To M. D. D.

Whose Ideal Home and Friendship Give Courage for Truth and Endurance of Criticism

And Whose Spirit of Fairness, Belief in Co-Operation and Unselfish Energy Have Made Possible Many of the Improvements in New York City Which Have Resulted From This Study.

Preface

The employment agency is so vitally related to the home and to the business house, and concerns the unemployed so deeply, that this volume is addressed to them rather than to students and educators. In order that they may understand the conditions, although much of the material is technical, the author has omitted tables and statistical details, at the risk of being called unscientific. It is the patrons of agencies—the home-makers and practical business men—who can best establish standards and improve conditions, and if this study will bring the facts clearly to them, and will serve to arouse city officials and stimulate the public to a greater consciousness of social responsibility, the investigators will have received the highest compensation possible.

The investigation of employment agencies was first suggested in 1901, when the author was conducting a study of the women in the workhouse on Blackwell's Island. Their experiences with some agencies, and through answering advertisements for help, indicated that abuses were common, and that there was a real need for further knowledge. In the summer of 1902, this investigation was planned as a special piece of research work in connection with the New York Summer School of Philanthropy, but was extended to the cities of Boston, Philadelphia, and Chicago, under a fellowship from the College Settlements Association. The fellowship was renewed in 1903, and an extra appropriation was made for the completion of the study. In May, 1903, the author was called to New York City to make a special study of every agency, because of the many abuses which had been brought to the attention of Mr. James B. Reynolds, of the Bureau of Licenses. This comprehensive investigation was instigated and supported by members of the Woman's Municipal League of New York, and to their interest and co-operation is due its successful completion. To the chairman of the Legislative Committee of this League, Miss Margaret D. Dreier, must be accredited the enactment of the new State law regulating agencies, and much of the successful constructive work which has been started in New York City.

Co-operation has been the keynote, and time, money, and energy have not been spared to make the investigation thorough and impartial, and the author is prepared to substantiate every statement, based, as it is, upon her own or her associates' experience and observation. For every agency visited — and there were 732— there is a record, affidavit, or other documentary evidence, and whenever opinions are given, an attempt is made to distinguish them from facts. If undue emphasis seems to be placed upon the evils, it is not due to a desire to be unfair, but is proportional to the need for improvement and regulation; for the attitude of the investigators toward the agencies is sympathetic rather than critical, and some of the most valued co-operators have been the honest employment agents. No further evidence of the existence of such agents is needed, than the fact that, together with the statement of conditions, the author is able to show improvements which have been started by them, since they have learned the facts. It is to their credit that they were not cognizant of many of the evils and could scarcely believe them, but it is more to their credit that in New York City, at least, they have organized and are determined to co-operate in enforcing laws and in raising standards.

This study is not the work of one individual, but of nine investigators. The author most appreciatively believes that the New York and Philadelphia study would not have reached its high degree of thoroughness and accuracy, without the co-operation of Miss C. M. Anderson, an investigator of high integrity and skill. The men employed to ascertain the moral conditions, a task at all times involving risk and skill, proved efficient and trustworthy, and the author is especially indebted to Mr. J. F. Maher and Mr. Michel Mandl. Many others have assisted with data, suggestions, criticisms, and good cheer, the last by no means an insignificant factor in a field oftentimes dark and forbidding. Among these has been Mr. Gino C. Speranza, whose contribution upon the Fadrone has proved invaluable. Any error in the presentation of facts, analysis, or recommendations is not to be attributed to any co-worker, but to the author.

F. A. K.
225 East Sixty-third St., New York City