N H 

Staten Island shipyards N Y 

Merchants Shipbuilding Corporation Bristol Pa

Traylor Shipbuilding Co Comwells Pa 

New York Shipbuilding Co Camden N J

The Pusey Jones Co Gloucester N J 

Sun Shipbuilding Co Chester Pa 

Chester Shipbuilding Co Chester Pa 

York River Shipbuilding Co Nest Point Va 

Bethlehem Shipbuilding Corporation Sparrows Point Md 

Terry Shipbuilding Corporation Savannah Ga 

Universal Shipbuilding Co Houston Tex 

Midland Bridge Iron Co 

DierckBlodgett Co Pascagoula Fla

Pacific Coast Shipbuilding Co Ba Point Cal 

G Af Standifer Construction Co Iancouver Wash 

Seattle Wash shipyards 

RogIsland Pa 

Submarine Boat Corporation Newark N J 

Total 

Schedules of regular steam trains also have been adjusted for the accommo

of shipyard workers in various localities

834271813
194 SECOND ANNUAL REPORT UNITED STATES SIIIPPING B

TABLE XIX4rrangements jorferryboat transportation of shipyard 

At several shipyards it has been necessary to provide transportation 

the various yards by means of ferryboats Transportation companies 

for which such transportation is being furnished are as follows

To Staten Island N Y from Manhattan and Brooklyn for the S

building Co Staten Island Shipbuilding Co Downey Shipbuilding Co 

Shipyards Corporation Staten island N Y

To Newark from Bayonne N J for the Submarine Boat Corpora

N J

To Jacksonville Fla for the DferrillStevens Shipbuilding Co

To Groton Conn from New London for the Groton Iron Works

To shipyard for the Todd Construction Dry Dock Corporation 

Wash To shipyard for the Lone Star Shipbuilding Co from Beaumont Tea

TABLE XDisbursements and liabilities of the Emergency Fleet Corp

Government agency plants at Hog Island and Bristol

The following is a statement of the disbursements of the Emergency 

ration at the Government agency plants at Ilog Island and Bristol up to t

the assistant general manager took charge and from that point on T

include liabilities incurred

HOG ISLAND

Feb

To Feb

1 to

1

Aug

1918

31 1913

2930

8

Total 1

89

These are reflected in the agent saccounts as

To Feb

Ship

Undistributed

Cash

1

construction

1918

items

572

1

Total 2

930

Feb 1 to Aug 31 1918

Cash 

Ship

Plant

construction 2

Undistributed items

596

2

Total 1

917

Transportation direct payments by E F C

Philadelphia Railway Co agreement Afar 27 1918 

Philadelphia Rapid Transit agreement Mar 20 1918 

Removal of houses

Total 

Housing dpayments by E F C

Purchased and rrquisitmned houses 

Completion of 72 of them 

Sixtyseventh Street and Elmwood Avenue operation 

Sixtyfirst Street and Elmwood Avenue operation 

Total 

Expenses of operation 

Credit rentals received 

Net housing outlay 
SECOND ANNUAL REPORT UNITED STATES SHIPPING BOARD 

RECAPITULATION

CashShips plant and undistributed 113917

Transportation

Housing

10539

177862

Total 116 806 

BRISTOL

To Feb 1 1918 66

34 8

Feb 1 to Aug 31 1918 2

18745

Total 3

85094

These are reflected in the agent saccount as

To Feb 1 1918

Plant

Inventory

and property

items tem

5193 7

130473

2493

6 666 

Ship construction 4 833 

Plant and property 10 106 

Inventory 11 204 

26 149 

Less undistributed credits 3

69

Housing

Net total

disbursements

27931

4 059 

Undistributed items for August 4 997 

Feb 1 to July 31 1918

Total 34851
INDEX

Acquisition of vessels 

By construction 

Contract or charter from foreign owners 

Jut compensation 

Of Dutch vessels by right of angary 

Byrequisition 

Seizure of German and Austrian vessels 

Sources of 

Adjustment

Of labor problems 

Organizations for in labor disputes 

Memorandum for of wages Appendix Table V

Admiralty

Attorney of New York Agency of Operations 

Litigation referred to Department of Justice 

Section of Law Division 

Agencies

Allied purchasing

Of Division of Dispatch Shipping Control Committee 

Of Division of Operations 

Of Law Division Emergency Fleet Corporation 

Alaska

Packers vessels of used in Ilawaiian sugar trade 

Rates for Alaskan trade 

Allied Maritime Transport Council

Division of Planning and Statistics Relations with 

Information furnished to 

Representatives of Shipping Board on 

State Department relations with 

Supervision of American participation in 

Allocation of vessels

By Allied Maritime Transport Council 

By Division of Trades and Allocations Shipping Control Committee 

Information concerning 

By Shipping Control Committee 1

American Bureau of Shipping 

American Federation of Labor agreements with 

American International Shipbuilding Corporation

See Shipbuilding yards extension of 

See Fabricated shipyard 

See Government agency plants 

Angary right of applied to Dutch ships 

Arbitration of labor disputes 

Assignment of vessels

To meet Army requirements 

By Division of Operations 1062

197
198 INDEX

Assignment of vessels Continued 

Foreign chartered vessels 

To managers and operators 

Secured from northern neutrals 

Statistical summary 

Associations

Coal Barge and Towers Association supervision of 

International Longshoremen sAssociation 

Lake Carriers Association 

Atlantic coast

Housing activities 

Power facilities 

See shipbuilding districts 

Wagescale on 

Auditing Division

Of Emergency Fleet Corporation 

Price auditing I

Authorizations appropriations and commitments summary of for 

States Shipping Board Emergency Fleet Corporation 

Balance sheet

Of Emergency Fleet Corporation Appendix Table IY 

Of United States Shipping Board and United States Shipping 

Emergency Fleet Corporation Appendix Table III 

Baltimore general agent of Division of Operations at 

Bare boat charter 

Barges

Concrete see Concrete ship construction 

Woodtowing 

Belgian relief vessels assigned to 

Board of Survey and Consulting Engineers See Survey and Consulting 

neers

Boilers

Types of Scotch watertube 

Supply of by Supply Division 

Boston

Agency of Division of Operations 

Recruiting service headquarters at 

Brazil negotiations with concerning exGerman tonnage 

Bunkering

Coaling machines for 

Coal suitable for 

Facilities at ports study of 

Hampton Roads facilities increased 

Cablecensor 

Camouflage painting 

Cargo ships special types see Design 

Carolina Shipbuilding Co see Extension of shipbuilding yards Gove

agency plants Fabricated shipyard 

Central staff work for Emergency Fleet Corporation 

Chartering Committee

Control of charters and rates by 105 18 2

67

Relations with Allied Maritime Transport Council 

Relations with Division of Operations 

Relations with Division of Planning and Statistics 
INDEX 

Charter 

Control of by Chartering Committee 10586

Enemy tonnage secured by 

Of foreign vessels 

Formsof 36

Of

Hire

French sailors 

Number of ships under 

Rates of 1056487

Risks assumed and compensations made 

Shipping Control Committee 

China

Contracts for construction of vessels in 

ExAustrian vessels secured from 

Claims Court of 

Classification and summary of vessels under jurisdiction of Shipping Boar

Coal

Coal Barge and Towers Association 

bfaebines for coaling 

Methods for handling at ports 

Transportation service of in New England 

Types of suitable for bunkering 

Coastwiselines 

Coastwise trade

Admission of foreign vessels to 

Authority of Director of Operations 

Collection of information concerning 

Pacific coast 

Railroad Administration scontrol of 

Commandeering of vessels in course of construction 

Commerce Committee on authorized to investigate construction prozram 

Commerce Department of

Cooperation with Recruiting Service 

Relations with Shipping Board 

Commission

National adjustment 

Port and harbor facilities 

Warzone pass 

Compensation

For Dutch ships cargoes and crews 

Of employees Appendix Tables I XI 16417

8

For housing facilities taken 11

4

Increased rates of for employees of Shipping Board Appendix Table IV 

Ocean Advisory Committee on 

For vessels taken 

Composite ships production of 11

3

Comptroller

Of Division of Operations 

Of Emergency Fleet Corporation 

New York representative of 

Supervision of agency accounts 

Concrete ships

Authorizations appropriations and commitments 

Contracts for 
200 INDEB

Concrete shipsContinued 

Development of 

Yards for location of 

Construction

Acceleration of 

Applications for private 

Commandeering of vessels in course of 

Of concrete ships 

Contracts for 

In Chinese yards 

Of dry docks authorized 

Division of transfer and private construction 

Of housing facilities 

In Japanese yards 

Labor problems hearing upon 

Monthly summary of Appendix Table VII 

Of power facilities 

Program of Emergency Fleet Corporation 949

1

Requirements for 

Of shipyards see Shipyard plants 

Of steel ships 

See Survey Board of 

Ofwood ships 

Contests among shipyards to encourage speed in construction 

Contracts

Authorizations appropriations and commitments 

For construction of ships in Chinese yards

Division of Emergency Fleet Corporation 

For Diesel motors 

Formof 

For housing facilities 1

For Japanese construction 

Preparation of by Law Division 

Reference to comptroller 

For ship construction 1171

For transportation facilities Appendix Table SVII 14

Contract yards administration of 

Contracts and Charters Department of Division of Operations 

Control of vessels

Formsof 

Total tonnage controlled by Shipping Board 

Cost of living in settlement of labor problems 

Council of National Defense committee on shipping of 

Court of Claims resort to 

Credit Department Emergency Fleet Corporation 

Danish vessels

Chartered to Shipping Board 

Acquisition of by chartering agreement 

Deferred classification

Applied to men in training for merchant marine 

For men employed in shipyards 

Delaware River

See Fabricated shipyard 

See Shipbuilding districts 
INDEX 

Deliveries of ships 

Information concerning 

Statistical Summary Appendix Tables VI VII VIII

Design

Cargo troop ship 

Concrete ships 

Houses 

Refrigerator ships 

Standardization of 

Straightline ship 

Wood ship 1

Dispatch Division of ShippingControl Committee 

Diesel motors 

Disbursements

And liabilities at Hog Island and Bristol plants Appendix Table XX

Statement of Appendix Table H

Disease control of

Department of Health and Sanitation 

Sanitary engineering 

Districts shipbuilding

Managementof 

Plantengineers 

Summary 

Dormitories and cafet5rias construction of Appendix Table XVI

Dry docks

Authorizations appropriations and commitments 

Construction of 

Regulations of see Law Division 

Dutch vessels

Acquisition of 2

34

Compensation for cargoes on 

Crews of repatriated and compensated for losses 

Legal questions concerning 

Manned by Navy Department and Shipping Board 4

Education and Training Section 

Electric welding 

Emergency Pleet Corporation see Table of Contents 

Organization and jurisdiction of 

Removal of offices to Philadelphia 

Employees

Compensation of Appendix Tables I XI

Compensation for injured Law Division 

Hygienic conditions affecting 

Housing facilities for 

Statistics regarding 

Insuranceof 

Labor problems of Sbipbuilding Labor Adjustment Board 

Medical aid supplied to 

Transportation of 

Employment Service of Department of Labor relations with Shipping Boar

Enemy tonnage

ExGerman and exAustrian seizure of 

Secured from other countries 

Enemy trading act provisions regarding imports 
202 INDEX

Engineers and engineering 

Engineering Section designs of 

Safety Engineering Section 

Sanitary Engineering 

See Shipyard Plants Division 

Training of by Recruiting Service 

Espoinage act provisions relating to commerce enforcement of 

Exports

Exports Administrative Board 

Exports Control Committee 

Controlof 

Information concerning 

Relations with State Department regarding 

Fabricated shipyards

Construction and administration of 

Detailed report on 

Federal Shipbuilding Corporation contracts with 

Financial

Administration of Emergency Fleet Corporation 

Statements Appendix Tables II III IV IX X

Department of Division of Operations 

Fir production boards furnishes lumber supply

Fire protection general and district fire marshals 

First annual report United States Shipping Boards references to 

Food Administration United States

Relations with chartering committee 

Vessels assigned to 

Foreign yards contracts for construction in and commitments 

Foreign vessels

Acquisition of 

Chartered by the Shipping Board 

Contracts for construction prepared by Law Division 

Information concerning 

Owned or under control by Shipping Board 

Forest Products Department of Division of Operations 

Freight rates

Affected by exclusion of vessels from war zone 

Controlof 

Examination of by Law Division 

Increase of in Alaskan trade 

French vessels

Chartered to Shipping Board 

Sailers chartered to Shipping Board 

German and Austrian vessels

Included in summary bf vessels 

Repayof 

Sailers operation of 

Secured from other countries 

Seizure of 

State Department 

Germanowned properties acquired Hudson River properties 

Government agency plants

Accountof 

Disbursements and liabilities Appendix Table XX

See Fabricated shipyards
INDEX 

Great Britain 

Allied Maritime Transport Council 

Shipping Control Committee 

Terms for Dutch ships 

Great Lakes

Admission of foreign vessels to 

Advisory Committee 

Department of Division of Operations 

Power facilities on 

See shipbuilding districts 

Transfer of vessels from to ocean service 

Wage scale on 

Gulf of Mexico

Lumber supplies from 

Power facilities on 

See shipbuilding districts 

Wago scale on 

Hampton Roads increase of bunkering facilities 

Health and sanitation section 

Hog Island

Disbursements at Appendix TableS

Fabricated shipyard at 

Housing facilities 

Insurance of employees 

Sanitary engineering 

Transportation facilities 

Housing and transportation

Act granting authority for 

Appropriations and commitments 

Contracts details of Appendix Table II

Expansion of housing facilities 

Legal problems with reference to Appendix Table III

Loans for Appendix Table XV

Transportation of shipyard workers Appendix Tables VII YVIII 

Imports

Control of 

Information concerning 

Relations with State Department concerning restriction of 

Restriction of 

Tonnage assigned for essential 

Industrial relations

Group of the Emergency Fleet Corporation 

Marine and Dock Division of 

Industrial Service Section 

Information

Bureauof 

Collection of by Division of Planning and Statistics 

Concerning employees 

Maritime Intelligence Department of 

Injuries and accidents

Aidin case of 

Campaign for prevention of 

Safety engineering 
204 INDE

Insurance 

Casualty section 

Section of Emergency Fleet Corporation 

Division of United States Shipping Board 

Investigation bureau Plant Protection Section 

Investment plants 

Japanese vessels

Admitted to San Francisco Honolulu trade 

Chartered to Shipping Board 

Legal questions pertaining to 

Purchase and construction of 

Justice Department of

Admiralty litigation 

Secret Service Division 

Labor Adjustment Board See Shipbuilding Labor Adjustment Board

Labor

Agencies and organizations 

Department of 

On Pacific Coast

Problems 

Requirements section 

Supplyof 

Wages boors and conditions of Appendix Table V 

Labor Policies Board 

Lake Carriers Association Cooperation with Shipping Board 

Law Division

Of Emergency Fleet Corporation 

Insurance questions 

Legal arrangements in housing projects Appendix Table III

Relations with Department of Justice 

Of Shipping Board 

Legislation

Affecting the Shipping Board 

Preparation of by Law Division 

Lloyds Register of Shipping coopetatiou of with Steel Ship Divis

Lumber department division of operations 

Marine railways

Authorizations appropriations and commitments 

Construction of 

Marine superintendent Division of Operations 

Marine and dock industrial relations

Contact with Division of Operations 

Divisionof 

Maritime Intelligence Department of 

Medical aid supplied to employees 

Merchant marine American

Investigations on development and regulation of 

Manning of Dutch ships 

Manning of Shipping Board vessels 

Recruiting Service 

Training of officers and men 
1NDE 

Merchant Shipbuilding Corporation

Disbursements Appendix Table XX

See Extension of shipbuilding yards

See Fabricated shipyard

See Government agency plants 

Mineral Section Division of Planning and Statistics 

Motors see Diesel motors 

Municipalities list of furnishing housing facilities Appendix Table XIX

National Adjustment Commission

Cooperation in labor problems 

Pacific coast disputes handled by 

Work of and agencies of 

National Service Section 

Navigation

Bureauof 2

38

Deputy Commissioner of at New York 

Schools for training men 

Navy Department

Advice of regarding exclusion of vessels from war zone 

Labor problems of see Shipbuilding Labor Adjustment Board 

Law Division contact with 

Manning of Army transports 

Manning of Dutch ships 

Naval Consulting Board 

Operations Division of contact with 

Protective devices effected by 

Relations with Shipping Board 

Secretary of Navy authorized to seize Dutch ships 

Steel Ship Construction Division contact with 

Neutrals

Control over neutral tonnage 

Policy regarding see Division of Planning and Statistics 

Tonnage from northern 

New England coal transportation service of 2

75

New Orleans Assistant Director of Division of Operations at 

New York

Agency of Division of Operations 5

Huber Wage Adjustment Board 

Shipbuilding Corporation 

Norfolk General Agent of Division of Operations 

Norwegian vessels

Chartered to Shipping Board 

See tonnage from northern neutrals 

Ocean Advisory Committee on Just Compensation 

Oil

Fueloil bunkering facilities 

Study of transportation of 

Operation of vessels

For Army needs see Shipping Control Committee 

Assignment to operators 

Control of coastwise trade by Division of Operations 

Dry docks and terminal facilities 

Dutch ships seized 
206 INDEX

Operation of vesselsContinued 

Insurance questions with reference to 

Labor problems arising from 

Legal work arising from 

Requisitioned vessels 

Summary and classification of vessels e 

Operations Division of

Administrative organization of 

Branch offices and agencies of 

Comptrollerof 

Cooperation with Steel Ship Construction Division 

Functions and duties of 

Financial department of 

Total tonnage under direction of 

Organization

Emergency Fleet Corporation 

Divisions and agencies of Shipping Board 

Membership of Shipping Board 

And Methods Section Emergency Fleet Corporation 

Outfitting department Supply Division 

Pacific coast

District of the Division of Operations 

Freightrates on 

Lumber supplies from 

Pacific Mail Steamship Co Philippine trade 

See shipbuilding districts 

Trade with Hawaii and Philippines 

Ragescale on 

Passenger Transportation and Housing Division See Rousing and tr

tation

Personnel of Emergency Fleet Corporation Appendix Table X1

Peru vessels secured from 

Planning and Statistics Division of

Activities of 

Cooperation with other governmental agencies 

Impartprogram 

Mineral Section 

Shipping information furnished to 

Special studiesof 

Trade Hearings Section 

Plante and property

Authorizations appropriations and commitments 

See shipyard plants

Port and harbor facilities

Commission 

Requusrtion of 

Surveyof 

Transfer of to foreign owners prohibited 

Power

Facilities survey and development of 

Propulsive machinery for ships 
INDEX 

President 

Emergencyfund 

Proclamations and executive orders

Charters 

Coastwise trade 

Construction 

Dutchships 

See Legislation 

Requisition 

Priorities

Construction program affected by 

Division of War Indutries Board 

Order of in carrying goods 

Protection of plants 

Protection of vessels

127

Camouflage

Protective devices 

9

Ship Protection Committee 

Sugervision of by Division of Operations 

War Department armed guards 

Warrisk insurance 

Publications

Emergency Fleet News 

Information Bureau 

National Service Section 

Posters and educational matter 

Shipyard Bulletin 

Quartermaster sCorps cooperation with Shipping Control Committee 

Railroad Administration

1535 

Control of certain coastwise lines 2

47

Legal relations with 

Relations with Shipping Board 

Rates

Chartering Committee action of regarding charter and berth rates 

Examination of by Law Division 

Freight rates control of 1535 

Insurance rates of 

Interallied for foreigh vessels chartered 

For Philippine trade 

Regulationof 

Requisition 

Raw Materials Section 

Recommendations to Congress 

Recruiting Service

Activities and duties of 1

27

Relations with Division of Operations 

Sea Service Bureau of 

Refrigerator ships 

Regulation

Divisionof 1

7

Ofrates 

Regulation of sbipping and shipbuilding

Agencies cooperating in 

Division of Regulation 
20 INDEX

Regulation of shipping and shipbuildingContinued 

Freight rates control of 

Interstate and foreign rates 

Wages hours conditions of labor Appendix Table V 

Investigations regarding 

Relations of Shipping Board with other departments

Commerce Department of 

Justice Department of 

Labor Department of 

Navy Department 

Railroad Administration 

State Department of 

Through Law Division 

Treasury Department 

War Department 

War Industries Board 

War Trade Board 

Removal of Emergency Fleet Corporation offices to Philadelphia 

Repair of vessels

Dutchships 

ExGerman and exAustrian 

Plantsfor 

See Survey Board of 

Representatives of Shipping Board on other governmental agencies

Allied Maritime Transport Council 

Exports Control Committee 

Labor Policies Board 

War Industries Board 

War Trade Board 

Requirements Section 

Requisition

Authorizations appropriations and commitments 

Compensation for vessels taken 

Of dry docks and wharves 

Information concerning 

Operation and direction of vessels taken 

Papers prepared by law division 

Summary of requisitioned vessels 

Of vessel s 

Yards administration of 

Safety Engineering Section 

Sailers

Chartered French 

Foreign secured by charter 

Operation of by Sailing Vessel Department 

Policy with reference to 

Record of by Division of Trades and Allocations 

Summary and classification of 

Sale of vessels 

San Francisco Assistant Director Operations 

Sanitary Engineering at Hog Island and other plants 

Sanitation and Health Section 

Sea Service Bureau see Recruiting Service 
INDEX 

Seattle 

Alaskan trade rate hearing at 

AssistantDof Operations 

Shipbuilding See Construction Districts Shipyard plants

Shipbuilding Labor Adjustment Board 

Shipping Board

Divisions and agencies 

Emergency Fleet Corporation 

Functions of 

Organization and membership of 

Relations with other departments 

Vessels under control of summary 

Shipping Control Committee

Activities and organization of 

Allied Maritime Transport Council 

Allocation of vessels 

Chartering Committee 

Division of Dispatch 

Exports Control Committee representatives on 

Operations division of 

Planning and Statistics Corporation with Division of 

Requisition program 

Trades and Allocations Division of 

Tug and Lighter Department cooperation with 

Shipyard plants

Administration of 

See Concrete ships 

Contests among 

Divisionof 

See Fabricated shipyard 

GreatLakes 

See Housing and transportation 

Investments in 

Listof 

Power facilities 

Protection of 

Requirements for 

Sanitation of 

Transfer to foreign owners prohibited 

See Wood and composite ship production

Siam exGerman vessels secured from 

Standardization

Offittin

Ofdesign of vessels 

Manufacturing facilities increased by 

State Department of

See Law Division 

Operations Division of 

Settlement to Dutch crews 

Shipping Board relations with 

Steamboat Inspection Service

Examination of see Recruiting Service 

Relations with Shipping Board 

88427184
210 INDEX

Steamers 

Foreign secured by charter 

Summary and classification of 

Steel ships

Authorizations appropriations commitments 

Construction of 

Summary of activities and results in production of Appendix Tables V

VII VIII 

See also Shipyard plants

Submarine Boat Corporation

See Extension of shipbuilding yards

See Fabricated shipyard

See Government agency plants

Summary and classification of vessels under jurisdiction of Shipping Board 

Supplies control of by supply division 

Survey and consulting engineers board of

Activities of 

Relations with division of operations 

Repair of exGerman and exAustrian vessels 

Swedish vessels

Chartered to Shipping Board 

Tonnage of northern neutrals 

Swiss relief see Tonnage from northern neutrals 

Tankers

Allocated

mittee

by Division of Trades and Allocations Shipping Control Com

Department of Division of Operations 

Employed in carriage of owner sgoods 

See Summary and classification of vessels 

TimeForm charter see Charter forms of 

Tonnage

For Alaskan trade 

Assigned by Division of Trades and Allocations 

Chartering committee 

Control of 17233

7

Divided into groups 

Enemy secured from other countries 

Foreign acquisition of 

Import and export policy 

From northern neutrals 

Study of Division of Planning and Statist ics 

Transfer of registry policy 

Total

etc

tonnage summary of forma of control source of acquisition assignmen

Trade

Alaskan rates of 

Assignments to trades cl aeeified 

Division of Trades and Allocations 

Foreign vessels asskricd 

Hawaiian 

Hearings section 

Philippines 

Routes 

Study of commodities and 

Terminal facilities relation to 
INDEX 2

P

Traffic Department of Division of Operations 

Training

Education and 153

Officers and men for merchant marine 79 

Ships for recruiting service 8

Of technical experts 

Transfer of registry

From Americans to Americans 3

American to foreign prohibited 3

Foreign to American 3

4

Legal questions of 

Regulation of 1

Transfer and Private Construction Division of 

Transportation

Authorizations and commitments 112

Facilities contracts for Appendix Table XVII

Ferryboat service Appendix Table XIX

See Housing and transportation 143

Steamtrain service Appendix Table XVIII

Treasurer report of Appendix Table X

Treasury Department

Cooperation with Chartering Committee 

Relations with Shipping Board 

Troop ships design of 

Tug and lighter department 

Urgent deficiencies act and amendments

Authorizing acquisition of German property 1

Authorizing acquisition of transportation systems 

Operation fund 

Uruguay exGerman vessels secured from 4

7

Vessels

Commandeering of 116

Compensation for 

Construction of See Construction

Groupingof 

Indirect control over 7

Information concerning 

Legal questions regarding 7

Operationof 5

6

Prewar value of 

Summary and classification of 2

35

Vocational Education Federal Board of see Education and Training Section 

Wages

Control of Industrial Relations Group 

Increases of 

Organizations for adjustment of 8

War Department

Labor problems 8

LawDivision 

Protection of vessels and plants by 2

14

Relations with Division of Operations 

Relations with Shipping Board 2

3

Relations with shipping control committee 
212 INDEX

War Industries Board 

Cooperation with regarding requirements of material for shipb

Planning and Statistics Division of 

Priority orders affecting construction 

Relations with Shipping Board 

WarRisk Insurance

Bureauof 

Compensation for losses 

Division of Insurance 

Foreign vessels protected by 

Officers and men on Shipping Board vessels 

Requisitioned vessels 

War Trade Board

Chartering Committee relations with 

Espionage act enforcement of 

Import restrictions 

Japanese tonnage negotiations for 

Relations with Division of Planning and Statistics 

War zone

Exclusion of vessels from 

French sailing vessels taken from 

War Zone Pass Commission 

Washington D C

Assistant Director of Operations at 

Requirements Section 

Welding See Electric welding

West Indies Transportation Joint Committee on Chartering Comm

tionswith 

Wood and composite ships

Authorizations appropriations and commitments 

Construction Division of 

Contractsfor 

Designs of 

Private construction limited largely to 

Summary of Appendix Tables VI VII

Yards

See Plants and property

See Shipyard plants

See Fabricated shipyards