Departments of the Landing Depot (1870)

A description of the several departments, among which the various duties are divided, will give an idea how business has been and is now carried on at Castle Garden.

I. The Boarding Department.—On arrival at the Quarantine Station (six miles below the city),^[1] every vessel bringing emigrant passengers is boarded by an officer of this department, stationed there for the purpose, who ascertains the number of passengers, the deaths, if any, during the voyage, and the amount and character of sickness, examines the condition of the vessel in respect to cleanliness, and receives complaints, of which he makes report to the General Agent and Superintendent at Castle Garden; he remains on board the ship during her passage up the Bay [New York Bay], to see that the law prohibiting communication between ship and shore before emigrant passengers are landed is enforced. On casting anchor in the stream, convenient to the Landing Depot, he is relieved by an officer of the Metropolitan Police force, detailed at the Castle Garden, and the passengers are transferred to the care of

II. The Landing Department, under the supervision of which the Landing Agent proceeds with barges and tugs, accompanied by an Inspector of Customs, to the vessel. After an examination of the luggage, it is checked, and the passengers, with their luggage, are transferred to the barges and tugs, and landed at the Castle Garden pier. On landing, the passengers are examined by a Medical Officer, to discover if any sick have passed the Health authorities at Quarantine (who are thereupon transferred by steamer to the hospitals on Ward’s or Blackwell’s Island), and likewise to select all subject to special bonds under the law—as blind persons, cripples, lunatics, or any others who are likely to become a future charge. This examination being ended, the emigrants are directed into the Rotunda, a large-roofed circular space in the centre of the Depot, containing 50,000 square feet, and with a dome in the centre for ventilation, about 75 feet high, with separate compartments for English-speaking and other nationalities, to

III. The Registering Department, where the names, nationality, former place of residence, and intended destination of the emigrants, with other particulars, are taken down, thus forming an interesting record for future reference. The passengers are then directed to

IV. The Agents of the Railroad Companies, from whom they can procure tickets to all parts of the United States and Canada, without the risk of fraud or extortion to which they are subjected outside of the Depot. In the meanwhile, the baggage and luggage are stored east of the Rotunda in the baggage-room. The old accommodations being insufficient, a new baggage-room was built in 1869. The necessity for this improvement had one been felt, the old room not having anything like the proper capacity to contain the immense quantity of baggage, which numbered at times 7,000 pieces. The new building, which was finished in October, 1869, at cost of nearly $75,000, is 200 by 350 feet, and is amply sufficient to accommodate 15,000 pieces of baggage. The very perfect system by which the thousands of trunks and boxes are distinguished and delivered safely to their respective owners is well worthy of explanation. A brass ticket, with any letter of the alphabet from A to F inclusive, and a number from 1 to 600, is delivered to the emigrant on landing, and a duplicate fastened on his piece of baggage. The trunk or box is then placed in the baggage-room. This room has six bins, designated by the letters A, B, C, D, E, F, and each bin has six hundred numbers. Accordingly, when the emigrant produces his ticket, a baggageman at once goes to the bin indicated by the letter and number on the ticket, and delivers the baggage required. In case of necessity, all the letters of the alphabet can be used in a similar way.

The emigrants destined inland, on delivery of their check, take their baggage to the weigher’s scales. After having been weighed and paid for, it is sent free of charge to the depot of the railroad or dock of the steamboat by which he leaves. Such emigrants as design remaining in the city and vicinity are directed to

V. The City Baggage Delivery, which ascertains the address to which the emigrants may desire to have their luggage sent, and takes their orders, exchanging the brass check received from the Landing Agent, on shipboard, for a printed paper one. The luggage is then promptly delivered in any part of this city and vicinity at a moderate rate of charges, approved by the Commission. At the same time, those having gold or silver which they may wish to have exchanged for United States currency are directed to one of three

VI. Exchange Brokers, admitted into the Depot, who changes their specie for a small advance on the market rate, which is set forth in a conspicuous place under the observation of the emigrant, the daily fluctuations in rates being duly noted.

These last three departments are conducted by responsible parties, who, while not officers, are nevertheless under the close and constant supervision of the Commission, and are required to keep a record of all transactions, subject to the inspection of any member of the Board.

VII. The Information Department.—When the foregoing operations are completed, the emigrants are assembled in the Rotunda, and an officer of the Commission calls out the names of those whose friends attend them in the waiting-room at the entrance of the Depot, and to whom they are directed. At the same time are called out the names of those for whom letters or funds are waiting, which are then delivered to the proper owners through the Forwarding Department. Emigrants who desire to communicate with friends at a distance are referred to

VIII. The Letter-Writing Department, where clerks, understanding the various Continental languages, are in attendance to write; the emigrant, while waiting a reply, if destitute, finds a home in the institutions at Ward’s Island.

IX. Boarding-House Keepers, licensed by the Mayor and properly certified as to character by responsible parties, are admitted to the Rotunda after the foregoing business has been completed, to solicit for their respective houses such emigrants as desire to remain in the city for any length of time. These boarding-house keepers are subjected to careful supervision and to certain regulations, which will be be found in the Appendix^[2], and every precaution is taken to guard the emigrant against the abuses and imposition to which he was formerly liable.

X. The Forwarding Department receives, through the Treasurer, all communications and remittances from friends of emigrants, sent either before their arrival or in response to letters written by the Letter Department, and applies them to the purchase of tickets. The amount of money and orders for passage received and disbursed through it will be found under the head relating to the Treasurer’s duties [see section XIV below].

XI. The Ward’s Department receives all applications for admission to the Institutions, and examines the records, to ascertain the right of the applicant to admission. It also keeps the records of all daily admissions to, and discharges from, Ward’s Island, and examines the records in all cases of claims for indemnity from the several counties of the State for emigrants chargeable to the Commission who may have received aid or support in such countries. Attached to this Department are two physicians, whose duties are to examine all sick and destitute applicants for relief, and to visit all such at their residences in this city, and report to the General Agent.

XII. The Labor Exchange.—A Labor Exchange was first established in 1850. The increasing number of persons demanding the aid and advice of the Commissioners, and the widely extended knowledge of their arrangements for the disposal of laborers, made it necessary to hire, in December, 1850, a large double building, Nos. 25 and 27 Canal Street, at which place emigrants desiring work, and persons desiring laborers, found ample opportunity for meeting their wants; while, prior to that time, useful employment and means of self-support had been procured to over 8,000 emigrants. Proportionably a far greater amount of service was rendered to them with the additional facilities afforded by the Canal Street establishment. Thus, in 1851, not less than 18,204 emigrants were provided with opportunities for self-support in such kind of labor as their previous habits best qualified them to perform. In 1862, 14,973 persons were provided with places or employment; but in the course of years this institution dwindled down to a mere intelligence office for city servants. During the seven years from 1860 to 1866, the number of females who found employment as servants through the Castle Garden agency amounted to 40,222, that of males to only 10,224.

In 1867, at the suggestion of Commissioner Philip Bissinger, the office was revived and re-established in its original condition. The present Labor Exchange is a spacious and well-arranged building, and was erected during the latter part of the year named. It is a one-story building, 80 by 52 feet, with a large ventilator in the roof, thus furnishing an ample supply of fresh air and light, and, being situated on the additional ground added to these premises in 1867 by permission of the public authorities, it is easily accessible without disturbing the arrangements of the landing depot.

In the centre of the floor, a sufficient space has been railed off, and reserved for officers and for use of employers. On one side are seated the male emigrants, and on the other side the females, thus securing a separation of the sexes. These again are subdivided, according to their several occupations and the length of time they have been here, and also into those with and without references. Each emigrant on entering is requested to enter his or her name, ship, date of arrival, and character of employment; while every employer is required to enter his or her name, residence, recommendations, references, and description of labor wanted.

This Labor Exchange furnishes an intelligence office without charge, for emigrants desirous of finding employment or service in the city or at a distance; and undertakes to supply all sorts of skilled mechanical and agricultural labor to employers in any part of the United States, who come with a proper guarantee of character and other necessary qualifications.

The Labor Exchange, since its reorganization, has existed for a period of only two years; but the result obtained in this comparatively short time is sufficient to prove its usefulness. In 1868, it procured employment for 31,143 emigrants, namely, 18,114 males and 13,029 females; and, in the year 1869, for 34,955 emigrants, namely, 22,844 males and 12,111 females. In these two years, there were among the males 4,311 and 5,594 mechanics respectively; while the balance of 13,803 and 17,250 respectively were agricultural and common laborers. Of the females, there were 474 and 438 respectively skilled laborers (seamstresses, cooks, laundresses, etc.), but 12,555 and 11,673 respectively were common house-servants. In 1868, 351 families were engaged, consisting of 1,551 persons, and, in 1869, 452 families, consisting of 1,232 persons.

Those who were employed represented, in 1868, fifteen, and, in 1869, sixteen nationalities. Irish and Germans were predominant. Of the whole number, there were, in 1868, 9,269 male and 11,975 female, Irish, Scotch, or English; and, in 1869, 11,703 males and 11,340 females, of the same nationalities. We find in the Germans and Swiss there were, in 1868, 8,034 males and 921 females, and, in 1869, 10,021 and 659 respectively; of Scandinavians, 414 and 78 and 477 and 75 respectively; Dutch, 6 males in 1868 and 62 males and 11 females in 1869. France, Italy, and Belgium sent 274 males and 35 females n 1868 and 39 and 7 respectively in 1869. As a curiosity, it may be stated that, in 1868, 6, and, in 1869, 8 Moors were engaged; they entered their names in Arabic letters.

Of the emigrants employed by the instrumentality of the Labor Exchange in 1868, 7,397 could not read or write, namely, 3,096 males and 4,301 females; and, in 1869, 7,139, namely, 3,498 males and 3,641 females. Among the 9,269 Irish, Scotch, and English engaged in 1868, there were 2,714 who could neither read nor write; and among the 11,703 individuals of the same nationalities in 1869, there were 3,058 unable to read or write. Among the 8,034 and 10,020 Germans and Swiss in the two corresponding periods, we find 279 and 321 respectively who could not read or write. Of the 23,315 Irish, Scotch, and English female servants engaged in 1868 and 1869, 7,682 could neither read nor write, and of the 1,825 females of other nationalities 260 were equally ignorant.

The States of New York and New Jersey in both years furnished employment to more emigrants than the rest of the United States together. As long as no means will be found to neutralize or avoid the difficulty and risks attending the transportation of laborers to more distant regions, this state of affairs will remain unchanged. In both years, the demand was much greater than the supply. Not the tenth part of the large orders for railroad laborers could be filled; and only a small part of the orders for farmers (Germans) and common laborers (Irishmen) could be responded to. Of the immigrant farm-laborers, only a small number remained in New York, the majority, and especially the well-to-do class, proceeding spontaneously to the Western and North-western States.^[3] Only a few German servant-girls asked for employment through the Labor Exchange.

It is very difficult, and at present impossible, to direct the European mechanic and laborer to the South, which has thus far tried in vain to attract immigrants, and this for the reason that most of the immigrants look out first for the place where they are sure of employment. Is is vain to tell them that many tracts of land are to be had cheap or even for nothing. Work is more attractive for them to land, at least at first. For the reason, and in consequence of the large settlements of Europeans there, the immigrant is attracted to the West and especially the North-west, where the fertile soil enables farmers to give ready employment to all the laborers that may present themselves.

This is the whole explanation of the continual flow of emigrant laborers into those regions. There is work there. It is to be found everywhere, work which they understand, work which they can perform, work sufficiently remunerative to warrant the expectation of a happy future. This advantage they are sure of finding only in the West and North-west. Once employed, they easily arrive at independence. By saving their monthly wages, they secure the means of attaining it, and when the proper moment comes they have learned by experience where to settle and what they must do to succeed. The matter is simple, and requires on the part of the Western States no exertion of thought or money. On examining the conditions offered by the South, we can easily detect the causes which put that section at a disadvantage as regards the supply of labor. A class of farmers ready to receive the laborers who may offer themselves is almost everywhere wanting, and nowhere more so than in the extreme Southern districts, where there are only great planters, whose modes of cultivation have no attractions for the immigrants. The European immigrant detests the work in gangs as much as the negroes like it. His individuality is overlooked, his self-respect impaired, and he is viewed as a mere unit in the mass. He seeks not the planter, but the farmer.

The great land-owners who hold large tracts of land wish to cultivate them as before without loss of time. To attain their object, they must always keep a sound stock of freed slaves, which daily becomes more difficult for them, as the number of laboring hands is continually decreasing.

What will happen under these circumstance may be inferred from what has been said. The inability of these large planters to procure the needed labor will cause them to be superseded in the course of time by small farmers, who will work themselves, and who will be able and willing to employ the white immigrants like the Western farmers.

A modest culture is required with two or three hands, living, in a patriarchal way, with the farmer’s family. Whenever that will be generally introduced, immigrants will come and remain, or, if they leave again, it will be to settle in the neighborhood. Farms should be laid out for the reception of European laborers, and it is upon the formation of these farms and the introduction of Europeans that the future of the South depends. Results more satisfactory to both the Southern people and the immigrants would no doubt be reached, if some such plan were pursued by other districts as that adopted by the district of Newberry, South Carolina.

Here an Immigration Society has been formed, under the auspices of Rev. T. S. Boinest, consisting of the most notable farmers and planters, who have raised a fund of $5,000 or $6,000 for the purpose of defraying the necessary travelling and other expenses of the European laborers they wish to employ. By this means, the society, though existing but two years, has induced about 400 immigrants to make the district (Newberry) their home, and according to the latest reports both the employers and employees are satisfied and content.

The society has appointed as agent, a European, Mr. F. W. Bruggemann, who is familiar with the character and wants of the immigrant, and forms the connecting link between the latter and their native employers, and to this circumstance is due the happy result of its efforts.

North of the Rotunda and adjoining it are the offices of the Commissioners. They consist of three rooms, occupying nearly the entire front of the building on the second floor, and include the offices of the General Agent and Treasurer, the Meeting-Room of the Board, and the General Agent’s private office.

XIII. The General Agent’s Office is a large vaulted room, the central one and largest of the three, in shape a parallelogram, extending on its longest axis east and west, and containing about thirteen hundred square feet. Here is transacted all the executive business of the Commission, complaints are heard and investigated, grievances remedied, and the general correspondence, except that relating to the Treasury Department, conducted by a force of several clerks, under the direct supervision of the Deputy Superintendent. To this officer the chief clerks of the various departments make their reports, which are by him laid before the General Agent, who bases his instructions upon them. The General Agent, who unites with these functions the duties of Superintendent, is the chief executive officer of the Commission—the centre and focus of all its business. He controls the interior working machinery of the Commission, transacts its outside business, and conducts its correspondence. He receives all communications to be laid before the Board, and acts generally as secretary at its meetings. He also supervises the inland transportation of emigrants, and his vigilance is constantly exercised to prevent the extortions and impositions in the way of overcharges and delays to which they are subjected. It is his office, moreover, to regulate advances on the luggage of immigrants, which are made from time to time out of the funds of the Commission to enable the owners to proceed to their destination. The business of the Commission before the Legislature is likewise attended to by this officer, in securing such amendments to the emigration laws as the experience of the Commissioners from time to time may suggest.

XIV. The Treasurer’s Department is conducted by the Treasurer, Mr. George W. Wheeler, who has most creditably occupied that position since the formation of the Board, and by two clerks under him. It is divided into various branches, having severally charge of correspondence, of the money affairs, and of the business with the various counties and institutions of the State.

A. Correspondence.—One of the clerks, under the authority of the Treasurer, receives daily from the New York General Post-Office all letters deposited in the box of the Commissioners of Emigration, comprising letters addressed to the Commissioners of Emigration; to the Treasurer, to the General Agent and other officers of the Commissioners of Emigration in Castle Garden; to the Castle Garden Railroad Agency, and its employees; to the Superintendent of Ward’s Island, and physicians, employees, and emigrant inmates of Ward’s Island; and to recently arrived or expected emigrants at Castle Garden.

The total number of letters received during the year 1869, including express packages containing remittances for emigrants, was 23,917.

All letters and express packages addressed to the Commissioners of Emigration, to the Treasurer, or to emigrants not in the institution on Ward’s Island, are opened and read or distributed, as may be necessary. Those containing money or other remittances for emigrants are retained in the “Forwarding Office,” a branch of the Treasurer’s Department. A daily record is made of all receipts under appropriate head, as follows: Number of remittance; date; amount; from whom received; for whom; name of vessel; nature of remittance; destination, etc.

Many remittances are received for emigrants after they have landed and left Castle Garden. Such remittances in due time are applied for by the sender, and returned immediately on application. Emigrants very often neglect to apply for remittances on hand, although duly notified that such are awaiting their call. Such remittances are also returned on application to the senders, either by mail or express, or to the parties in person who have made deposits with this department.

Its correspondence is large. In addition to that incidental to the return of uncalled-for remittances, replies are made to impatient senders of remittances for emigrants, who either have not arrived or have found employment from the Labor Exchange in Castle Garden, or perhaps are in hospital at Ward’s Island. The parties so employed and for whom remittances have been received and duly notified to call at Castle Garden for the purpose of being forwarded to destination. The sender is also notified of the whereabouts of his or her relative or friend, and of the time when it is probable he or she will proceed to destination. From August 27, 1860 (the date on which the business connected with this subject was transferred to the Treasurer’s Department), to December 31, 1869, the total number of remittances received for emigrants was 35,227, of an aggregate value of $481,955 21. The average value of each remittance received was $13 68. The following statement shows the increase of business in this one branch of the Correspondence Department:

B. Money Affairs.—The commutation fund, created and deposited according to law with the Chamberlain of the city of New York, is under the control of the Commissioners of Emigration, and is drawn upon semi-monthly by the Board, to defray current and other expenses of the Commission.

Supplies are furnished to the institution at Ward’s Island, on requisition of the steward, countersigned by the Superintendent of Ward’s Island, and approved by the Ward’s Island Committee.

The requisitions are filled by the authorized purchasers, who render original bills of all articles purchased.

Drugs and medicines are supplied on requisition of the apothecary, countersigned by the Physician-in-Chief, and approved by the Ward’s Island Committee. The requisitions are filled in the same manner as those of the steward.

The Treasurer receives from the steward and apothecary statements of all articles received by them on their requisitions. The bills are examined and compared with the statements, and all charges for articles not included in the statement are deducted.

Many articles and necessary supplies are furnished to the institution at Ward’s Island in addition to those called for on regular semi-monthly requisitions, such as flour, coal, meat, fish, etc., etc. All bills for these articles are sent to the Superintendent of Ward’s Island, and, if correct, are certified by that officer and the steward, and approved by the Ward’s Island Committee. These and all other bills for supplies, for work performed, and all claims on account of Ward’s Island and Castle Garden, are, previous to each semi-monthly meeting of the Commissioners of Emigration, submitted to the Auditing Committee, consisting of three members of the Board, upon whose approval they are presented to the Board of Commissioners, and ordered to be paid in the following manner: All bills and claims are numbered and entered in a book kept for that purpose. A warrant is drawn and signed by six Commissioners (this number constituting a majority and quorum of the Board), setting aside to the credit of the Vice-President of the Commissioners of Emigration, from the commutation fund in the hands of the City Chamberlain, a sum equal to the aggregate amount of these bills and claims. A check is then drawn to the order of each claimant (for the amount respectively due to him), signed by the Vice-President, and countersigned by one of the Commissioners of Emigration. Receipts corresponding with the number of the checks are taken by the treasurer in a book kept for that purpose.

C. Business with the Counties and Institutions.—Claims against the commutation fund for indemnity for expenses of emigrants who have become chargeable to any of the several counties of this State are made as follows:

The agents appointed by the Commissioners at Albany, Rochester, Suspension Bridge, Buffalo, and Dunkirk, or, where there are no such agents, the superintendent or overseer of the poor in the locality where a recently arrived emigrant asks relief or assistance, is required to render, under oath, to the Commissioners of Emigration, monthly bills, accompanied by an affidavit of the person who has received relief or assistance, in which the following facts have to be set forth, namely: Name and age of person; name of vessel in which such person arrived at New York; the name of the master of such vessel; last place of residence before coming to New York; and that he or she has no relations or friends in this country, able, at their own charge, to support him or her. This statement is compared with the record on file in the office of the Commissioners of Emigration, and, if correct, and the charge for relief reasonable and proper, the amount is allowed and paid to the superintendents or overseers in the same manner as other claims, except that payment for expenses of emigrants in the several cities, towns, and counties in this State is made but once during the year, namely, at the last regular meetings of the Commissioners of Emigration in the year.

Monthly bills for support and care of emigrants, accompanied by the necessary affidavits, are received (at present) from thirteen different charitable institutions and hospitals situated in the several cities of this State. These bills undergo the same examination and scrutiny as the county bills, and are paid quarterly. The total amount paid to the several counties in this State, including the city and county of New York, for care and support of emigrants, from the organization of this Commission, May 5, 1847, to December 31, 1869, was $994,279 92 [sic; $994,280 02; see p. 237], and to institutions and hospital, the sum of $168,371 96; making the total amount reimbursed to counties, cities, towns, and institutions, $1,162,651 98, as will more fully appear from the table in the Appendix [See p. 237].

Castle Garden is open both day and night. The regular business hours are from 8 o’clock a.m. to 5 o’clock p.m.; but, in cases of necessity, the employees are obliged to remain till ten, and even later. There are seven private watchmen and seven policemen, whose duty is to keep strict guard over the emigrants, and to preserve order and discipline.

The yearly rent of the Garden is $12,000. The buildings, furniture, and fixtures are insured at $50,000, and the baggage of the emigrants at $30,000.

The business of all the offices connected with the Staten Island Boarding Station and Castle Garden is performed by seventy-six officers and employees, from the General Agent to the night-watchmen. Together their yearly salaries amount to $82,894.