Part 10

The munificent recognition of the fair by the General Government attracted national attention. The invitation extended by the President of the United States, under authority of law, to the nations of the earth to participate in the exposition, supplemented by the cordial cooperation of our diplomatic and consular representatives abroad, secured the most extensive foreign participation ever accorded to any like undertaking. Moved thereto by the example of the National Government, the States, Territories, and dependencies of the United States joined in the exposition with unparalleled generosity and enthusiasm. The groups of palatial buildings erected by the foreign governments and by the States and minor subdivisions of our country, together with the exhibits installed in the exhibition palaces provided by the company, bear the amplest testimony of their earnest desire to make the exposition a pronounced success. The splendid exhibit installed here by the government of the Philippine Islands rises to the proportions of an exposition on its own account.

The buildings are completed, the exhibits are installed, and the exposition has been in progress for substantially three-sevenths of its allotted period. The faith of the management in the merits of the exposition has been justified by the approving judgment of all who have entered the gates; but the daily attendance has been far short of what it should be from any point of view.

Unhappily, the magnificent proportions and the numberless attractions of the exposition do not seem to be fully understood by the masses of the people throughout the United States, whence attendance must be chiefly expected. The results obtained from the territory commanded by the press of St. Louis warrants the belief that the unsatisfactory conditions prevailing would be overcome if the country at large could be adequately advised of what is to be seen, learned, and enjoyed within these grounds.

All the National, State, Territorial, and District governments participating in the exposition are quite as much interested as the company in the diffusion of knowledge concerning the merits of the exposition and securing the attendance of the largest number of people who may find it possible to enjoy the benefits and the pleasure of a visit to the grounds. It appears to the Commission that the company may well call to its aid the forces referred to. The details through which publicity may be widely extended might wisely be made the result of a conference by a committee made up of persons appointed by the Exposition Company, the National Commission, and the representatives of Governments, States, Territories, and Districts having duly accredited commissioners appointed to represent them. It is probable that such a conference would find the representatives of each Government, State, and District anxious to cooperate by furnishing detailed information along well-considered lines concerning the participation of each in the fair. For example, the people of New York will be interested in a well-prepared description of the exhibits of that State, whereas the same subject-matter would not be of like interest to the people of California; but, on the contrary, the people of California would be interested in a graphic description of California exhibits.

The newspapers of the respective States will, without doubt, cheerfully give space to descriptive matter directly relating to the exhibits and achievements of their readers.

One instance has been called to the attention of the Commission where the names of visitors to the fair, registered at a State building, are being forwarded to the leading daily papers of the State, and published as a matter of news in their columns. The papers in question not only publish the list of arrivals at the exposition, but have called for any other matter of interest occurring here relating to the people or affairs of the State. This method of publicity pursued by the commissioners of one State might, as the result of conference, become generally adopted. The Exposition Company could well afford to aid and assist in the preparation of descriptive articles, accompanied by plate matter, relating to different localities, because it is evident that the creation of interest in any locality will contribute to the general purpose. But it is not the intention to here attempt to detail the many ways of securing merited publicity which would undoubtedly evolve from a general conference by representatives of all the interested forces.

The commissioners representing the various States and governments are persons of wide experience and broad intelligence; and they are all, in their respective spheres, undoubtedly as anxious to contribute to the success of the exposition as the directors and officers of the Exposition Company are known to be.

It is far from the intention of the Commission to interfere with the operation of any of your own matured plans; but it is respectfully submitted that the failure of expected and necessary attendance at the exposition is a matter of such supreme importance as to warrant the employment of every available force connected with this enterprise in the work of calling public attention to the exposition through the press of the whole country, and such other agencies as may be suggested and adopted.

Very respectfully,

Thos. H. CARTER, _President_.

Hon. D.R. FRANCIS, _President Exposition Company, Building_.

The exposition management did not elect to avail itself of the cooperation of the National Commission in the matter of exploitation, but very shortly after the foregoing letter was delivered the advertising department became more active by advertising in the newspapers and by the use of billboards in St. Louis and the adjacent territory.

The National Bill Posters' Association, which met in St. Louis about this time, observing the inadequacy of the provision made for advertising, volunteered to cooperate with the Exposition Company by posting bills on their boards free of charge throughout an extensive area.

A cursory examination of reports of the daily attendance will show a very perceptible increase of receipts at the gates in consequence of the effort made about this time to call the attractions of the exposition to the attention of the people. Unhappily the exploitation work thus commenced was practically one year behind time. Undoubtedly the paid attendance at the exposition could have been very largely increased by an efficient system of exploitation initiated one year before the gates were opened and vigorously prosecuted until the close of the exposition.

In order to increase the attendance at the exposition, as well as to increase the revenues of the Exposition Company at certain periods, the National Commission at different times cheerfully approved the modifications of the rules proposed by the Exposition Company authorizing the sale of season tickets, also of special tickets for limited periods, at reduced rates. Such modifications proposed by the Exposition Company were in all instances, except one, approved by the National Commission substantially as proposed; but in one instance the Commission was impelled from a sense of its duty to the Government to decline to approve a rule proposed by the company providing for the sale of special coupon tickets good for 50 admissions to stockholders of the company only.

It is proper to say that prior to the submission to the Commission of the proposed rule, or modification of the rules, announcement had been made in the newspapers of St. Louis that such tickets would be sold by the company, and, in fact, the sale of the proposed tickets had already begun.

The following letter contains the proposal of the company to authorize the sale of such special tickets to stockholders only:

MAY 18, 1904.

DEAR SIR: I am directed by the executive committee of the Louisiana Purchase Exposition Company to inform the National Commission that the committee has approved the following resolution:

_Resolved_, That a ticket, photographic, nontransferable, having 50 coupons good for admission at any time during the World's Fair shall be sold to stockholders at the rate of $12.50; this privilege to continue to and including June 15, to be open to all who shall be stockholders up to and including that day.

I am directed by the executive committee to ask favorable action upon the resolution by the National Commission.

Respectfully,

WALTER B. STEVENS, _Secretary._

Mr. JOSEPH FLORY, _Secretary National Commission._

It was the opinion of the National Commission that the sale of the proposed tickets to stockholders alone at the reduced price proposed was in the nature of a dividend or pecuniary benefit in which the United States Government could not participate, and therefore contrary to law; and in view of the fact that the people of the United States had contributed through the Government appropriation for the exposition an amount of money equal to that which had been furnished by the stockholders of the company it seemed to the Commission that no special privilege respecting the purchase of tickets should be given such stockholders that was not given equally to all citizens of the United States.

This view was especially enforced by the consideration that stockholders of the company had subscribed for such stock in the belief that the citizens of the city of St. Louis would reap large local benefits from the holding of the fair in that city, while it was obvious that the other citizens of the United States could not in any degree participate in such benefits.

The Commission, believing that the sale of special coupon tickets at that time would increase the revenues of the company at a time when such increase seemed to be especially desirable, submitted to the company a modification of the proposed rule, as set forth in the following letter:

MAY 19, 1904.

DEAR SIR: I am directed by the National Commission to inform you that they have had under consideration the resolution contained in your esteemed favor of 18th instant, reading as follows:

"_Resolved_, That a ticket, photographic, nontransferable, having 50 coupons, good for admission at any time during the World's Fair, shall be sold to stockholders at the rate of $12.50; this privilege to continue to and including June 15, and to be open to all who shall be stockholders up to and including that day."

The Commission respectfully declines to approve the resolution as presented, but, being in hearty accord with the laudable purpose of the company to offer inducements tending to insure an extensive sale of admission tickets before the 15th of June, approves that feature of the resolution by modifying the same so as to read as follows:

"There shall be sold to the public up to and including June 15 at $12.50 a photographic, nontransferable ticket with 50 coupons thereunto attached, each good for one admission to the fair at any time prior to August 31."

In the judgment of the Commission the use of the tickets proposed should be restricted by a time limit, inasmuch as a failure to provide such a restriction would be equivalent to a reduction of admissions to 25 cents each. Moreover, limiting the time for use of the tickets, as proposed, would tend to stimulate attendance at the fair during the summer months.

The Commission is not insensible to the natural desire of the Exposition Company to give some privilege to the stockholders who subscribed to the capital stock of the corporation, but, while appreciating the generous motive of the executive committee, the Commission feels constrained to withhold its approval for the reason that approval thereof would, in the judgment of the Commission, violate the letter and spirit of section 20 of the act of Congress approved March 3, 1901, which, in so far as applicable, reads as follows:

"That there shall be repaid into the Treasury of the United States the same proportionate amount of the aid given by the United States as shall be repaid to either the Louisiana Purchase Exposition Company or the city of St. Louis."

The proposal to give to stockholders of the Exposition Company tickets of admission good until December 1 at half price confers upon the stock a special privilege not contemplated by the act of Congress, and is apparently in the nature of a dividend or pecuniary benefit in which the United States can not participate.

I am also directed by the Commission to say that if, in the opinion of the company, the best interests of the fair would be advanced by making the proposed tickets good for the entire time of the fair the Commission would view such action with favor, providing the price of the ticket should be fixed at $15.

Yours, very respectfully, JOSEPH FLORY, _Secretary_.

Mr. WALTER B. STEVENS, _Secretary Louisiana Purchase Exposition Company, Building_.

On May 23, 1904, a conference was held between the National Commission and a committee on conference appointed by the Exposition Company. At such conference the National Commission insisted that the proposed special coupon tickets be sold to the public, while the conferees on the part of the company urged the acceptance of the original rule proposed by said company, limiting the sale of stockholders only. Finally, upon the proposal of the conferees of the company, and in order to reach an agreement, the National Commission assented to a rule whereby the company should be authorized to sell such tickets to its stockholders, also to any person presenting an order from the National Commission therefor, as is set forth in the following copy of the conference agreement:

At a conference between the officers and members of the executive committee of the Exposition Company and members of the National Commission, held at the office of President Francis on Monday, May 23, it was agreed, after a full and free conference, that the disagreement existing between the Exposition Company and the Commission with reference to the sale of 50-coupon, photographic, nontransferable tickets to stockholders of the Exposition Company, at $12.50 each, on or before June 15, such tickets to be good during the period of the fair, was settled by the adoption of the following addition to article 5, to wit:

"That any stockholder of the Exposition Company, or any person presenting an order from the National Commission to the treasurer of the company, may, at any time prior to June 15, purchase for $12.50 one photographic nontransferable ticket with 50 coupons attached, each coupon good for one admission to the fair at any time on or before December 1, 1904."

To which addition to the aforesaid article 5 full assent was given by the company and the Commission.

D.R. FRANCIS, President, W.H. THOMPSON, Treasurer, FESTUS J. WADE, _Chairman Ways and Means Committee, Committee Representing Louisiana Purchase Exposition Co_.

Thos. H. CARTER, JOHN M. THURSTON, GEO. W. MCBRIDE, PHILIP D. SCOTT, JOHN F. MILLER, FREDERICK A. BETTS, _For the National Commission Louisiana Purchase Exposition_.

The Commission, desiring that the public should have the amplest opportunity to participate in the purchase of these special tickets at reduced rates, and in order that the knowledge of such privilege should have the widest publicity, addressed and sent to the Associated Press the following notice:

_To the Associated Press_:

Some days ago the Exposition Company proposed to issue a nontransferable photographic coupon ticket good for 50 admissions for the sum of $12.50, that amount being half rate. This proposal was disapproved by the National Commission, because deemed in the nature of a dividend on the stock. The Commission insisted that if the price of tickets was reduced in the manner proposed, they should be presented to the public for sale without preference as to purchasers. As the result of a conference it was agreed that the Exposition Company might sell to its stockholders nontransferable tickets at the rate of $12.50 each for 50 admissions, and that at the same time any person not a stockholder presenting an order from the National Commission to the treasurer of the company would be entitled to the same privilege. The Commission desires to announce that any person not a stockholder of the Exposition Company may, upon application to the Commission, procure an order on the treasurer of the Exposition Company for the delivery of one of the tickets referred to upon the payment of $12.50. The privilege of purchase can not be exercised after June 15. Applications for orders may be made in person or by letter addressed to the National Commission, Administration Building, St. Louis. Payment for tickets to be made to William H. Thompson, treasurer, Laclede Building, St. Louis.

JOSEPH FLORY, _Secretary_.

The sale of these tickets was larger than had been expected either by the company or the Commission, and that it was satisfactory to the company was indicated by its proposal, under date of June 7, 1904, to extend the sale of such tickets from June 15 to and including July 1, the price being increased to $15. This proposal was promptly approved by the National Commission, and the sale resulted in materially increasing the revenues of the Exposition Company.

JURORS AND AWARDS.

It will be perceived that rules and regulations governing the appointment of jurors and the awarding of premiums were presented by the company and adopted by the company and adopted by the Commission on May 2, 1903. These rules required that the nominations of all proposed jurors be submitted to the Commission on or before August 1, 1904.

Believing that the approval of the jurors by the Commission should not be merely perfunctory, but that the nominations should be scrutinized with care before approval, the Commission, on the 18th day of May, 1904, addressed the Exposition Company the following self-explanatory communication:

ST. LOUIS, _May 19, 1904_.

Hon. D.R. FRANCIS, _President Exposition Company_.

MY DEAR SIR: Inasmuch as objections may be urged to the appointment of certain persons upon juries of awards, it is the intention of the National Commission to give public notice, allowing reasonable time for the filing of any objections that may be offered to the appointment of any individual on the jury. As this proceeding will necessarily consume time, it is desirable that the names of persons proposed for the respective juries be transmitted to the Commission from time to time as the respective groups are completed by the company. It is believed that final action can be reached in a more orderly and satisfactory manner by taking up the names proposed for each jury separately rather than to have the entire membership of all the juries submitted for consideration simultaneously.

Yours, very respectfully, THOS. H. CARTER, _President_.

A communication on the same subject was addressed to the president of the Exposition Company on May 23, as follows:

MAY 23, 1904.

DEAR SIR: By direction of the Commission, I have the honor to call your attention to section 6 of the act of Congress making an appropriation for the exposition, and for other purposes, approved March 3, 1901, which provides that the appointment of all judges and examiners for the exposition shall be made by the Louisiana Purchase Exposition Company, subject to the approval of the Commission created by section 2 of the act.

Some days ago a gentleman reported to the Commission that certain jurors had been appointed and were actually discharging their duties as judges and examiners. This rumor seemed to the Commission utterly incredible, but this morning the director of exhibits confirmed the rumor informally by admitting that certain jurors had been at work for a considerable length of time in certain departments of the exposition.

The Commission does not desire to assume a position at all hypercritical, but I am directed to say that an utter disregard of provisions of the law can not be countenanced.

To the end that no question may arise concerning the legality or regularity of the action of any jury or board of examiners, I have the honor to request, in behalf of the Commission, that the names of jurors be forwarded to the Commission for consideration before there is any pretense to giving them authority to act.

Inasmuch as an infraction of the law has heretofore occurred according to the director of exhibits, I can but request that the names of the jurors who have heretofore been commissioned to act be forwarded for consideration without delay. We are not unmindful that free and full consideration of the names of persons thus empowered to act without full authority will be somewhat embarrassing in view of their having been employed for a considerable length of time before the Commission will have been advised of their designation by the company.

Yours, very respectfully,

Thos. H. CARTER, _President_.

Hon. D.R. FRANCIS, _President Exposition Company, Building_.

As indicated by correspondence hereinafter set forth, the company did not present the names of jurors to the Commission on or before August 1, and indeed did not advise the Commission of the names of many of the jurors until long after the time had elapsed for the performance of their duties.

After the group juries had performed their duties certain persons, feeling aggrieved by the awards made, undertook to appeal to the Commission for redress. The Commission disclaimed jurisdiction to consider the matter until the awards were submitted to it for approval. Upon inquiry growing out of these attempted appeals, it was ascertained by the Commission that the Exposition Company questioned the right of the Commission to inquire into or in any manner to pass upon the justice or regularity of any award made. The company having submitted certain proposed amendments to the rules and regulations, the Commission undertook by further amendments to settle the question as to the right of the company to refuse to submit awards made to the Commission for its approval, as required by law. The right of the Commission to even inquire into charges of fraud, bribery, or corruption in connection with awards the company steadily denied and never conceded.

In the records of the Commission filed with this report will be found charges under oath against a division chief, alleging that he was a party to negotiations for a bribe of $2,000 to be paid on the awarding of the grand prize to a certain manufactured article, and that when the matter was brought to his attention his only explanation was that he had declined to be the stakeholder or custodian of the money because of possible criticism in case the transaction should become public. This individual was a member of the group jury, a member of the department jury of his department, and a member of the superior jury.

The Commission felt that investigation of such serious charges was absolutely necessary to guarantee the integrity of the awards.

On October 18, 1904, Commissioner Allen, as acting president of the Commission, set forth the existing status of the case in a letter to Hon. D.R. Francis, president of the Exposition Company, reading as follows:

OCTOBER 18, 1904.

SIR: On October 11 the National Commission sent to the local company a communication suggesting certain amendments to an amendment to the rules and regulations governing the system of awards sent us by the Exposition Company. To date we have not received reply to the communication referred to, nor have we heard from your company, excepting a visit from Judge Wilbur F. Boyle, a member of your executive committee, who called on the Commission on Friday, October 14, in relation to this matter.