LETTER OF TRANSMITTAL. U. S. DEPARTMENT OF LABOR, CHILDREN'S Bureau, Washington, D. C., March 20, 1914. SIR: I have the honor to transmit herewith a compilation of laws relating to "mothers' pensions" in 22 States of this country, and in Denmark and New Zealand, together with certain notes as to their operation, and a bibliography. In 1913, more than half the State legislatures in session that year considered bills providing public aid for mothers of young children otherwise dependent. In 17 of these (California, Idaho, Iowa, Massachusetts, Michigan, Minnesota, Nebraska, Nevada, New Hampshire, New Jersey, Ohio, Oregon, Pennsylvania, South Dakota, Utah, Washington, and Wisconsin) "mothers' pension" laws were passed; in 2 (Illinois and Missouri), existing laws were revised and amended; in Oklahoma the "school scholarship" provision was reenacted in the revised school law; while in California and New York laws were passed providing for commissions to study the question of "mothers' pensions." In 6 other States (Arizona, Connecticut, Indiana, Kansas, North Dakota, and Tennessee) bills were under consideration, but failed of passage. One additional State (Colorado) had adopted a mothers' compensation act" at the November election, 1912, which became effective January, 1913. There are now in operation in 21 States (including Oklahoma) laws providing aid to mothers in varying sums and under varying conditions. The earliest of these laws were secured in 1911. 66 Thus it will be seen that in two years there has come into existence in States embracing half the population of the country a type of legislation whose purpose is admittedly uniform, namely, to secure for young children home life and the personal care of a good mother. No one quarrels with this purpose. On the other hand, the opinions of experts on social betterment do not agree as to the wisdom of trying to secure this purpose through so-called pension legislation, as will be seen by an examination of the discussions referred to in the attached bibliography. The methods and standards prescribed in the different States vary. It is impossible that all should prove equally valuable in serving their common purpose. At the present time it is impracticable for this bureau to undertake any field study of the operation of these laws (even were it not premature), but in view of the immediate legislative importance of the matter and of its various bearings, it is believed that the following compilation of American texts, together with the New Zealand law passed in 1911 and a translation of the Danish law passed in 1913, added for purposes of comparison, will prove timely and useful. The bibliog raphy, while not exhaustive, contains most of the significant recent material. The preparation of the bulletin is the work of Miss Laura A Thompson, librarian of the bureau. Respectfully submitted. Hon. WILLIAM B. WILSON, Secretary of Labor. JULIA C. LATHROP, Chief. INTRODUCTION. HISTORY OF "MOTHERS' PENSION" LEGISLATION IN THE UNITED STATES. The earliest of the laws providing for the care of dependent children in their own homes out of public funds was that of Missouri, approved April 7, 1911, which provided for an allowance to mothers "whose husbands are dead or prisoners, when such mothers are poor and have a child or children under the age of 14 years." This law went into effect in June, 1911. By a population limitation it was made applicable only to Jackson County, in which Kansas City is situated. In the same year, following upon the report of a municipal commission on delinquent, dependent, and defective children in St. Louis, a law was passed whereby St. Louis was given power to establish by city ordinance a board of children's guardians, with authority to board out children to their own mothers. Such an ordinance was passed by St. Louis in July, 1912. In Illinois in the same year a similar but more comprehensive "funds to parents act" was passed on June 5, 1911. This law, which went into operation on July 1, 1911, provided that— If the parent or parents of such dependent or neglected child are poor and unable to properly care for the said child, but are otherwise proper guardians and it is for the welfare of such child to remain at home, the court may enter an order finding such facts and fixing the amount of money necessary to enable the parent or parents to properly care for such child, and thereupon it shall be the duty of the county board, through its county agent or otherwise, to pay to such parent or parents at such times as said order may designate the amount so specified for the care of such dependent or neglected child until the further order of the court. The next State to legislate on the subject was Colorado, which adopted by popular vote the "mothers' compensation act" submitted by petition at the November election in 1912. This law, which followed in general the provisions of the Illinois funds to parents act, became effective, upon proclamation of the governor, on January 22, 1913. For many years the State of California, under section 22 of article 4 of the constitution, has allowed to institutions for the care of dependent orphans the sum of $100 per year, and for dependent half orphans and abandoned children the sum of $75 per year. Prior to 1913, in the absence of any law specifically authorizing grants from public funds for the maintenance of dependent children in their own homes, such aid was being given in San Francisco, Los Angeles, and elsewhere under a liberal interpretation of section 21 of the juvenile court act, which permits the court, in the order providing for the care of a dependent or delinquent child, when the parent is unable to pay for the maintenance of such child, to direct that an amount not exceeding $11 a month be paid out of the county treasury. Wherever it seemed desirable, the private charitable organizations which accepted the commitment of the children permitted them to remain in their own homes, giving to the mother the amounts ordered by the court. Semiannually the counties then made demand on the State for the amounts expended in behalf of half orphans within the limits prescribed by section 22 of the constitution. The law of 1913 authorizes the payment of this State subsidy for the maintenance of half orphans in their own homes, together with a like amount out of local funds. In Wisconsin, also without definite State enactment, the practice of granting public aid to poor mothers for the care of children in their own homes had been started in Milwaukee County under a resolution of the county board of March 26, 1912, which set aside a special fund of $5,000 to be used under the supervision of the juvenile court of Milwaukee in giving financial assistance to the families of dependent and neglected children, instead of committing the children to the Milwaukee County Home for Dependent Children. The law passed in 1913 authorizes such aid in all counties of the State and makes a State appropriation to meet half of the expense. Several of States in their compulsory education laws have made provision for furnishing books and clothing to poor children who must by law attend school. The laws of two of these States, Oklahoma and Michigan, are here included, because they differ from the usual type of school-aid laws in that they make provision, in addition, for the payment of money for the support of the children. The Oklahoma law, first enacted April 10, 1908, provides for a "school scholarship," equivalent to the earnings of the child, to be paid by the county, upon recommendation of the school authorities, to children of widowed mothers when the earnings of such children are necessary to the support of the mother. The Michigan law, passed April 29, 1911, provides for the payment, out of school funds, of a sum not exceeding $3 a week to enable children of indigent parents to attend school. In 1913, of the 42 State legislatures in session, 27 had before them bills providing for the support of dependent children in their own homes out of public funds. Illinois completely revised its law of 1911, incorporating into it the regulations found necessary in the |