Mr. CLEVELAND. But how can the Chief Executive, Mr. Sherley, come to know of the facts that come to committees of Congress when upon this very request that Chairman Fitzgerald mentions the President sent out to the Department of Agriculture and asked whether or not any such representations had been made as are indicated by the inquiry, and in response he got a statement to the effect that after thorough search he has been unable to discover any man who has said anything to a Member of Congress against the proposal of the President.

ADJUTANT GENERAL'S OFFICE, WAR DEPARTMENT.

Mr. SHERLEY. What recommendation has been made by the commission and acted upon by the administration which has resulted in a decrease of estimates made to Congress?

Mr. CLEVELAND. In the first place, I would say that the whole decrease that has been made in the estimate of The Adjutant General's office and of other offices in the War Department have been made possible by following our recommendations on office methods; this is the only way they have cut out the work necessary to make the decrease of something like 79 clerks in the last estimates, and it is the only way they will be able in the next year to cut out whatever amount they are able to reduce their estimates then. I say it is the only way; this is the way it must be done in so far as the estimates affect the legislative, executive, and judicial bill, because this bill has to do with office service.

The CHAIRMAN. Was that due to your report or to the statement of Gen. Wood?

Mr. CLEVELAND. Whether it was due to our report or not, the change in method which enabled them to accomplish that end was identical with our recommendations, and the changes of method effected are those that have been fought from start to finish by persons who have been maintaining these methods through the last half century.

The CHAIRMAN. Those methods were established by order of Secretary Lamont in 1894.

Mr. CLEVELAND. But it was very largely in use before that time; that is, a considerable part of it was in use before that time.

The CHAIRMAN. It was modified and emphasized and an order issued in 1905, when Mr. Taft was Secretary of War, that it must be rigidly enforced.

ORDERS.

WAR DEPARTMENT, Washington, D. C., May 15, 1894.

I. BUREAUS AND OFFICERS.

(1) The term "Chief of Bureau," as used hereinafter, or as used in any prior or subsequent order, shall be construed to mean the chief officer of each of the several departments, corps, and offices of the War Department and Army, and the term "Bureau" shall in like manner be construed to refer to the office establishment in Washington, D. C., of such officer.

(2) There shall be one officer in each bureau as an assistant to the chief officer in the transaction of administrative business.

(3) There may also be in any bureau, with the approval of the Secretary of War, a second officer whose duties, in addition to such as may be assigned to him by the chief of the bureau, shall include the carrying into effect of the provisions of these

orders, and no additional officer will be attached to any bureau except by the special order of the Secretary of War.

(4) Chief clerks shall twice each day personally supervise the work going on in each room occupied by the several divisions of their respective bureaus in the State, War, and Navy Building.

II. DIVISIONS OF BUREAUS.

(1) The bureaus shall have divisions as follows:

(a) Those containing not more than 25 clerks shall not have more than two divisions. (b) Those containing from 25 to 50 clerks, inclusive, shall not have more than three divisions.

(c) Those of more than 50 clerks shall not have a greater number of divisions than one for each additional 50 clerks.

(2) Of such divisions two shall consist of

(a) A mail and record division, the business of which shall include the receipt and mailing of all communications, and the press-copying of letters in answer to the same, and

(b) A correspondence and examining division, the business of which shall include the drafting of correspondence and the examination of all accounts and returns, or other like subjects; but the two divisions may be consolidated.

(3) No business above named as pertaining to the two divisions referred to shall be performed in any other division.

(4) Any additional divisions that may be needed, within the limits prescribed above, in any bureau shall be named and their duties defined by the chief of the bureau, and report of such action shall be made to the Secretary of War on June 15, 1894.

(5) There shall be no subdivisions of such divisions, nor branches, or other system of divisions than those above referred to in any bureau containing less than 150 clerks. (6) The foregoing divisions shall be made upon the basis of the clerical force in the several bureaus, as the same will be constituted after the transfers hereinafter directed shall have taken place.

III. TRANSFERS.

The following transfers are hereby directed:

(1) To the office of the Secretary of War, or divisions thereof, viz:

(a) All libraries or parts of libraries, or collections of photographs in the State, War, and Navy Building, of any bureau of the War Department not used in the adminis trative work thereof, to the War Department library.

(b) All rooms in any bureau of the War Department in the State, War, and Navy Building used for carpenter purposes, together with the contents thereof and the mechanics employed therein, to the Supply Division.

(2) To the Record and Pension Office, viz:

(a) The Confederate Archives Division and subdivision of The Adjutant General's Office.

(b) Such records of the Returns Division of The Adjutant General's Office as pertain wholly or in part to the volunteer forces of any war.

(c) Such records of the Appointment, Commission, and Personal Branch of The Adjutant General's Office as pertain wholly or in part to the volunteer forces of any

war.

(d) All special and general orders, or copies thereof, relating wholly or in part to the volunteer forces of any war.

e) All records, files, books, manuscripts, orders, returns, or correspondence in any bureau that pertain exclusively or principally to the volunteer forces of any war, or the officers and enlisted men thereof.

(3) To The Adjutant General's Office, viz:

(a) Military records of discontinued commands, armies, divisions, departments, and posts pertaining exclusively to the Regular Army, and now in the Record and Pension Office.

(b) The register of cadets, or other records pertaining to the United States Military Academy, now in any other bureau.

(4) To the Judge Advocate General's Office, viz:

(a) All original deeds and papers pertaining to the title, or any lease, grant, license, or easement of, upon or over any military reservation, and all other lands owned by the United States under the jurisdiction of the War Department.

(b)_Record books of deeds, opinions of Attorneys General and of the Solicitor of the War Department in the office of the Secretary of War.

e) All papers pertaining to the sale of military reservations of public lands under the jurisdiction of the War Department.

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(d) Hereafter when any similar papers come into the possession of any bureau they shall within five days thereafter be transferred to the office of the Judge Advocate

General.

(5) The foregoing transfers of divisions shall include the rooms occupied by the same, respectively, the desks and other furniture, and the clerks and other employees who were engaged in the work thereof on May 1, 1894; and with the transfer of records, orders, and papers specified in paragraphs designated as "b" and "c" of section 2 above there shall also be transferred one clerk in each of the divisions from which such transfer is made who is familiar with such records, orders, and papers.

IV. FURNITURE AND SUPPLIES.

(1) All furniture not needed for immediate use, including all copying presses, bookcases, and other articles rendered unnecessary by reason of any provision of this order, shall be sent to the Supply Division of the War Department.

(2) The doors between rooms of the same division shall be removed and stored. (3) The names of the several divisions shall be placed over the principal entrances thereto, and all other signs pertaining to divisions shall be removed.

V. RECORD OF CORRESPONDENCE.

(1) There shall be three files for the purpose of containing the records of the correspondence of each bureau, as follows:

(a) A "Record card file," which shall contain in ink in respect to each case an abstract of the communication and a record of all office action taken upon it, including the memoranda and reports of searchers, examiners, reviewers, and all others through whose hands the case may pass.

There will also be included a draft or literal copy of all important communications of the bureau relative to the case, but an unimportant communication or routine letter or indorsement may be recorded by synopsis only.

The record cards shall be numbered from one forward continuously, and shall be filed in numerical order.

When the space on any one record card is insufficient to contain the entries pertaining to the case which the card represents, one or more slips of the same size as that of the record card will be attached to it.

(b) A "Card index file," which shall contain a card bearing the name of the writer of each communication received, and one or more cards referring to the persons or subject matter therein mentioned.

The index cards will bear numbers corresponding to those of the record cards, but will be filed in alphabetical order.

Where many communications are received daily from the same official of the Government the name of the writer need not be indexed if it is found that the index of the subject of such communication answers all practical purposes.

(c) A "Document file," which will also be numbered consecutively, and with numbers corresponding to those of the record cards and index cards, in which will be filed the original documents or communications in each case, together with press copies of any letters of the bureau relating to the same.

If the original communication shall not be retained in the office, the record card must show that fact.

The papers pertaining to any case in this file will be contained in an envelope if practicable.

(d) The record cards and index cards used in the files above mentioned shall be of the uniform size of 8 inches long by 31 inches wide, and shall be written across the width.

(2) Precedent file.--The record cards in cach case, after the same shall have been disposed of, shall be referred to a clerk, who shall prepare therefrom “precedent cards" showing the nature of the case and the action taken thereon, provided his "precedent file" contain no card showing similar action.

(3) The method of recording the action taken upon each item of business, in respect to which a record is necessary, shall be as follows:

(a) The mail clerk, upon receiving the mail, shall place with each new communication of sufficient importance to be recorded, a blank record card and a blank index card.

(b) The case thus prepared shall be passed to the briefing clerks, one of whom shall immediately brief the communication, if not already briefed, and shall enter upon the record and index cards the name of the writer and a brief synopsis of the communication.

The briefer shall also prepare such additional index and cross-reference cards » may be necessary to index the communication thoroughly.

As soon as briefed the case shall be passed to the numbering clerk, by whom the original communication, all its inclosures, and the record card and index and cross-reference cards shall be stamped with the same number and date of receipt and the name of the office.

The numbering clerk shall withdraw the index and cross-reference cards, having the record cards with the cases.

The cross-rference cards will be immediately placed on the alphabetical index fe, but the index cards will be arranged in numerical order and retained on the desk of the tally clerk until the case represented by them shall have been disposed of. The case, including the record card, which must invariably accompany it until it is disposed of, will next be passed to the clerk in charge of the index file, who will search the same for previous action.

(g) If the index file discloses that any previous action has been taken, the corresponding record card or cards will be taken from the record-card file and placed with

the case.

If but one record card is found the old and the new card will be connected by writing the number of each upon the other.

If more than one old record card is found, the oldest and the new card will be thus connected.

A temporary "charge card" will be substituted for each record card thus taken from the file, and will be allowed to remain therein until the record card shall have been returned.

(h The case will next be sent, if necessary, to the clerk in charge of records of correspondence antedating the present system. Here search will be made for any prior action in the case, and if such record is found a proper notation will be placed upon the record card accompanying the case.

Any previous papers that may be found and that may be pertinent to the case should be placed with it.

A temporary "charge card" should be substituted for the papers thus removed. The case will next be sent to the division or divisions in which it is to be investigated, and the answer prepared.

(The draft of the answer may be sent for approval or alteration to the officer who is finally to decide the case.

The draft, after approval, shall be passed to a typewriter or copyist, who shall make a fair copy of the draft.

The letter, after having been compared with the draft, will then be sent to the proper official for signature.

Before the approved draft is sent to the copyist the papers that are to be retained on the files of the office will be sent to the document file.

(2) After being signed the letter will be press copied, and the press copy will be sent to the document file to be placed with the original papers.

(The letter, accompanied by its record card, will next be passed to the dispatch clerk, who will withdraw the record card, place the letter in an envelope, address and mail the same.

(0) The record card or cards will be passed to the tally clerk.

(p) The record card will then be stamped with the date of the disposition of the case. (4) One, or any greater number of the steps to be taken in the course of action upon a paper as above described, may be taken by the same clerk.

(5) At least once each day all record cards that have accumulated upon the desk of the tally clerk will be tallied with the index cards that have been awaiting them

there.

The corresponding index cards will be stamped with the date of the disposition of the cases which they represent, and will be filed in the alphabetical index file. The record cards will be filed in numerical order in the record card file.

(6) If for any reason a letter has been written without a draft or synopsis thereof having been entered upon the record card the press copy may be sent, immediately after mailing the letter, to a copyist, by whom it shall be copied, or a synopsis of it entered upon the corresponding record card.

(7) The index cards remaining untallied at the close of the day upon the desk of the tally clerk will show what cases have not gone out of the office.

(8) Temporary duplicates will be made of the index cards remaining untallied at the close of the day. These duplicates will be immediately placed upon the alphabetical index file and will remain there until the cases represented by them shall have been disposed of

When this shall have been done the original index cards will be placed upon the alphabetical index file in place of the temporary duplicates, which will be withdrawn and destroyed.

(9) Each entry made upon any record card shall be authenticated by the initials of the person making the same.

(10) When the record cards pertaining to any particular case or subject exceed three in number they shall be brought together and be placed in an envelope, which shall be filed under the lowest number of the series of cards contained therein.

All the numbers of the series will be entered in order, the lowest at the top, upon

the envelope.

Reference cards will be filed under all the numbers which have been made vacant by the consolidation of the cards.

(11) The three files, record cards, index cards, and documents, shall be kept, if possible, in the same room or adjoining rooms,

(12) The series of numbers commenced under this system of record keeping shall be continuous and without break for any new year.

(13) Not more than one initial shall be used for the authentication of letters submitted for official signature. This initial shall be as small as practicable, shall be placed in the upper right-hand corner of the paper, and shall be such as to identify the clerk who is responsible for the letter to the official who is to sign the same.

(14) When the papers in any case are sent out of the bureau on request or for information pending final action in the case a card indicative of that fact shall be placed on a "suspended file," which shall be examined daily, and cases not returned within ten days shall be traced and the reason for their detention ascertained.

Such action shall be repeated with respect to any case every ten days until the papers have been again received.

(15) No record shall be made beyond a mere notation of the fact of receipt and disposition in respect to the following matters:

(a) All papers not pertaining to the business of the bureau at which received. Such shall forthwith be transmitted to the proper bureau for action. In exceptional cases the person from whom the communication has been received may be informed as to the disposition made of it by the bureau to which it was addressed.

(b) Accounts current, vouchers, returns of stores and property inventories, and inspection reports.

(c) Mere letters of transmittal, which shall forthwith be destroyed.

(d) Requests for and acknowledgment of receipt of publications and blanks. (e) Letters from persons evidently insane.

(f) All other communications of no permanent or historical value, and which are finally disposed of by the answers thereto.

(16) In cases where there is special need for haste a red card should be placed with the communication immediately on the same being put in the channel for examination and answer, and should not be withdrawn until the case is finally disposed of. (17) In all typewritten or printed communications quoted language exceeding one line in length shall be close-lined, and a paragraph shall indicate the commencement thereof, which paragraph shall terminate with the conclusion of such quotation. (18) Each different topic treated of in the same communication issuing from any bureau shall be separately numbered, but as a rule, to which there should be few exceptions, but one topic should be treated of in any one communication.

(19) Special attention shall be given to the matter of letter press copies, and no copy in any degree imperfect shall be filed, but shall be replaced by a perfected one. (20) No acknowledgment shall be made on receipt of routine reports or returns. But in case the same shall not be received within 10 days after due, a card of notification to that effect shall be sent to the officer from whom the same should have been received.

(21) Letters of transmittal shall hereafter be omitted, and in lieu thereof there may be noted on the outside of the envelope covering the inclosure and in the lower lefthand corner thereof the words ". inclosures."

(22) When a telegram is sent there shall be made two press copies, the one for retention and the other for transmission as a confirmation of the message, which last shall be made upon paper headed with the name of the bureau, and bearing underneath these words, "The following is a copy of a telegram sent you this day," and which last shall constitute a sufficient letter of advice upon the subject.

(23) No record shall be kept in any bureau or division respecting matters of which an established record or file is kept in any other bureau or division to which the matter covered thereby properly pertains, but information shall be obtained from the latter source on application therefor as occasion may require.