REPORT OF THE SECRETARY. 89 



delays in the transaction of business; but it had also in view the 

 ultimate reshifting of much of the responsibility and the work then 

 removed from Washington, out of the district offices to the Forests. 

 To insure the application of proper technical methods and the set- 

 ting of proper administrative standards, it was at first necessary to 

 place in each district a considerable force of well-trained men. It 

 was also necessary at the outset to provide for maintaining a con- 

 siderable oversight of the district offices from the Washington office. 

 Gradually the work of supervision both in Washington and in the 

 districts has grown lighter, and the personnel changes thus made 

 possible have reduced the overhead supervisory force by a third or 

 more. A large part of these changes took place last year. 



The study of costs and work standards and the effort to increase 

 efficiency through better organization, more careful definition of 

 the ends to be sought and the methods to be followed, and better 

 time and output records has been taken up with enthusiasm by the 

 rangers and supervisors as well as in the districts. Plans are being 

 developed in many places for making the field work, and especially 

 the work of the rangers, more effective. I believe that it would be 

 difficult to find in any branch of the Government more energetic 

 and loyal effort to develop and apply the methods which will mean 

 the largest possible return in work accomplished for the money dis- 

 bursed than now permeates the Forest Service. 



ADMINISTRATIVE POLICY. 



The act of June 4, 1897, which gave authority for the adminis- 

 tration of the National Forests, also plainly indicated that Congress 

 intended the reservations to be maintained, protected, and improved 

 for the public benefit, and at the same time to be opened to use as 

 public utilities, under regulations framed to conserve their pro- 

 ductive value. The principal task involved in giving effect to the 

 purpose of Congress with respect to the National Forests is that of 

 developing their use. Their primary uses are to produce continuous 

 supplies of timber and to regulate the flow of water. Subordinate to 

 these uses, yet of large importance, are their use for grazing, for 

 recreation, and for many kinds of occupancy. The regulation of 

 use for these subordinate purposes must be so adjusted as not to 

 prevent the carrying out of the primary purposes for which the 

 Forests were set aside, while enabling the public to secure from them 

 as many advantages as possible. 



From the time that the National Forests were placed under my 

 jurisdiction I have administered them with a view to the develop- 

 ment of their largest public usefulness. Up to the time that they 

 were taken over, little constructive work had been done. As they 



