Annual report of the North Carolina Department of Labor

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This Book may be kept out TWO WEEKS
ONLY, and is subject to a fine of FIVE
CENTS a day thereafter. It was taken out on
the day indicated below:
BIENNIAL REPORT
OF
THE DEPARTMENT OF LABOR
JULY 1, 1936, TO JUNE 30, 1938
ISSUED BY
THE NORTH CAROLINA DEPARTMENT OF LABOR
FORREST H. SHUFORD. COMMISSIONER
RALEIGH
BIENNIAL REPORT
OF
THE DEPARTMENT OF LABOR
JULY 1, 1936, TO JUNE 30, 1938
ISSUED BY
THE NORTH CAROLINA DEPARTMENT OF LABOR
FORREST H. SHUFORD, COMMISSIONER
RALEIGH
Biennial Report of the Department of Labor
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TABLE OF CONTENTS
Recommendations of Commissioner of Labor 9
Report of Expenditures of Department of Labor 16
Division of Standards and Inspections 17
Bureau of Elevator Inspections 29
Bureau of Mines and Quarries 31
Bureau of Boiler Inspection 34
Division of Statistics 40
Child Labor in North Carolina 44
Building Construction Work in Principal Cities of
North Carolina 1936-1937 69
Employment, Hours of Work and Average Wages
Earned in Principal Manufacturing Industries 75
Women's Wages in North Carolina, March 1938 78
Veterans' Service Division 79
Bureau of Labor for Deaf 84
PERSONNEL DIRECTORY
NORTH CAROLINA DEPARTMENT OF LABOR
Forrest H. Shuford, Commissioner.
Administrative Office
Miss Minnie S. Gosney Principal General Clerk
Miss Annie Shaw Secretary to the Commissioner
Division of Standards and Inspections
Lewis P. Sorrell Chief Inspector
Murray M. Grier Safety Engineer
Pryor E. Sugg Elevator Inspector
John R. Bulla Factory Inspector
Clarence L. Beddingfield Factory Inspector
Fred J. Coxe, Jr Factory Inspector
Miss Lona Glidewell Factory Inspector
William E. Haynes Factory Inspector
Glenn L. Penland Factory Inspector
W. G. Watson Factory Inspector
George W. King Factory Inspector
Miss Esther G. Hall Secretary to Chief Inspector
Mrs. Marcellite L. Coley Stenographer-Clerk
Miss Lurlene Hicks Stenographer-Clerk
Division of Statistics
Mrs. Pauline W. Horton Director
Miss Jeannette Gordon Stenographer-Clerk
Miss Kate Frisbie Statistical Clerk—U. S. Bureau of
Labor Statistics.
Veterans' Service Division
Jack P. Lang State Service Officer
Paul G Noell Assistant State Service Officer
Miss Mae Pitzer Stenographer-Clerk
Bureau of Labor for the Deaf
J. M. Vestal Director
Mrs. Sallie H. McPherson Stenographer-Clerk
Bureau of Boiler Inspection
H. B. Smith State Boiler Inspector
Charles B. Douglass Chief Clerk
LETTER OF TRANSMITTAL
Honorable Clyde R. Hoey,
Governor of North Carolina,
Raleigh, N. C.
Members of the General Assembly
of the State of North Carolina.
Sirs:
I respectfully submit herewith biennial report of the Depart-ment
of Labor for the period of July 1, 1936, to June 30, 1938.
As set out in this report, the activities of the Department for
this period were directed by Major A. L. Fletcher, Commissioner
of Labor until September 12, 1938, when he resigned to become
Assistant Administrator of the Federal Wage and Hour Law.
We are exceedingly proud of the progress made by the Depart-ment
of Labor under Major Fletcher's leadership and, for a
large part in these accomplishments, I also want to give credit
to the following loyal and capable heads of the various divisions
of the Department of Labor: Lewis P. Sorrell, Director of the
Division of Standards and Inspections; Mrs. Pauline W. Horton,
Director of the Division of Statistics; Jack P. Lang, State Service
Officer; J. M. Vestal, Director of the Bureau of Labor for the
Deaf; H. B. Smith, State Boiler Inspector; and to the employees
in each of these divisions, who, by their faithful and efficient
services, have contributed so much to these attainments.
Yours very truly,
Forrest H. Shuford,
Commissioner of Labor.
BIENNIAL REPORT
OF THE
COMMISSIONER OF LABOR
Raleigh, N. C.
Honorable Clyde R. Hoey,
Governor of North Carolina,
Raleigh, North Carolina.
Sir:
Section 7310 (c) of the Consolidated Statutes of North Caro-lina
provides that the annual report of the Commissioner of
Labor "made on or before January first of the years in which the
General Assembly shall be in session shall be accompanied by
recommendations of the Commissioner of Labor with reference
to such changes in the law applying to or affecting labor condi-tions
as the Commissioner may deem advisable."
The activities of the Department for this biennium are ade-quately
covered by the reports submitted to me by the heads of
the various Divisions and which comprise the body of this report.
Therefore, I shall confine my statements to a brief summary of
the work of the Department, together with my recommendations
in regard to our needs in order to improve the service of the
Department of Labor, and for changes and improvements in the
labor laws which seem to me to be essential in order for us to
function in the manner prescribed by law in the improvement of
working conditions. I sincerely trust that you will be able to
pass these recommendations on to the members of the General
Assembly with your endorsement. Since I am aware of your
earnest desire for the needs of the working people of our State
to be efficiently served by just and proper laws, and by the
effective administration of these laws, I am confident that my
recommendations are in accord with your opinions and desires.
Credit for the activities of the Department of Labor for this
biennium, as set forth in this report, rightfully belongs to Major
A. L. Fletcher, Commissioner of Labor until September 12, 1938,
at which time he resigned to become Assistant Administrator of
the Fair Labor Standards Act of 1938. The outstanding progress
made in labor legislation and in the development of the Depart-
10 Biennial Report of the Department of Labor
ment of Labor in its efforts to better serve the working people
of our State, and which attained National recognition, was all
accomplished under the leadership of Major A. L. Fletcher,
Commissioner of Labor for North Carolina for almost six years.
But the recommendations for the more efficient functioning
of this Department, and for the improvement of our labor laws,
are my recommendations. However, I have drawn quite freely
from the ideas and experiences of the recent Commissioner, since
I was associated with him as Deputy Commissioner and Chief
Inspector.
IMPROVEMENT IN LABOR LAWS
The General Assembly of 1937 enacted a Child Labor Law
which reflects credit upon the entire State. This law is not sur-passed
by any other child labor legislation in the Nation. An
excellent Maximum Hour Law was introduced but unfortunately
it was riddled with amendments before it was finally enacted
into law. However, it was a start in the right direction and
demonstrates the fact that regulation of hours of work of both
men and women may be accomplished without working any
hardship upon industry. The Boiler Inspection Law was amended
by the removal of exemptions. Provision was made for improved
inspection of mines and quarries, as well as for the inspection of
elevators. For the first time an appropriation was provided for
a woman inspector who could devote most of her time to a study
of the problems of industries which employ women and children
almost exclusively.
DIVISION OF STANDARDS AND INSPECTIONS
The improvement of working conditions, which is the first
and most important duty of the Department of Labor, is the
responsibility of the Division of Standards and Inspections of
the Department of Labor. I call your attention to its report
submitted by Mr. Lewis P. Sorrell, Chief Inspector, which you
will find on page 17.
This Division has fourteen employees, a Chief Inspector, one
secretary, two stenographer-clerks, a Safety and Mining Engi-neer,
an Elevator Inspector, a Woman Inspector to work with
industries employing women and children almost exclusively,
and seven Factory Inspectors.
This force must make inspections of all places of employment.
At the present time we are actually making inspections of
Biennial Report of the Department of Labor 11
approximately 9,000 establishments, although there are more
than 30,000 establishments listed by the United States Bureau
of Census. This Division must enforce all of the labor laws and
prosecute violations of the Child Labor Laws, Maximum Hour
Law, and violations of the Safety Code.
I have requested two additional inspectors, in order that we
may more adequately make inspections of all places of employ-ment
as specified by law. I have also requested two additional
office employees. I cannot too strongly state our serious need
for this additional office personnel . At the present time our
inspectors have to spend a part of their field time engaged in
tasks that should be done in the office, and which could be
performed more efficiently by trained office employees. Our
inspectors could increase their efficiency by as much as ten to
twenty per cent with the additional office personnel which is
requested.
For other needs of the Division of Standards and Inspections
I respectfully call your attention to the section of this report
regarding the work of this Division.
DIVISION OF STATISTICS
It is the responsibility of the Division of Statistics of the
Department of Labor to collect and compile statistical informa-tion
relating to labor and laboring conditions in our State. It is
also the responsibility of this Division to supervise the issuance
of all employment certificates issued to minors working in North
Carolina.
In regard to these responsibilities, I call your attention to
the report of this Division submitted by Mrs. Pauline W. Horton,
Director, which you will find on page 40.
In this Division there are three employees; the Director, who
is also Chief Statistician for the Department, one stenographer-clerk
and a statistical clerk assigned to the Division by the
United States Bureau of Labor Statistics, and whose salary is
paid by the Federal Government.
If you will review the statutory obligations placed on this
Division along with the other required duties, you will, no
doubt, realize that the personnel is inadequate for this important
work.
Realizing that the appropriation for statistical work was
insufficient to meet our needs, a cooperative agreement was
12 Biennial Report of the Department of Labor
arranged with the United States Department of Labor for the
collection of employment and payroll information from the
State's leading industries, the importance of which is outlined
in Mrs. Horton's report. In this cooperative plan the Federal
Government agreed to furnish one clerk and franking privileges
to assist in the collection of this information. (This amounts to
over $3,000 a year). In return, we promised to furnish a clerk
to help with this work. We have not been able to do this. We
earnestly request an additional appropriation for a statistical
clerk in order to retain this Federal assistance in carrying on
this important work.
VETERANS' SERVICE DIVISION
The activities of the Veterans' Service Division, under Mr.
Jack P. Lang, State Service Officer, are fully reported on
page 79. Particular attention is directed to the fact that
more than $121,000 in back compensation was secured for vet-erans
during this biennium. In addition to this financial return,
many other services were rendered to disabled veterans, which
cannot be computed in dollars and cents. Much of the time of
the Veterans' Service Officer is spent in securing hospitalization
for veterans who are ill, and who, in many cases, would be
unable to obtain medical care in any other manner. The State
Service Officer is responsible for the supervision of guardian-ships,
and the funds disbursed through these guardianships, for
incompetent veterans, and for the minors who are the children
or heirs of disabled or deceased veterans. At the present time
there is a total of 1,529 persons under guardianship, with estates
valued at more than $2,500,000. Naturally, this requires much
of the time of the Service Officer.
After January 1, 1939, it is anticipated that all death claims
will be handled in the Regional Offices of the Veterans' Admin-istration.
Since there are now between thirty-five and forty
World War veterans dying each month in North Carolina, this
means that the work of our Veterans' Service Division will be
greatly increased with this decentralization of death claims.
Therefore, we are asking for one additional office employee so
that this work may be handled efficiently. Moreover, the work
of this Division will be greatly increased with the establishment
of the $1,500,000 Veterans' Hospital, at Fayetteville, which will
be opened the latter part of 1939. The patients in a general
hospital change quite rapidly, and each new patient brings a
Biennial Report of the Department of Labor J 3
different problem. It is highly important that an increase be
made in the appropriation for this Division, so that an additional
Assistant Service Officer may be employed to handle the in-creased
duties which will result from the opening of the hospital.
BUREAU OF LABOR FOR THE DEAF
The activities of this Bureau are completely covered by ihe
report of the Chief of the Bureau, Mr. J. M. Vestal, on page
85. Study of this report will quickly reveal the versatility of
the deaf people in various places of employment. It is interesting
to note that many of them are employed in the construcnon
industry, textile industry, hosiery plants, printing establishments
and other industries, which we rarely think of as being suitable
types of employment for deaf people. I am confident that the
Bureau of Labor for the Deaf, under the direction of Mr. Vestal,
has opened up many new avenues of employment for these
citizens. The causes of deafness, as outlined in this report,
present a very interesting study. It is apparent from this study
that we shall continue to have this problem to deal with, and it
should be carried on in a very sympathetic, but scientific manlier,
as has been the practice during this biennium.
NEW LEGISLATION NEEDED
Mr. Lewis P. Sorrell, Chief Inspector of the Division of
Standards and Inspections, makes certain recommendations as
to legislation needed to aid the Division of Standards and Inspec-tion
in its work. I invite your attention to these recommenda-tions,
as well as to the following proposed laws, which I believe
will be essential if our people are to continue living and working
in a State where industrial peace is maintained and where the
rights of all classes of our citizens are protected.
A STATE MINIMUM WAGE AND MAXIMUM HOUR LAW
Last summer Congress enacted The Fair Labor Standcircls
Act of 1938, which became effective on October 24, 1938. This
law provides a maximum work week of 44 hours, and a minimum
wage of 25 cents per hour. It applies to all establishments en-gaged
in interstate conimerce, or engaged in the production cf
goods for interstate commerce. I am of the opinion that Ncrih
Carolina should enact a law which will supplement the Federal
Act and which will be applicable to all plants in the industries
which are covered by the Federal Act. Moreover, a law wru^-b
14 Biennial Report of the Department of Labor
closely parallels the Federal Law, and which will apply to all
establishments engaged in intrastate business, should be enacted.
Although we have a maximum hour law, it is so riddled with
exemptions that it creates many unfair competitive conditions
which should be eliminated and which would be eliminated if
all establishments were subject to the law. I cannot believe that
employers will suffer if they are all required to live up to certain
standards alike, and many employees would benefit greatly by
almost any law fixing a minimum wage and maximum working
hours.
A WAGE PAYMENT AND WAGE COLLECTION LAW
There is need in North Carolina for a wage payment and
wage collection law. There are still places in North Carolina
where a worker rarely experiences the feel of real money. He
gets his pay in goods at the company store, or at some store
controlled by company officials, and the prices for those goods
are generally well above what he would have to pay in inde-pendent
stores. In fairness to the worker, wages should be paid
only in cash and he should be free to purchase the necessities of
life wheresoever he pleases.
In the matter of wage collection, particularly where the
amount is small, the worker is at great disadvantage. Lawyers
cannot afford to devote their time to these small accounts, but
generally every account of this kind is of vast importance to the
worker. Here the State should step in and, under authority of
the general welfare provision of the State Constitution, set up
an agency in the Department of Labor for the protection of such
workers. Eighteen progressive States have already enacted laws
of this kind and North Carolina should do likewise.
A STATE CONCILIATION SERVICE
The prevention of industrial disorder and the maintenance
of industrial peace is a matter of prime importance to employers,
employees and to the general public. For this reason, the services
of the factory inspectors of the Department of Labor, as well as
the Commissioner, have been proffered in the settlement of many
differences between Labor and Industry, when requested. In
many cases our efforts have been crowned with success, even
though our personnel is not trained in conciliation work, and
this is a field of endeavor where specialization is most helpful.
Moreover, our force of inspectors is already too small to ade-
Biennial Report of the Department of Labor 15
quately carry on our work of law enforcement and inspections
for safety and health. They cannot take time out from these
regular duties to acquire the necessary training and perform the
duties of a conciliator.
There is a distinct need for a law providing for a Conciliation
Service, and for the small appropriation which is needed to carry
on a service of this kind. In my opinion, the dividends from
the amount invested in a Conciliation Service would be returned
to the people of the State a hundred fold. The settlement of one
small strike would pay for a Conciliation Service for an entire
year.
Many labor disputes are caused by misunderstandings be-tween
employers and employees. In such instances a trained
Conciliator can quickly bring order out of chaos by getting the
warring factions around a conference table where they can get
a chance to understand and digest their mutual problems.
AN APPRENTICE TRAINING LAW
I have given much thought to the establishment of an appren-tice
training system in North Carolina. Everybody who has
interested himself in boys has been impressed with the gravity
of the problem of training them for useful citizenship. Within
recent years, apprentice training, except in a few crafts, has
been neglected. In the building trades, particularly, few appren-tices
have been taken on since 1929 and as a result, there is an
actual shortage of skilled workers. Experience has shown that
some governmental agency must take the problem in hand and
see that contracts of apprenticeship are properly drawn and,
after being entered into, are properly carried out. Following the
lead of many progressive States, I think that North Carolina
should set up an apprentice-training bureau in the Department
of Labor, where it rightfully belongs.
Yours very truly,
Forrest H. Shuford,
Commissioner of Labor.
REPORT OF EXPENDITURES, DEPARTMENT OF LABOR
1936-1937
Appropriation—Chapter 306, P. L. 1935 $42,665.00
Receipts 46.45 $42,711.45
Expenditures 39,946.28
Balance on hand as of June 30, 1937 $ 2,765.18
Purposes
Administration $ 7,790.59
Veterans Service Office 8,756.90
Employment Service—Deaf 1,818.10
Statistical Division 1,621.50
Standards & Inspections 18,657.78
Supplies and Printing 1,301.41
39,946.28
Objects
Salaries and Wages $28,036.50
Supplies and Materials 464.63
Postage, Telegraph, etc 1,208.20
Field Travel 7,847.12
Printing and Binding 950.52
Repairs and Alterations 97.91
General Expense 499.34
Equipment 842.06
39.946.28
REPORT OF EXPENDITURES, DEPARTMENT OF LABOR
1936-1937
Appropriation—Chapter 99, P. L. 1935 $65,523.00
Expenditures 61,497.93
Balance on hand as of June 30. 1938... $ 4,025. C7
Purposes
Administration $10,466.34
Veterans Service Office 10,015.11
Employment Service—Deaf 2,200.13
Statistical Division 1,710.80
Standards & Inspections 34,730.12
Supplies and Printing 2,375.43
$61,497.93
Objects
Salaries and Wages $42,682.91
Supplies and Materials 548.04
Postage, Telegraph, etc 2,026.74
Field Travel 12,299.34
Printing and Binding 1.888.61
Repairs and Alterations 144.74
General Expense 679.16
Equipment 1.228.39
$61,497.93
DIVISION OF STANDARDS AND INSPECTIONS
Lewis P. Sorrell, Chief Inspector
The Division of Standards and Inspections is charged by law
with the duty of seeing that all laws, rules and regulations con-cerning
the safety and well-being of labor are effectively and
promptly carried out. The Division is composed of four units:
The Bureau of Factory and Mercantile Inspections
The Bureau of Boiler Inspections
The Bureau of Mine Inspections
The Bureau of Elevator Inspections
At the beginning of the biennial period July 1, 1936, to June
30 1938, the Division was composed of the first three of the
above bureaus. The Governor and Council of State made an
appropriation from the Emergency and Contingency Fund for
the purpose of establishing a Bureau of Elevator Inspection. This
fund was available in July, 1937. This Bureau, though at the
present time consisting of only one man, has already proved to
be very beneficial to both employers and employees in the State.
During the past biennium the Division of Standards and
Inspections has experienced a phenomenal growth in the scope
of its work. The personnel of this Division was increased from 7
to 14 employees. With the increased personnel this Division is
responsible for the enforcement of North Carolina's Labor Laws
and Industrial Regulations and is now able to function more
efficiently than ever before in the history of the State.
All four units of the Division, each in its own field, are
working toward the same end, i. e., maintaining the best possible
working conditions of safety and sanitation. For example, the
Bureau of Factory and Mercantile Inspections is concerned with
the maintenance of sanitary working conditions in every place
in the State—since insanitary working conditions are health
hazards. To the same extent that we are interested in sanitary
working conditions, we are interested in safe physical conditions
It is as essential for hazardous machines, belts, pulleys, etc., to
be guarded as it is for clean toilets or for sanitary drinking water
facilities to be maintained. It is as essential for an employer to
keep an adequate first aid kit with trained personnel to use such
equipment, and to utilize every available means in making em-ployees
safety-conscious, as it is to provide guards for hazardous
machines.
18 Biennial Report of the Department of Labor
In most establishments the primary work of the inspector
is to advise and discuss with the management the most practical
methods of carrying out the Industrial Code provisions. Many
employers do not have to be "sold" on the idea of providing
satisfactory working conditions, nor are enforcement measures
necessary in order to secure compliance with the provisions of
our Code. They are anxious to make improvements which are
beneficial. However, there are other employers—a minority
group—who resist all efforts of an inspector to secure voluntary
compliance with the Labor Laws and the safety and sanitary
regulations, and who will violate the law even though inspections
are made as frequently as our personnel permits. With this
type of employer it is often necessary to resort to the courts to
secure compliance with the State Labor Laws, as less drastic
measures will not secure the desired results.
Four factory inspectors were added to the Bureau of Factory
and Mercantile Inspections in July, 1937, one of whom was a
woman inspector. This was made possible by an increase in our
appropriation made by the Governor and the Council of State
from the Emergency and Contingency Fund for the enforcement
of the Maximum Hour Law and the Child Labor Law, both of
Vs^hich were enacted near the close of the session of the 1937
General Assembly. These additional inspectors enabled us to
reduce the size of the inspectional districts and to make more
frequent and intensive inspections.
The General Assembly of 1937 amended the boiler inspection
law, enacted by the 1935 Legislature, to make it applicable to
every county in the State instead of the eighty ( 80 ) counties as
provided in the first bill. This Bureau is now rendering an
inspectional service over the entire State.
An appropriation was made by the 1937 General Assembly
for a full-time mine inspector and safety engineer. Prior to
July, 1937, our safety engineer devoted part of his time to the
inspection of mines and quarries. In addition, it was essential
that he spend the greater part of his time in the inspection of
factory and mercantile establishments. He can now render a
better service to both employer and employee by devoting his
full time to the promotion of safer working conditions, thereby
preventing accident and occupational hazards.
The elevator inspection service, begun in July, 1937, is
beneficial not only through actual inspectional work, but in the
Biennial Report of the Department of Labor 19
approval or disapproval of plans for new installations or repairs
to old elevators and in investigations of accidents for the purpose
of ascertaining their cause and determining methods of prevent-ing
similar accidents in the future.
BUREAU OF FACTORY AND MERCANTILE INSPECTIONS
The Chief Inspector of the Bureau of Factory and Mercantile
Inspection is the Chief Administrative Ofificer of the Division of
Standards and Inspections. In addition to the Chief Inspector,
the personnel in this Bureau consists of eight factory inspectors,
including a woman inspector who devotes her time to making
inspections and investigations of establishments employing
women and children. This Division also has three office em-ployees
and one office employee assigned from the Veterans'
Service Division to do secretarial work of the Chief Inspector
and to handle all veterans' cases that come into the Raleigh
office.
TRAINING PERSONNEL
The crucial importance of the State Factory inspection ser-vice
in securing fair and uniform enforcement of labor laws is
increasingly being recognized by labor, employers and the public
at large. The factory inspector's job is one demanding a high
degree of ability and training because of the number of compli-cated
regulations which he is responsible for applying in many
different kinds of establishments.
Realizing this responsibility, we promote every possible
effort to improve our inspection service by giving the inspectors
special training courses. In 1936 our inspectors attended a ten-day
course for training factory inspectors given by the Federal
Department of Labor in cooperation with the School of Hygiene
and Public Health of Johns Hopkins University. At various
times the Division has had the advantage of expert training
given by representatives of the Division of Labor Standards of
the United States Department of Labor. We have also had the
advantage of training given by expert lighting, elevator and
boiler engineers.
In addition to this technical training, our inspectors are
required to pass an American Red Cross First Aid Instructors'
Course.
FIRST AID
In connection with our safety inspection work, we have been
teaching first aid classes throughout the State for more than two
20 Biennial Report of the Department of Labor
years and we are finding that the accident rates in plants which
have had the advantage of first aid training courses have been
materially reduced. The only draw-back to this plan of teaching
first aid is the fact that our personnel is so limited that we find
it difficult for the instructor to stay in some localities long
enough to complete the classes. This applies more specifically
to the smaller communities, many of which would like to avail
themselves of first-aid training. It is in these communities, also,
that the greater need for our safety inspection work lies, since
most of the plants are small and cannot afford to employ a full-time
person to handle their safety problems. Taken as a whole,
these smaller plants employ a great number of workers and they
should be given advantage of our training and experience. Dur-ing
the past biennium, our eight inspectors have taught a total
of twenty-seven classes throughout the State, in which a total
of 566 persons completed the courses and were awarded certifi-cates.
We are convinced that this work is an important phase of
safety inspection work, but unless each inspector has more time
and a smaller district it is impossible to spend as much time on
first aid instruction as is necessary to carry on this work to the
best advantage. We are also convinced that as more people are
trained in first aid, this training will have a good effect on high-way
and home safety as well as industrial safety.
ESTABLISHMENTS INSPECTED REGULARLY
At the present time inspections are being made of 8,372
establishments employing approximately 315,000 persons. Many
of these establishments are of such type of industry that haz-ardous
working conditions exist. Unfortunately, many of these
places have frequent accidents, which are never reported, as
they are not required by the Workman's Compensation Law to
carry insurance due to the small number of employees. There
are many more similar plants which should be inspected regu-larly
but, due to limited personnel of the Division, we have not
been able to inspect them. These places need our inspectional
service more than other establishments, since they are not
inspected by safety engineers of compensation carriers.
During the biennium 13,937 regular inspections, and 1,415
follow-up inspections were made.
In order to show the number of persons employed in the
business establishments inspected and the proportion of male
and female workers in these places of business, the following
Biennial Report of the Department of Labor 21
study has been prepared. (See Table I, page 22). This table is
accompanied with a bar chart which graphically shows the
distribution of gainful workers in our leading manufacturing
industries.
Since the primary purpose of our inspectional activities is to
uncover and correct violations of our State Labor Laws and
irregularities of our Industrial Code requirements, it is interest-ing
to know that out of 8,372 business establishments regularly
inspected, during the biennial period, 3,832, or 46 per cent, were
violating either some Labor Law provision or Industrial Code
requirement. Table II, page 24, has been prepared to show the
types of these violations or irregularities and the number of
plants by industries where violations occurred.
22 Biennial Report of the Department of Labor
TABLE I
NUMBER OF PERSONS EMPLOYED IN NORTH CAROLINA INDUSTRIAL ESTABLISHMENTS
REGULARLY INSPECTED BY DIVISION OF STANDARDS AND INSPECTIONS
Tabulated According to Types of Industry
Number
of
Establish-ments
Number of Employees
Industry Total
Em-ployees
White Colored
Men Women Men Women
Total All Establishments Inspected, . _ 8,372 312,571 155,911 98,669 38,039 19.952
Textile Mills—Total 798 159,011 81,657 71,841 4,864* 649
Cotton yarn and weave mills 412
235
42
S
17
84
100,531
34,414
10,201
2,508
1,457
9,900
60,009
11,289
5,948
1,543
613
2,255
36,790
22,754
4,034
848
340
7,075
3,596
278
137
117
441
295
136
Hosiery and knit goods mills .__ 93
Silk and rayon mills.
.
. 82
Woolen mills
Cordage and bagging _ 63
Textile products 275
Tobacco Factories—Total 248
29
219
34,866 6,661 3,119 10,424 14,662
Cigar and cigarette, snuff, etc..
.
20,901
13,965
5,143
1,518
3,009
110
6,803
3,621
5,946
Tobacco processing. 8 716
Fm-niture and Lumber Products—Total 719 32,171 22,470 S76 S,709 116
Furniture 1S6
30
503
16,523
2,034
13,614
14,848
784
6,838
581
81
214
1.088
1,079
6,542
6
Boxes, crates and barrels. 90
Lumber and timber. ._ 20
Other Manufacturing—Total- 874 25,032 15,157 2,637 6,946 292
Beverages 116
12
24
18
53
122
87
13
36
12
23
38
9
227
1,617
293
538
201
1,359
3,531
S12
487
2,544
1,121
463
193
1,230
364
2,503
7,776
1,289
225
223
164
1,162
650
608
437
1,738
848
396
81
464
262
1,855
4,755
44
45
266
20
103
45
27
14
484
12
35
23
6
15
327
1,171
283
23
46
17
93
2,836
177
36
322
261
32
53
760
87
309
1,611
1
Coffins and caskets.
Confeotionaries 3
Ice cream .
.
Creameries
-
1
Fertilizer and cotton nil
Flour and grain products
Motor vehicle trucks and wagon bodies
Paper and paper boxes
Tanneries.
.
Textile machinery parts
Waste products. . 36
Bricks and culverts.
Farming implements. .
Bakeries. . . 12
Other miscellaneous 239
Canneries—Total. 67 974 404 143 145 282
Vegetables, eic. 19
48
443
531
322
82
58
85
55
Sea food 90 074
Laundries and Drv Cleaning 540 8,512 2,461 1,641 1,293 3 117
Department Stores 778 13,256 .3,469 9,371 32S S8
Other Stores—Drug, Grocery, Furn., etc 2,957 19,898 11,634 6,073 2.071 120
Restaurants. 630 9,635 5,551 1,691 2,022 371
Other Miscellaneous. 761 9,216 6,447 1,277 1,237 255
Biennial Report of the Department of Labor 23
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24 Biennial Report of the Department of Labor
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ORDERS ISSUED FOR COMPLIANCE WITH LABOR
LAWS AND CODES
During the Biennial period the inspectors of this Division
reported a total of 3,823 business establishments which were not
complying with the State Labor Laws and Codes. This number
represents approximately forty-six (46) per cent of the 8,372
establishments regularly inspected by the Division. The viola-tions
reported consisted of child labor violations, insanitary
toilets, failure to provide separate toilets for sexes and races,
hour violations, failure to provide seats for female employees,
failure to have the proper first aid equipment for the use of
workers, failure to have employees trained to administer first
aid, and for not having posted copies of labor laws and schedules
of work hours. Establishments not meeting the Industrial Code
requirements were most frequently reported for unsafe working
conditions. These conditions included slippery floors, unguarded
machinery, improper exits, unsafe elevators, etc. Other indus-trial
code orders issued included insanitary toilet or drinking
water facilities, bad lighting, improper ventilation.
The increase in the number of orders issued during the past
biennium over the number issued in the period July 1, 1934, to
June 30, 1936, is due to the passage of the Child Labor Law
which required employment certificates for all minors under 18
years of age instead of 16 as formerly, the passage of the maxi-mum
hours law which limits the hours of work of men as well
as women, the promulgation of several codes to increase the
safety of working conditions and the fact that with additional
inspectors we have made more frequent inspections and more
detailed inspections.
The following tables present a study of the types of violations
noted in the past biennial period and of the compliance reported
for the same period of time. The orders issued for corrections
and the compliance reported are tabulated according to industry
classifications. It is especially interesting to note that the
majority of orders issued for corrections of child labor and hour
violations are found to be in the non-manufacturing groups.
26 Biennial Report of the Department of Labor
ORDERS ISSUED DURING THE BIENNIUM—JULY 1, 1936 TO JUNE 30, 1938
Tabi'lation Shows Number and Types of Orders Noted by Industry
Violations or Labor Laws and Codes
Industry
Total
Viola-tions
Child
Labor
Hour Time
Records
Toilet Seat I'irst
Aid
Codes
Cotton mills.. 977
5S7
11
45
238
588
926
59
1,038
2,821
823
138
1,422
13
16
i
5
19
19
1
61
583
32
11
233
89
55
3
6
IS
62
114
1
96
241
45
20
166
55
65
2
19
22
52
2
109
328
106
23
155
221
177
6
14
69
188
200
19
263
933
286
40
413
14
3
78
54
507
Hosiery mills. 217
Woolen mills . 2
Silk mills 3
1
31
13
1
2
15
25
46
2
31
1
38
2
28
19
111
Furniture 272
Crates, barrels, etc. ... 495
Tobacco products 34
477
Mercantile establishments- _ ._ 704
Laundries
Bakeries--. ._ ,
303
40
Restaurants, workshops, etc 425
Gr\nd Total 9,673 994 916 938 2,829 69 312 3,606
CORRECTIONS REPORTED ISSUED DURING THE BIENNIUM-JULY 1, 1936 to JUNE 30, 1938
Tabulation Shows Number and Types op Corrections Re'-orted by Industry
Industry
Corrections of Labor Laws AND Codes
Total
Correc-tions
Child
Labor
Hour Time
Records
Toilet Seat First
Aid
Codes
835
407
19
51
197
407
873
65
1,062
2,746
734
lOG
1,127
16
13
1
1
5
16
14
2
57
554
22
9
198
87
35
2
8
14
49
125
1
101
253
54
14
120
46
49
1
3
IS
13
48
1
97
286
99
19
137
203
126
8
17
63
129
179
23
267
920
244
33
290
14
3
.-
31
14
1
48
32
2
13"
15
40
3
33
1
31
2
15
421
149
Woolen mills... 5
19
Cordage and textile products . 84
Furniture _ _ -
Crates and barrels, timber products
Tobacco products- . ..
185
467
35
Miscellaneous manufacturing
Mercantile extablishments ...
506
701
270
Bakeries 29
Restaurants, work shops, etc 366
Grand Tota
l
_ . - 8,629 908 863 817 2,502 67 235 3,237
Biennial Report of the Department of Labor 27
CHILD LABOR
Factory inspectors are charged with the enforcement of all
child labor laws. They are always on the alert for violations of
this law either on the streets, in factories, or in stores and work-shops.
Since July, 1937, there has been an increase in the
number of child labor certificates issued due to the changes in
the child labor law requiring all minors under 18 years of age
to be certificated instead of those under 16 years of age as was
formerly the case. Though the number of certificates issued to
minors since the new Child Labor Law became effective (July,
1937), has increased, inspection reports indicate a gradual
decline in the actual number of minors now entering employ-ment
in our mills and factories.
Remarkable progress has been made toward the discontinu-ance
of illegal child labor in street trades. It is admitted that
many children are engaged in street trades and some of them
are working illegally. However, circulation managers and man-aging
editors of newspapers and magazines have extended
hearty cooperation to our inspectors in this matter although the
Attorney General has ruled that minors engaged in these occu-pations
are not employees of the publisher or circulation man-ager,
but are "little merchants" and, therefore, the publisher, or
his agent, is not responsible for securing employment certifi-cates,
etc. We also find that newspapers are gradually raising the
minimum age of employment so that many of them will entirely
eliminate child labor in the future.
COMPLAINTS
Complaints alleging violations of statutory laws and codes,
such as excessive working hours for males, females and minors,
insanitary and insufficient toilet facilities, or seats for female
employees, complaints alleging unsafe or unhealthful working
conditions, and complaints concerning grievances and industrial
disputes are frequently received. All such complaints are inves-tigated
as early as possible. Following the investigation, appro-priate
action is taken in each case. We are very much gratified
by the fact that more and more of these complaints are being
signed by the complainant instead of being sent in anonymously.
This facilitates the investigation by our inspector, and it indi-cates
that employees have greater confidence in the work of the
Department of Labor.
28 Biennial Report of the Department of Labor
During the past biennium a total of 181 written complaints
were received and investigated. In addition to these formal
complaints received in the office, each inspector received many
oral complaints in the field, all of which were carefully investi-gated
even though the inspectors are unable to keep accurate
records of all of these complaints.
CONFERENCES
Inspectors are required to keep in close touch with conditions
and problems which may effect the working men and the public
at large. Therefore, they spend some time in calling on the
various public officials in every county and city. Some of the
officials whom they interview are county superintendents of
public welfare, mayors, sheriffs, managers of public employment
offices, prosecuting attorneys, officials of labor organizations,
officers of veterans' organizations, secretaries of Chambers of
Commerce, secretaries of Merchants' Associations, and other
civic or community leaders interested in the general welfare of
the people. Many public officials and civic leaders are vitally
interested in the improvement of working conditions in their
communities and have information which is of much help to our
inspectors.
Records of the Division show that our inspectors had a total
of 4,786 conferences during the biennial period.
STRIKES
During the course of the past biennium a total of thirty-five
(35) strikes and walk-outs have been brought to the attention
of this Department. While we do not as yet maintain a concilia-tion
service, we have offered our advice and used our influence
to the settlement of fifteen (15) of these strikes as we were
requested to do by either employers or employees.
PROSECUTIONS
It is not the policy of the Division to promiscuously prosecute
an employer if he is found to be violating the State Labor Laws,
but rather to secure compliance with the requirements through
cooperation. However, where violations involve several persons,
or extend over a long period of time, the only course is to take
legal action as provided by statute. Prosecution is never resorted
to unless previous inspections have been made and the employer
has been informed of the labor laws by one of our inspectors.
Biennial Report of the Department of Labor 29
During the past biennium a total of seventy-four ( 74
)
prosecutions have been instituted to secure compUance with
laws. Sixteen of the prosecutions were for violations of the child
labor law. Thirteen convictions were secured, two cases were
nonsuited and the defendant in one case was found "not guilty."
In another case the defendant was charged with working both
adults and minors in violation of the hour law and was convicted.
One establishment was prosecuted for operating boiler without
a certificate from the Department of Labor and was given a
certain length of time in which to comply with the law. Two
prosecutions were for failure to provide suitable and sufficient
toilet facilities for employees. The other fifty-four prosecutions
were for violations of the maximum hour law for adults. Of the
remaining prosecutions, convictions were secured in forty-nine
cases, one was nonsuited and four were dismissed. The estab-lishments
prosecuted included sixteen manufacturing plants, ten
laundries, twenty-four restaurants and refreshment stands,
twenty mercantile establishments, one tailoring company, one
bakery, one packing company, and one delivery service.
BUREAU OF ELEVATOR INSPECTIONS
The North Carolina Building Code, which was completed
and put into effect the first part of 1937, placed the Chapter
regarding the installation and inspection of elevators under the
jurisdiction of the Department of Labor. Since the General
Statute creating the Department of Labor already provided that
this Department should make and enforce regulations to prevent
accidents, it seemed mandatory for some immediate steps to be
taken to improve conditions with respect to elevators.
Since there was no appropriation for this work, the Governor
and Council of State appropriated from the Emergency and
Contingency Fund an appropriation for the purpose of establish-ing
a Bureau of Elevator Inspections. This Bureau began to
function in July, 1937, with a full-time elevator inspector who
has had many years of training and experience in the manufac-ture,
installation and maintenance of elevators.
The first duty of this inspector was to draft rules and regula-tions
governing the safe operation, maintenance and inspection
of elevators, dumbwaiters and escalators. These rules and regu-lations
help safeguard the life, limb and general welfare of
employees by providing safe methods of operation, installation
and maintenance of equipment.
30 Biennial Report of the Department of Labor
This code was drawn up after making a very thorough study
of laws, rules and regulations of other States and of the Ameri-can
Standard Safety Code for Elevators, Dumbwaiters and
Escalators.
Our elevator inspector makes inspections of elevators
throughout the State and makes recommendations for the cor-rection
of any unsafe conditions he finds. He trains and instructs
our factory inspectors in the elevator problems which confront
them and assists them on their inspections, especially when they
find sub-standard elevators and other unsafe conditions which
require the assistance of a technically trained elevator inspector.
He investigates accidents for the purpose of ascertaining their
cause and determining methods of preventing similar accidents
in the future.
Our records reveal that the majority of fatal or lost time
accidents are caused by improper hoistway protection, improper
operation, and faulty equipment. Such accidents can be pre-vented
by proper construction, installation, maintenance, prop-erly
designed safety features, and by regular inspections.
Some of the existing elevators have been made much safer
by showing the owner how existing unsafe conditions can be
corrected.
We have received splendid cooperation from the building
owners, elevator manufacturers, and from local building
inspectors.
The owner, or his authorized agent, is requested to submit
plans or drawings showing the proposed construction, equip-ment,
and mode of operation for major improvements and new
installations. Therefore, the improper installation and construc-tion
of elevators in the future can be prevented.
The majority of the inspector's time has been spent in the
larger counties where the most elevators are in operation.
The following table shows the activities of the Bureau for
the period of July, 1937, to July, 1938:
County Inspections Recommendations Compliances
Alamance 34 23 16
Beafort 18 16 ., 12
Buncombe 6 6 6
Burke 16 11 9
Catawba 16 10 10
Cumberland 22 22 20
Davie 5 5 5
Davidson 31 31 28
31 28
16 16
6 6
34 25
42 37
17 15
1 1
5 5
3 3
13 11
20 17
4 4
22 17
14 10
3 3
38 30
7 6
9 6
10 8
Biennial Report of the Department of Labor 31
County Inspections Recommendations Compliances
Durham 33
Forsyth 19
Franklin 6
Gaston 35
Guilford 56
Iredell 17
Johnston 1
Mecklenburg 5
McDowell 3
Nash 15
New Hanover 29
Orange 4
Rowan 23
Rockingham 14
Vance 3
Wake 60
Wilson 7
Wayne 11
Wilkes 11
Totals 500 419 354
BUREAU OF MINES AND QUARRIES
When thinking of industries in North Carolina, tobacco and
textile are foremost, with very few realizing the extensiveness
of mining and quarrying in the State. However, official records
of mineral production reveals that our State is among the first
in the production of mica and feldspar. Records of the Depart-ment
show that there were 155 mines and quarries in the State
filing usable reports during the year 1937, giving production,
employment and accidents.
Information compiled from annual reports of the 155 mines
and quarries operating in the State in 1937, shows that over four
million dollars worth of mineral and stone was mined and quar-ried
and the products shipped to all sections of the country. This
is an increase of approximately one and one quarter million
dollars worth of mineral and stone over the preceding year.
The mines and quarries gave employment to 3,932 persons
during 1937, and they report that this number is only 81 per
cent of the workers employed regularly when operating at
capacity production. This also shows that the employment in
mines and quarries has increased rapidly, as only 2,275 persons
were employed in 90 mines and quarries during the year 1936.
32 Biennial Report of the Department of Labor
ANNUAL REPORT OF MINES AND QUARRIES IN NORTH
CAROLINA FOR THE YEAR 1936
Kind of Mine or No. Regularly Productions
Quarry Employed
Total Reporting 90 2,275 $2,834,039.16
Granite 12 432 1,193,665.00
Gold 5 112 66,478.52
Feldspar 18 226 239,352.01
Mica 8 66 105,627.00
Clay 4 146 132,134.25
Crushed Stone 28 754 321,864.45
=•= Miscellaneous 13 507 745,849.68
Dimension Stock 2 32 29,068.25
* Includes granite, gold, coal, copper, talc, mica, stone, pyrophyllite,
kyanite, vermiculite, marble, quartz, flint, tin, gold-silver-lead, lime,
rubble stone, ashlar-rip-rap.
Even though the Department of Labor received annual
reports from almost three times as many-mining and quarrying
operations for the year 1937 as for the year 1935, this number
by no means includes all mines and quarries now in operation in
the State. There are many small mines in the mountain section
of the State, some of which are in the prospecting stage and
others operating on a small scale, which regularly produce many
tons of feldspar, mica and other allied minerals.
ACCIDENTS IN MINES AND QUARRIES
Accident reports received from 90 mines and quarries operat-ing
in the State during 1936 show that 130 accidents occurred.
Accident reports received from 155 mines and quarries operating
in the State during 1937 show that 372 accidents occurred.
Although a number of these accidents were of a minor nature,
some resulted in permanent injuries, and 6 were fatal. However,
the fatal accidents which occurred during the two-year period
of 1936 and 1937 show a vast improvement over the year 1935
when 6 were killed, and we only had reports from 60 mines and
quarries.
FIRST AID AND ACCIDENT PREVENTION TRAINING IN
MINES AND QUARRIES
The decrease in all accidents at the mines and quarries in
the State has in part been due to the safety educational work in
accident prevention which this Department has carried on, with
the cooperation of the U. S. Bureau of Mines. Throughout the
nine principal mining and quarrying counties in the State, 295
employees, representing 40 mines, quarries and mineral plants,
have satisfactorily completed a 15-hour training course in first
Biennial Report of the Department of Labor 33
ANNUAL REPORT OF MINES AND QUARRIES IN NORTH CAROLINA
For the Year 1937
Number of Workers
Kind of Mine or
Quarry
No. Regularly
Employed
No. Actually
Employed
Productions
155 4,339 3,932 ? 4 100 772.12
Feldspar
Flint
Mica.
28
3
25
12
3
3
5
48
3
12
13
231
150
188
650
68
188
187
1,772
121
258
526
228
102
174
485
66
197
171
1,672
113
236
488
286,624.08
1,702.24
213 699.75
317 472.38
Talc . 33,530.00
Clay .
Gold.
166,417.11
27 369.81
Crushed Stone 2 210 15S.58
Limestone
•Miscellaneous
tDimcnsion Stock
74,241.07
514,008.10
255,549.00
'Includes kyanjte, garnet, quarts, copper, tin, pyrophyllite, sand, lime, olivine, stone,
tincludcs granite, stone, rock marble.
aid application and accident prevention and have received a
certificate from the Department of Labor and the U. S. Bureau
of Mines. Definite safety programs were begun and are very
active since the training was given, with regular safety meetings
being held as a means of keeping their employees safety con-scious.
This has resulted in a decrease in accidents.
As a result of a great many needless accidents occurring in
the various mines and quarries in the State in past years, many
of our mines and quarries have launched extensive safety cam-paigns.
The results of these campaigns have been highly
gratifying and have even surprised those employers who have
embarked on such a program. Several companies have made
imposing records of man-hours worked without a lost time
accident and have been awarded safety certificates by various
outstanding associations such as the U. S. Bureau of Mines, The
Joseph A. Holmes Safety Association, and the National Crushed
Stone Association. The results of these safety campaigns have
shown that safety education and periodical inspections have
produced excellent results.
HEALTH AND SAFETY RULES FOR MINES, QUARRIES, SAND
AND GRAVEL PITS PREPARED
Under sub-section (f ) of Section 7310- (h) of the Consolidated
Statutes of North Carolina, the Division of Standards and
Inspections of the Department of Labor is authorized and
directed to "conduct such research and carry out such studies
as will contribute to the health, safety and general well-being
34 Biennial Report of the Department of Labor
of the working classes of the State." Acting under authority of
this statute, considerable time was spent by the mine and quarry
inspector during the past two years in studying health and safety
regulations for mines, quarries, sand and gravel pits of the
various States, and in formulating a code suitable for application
to the various types of mines, quarries, sand and gravel pit
operations in this State. Copies of this proposed code were dis-tributed
to owners, agents and operators of mines, quarries, sand
and gravel pits throughout the State the first part of 1938, asking
for their comments, criticisms and suggestions. This code is now
being put in final form for the approval of the Commissioner of
Labor and the Governor of the State.
BUREAU OF BOILER INSPECTION
The North Carolina Boiler Law requires all uninsured boilers
to be inspected by a State Boiler Inspector. All insured boilers
are regularly inspected by insurance inspectors, with State
Certificates of Competency, and are not required to have a State
inspection. The Department of Labor is authorized by law to
accept the insurance inspector's report in lieu of a State
inspection.
This law, as originally passed by the 1935 General Assembly,
required a fee for the inspection of boilers by the State Boiler
Inspector. It also required a $1.00 Operating Certificate fee for
all boilers. The 1937 General Assembly repealed the fee for
Operating Certificates and increased the inspection fee on State
inspected boilers. The result has been less remuneration for the
Bureau of Boiler Inspection, as this Bureau issues Operating
Certificates on all boilers that are inspected without cost or fee.
The cost of printing these Certificates and the postage used in
mailing the Certificates, and for incidental correspondence, has
to be raised from State inspection fees.
It is illegal to operate any steam boiler which has a pressure
of more than fifteen pounds in North Carolina without a valid
Operating Certificate, signed by the Commissioner of Labor and
the Chief Boiler Inspector. These Certificates are issued after a
boiler has been inspected and any necessary repairs, required
by law to insure reasonable safety, have been made.
The North Carolina Boiler Law was enacted to provide for
the safety of life and the protection of property, and to provide
rules and regulations for the safe construction, use and operation
of steam boilers in North Carolina. This law is strictly a safety
Biennial Report of the Department of Labor 35
measure and it keeps the loss of life and property damage, from
boiler explosions, to a minimum. It has helped boiler owners
financially as they are shown how to take better care of steam
boilers, which greatly increases the years of service of these
boilers. Our State Boiler Inspector and the Insurance Boiler
Inspectors have instructed many boiler owners in the safe care
and operation of steam boilers which in numerous cases has
prevented explosions.
The State Boiler Inspector finds that boilers which have never
been inspected are the most unsafe and uncared for boilers in
the State. Insured boilers are regularly inspected and are
usually kept in good condition. Many uninsured boilers are not
in a safe condition because the shortage of personnel and funds
prohibit the Bureau of Boiler Inspection from giving all of them
the attention they should receive.
The State Boiler Inspector has condemned approximately
500 boilers during this biennium. These boilers were ordered
discontinued from service. Our State Boiler Inspector has found
many boilers operating without steam gauges, safety valves,
gauge cocks, blow-off valves, injectors and water glasses. A
number of boilers were found improperly repaired. In cases of
this kind the pressure has to be greatly reduced until such time
as the boiler is properly repaired. We find the worst offenders
of the law to be persons who have installed old boilers that
someone else has discarded, or persons who have boilers which
are unsafe for operation and which require extensive repairs or
condemnation.
During this biennium there have been eight boiler explosions.
These explosions killed 13 persons and seriously injured 15
others. The owners of these boilers suffered considerable prop-erty
damage. Investigations following these explosions disclose
the fact that most of them were caused by longitudinal cracks:
however, some of them were caused by over pressure, improperly
installed patches or else they were so old and worn out that they
would not be permitted to operate had they been inspected. In
no case has there been an explosion of a boiler that had been
inspected.
Considering the shortage of funds and personnel this Bureau
has operated successfully beyond our expectations. Owners and
operators of boilers throughout the State have been most cooper-ative
in complying with the provisions of the Boiler Law and
the rules and regulations promulgated by the Board of Boiler
36 Biennial Report of the Department of Labor
Rules. In cases where the State Boiler Inspector and the Insur-ance
Boiler Inspectors found it necessary to recommend changes
and repairs, the boiler owners have readily made the changes
and repairs in order that their boilers would be safe for
operation.
Following is a report of the activities of this Bureau for this
biennial period
:
Fees :
Special Inspections $20.00 per day
Special Inspections 15.00 one-half day
External Inspections (Boilers 30 inches in diame-ter
and under) 3.00 each
External Inspections (Boilers over 30 inches in
diameter) 4.00 each
Internal Inspections (Boilers 30 inches in diame-ter
and under) 4.00 each
Internal Inspections (Boilers over 30 inches in
diameter) 6.00 each
Certificates of Competency 1.00 each
Certificates of Operation (Repealed by 1937 Gen-eral
Assembly) 1.00 each
Number of Boilers in North Carolina:
Insured Boilers 3,000
Uninsured Boilers (Estimated) 2,000
Amount
Revenue Collected Number Collected
Special Inspections 46 $1,457.60
External Inspections 1005 3,266.85
Internal Inspections 640 3,489.10
Certificates 1625 1,625.00
Certificates issued without cost of fee 4000
Total Amount Collected $9,838.55
Expense:
101. Attending Board Meetings $ 56.00
102. Salary Chief Inspector 3,754.48
Salary Deputy Inspector 973.50
103. Salary Accounting Clerk 2,376.00
104. Office Supplies 43.82
105. Postage 225.83
106. Telephone and Telegrams 163.22
107. Travel 3,102.60
108. Printing 135.99
110. General Expense 9.59
111. Bonding Employees 53.00
112. Office Equipment 4.42
Total Expense $10,894.33
Transferred to 1936-37 $ 57.97
Appropriated 1,000.00
Collections 9,838.55
Total Income $10,896.52
Less: Total Expense 10,894.33
Amount Revei'ted $ 2.19
Biennial Report of the Department of Labor 37
RECOMMENDATIONS
Personnel
(1) The Division of Standards and Inspections is inade-quately
staffed. At least two inspectors should be added to the
Bureau of Factory and Mercantile Inspections. During this
biennium our inspectors were only able to make regular inspec-tions
of 8,372 of the more than 30,000 establishments listed by
the U. S. Census Bureau as existing in this State. Our inspectors
have received training as first aid instructors and are required
to conduct first aid classes. They have also received more tech-nical
training in factory inspection work and are making more
detailed safety inspections.
Labor and Industry are requesting more aid and assistance
in helping to settle their controversies and difficulties in order
to prevent strikes and lockouts, and our inspectors also render
assistance to the conciliators of the Federal Department of Labor
who may be called into the State for the purpose of settling
strikes.
(2) We are aware of the fact that strife between employers
and employees is very detrimental to business, and oftentimes
leaves wounds on both sides that are very slow in healing.
Therefore, we recommend that an appropriation be made for a
trained conciliator to assist in the mediation and arbitration of
strikes, lockouts and labor disputes so that industrial peace and
happiness between employers and employees may be main-tained.
(3) Since we have a full-time elevator inspector and a full-time
mine inspector, their field work greatly increases the work
of our office employees; also in view of the more detailed inspec-tions
now being made by our factory inspectors, additional
correspondence is required. It is, therefore, imperative that we
have two additional office employees. The stenographic and
clerical work of the Bureau of Mines and Quarries and of the
Bureau of Elevator Inspections is now being done by the same
employees who do the work for the factory inspection division,
whereas each of these two bureaus should have a full-time
stenographer and clerk. The work of the mine inspector and
the elevator inspector would be greatly facilitated if they had
more assistance with their office work as follow-up work can
be simplified to a great extent by correspondence. It would also
enable them to keep accurate accident records for the purpose
38 Biennial Report of the Department of Labor
of working out methods of eliminating hazardous conditions. In
this way these two technically trained inspectors could spend
more time in the field in actual inspectional work and in promot-ing
safety programs and accident prevention instead of having
to do a large part of their own correspondence, record keeping
and other office duties.
BUREAU OF BOILER INSPECTIONS
(4) It is recommended that this bureau be placed on an
appropriation basis. It has been unable to adequately finance
itself under the present set-up.
There are approximately 2,000 uninsured boilers in North
Carolina and it is absolutely impossible for one person to inspect
more than 500 boilers per year. It is recommended that this
bureau be provided with at least two additional boiler inspectors
in order that the law may be properly enforced.
The Bureau only has one office employee. This employee
handles correspondence form letters, issues certificates, keeps
account of fees collected and keeps the budget for the Bureau.
Since the work has increased to the extent that it is impossible
for him to handle all of this work, it is essential for this Bureau
to have one additional office employee.
It is further recommended that the $1.00 fee for certificates
of operation be reinstated as this Bureau issues approximately
3,000 certificates annually on insured boilers. This work increases
the office work and expense tremendously.
RECOMMENDATIONS FOR NEW LEGISLATION
1. Legislation should be enacted regulating intrastate busi-ness
to correspond with the Federal Wage and Hour Law.
2. There is a need in North Carolina for a Wage Payment
and Wage Collection Law.
3. We should have a Conciliation Service to assist in settling
strikes, lock-outs, and controversies between employers and
employees.
4. Legislation should be enacted providing for an apprentice
training program.
5. Legislation should be enacted to prohibit the employment
of women after midnight in any occupation.
Biennial Report of the Department of Labor 39
6. Our present boiler law should be amended to provide an
appropriation for the Boiler Bureau in the Division of Standards
and Inspections.
7. Section 6907 of the Consolidated Statutes of North Caro-lina
should be amended to provide for reports concerning the
quantity of mine and quarry products to be filed with the North
Carolina Department of Labor for a fiscal year ending on the
thirtieth day of June.
8. Section 6910 of the ConsoHdated Statutes of North Caro-lina
should be amended to include inspections of quarries as well
as mines.
9. That all accidents serious enough to be classified as "lost-time
accidents" shall be reported to the Commissioner of Labor
immediately after occurrence.
DIVISION OF STATISTICS
Pauline W. Horton, Director
In accordance with Section 7310 (i) of the Consolidated
Statutes of North Carolina, the Division of Statistics of the
Department of Labor is charged with the responsibility of col-lecting,
assorting, systematizing and printing all statistical
details relating to all divisions of labor in North Carolina and
particularly concerning the following: The number of persons
employed and sex thereof; the hours of labor and the average
wages earned; and the general working conditions in the pro-ductive
industries of the State. In addition to these specific
duties, which are designated by statute, the Division of Statistics
has supervision of the issuance of employment certificates to all
minors working in North Carolina industry and the special
studies conducted by the Department relating to the employment
of these child workers. This Division also collects regularly data
concerning building construction work from all cities within the
State having a population of 2,500 and over.
During the past biennial period the inspection reports of the
Department furnish the only available source of information
concerning the number of persons gainfully employed in the
State. This information is limited due to the fact that it was
impossible to inspect all business concerns in the State. However,
all manufacturing establishments were inspected and studies
have been prepared from these reports showing the number, sex
and race of persons employed in the manufacturing concerns and
in the non-manufacturing and retail establishments which were
inspected by the Department. Tabulations have also been pre-pared
showing the extent and nature of Labor Law violations
and Industrial Code irregularities uncovered by inspectional
work in industrial establishments. For this information refer to
Tables I and II presented on pages 22 and 24.
SCOPE OF STATISTICAL WORK EXTENDED DURING
BIENNIAL PERIOD
Employment and Pay Roll Figures Now Collected
In order to secure more specific information of labor condi-tions
prevailing in our State, the Division of Statistics, following
the precedent of many other progressive States, instituted a
Biennial Report of the Department of Labor 41
program beginning June, 1937, of collecting monthly figures of
employment and pay rolls. Previous to that time the U. S.
Bureau of Labor Statistics was receiving from North Carolina
industries reports showing the volume of employment and pay
rolls. In a cooperative plan with this Federal Bureau, arrange-ments
were made whereas all such information would be col-lected
by our Department and the monthly tabulations of these
data would be furnished to the U. S. Department of Labor. In
return for this service the U. S. Bureau of Labor Statistics fur-nishes
the Department with a full-time clerk and franking
privilege used in connection with collecting the monthly figures.
The employers of our State are sympathetic and interested
in this project and we are receiving splendid cooperation from
them. At the present time these monthly reports published by
the Department of Labor showing the fluctuations in employ-ment
and pay rolls are the only official figures currently available
covering any considerable portion of the wage earners in the
State. These figures are generally used for extending total
employment and weekly pay rolls in the various fields of em-ployment
surveyed. The industries and business groups included
in the monthly surveys employ nearly 50 per cent of the total
wage earners in the State and the scope of the monthly surveys,
in most instances, is sufficiently comprehensive to be indicative
of the changes occurring within each industrial group.
The published reports on employment and pay rolls not only
inform the general public of the changes in the employment
situation but are also extensively used by various governmental
and non-governmental agencies. Request from businessmen,
trade and industrial organizations, and newspapers constitute a
large portion of the inquiries which are received for these
figures.
MONTHLY BULLETIN ISSUED
Each month the Division of Statistics issues the monthly
bulletin, "Labor and Industry." In this monthly publication the
activities are reported of the different divisions of the Depart-ment
of Labor. Included are news items from the N. C. Unem-ployment
Compensation Commission of which the Commissioner
of Labor is an ex-officio member. Through these reports and
news items the readers are informed of current items of interest
concerning employment and unemployment conditions in the
State.
42 Biennial Report of the Department of Labor
Tabulations are included in each monthly issue showing the
trend of employment, hours of work, and wages paid in North
Carolina industry. Monthly reports of building construction
work throughout the State are included. News items showing
mill improvements and changes are included and each issue lists
establishments that are maintaining the Grade "A" rating given
by the Department. Safety programs are outlined to promote
safety in our industries. Reports of the activities of our Veterans'
Service Division are also given summarizing the services ren-dered
to War Veterans.
The purpose of "Labor and Industry" is to familiarize em-ployers
and employees of the State with the activities of the
different divisions of the Department of Labor, and to let them
know that the Department as a whole is anxious to work with
them. Our Department is one of Service and we are anxious to
let the citizens of the State know our aim is to serve progres-sively
and effectively.
Approximately 3,000 copies of "Labor and Industry" are
issued each month. While our mailing list consists chiefly of
persons within the State, we also send a number of copies to
interested persons in practically every State in the Union and in
several foreign countries.
STATISTICAL NEEDS
In the first paragraph of this report, the statutory obligations
of the Division of Statistics were listed. With the very limited
personnel and appropriation designated for this work, it has been
impossible to collect and compile information concerning labor
and laboring conditions in the State that should be available.
However, during the past biennial period we have made out-standing
progress in the Division of Statistics by instituting the
collection of employment and payroll information and having
this reliable data available in our Department. It not only
advertises our State, but definitely informs as to the true work-ing
trends in our industries. While we are now receiving monthly
reports from a large number of employers, it is our plan to
increase the scope of this work by securing reports from indus-tries
not included in our present monthly surveys, and to also
increase the number of firms in each industrial group now
studied. This will make our monthly figures more reliable and
representative. In order to accomplish this we will have to have
an additional clerk assigned to the Division.
Biennial Report of the Department of Labor 43
The Department of Labor should also have funds allocated
to the Statistical Division for making special studies concerning
certain working conditions in the State. These studies should
be made through the Department. If we do not make such
studies concerning industrial home-work, hours of work and
wages of women and children, occupational studies, etc., outside
organizations will come into the State to make the studies, and
their surveys, according to past experience, may be biased and
not present true conditions. If the studies are made by this
Department they will be unbiased and will represent facts. Such
facts are used to determine the necessity of changes in legislation
or in the formulating of progressive legislation. The Department
of Labor should have facts available to substantiate matters of
such vital importance.
In connection with this work, I wish to call attention to the
need in the Division of Statistics for adequate equipment and
machines necessary for compiling the required data. At the
present time we are using a Burrough's bookkeeping machine
which was discarded by the Auditor's office after being used
by them for over 15 years. We could accomplish a good deal
more in this Division if we had the advantage of modern equip-ment,
SPECIAL STUDIES AND REPORTS
During the biennial period July 1, 1936, to June 30, 1938.
the following studies and reports have been made by the Division
of Statistics:
Child Labor in North Carolina—The New Child Labor Law
Minors Employed as Shown by Employment Certificates Issued
During Biennial Period.
Building Construction Work in Principal Cities of North
Carolina.—1936 and 1937.
Employment, Hours of Work and Average Wages Earned in
Principal Manufacturing Industries—July 1937 to June 1938.
Women's Wages in North Carolina, March 1938.
The above studies will be presented in the following chapters
in the order in which they are listed.
CHILD LABOR IN NORTH CAROLINA
THE NEW CHILD LABOR LAW
The biennial period July 1, 1936, to June 30, 1938, marked a
significant advance in child labor standards in North Carolina.
On July 1, 1937, the best Child Labor Law in the United
States went into effect in our State. It was the "McKee Child
Labor Bill," introduced and piloted through the General Assem-bly
of 1937 by Mrs. E. L. McKee, Senator from the 32nd Sena-torial
District. The outstanding feature of the new bill is that
it prohibits the employment of children under 16 years of age
in all manufacturing establishments and all hazardous occupa-tions
and requires the certification of all minors up to 18 years
of age before employment. The old law permitted children of
14 to work in factories and required certification up to age 16.
Only minors employed in agricultural and domestic jobs are
exempt from the requirements of the new law.
The new law specifically designates as hazardous more than
50 occupations and forbids the employment of children under 16
in them. Minors under 18 may not be employed where there is
danger of silicosis or asbestosis, or in handling lead compounds
or in spray painting. The Commissioner of Labor, after investi-gation
and hearing, is authorized to designate other occupations
as hazardous and to prohibit the employment of minors under
18 in such occupations.
Minors under 18 may not be employed or permitted to work
in any establishment where alcoholic liquors are bottled, sold or
dispensed, or in any billiard or pool room. Girls under 18 may
not be employed as messenger or at any form of street trade.
For children under 16 and over 14, the law provides for
employment during school vacations not in excess of 8 hours
per day, or 40 hours per week, or 6 days per week and for part-time
employment while school is in session, the hours of work
and hours of school not to exceed 8 in any one day.
The employment of children under 14 is prohibited for all
gainful occupations, with the single exception of newspaper and
magazine sales, which boys over 12 may engage in, under regu-lations
to be prescribed by the Commissioner of Labor, but not
for more than 10 hours in any one week.
Biennial Report of the Department of Labor 45
The new law provides that minors under 16 may not be
employed before 7 o'clock in the morning, nor after 6 o'clock
in the evening. There are certain exceptions to permit news-paper
boys to deliver papers on fixed routes, beginning at 5
A. M., and to work 7 days per week, but not in excess of 24 hours
per week. Messenger boys may deliver telegrams 7 days per
week but not for more than 2 hours on Sundays and not in excess
of the hours allowed per week.
For minors over 16 and under 18, the law provides for em-ployment
of not more than 9 hours per day, and not more than
48 hours in any one week or 6 days in any one week. Boys
between the ages of 16 and 18 may work between 6 o'clock in
the morning and 12 o'clock midnight, but girls between these
ages may not be worked before 6 A. M. or after 9 P. M.
Since the new law requires certification for employment for
all minors up to 18 years of age, instead of up to 16 as under the
old law, the Department of Labor was called on to supervise the
issuance of 21,725 employment certificates for minors during
the first year after the new law became effective. This certifica-tion
work was done through the County Superintendents of
Welfare who, under the law, are the authorized agents of the
Department of Labor for issuance of employment certificates.
The certification of minors is of vital importance in the
enforcement of our Child Labor Law provisions and it is not
done in haphazard, perfunctory fashion. Every child is given
careful personal attention. There must be an employer's promise
of employment, a proper certificate as to age and school record
and a physical examination report from a reputable physician
showing that the minor is physically fit for the employment he
is seeking. Complete records of every minor working is required
by law to be on file in the office of the Commissioner of Labor,
in the office of the Superintendent of Welfare, and in the office
of the employer.
MINORS EMPLOYED AS SHOWN BY EMPLOYMENT CERTIFI-CATES
ISSUED DURING BIENNIAL PERIOD
During the first year of the biennial period July 1, 1936, to
June 30, 1938, there were only 1,503 employment certificates
issued in North Carolina. These certificates were issued under
the provisions of our old Child Labor Law which required the
46 Biennial Report of the Department of Labor
certification of minors up to 16 years of age who were gainfully
employed. With records showing this small number of certifi-cates
issued, it is most evident that all minors employed at that
time were not properly certified. However, with the beginning
of the last year of the biennium when our new law became
effective, the employers within the State immediately fell in
line with the law requirements and in one year's time, a total
of 21,725 employment certificates were issued to minors under
18 years of age working in the State. A total of 17,667 of these
minors were 16 and 17 years of age. Of these 16 and 17 year
old children, 14,194 were engaged in full-time jobs and 3,473 in
part-time and vacation employment.
NUMBER CERTIFICATES ISSUED
In order to show the extent of employment certificates issued
during the one-year period, Table I, which is presented below,
has been prepared to show the total number of employment
certificates issued. The tabulations are according to color, sex
and age. In reviewing these totals it should be kept in mind that
all certificates issued to minors under 16 years of age are for
part-time and vacation employment as the Child Labor Law
does not permit full-time work for minors under 16 years of age.
It should also be kept in mind that the large number of certifi-cates
issued does not represent the actual number of children,
entering employment during the one-year period, but represents
the number at work when the law became effective and the
number entering employment since that time. The primary
purpose of this tabulation is to show the extent of certification
necessary in the promulgation of the new Child Labor Law. It
has been estimated that nearly 10,000 minors under 18 years of
age enter employment each year in North Carolina and in the
future this number will approximate the number of certificates
to be issued.
Biennial Report of the Department of Labor 47
TABLE 1
NUMBER OF MINORS INDER IS YEARS OF AGE SECURING EMPLOYMENT CERTIFICATES
IN NORTH CAROLINA DURING FIRST YEAR AFTER NEW CHILD LABOR LAW BECAME
EFFECTIVE
JlL • 1, 1937 TO Jink 30. 103S
Sex & Color 12 Years 13 Years 14 Years 15 Years 16 Years 17 Years Total
Bovs
\\hite __
Colored
233
10
314
16
1,505
161
1,387
116
5,244
181
4,129
139
12,812
623
TotaL_. 243 330 1,666 1.503 5,425 4,268 13,435
Girls
White 43 270
3
3,841
49
4,042
42
8,198
Colored 94
Total.... 43 273 3,890 4,084 8,290
Total
White
Colored
233
10
314
16
1,548
161
1,657
119
9.085
230
8,171
181
21,008
717
Grand Total 243 330 1,709 1,776 9.315 8,352 21,725
NUMBER OF CERTIFICATES ISSUED IN EACH COUNTY
Table II of this study has been prepared to show the number
of certificates issued in each county of the State during the year
July 1, 1937, to June 30, 1938.
This table is especially interesting as it not only shows that
the majority of our child workers are in the industrial counties,
but it also shows that in these counties the Superintendents of
Public Welfare, who are the authorized certificating officials,
have had the responsibility of issuing the reported number of
employment certificates. The reported number of certificates
include first certificates only. Re-issued certificates necessary in
case of change of employment are not included.
48 Biennial Report of the Department of Labor
TABLE II
EMPLOYMENT CERTIFICATES ISSUED TO MINORS WORKING IX NORTH CAROLINA
Tabulated by Counties
July 1, 1937—June 30, 1938
COUNTY
For Full-Time or
Regular Employment
For Vacation or Part-Time
Employment
Total
Certificates
Issued
16 & 17 Year
old minors
16 & 17 Year
old minors
Minors under 16
years of age
Alamance 656
56
84
7
34
29
774
92
Alleghany
65 14
1
20 99
1
1
38
3
16
1
425
269
871
166
1
54
8
6
1
195
44
101
74
2
Beaufort . 21
10
7
113
Bertie 21
Bladen 29
2
175
65
234
63
795
Burke.. 378
1206
Caldwell 303
Camden... ... . ..
30
5
544
64
1
28
10 17
1
38
4
12
12
57
6
47
3
6
17
629
71
Cherokee.. 19
Chowan 57
Clay
360
20
36
210
97
11
87
89
29
26
36
62
486
Columbus
.
57
Craven. ... 159
361
Currituck-. _ . .
1
361
39
20
409
98
768
33
1242
5
1
Davidson . . 54
15
5
140
40
156
1
128
96
5
4
259
40
208
8
68
511
Davie 59
29
808
178
Forsyth 1132
42
1438
Gates.
-
5
50
1
1335
303
58
18
64
17
11
.- 4
231
3
110
9
27
189
146
184
6 22 78
1
Guilford 291
8
38
32
23
2
12
476
60
14
18
10
13
17
12
46
S
13
2
22
89
11
26
3
2102
Hahfax. 371
110
68
Henderson 97
Hertford
Hoke
32
40
Hyde ... 16
Iredell 85
1
10
362
9
Johnston 133
11
Lee
Lenoir
Lincoln
McDowell
23
39
23
12
72
317
180
222
3
5
22
594
38
51
43
4
16
202
9
Martin
Mecklenburg
Mitchell
14
255
7
16
16
52
1051
45
Montgomery
Moore
11
12
78
71
Biennial Report of the Department of Labor 49
TABLE II—CONTIMED
COUNTY
For Full-Time or
Regular Employment
For Vacation or Part-Time
Employment
Total
Certificates
Issued
16 & 17 Year
old minors
16 & 17 Year
old minors
Minors under 16
years of age
Nash.. 101
259
4
26
68
7
1
4
1
9
29
175
22
1
5
2
52
2
13
8
58
1
59
51
66
64
77
32
21
17
48
1
25
1
4
4
21
38
314
8
10
13
48
27
77
5
156
502
33
2
27
1
113
1
12
138
60
4
394
260
182
433
457
235
42
52
220
36
Pamlico .._ 4
174
3
Perquimans
Person
Pitt.
1
1
63
1
9
99
33
53
52
42
15
29
103
26
147
181
Polk . 6
Randolph.. 462
410
281
Rockingham . . . 550
Rowan 586
309
78
Scotland.. . . 98
371
1
Surry 97 30
6
4
3
26
51
47
15
7
5
125
21
78
152
7
10
2
62
165
202
23
14
16
75
74
103
2
18
9
109
254
Wake 563
46
Washington. 31
Watauga 34
248
Wilkes 122
Wilson.. - _ -- 258
7
1 1
Total Certificates Issued. 14,194 3,473 4,058 21,725
ESTABLISHING CORRECT AGE OF MINORS
Before a minor is issued an employment certificate, it is
necessary that the correct birth date of the child be established.
This is the most important means of preventing minors from
entering employment before they have reached the legal work-ing
age.
In establishing a minor's correct birth date, the following
proofs of age are acceptable in North Carolina, and are required
in the order of preference herein designated, as follows: Birth
certificate or statement of Bureau of Vital Statistics (N. C. State
Board of Health), Bible Record, Baptismal Record, Passport,
Life Insurance Policy and or, in case none of the above proofs
are obtainable, and only in such case, the issuing officer may
accept a signed statement from the physician authorized to make
physical examination stating it his opinion that the minor has
attained the age required by law for the occupation in which he
50 Biennial Report of the Department of Labor
expects to engage. Such statement must be accompanied by an
affidavit signed by the minor's parent or guardian certifying the
birth date of minor.
The evidence of age accepted is of vital importance in Child
Labor Law enforcement, for unless the correct age is established
children under the legal working age will undoubtedly be per-mitted
to go to work. Therefore, the purpose of securing docu-mentary
proof of a minor's correct age is for the protection of
the employer from unwitting violations as well as a protection
to the minor by not allowing him to enter gainful employment
until he has reached the legal age.
Table III presented below shows the number and percentage
of minors certified during the last year of the biennial period,
tabulated according to the types of evidence of age used in
establishing their correct birth dates.
TABLE III
EVIDENCE OF AGE USED IN ESTABLISHING MINORS'
CORRECT AGE
Minors Certified From July 1, 1937, to June 30, 1938
Number of
Type of Evidence Minors Percentage
Total 21,725 100.00
Birth Certificate 5,085 23.4
Baptismal Records 283 1.3
Bible Record 6,585 30.3
Insurance Policy 8,162 37.3
Physician's Certificate 251 1.2
Parent's Affidavit* 1,240 5.7
Passport 5
Other Documentary Evidence 113 .5
* Accepted only with physician's statement.
EDUCATION OF MINORS ENTERING EMPLOYMENT
Some of the most important information revealed by the
employment certificate records is the education attained in
school by these young workers.
Tables IVA and IVB present an educational study of the
grade completed in school by minors entering part-time or
vacation employment and minors entering full-time employment.
The study shows the average grade completed in school for each
age group of both boys and girls. It is especially interesting to
note that in the 16 and 17 year old groups, minors engaged in
Biennial Report of the Department of Labor 51
part-time or vacation work have attained a higher average grade
in school than the minors of the same age groups who are
certified for full-time jobs. This is definitely attributed to the
fact that our compulsory school law only required minors to
attend school until they are 14 years of age. Our Child Labor
Law prohibits full-time employment for minors until they are
16 years of age. This leaves a gap of two years in which time
minors 14 and 15 are not required to attend school and are not
permitted to enter full-time employment. The study made of
the educational attainments of minors entering employment
clearly reveals that the majority of minors 16 and 17 who are
entering full-time jobs have not attended school since they
passed the compulsory school age limit.
TABLE IV-A
EDUCATIONAL STUDY OF GRADE COMPLETED I\ SCHOOL BY MINORS ENTERING PART-TIME OR
VACATION EMPLOYMENT IN NORTH CAROLINA
Study made from Employment Certificates Issued July 1, 1937 to June 30, 1938
LAST GRADE COMPLETED IN SCHOOL
Grade BOYS GIRLS Both Sexes
Completed
12 13 14 15 16 17 Total 14 15 16 17 Total Total
4th
or under
5
6
8
9
10
48
59
102
31
3
40
47
68
114
59
2
121
152
250
363
530
231
17
2
73
88
144
243
324
453
160
17
1
16
29
57
125
204
308
426
109
5
15
9
12
41
55
124
212
174
22
313
384
633
917
1,175
1,118
815
302
28
1
1
25
9
4
15
40
115
84
14
3
1
30
68
185
497
125
4
1
2
6
14
30
70
206
267
14
5
5
17
66
163
379
787
406
18
318
389
650
983
1,338
1,497
1 602
11 70S
12 46
Total 243 330 1,666 1,503 1,279 664 5,685 43 273 920 610 1,846 7,531
Average
Grade
Completed
5.5 6.3 7.1 7.8 8.9 9.5 7.9 7.9 9.1 9.6 10.1 9.7
52 Biennial Report of the Department of Labor
TABLE IV-B
EDUCATIONAL STUDY OF GRADE COMPLETED IN SCHOOL BY MINORS ENTERING FULL-TIME
EMPLOYMENT IN NORTH CAROLINA
Study made from Employment Certificates Issued July 1, 1937 to June 30, 193S
LAST GRADE COMPLETED IN SCHOOL
Grade BOYS GIRLS Both Sexes
Completed
16 17 Total 16 17 Total Total
4th or under 337 307 644 133 108 241 885
5 454 319 773 205 185 390 1,163
6 679 486 1,165 329 310 639 1,804
7 953 743 1,696 538 468 1,006 2,702
8 581 453 1,034 364 373 737 1,771
9 480 336 S16 395 385 780 1,596
10 385 304 689 552 381 933 1,622
11 272 623 895 446 1,205 1,651 2,546
12 5 33 38 8 59 67 105
Total 4,146 3,604 7,750 2,970 3,474 6.444 14,194
Average
Grade 7.3 7.7 7.5 S.2 8.8 8.5
Completed
OCCUPATIONAL STUDY OF MINORS WORKING IN COTTON
AND HOSIERY MILLS
Of the 14,194 minors 16 and 17 years of age certified for the
full-time employment during the first year after our new Child
Labor Law became effective, a total of 6,303, or 44.4 per cent,
were certified for employment in cotton mills and 1,484, or 10.5
per cent, in hosiery mills. Since these two industries employ
the larger groups of our child workers in the manufacturing
trades. Tables VA and VB have been prepared to show the
nature of occupations in which a representative group of these
minors are actually employed in the two industries.
The tabulations show the number and percentage of minors
engaged in the different occupations. It is particularly interest-ing
to note that in the cotton mills only 3.5 per cent of the minors
were engaged as learners. In the hosiery mills only one-half
of one per cent were engaged as learners.
Biennial Report of the Department of Labor 53
TABLE V-A
OCCUPATIONAL STUDY OF 5309 CHILDREN 16 AND 17 YEARS OF AGE
CERTIFIED TO WORK IN NORTH CAROLINA COTTON MILLS
Occupation
Certified
Total
All Children Boys Girls
For
Number Percent Number Percent Number Percent
271
120
42
2S4
435
21
143
S7
186
728
279
539
55
19
282
370
28
49
1,371
5.11
2.26
.79
5.35
8.19
.40
2.69
1.64
3.50
13.71
5.26
10.15
1.03
.36
5.31
6.97
.53
.92
25.83
125
119
42
248
432
21
143
20
104
83
17
.5.S9
55
16
220
22
15
37
926
3.92
3.74
1.32
7.79
13.57
.66
4.49
.63
3.27
2.61
.53
16.93
1.73
.50
6.91
.69
.47
1.16
29.08
146
1
6.87
.05
36
3
1.69
Doffcrs - . .14
Dye Hand
67
82
645
262
3.15
3.86
30.35
12.33
3
62
348
13
12
445
.14
Weavers 2.92
16.38
QuiDinfc. .61
.57
20.94
Totals ... 5,309 100.00 3,184 100.00 2,125 100.00
OCCUP.ATIONAL STUDY OF 1096 CHILDREN 16 ANF 17 YEARS OF AGE
CERTIFIED TO WORK IN NORTH CAROLINA HOSIERY MILLS
Occupation
Certified
Total
All Children Boys Girls
For
Number Percent Number Percent Number Percent
Boarder 62
126
33
30
11
58
166
7
6
156
35
58
7
97
33
11
10
190
5.66
11.50
3.01
2.74
1.00
5.29
15.15
.64
.55
14.23
3.19
5.29
.64
8.85
3.01
1.00
.91
17.34
47
48
2
2
11
1
94
14.24
14.55
.61
.61
3.33
.30
28.48
15
78
31
2S
1.96
10.18
4.05
Folder 3.66
Helper
Inspector 57
72
7
3
1.54
35
58
5
78
28
8
10
99
7.44
9.40
.91
3
2
.91
.61
.39
20.11
4.57
7.57
2
19
5
3
.61
5.75
1.51
.91
.65
10.18
Winder
Twister . .
3.66
1.04
1.31
Other Occupations- 91 27.58 12.92
Totals 1,096 100.00 330 100.00 766 100.0
54 Biennial Report of the Department of Labor
INDUSTRIAL DISTRIBUTION OF CHILDREN CERTIFIED
FOR EMPLOYMENT
Tables VI through XII, presented on pages 56 to 68, have
been prepared to show the number of minors certified during the
biennial period, July 1, 1936, to June 30, 1938. Tabulations are
according to industry in which employed, and the color, sex and
ages of the minors. The separate tables show the number of
minors engaged for part-time or vacation employment and the
number engaged for full-time jobs.
These tables are accompanied by a bar chart which shows
the industrial distribution of minors at work in full-time employ-ment.
(See page 55).
f
Biennial Report of the Department of Labor 55
PERCENTAGE DISTRIBUTION ACCORDING TO INDUSTRY OF
BOYS AND GIRLS 16 AND 17 YEARS OF AGE CERTIFIED FOR
FULL-TIME EMPLOYMENT IN. N. C.
PERCENT EMPLOYED
COTTON YARN AND
WEAVE MILLS.
HOSIERY AND KNIT
GOODS MILLS.
WOOLEN. SILK AND ^^ RAYON MILLS. ^
TEXTILE PRODUCTS
MANUFACTURING
TOBACCO FACTORIES
FURNITURE AND
LUMBER PRODUCTS
ALL OTHER MANU-FACTURING
INDUSTRIES
RETAIL TRADE ESTAB-LISHMENTS
MESSENGER SERVICE
OTHER MISCELLAN-EOUS
INDUSTRIES
LEGEND
BOYS
GIRLS
56 Biennial Report of the Department of Labor
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Biennial Report of the Department of Labor 63
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68 Biennial Report of the Department of Labor
26a
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Biennial Report of the Department of Labor 69
BUILDING CONSTRUCTION WORK IN PRINCIPAL CITIES OF
NORTH CAROLINA
1936 AND 1937
The expansion of building construction in North Carolina
which started in 1934 was continued during 1937. During the
two-year period included in the biennial study, reports received
by the Department of Labor from the principal cities throughout
the State indicate that permits were issued for buildings valued
at $16,511,925 during 1936 and $20,191,708 during 1937. This
represents an increase of 22.3 per cent comparing the 1937 value
of construction work with the 1936 value.
Considering the kind of construction work for which permits
were issued during the two-year period, the reports show that
the largest portion of money expended was for new residential
buildings. In 1936 a total of $7,750,427 was reported for home
building and in 1937 a total of $9,304,143 was reported. These
residential buildings provided new living quarters for 6,116
families.
Decided gains were also reported during the two-year period
in non-residential or business building construction work and
in alteration and repair work; non-residential increasing 17.9
per cent, and repair work increasing 35.8 per cent.
A summary of the outstanding developments in building
construction in 1936 and 1937 is given in Table I which is pre-sented
on page 70. In the following pages are tables showing a
detail study of building construction work according to cities
reporting. In these tabulations only cities are included for which
complete yearly reports were available. Tables have also been
prepared showing the different types of building construction
started in the cities reporting during the two-year period, and a
summary showing the cost and kind of construction work tabu-lated
by the months in which permits were issued. For this
information refer to Tables II, III and IV.
70 Biennial Report of the Department of Labor
t* »- O 03 00
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Biennial Report of the Department of Labor 73
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74 Biennial Report of the Department of Labor
Q
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(..ost
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Construction
Work
+
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366 570 427 309 562 860 397
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Biennial Report of the Department of Labor 75
EMPLOYMENT, HOURS OF WORK AND AVERAGE WAGES
EARNED IN PRINCIPAL MANUFACTURING INDUSTRIES
July, 1937, to June, 1938
The average weekly and hourly earnings, and the hours of
work in manufacturing industries and building construction
trades in North Carolina are shown in the following study, Table
I, for each month of the last year of our biennial period. The
data were compiled from a representative group of manufactur-ing
and construction firms and tabulations show the number of
firms included in each month studied and the number of persons
employed by these firms.
Tabulations are prepared for the manufacturing industry as
a whole which includes all types of manufacturing trades, and
separate tabulations are shown for the leading manufacturing
industries.
76 Biennial Report of the Department of Labor
AVERAGE EARNINGS AND HOURS OF WORK IN MANUFACTURING
INDUSTRIES IN NORTH CAROLINA
Type of Industry
Year and Month
Number
of Firms
Reporting
Number
of Em-ployees
Average
Weekly
Earnings
Average
Hour? I'er
Week
Average
Hourly
Earnings
All Mani-facturing:
1937-July- 454
485
497
492
498
494
492
552
582
603
635
610
193
210
212
207
210
208
236
243
267
284
279
256
65
70
69
68
70
70
69
72
79
72
75
79
8
9
9
9
9
9
9
9
9
10
9
9
22
22
31
30
30
30
30
31
29
31
31
31
108,872
132.175
132,952
127,263
127,177
121,191
118,325
118,656
136,780
132,317
129,567
111,730
63,753
84,060
82,804
78,090
77,679
75,186
70,531
66,980
83,424
85,593
79,146
62,298
18,935
20,686
20,719
20,262
21,167
21,060
20,946
22,400
24,746
21,671
21,449
21,598
1,418
2,174
2,143
2,001
1,648
1,736
1,743
2.579
2,367
3,116
2,273
2,102
4,623
4,652
6,235
5,860
5,847
5,604
5,154
5,508
4,623
4,938
4,716
4,853
S 15.26
15.36
15.31
15.06
14.37
14.51
13.90
14.32
14.54
13.96
14.01
13.95
$ 13.96
14.23
14.03
13.64
12.82
12.90
12.13
12.26
13.14
12.88
12.54
11.69
S 16.09
16.17
16.76
16.91
16.93
17.'23
16.66
17.12
16.89
17.43
16.97
17.10
3 14.77
16.51
17.14
14.80
13.98
14.97
12.29
11.92
13.89
14.36
14.73
13.68
13.75
14.93
15.27
15.18
13.29
13.67
10.61
11.40
11.90
10.13
9.48
13.50
36.3
36.2
35.9
35.3
33.1
33.2
32.0
32.9
33.8
33.4
32.9
33.2
35.7
35.1
34.6
33.7
31.2
31.1
30.1
31.1
32.4
32.1
31.2
30.9
34.5
34.0
35.5
35.2
34.5
35.5
33.7
34.9
34.6
35.3
35.1
34.4
37.8
40.5
38.6
33.6
32.4
34.7
29.7
31.8
37.3
37.0
37.0
34.6
38.3
42.1
42.0
41.7
36.0
37.1
28.4
30.4
34.4
26.9
25.6
35.4
(Cents)
42.6
42.9
43.0
43.0
43.6
43.9
43.8
43.6
March _ . 43.0
42.0
42.7
42.1
Cotton Yarn & Weave Mills:
1937-July.. 39.4
40.7
41.0
October 40.7
November. 41.2
41.5
1938-January 40.3
39.4
March . 40.5
40.4
May.. __ _ . 40.4
June
Hosiery & Knit Goods Mills:
1937-.July
August
September
October.
-
38.0
48.7
49.2
49.0
49.5
November 50.5
50.3
1938-January- 51.3
February 49.3
March.. 49.8
April 50.5
May 49.4
June. 50.8
Silk & Raton Mills:_
1937-July_.. . 39.9
August _ 41.4
September 45.2
October... 44.7
November 44.1
December. 43.9
193S-January. 41.1
February... 37.5
March 37.2
April .. 38.8
May 39.8
June.. 39.6
FuRNiTiRE Factories:
1937-July . 34.7
August. ._ 35.1
September.- 36.0
October. 36.4
November ... . 36.3
December.. 36.3
1938-January 37.2
February .. 37.7
March 34.7
37.0
May. . 36.0
June 37.5
Biennial Report of the Department of Labor 77
TABLE 1—Continued
Type of Industry
Year and Month
Number
of Firms
Reporting
Number
of Em-plf)
yees
Average
Weekly
Earnings
Average
Hour? Per
Week
Average
Hourly
Earnings
ToBAcro Factories:
1937-July
August
September _..
October
November
December
1938-January
February
March
April
May
June
NoN-MANI'FACTrBING:*
1937-July
August
September
October
November
December
1938-January
February
March
April
May
J une
Retail Establishments:
1937-July
August-
September
October
November
December
1938-January
February
March
April
May
June
Private Biilding Construction
1937-July
August
September
October
November _.
December
1938-January
February .
March
April
May
June
(Cents)
8
8
S
8
S
8
s
8
S
8
8
8
124
127
113
121
115
122
74
137
162
160
171
170
386
441
433
425
439
386
358
403
410
397
391
450
62
69
78
89
86
89
118
115
132
123
160
150
5,057
5,084
5.171
5,138
5,143
5,141
5,063
5,077
5,114
5,023
5,060
5,052
4,717
4.856
318
706
469
527
219
896
4,763
5,051
5,077
4,840
3.335
4,471
4,527
4,781
5,788
4,463
3,159
4,207
4,700
6,117
4,709
5,576
1,243
1,663
1,694
1.599
1,437
1.238
1.358
1,374
1.688
1,605
2,008
1.939
$20.96
21.10
21.18
21.04
19.67
20.84
21.70
20.06
19.84
19.92
21.56
21.84
17.79
17.85
17.27
18.00
16.95
18.15
14.61
18.33
17.89
18.17
17.46
17.91
17.62
17.06
16.44
16.93
14.29
16.12
16.27
15.01
14.^2
12.59
14.89
12.82
18.53
18.61
19.90
23.33
18.26
19.71
18.08
17.66
18.03
18.10
18.69
19.17
37.3
38.2
38.6
37.9
35.1
36.9
37.1
34.9
34.1
34.7
37.0
37.5
45.8
44.1
43.9
42.6
43.2
44.1
43.2
44.7
44.7
47.8
46.7
45.8
41.4
40.1
39.8
40.9
39.4
40.8
42.0
41.4
39.6
38.5
•39.3
35.7
35.4
35.7
39.4
42.2
.32.9
33.4
32.6
32.6
32.9
33.4
35.6
35.8
56.2
55.3
54.9
55.5
56.1
56.5
58.5
57.5
58.3
57.4
58.3
58.3
34.5
36.0
28.0
35.7
27.5
33.8
32.6
37.1
36.9
34.7
32.5
33.6
39.6
40.3
39.8
40.4
39.8
39.9
38.6
38.1
37.4
36.9
37.9
36.2
52.7
52.3
50.8
55.8
55.7
59.5
55.5
54.2
54.8
54.3
52.1
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VETERANS' SERVICE DIVISION
Jack P. Lang, State Service Officer
FOREWORD
In 1925 the General Assembly of North Carolina created the
Veterans' Service Division to assist North Carolina disabled
veterans of all wars and the dependents of disabled and deceased
veterans in the proper preparation and prosecution of their
claims for the benefits provided by the Federal Government to
which they are both morally and legally entitled as the result
of service to their country in time of need.
In accordance with the provisions of the law, the Veterans'
Service Division was placed under the Department of Labor.
INTEREST IN SCOPE OF ACTIVITIES
During the past biennium, the Veterans' Service Division
has contacted and received appeals for assistance from a total
of 7,575 veterans and their dependents.
In addition to the above number of claims handled during
the biennial period it has been necessary for the Division to
continue to prosecute a large portion of the cases previously
reported because of their disallowances, changes in physical
condition, changes in the legislation, regulations, and disability
rating schedule, or the development of new evidence. Very few
cases can be considered as definitely closed for it is frequently
necessary for claimants whose cases have been allowed to again
request assistance in the prosecution of their claims because of
the changes in the law, regulations and the disability rating
schedule. Even after a veteran's death, his dependents must file
new claims in order to secure death benefits, burial allowance
and insurance due them. In many of these cases all the necessary
evidence must be worked up and properly presented and prose-cuted.
These dependents are in greater need of proper repre-sentation
in the prosecution of their claims than was the veteran
himself.
BENEFITS PAID INTO THE STATE OF NORTH CAROLINA AC-CORDING
TO THE RECORDS OF THE VETERANS'
ADMINISTRATION
The importance of properly caring for the disabled veterans
and their dependents is evident when it is considered that over
80 Biennial Report of the Department of Labor
86,000 North Carolinians were in the naval and military service
during the World War. The following statistics based on the
official reports of the Central Office of the Veterans' Administra-tion,
Washington, D. C, shows the benefits paid into the State
of North Carolina to disabled veterans of all wars and their
dependents during the past biennium and give a very good
picture of how vital these Federal benefits and gratuities are to
the people of this State.
The amount paid to living veterans, including compensation
for service connected disabilities and permanent and total cases
both war and peace time veterans, is $12,545,940.00.
The amount of death compensation, term insurance and
burial allowances received by dependents of deceased veterans
in the State of North Carolina during the past biennium is as
follows
:
Term insurance $3,293,519.00
Death compensation, pensions, burial allowance 2,788,655.00
This shows that a grand total of $18,628,114.00 is being paid
into the State of North Carolina biennially for veterans and their
dependents.
The amount of benefits which was paid to veterans of North
Carolina, now living, and their dependents during the past fiscal
year was $9,359,862.00.
VOLUME OF WORK
The following report covering the activities of the Division
is presented only in sufficient detail to show the volume of work
done. The requests for assistance and demands made upon the
Division have been so heavy that it has been impossible for a
complete and accurate report of every operation and results
accomplished to be shown. The report presented below covers
only those phases of the work which were possible to accurately
record from day to day in the Division Office. It does not include
the innumerable operations, necessary to efficiently serve the
veterans of our State in the preparation of forms, affidavits, cer-tified
copies of discharges, burial claims, applications for loans
and other documents prepared in support of each case, nor does
it include the number of appeals prepared.
Biennial Report of the Department of Labor 81
THE FOLLOWING TABLE SHOWri THE LIVING VETERANS AND DEPENDENTt^ OF DECEASED
VETERANS WHO WERE RECEIVING PENSION AND COMPENSATION BENEFITS, AND
THOSE RECEIVING MILITARY AND NAVAL INSURANCE AS OF JULY 30, AND
DISBURSEMENTS FOR THESE BENEFITS DURING THE FISCAL YEARS
1937 AND 1938 IN NORTH CAROLINA
Fisc \L Year 1937 Fi.=c.\L Ye.\r 1938
Number Amt. Disbursed Number Amt. Disbursed
World War:
6,886
5,71S
1,132
36
2,234
2,104
103
6
6
8
28
342
2,085
758
677
159
9,682
3,507
2,762
S 3,620,472.00
3,178,502.00
386,644.00
55,326.00
801,881.00
751,669.00
50,212.00
3,662.00
3.266.00
2,791.00
33,116.00
160,220.00
1,156,982.00
287,961.00
190,026.00
46,643.00
5.003,862.00
1,303,158.00
1,708,367.00
23,378.00
1,229,587.00
9.268.2.52.00
6,969
5,663
1,260
36
2,189
2,009
180
5
5
8
21
298
2,012
812
694
172
9,691
3,484-
2,386
$ 3,628,678.00
3,144,762.00
424,670.00
59,246.00
991,074.00
721,773.00
69,301.00
Mexican War:
Deceased veterans . . 3,003.00
Indian War:
Living veterans 3,908.00
Deceased veterans __ 2,968.00
Civil War:
25,602.00
139,615.00
Spanish-American War:
1,168,333.00
299,.595. 00
Regular Establishment:
190,4.54.00
Deceased veterans.. . 49,242.00
Total Compensation and Pension Benefits:
Li\nng veterans.. . 5.016,975.00
1.485,497.00
Military and naval insurance.. 1,585,152.00
21,.527. 00
1.2.50,711.00
Total disbursements 9.3.59,862.00
ACTIVITIES OF DIVISION
Biennium, 1936-1938
Letters written 7,510
Claims reviewed 5.589
Examinations secured 553
Office interviews 2,399
Appearances before rating board 1,446
New cases handled 1,540
Old cases handled 6,035
Total cases handled 7,575
Total compensation secured $121,760.66
In making this report of the service rendered, we have only
brought out the results achieved in securing financial assistance
for veterans in the Charlotte Regional Office. The above reported
amount of total compensation secured represents an additional
amount of money brought into the State of North Carolina dur-
82 Biennial Report of the Department of Labor
ing the past biennial period only, and does not take into consid-eration
the compensation which will continue in succeeding
years. It may be stated, however, that a good part of the work
of this Division deals with matters that bring no monetary
benefits to the veterans. A few of these are expediting hospitali-zation;
locating veterans who have changed address and who
failed to prosecute their claims; assisting in clearing up the
marital status of claimants; assisting in establishing birth record;
contacting physicians and friends of claimants for evidence;
furnishing discharge certificates; and in many other ways.
It is well to mention that as long as a veteran is alive and
can provide for his family, the need is not as great as after death
when the head of the family is no longer there to provide sup-port.
It is more difficult to prosecute a claim after the death of
the veteran, and more correspondence is necessary for the
reason that the widow, as a general rule, does not know who
can give affidavits as to her husband's condition during war
service, or immediately following his discharge from active
service.
In 1929 the General Assembly of North Carolina passed an
act regulating the guardianship of incompetent veterans and of
the minors of disabled or deceased veterans. This act places the
responsibility of the supervision of all guardianships, and the
funds disbursed through these guardianships, under the Vet-erans'
Service Division and the Veterans' Administration. On
June 30, 1938, there were:
Incompetent veterans 617
Other incompetents (incompetent widows and
min