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1961

Annual Report

THE GOVERNOR OF THE

Virgin Islands
TO THE SECRETARY OF THE INTERIOR

- /^Aj For the Fiscal Year Ended

June 30, 1961

AMERICA

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UNITED STATES
DEPARTMENT OF THE INTERIOR
STEWART L. UDALL, Secretary

TERRITORY OF THE VIRGIN ISLANDS
Ralph M. Paiewonsky, Governor

UNITED STATES GOVERNMENT PRINTING OFFICE, WASHINGTON, D.C.

For sale by the Superintendent of Documents, U.S. Government Printing Office
Washington 25, D.C. Price 30 cents

Contents

INTRODUCTION AND HIGHLIGHTS OF THE YEAR .. ....
LEGISLATION . . . . . .
POPULATION OF THE VIRGIN ISLANDS . . .
OFFICE OF THE GOVERNMENT SECRETARY . . .
DEPARTMENT OF LAW ..................
VIRGIN ISLANDS PLANNING BOARD . . . .
OFFICE OF THE PROBATION OFFICER . . .
DEPARTMENT OF AGRICULTURE AND LABOR . . .
DEPARTMENT OF EDUCATION . . . .
DEPARTMENT OF FINANCE . . . . .
DEPARTMENT OF HEALTH . . . . .
DEPARTMENT OF PROPERTY AND PROCUREMENT ...
DEPARTMENT OF PUBLIC SAFETY . . ..
DEPARTMENT OF PUBLIC WORKS . . . ..
DEPARTMENT OF SOCIAL WELFARE . . . .
DEPARTMENT OF COMMERCE . . . .
SELECTIVE SERVICE . . . . .
VIRGIN ISLANDS EMPLOYMENT SERVICE . . .
MUNICIPAL COURTS . . . . .
CONCLUSION . . . . . .

1961 Annual Report of the

Governor of the Virgin Islands

Ralph M. Paiewonsky, Governor

ON APRIL 5, 1961, Hon. Ralph M. Paiewonsky was inaugurated
as Governor of the Virgin Islands succeeding Hon. John David
Merwin. A month later Hon. Cyril E. King was installed as Govern-
ment Secretary succeeding Hon. Roy W. Bornn. Both new appoint-
ees, as were their predecessors, are natives of the Virgin Islands.
In his inaugural address, the new Governor set forth these ob-
jectives:
(1) We must aim to make our domestic island life a more
abundant one;
(2) We must accelerate our economy;
(3) We must further advance our cultural, moral and spiritual
life; and
(4) We must make great progress politically.
In the short space of less than 3 months, progress had been made on
all these fronts.
Plans are nearing completion to extend the Harry S. Truman Air-
port in St. Thomas some 500 feet to accommodate turboprop planes
by the end of the calendar year 1961, as well as to pave the runoff
section of the Alexander Hamilton Airport in St. Croix to permit jet
planes to land within the next few months.
Priority attention was given distribution of Federal surplus com-
modities to public assistance clients (which had not been implemented
for several years) and the program is now in effect.
A College Conference of leading educators in the United States
was called for late July to discuss the best ways and means of starting
a college in the Virgin Islands.
A new territorial Department of Commerce was created to give
fresh impetus to moves needed to bring more business to the islands.
An economist and a legal consultant were employed in Washington
to make certain that all new plans to encourage commerce would be
implemented in a way which would not impinge on Federal laws,
regulations, and policies.
Decent, safe and sanitary housing for low and middle income fam-
ilies was emphasized as the number one problem of the Virgin Islands.
1

2 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

By the end of the fiscal year, 15.64 acres of land had been acquired in
St. Thomas for the Altona Community Development. This project
will consist of owner-occupied dwellings, street development, water
supply and other utilities, recreation facilities, and other related fa-
cilities essential to a suburban development. Families in the Altona-
Welgunst-Demarara area now living in substandard superficiary
houses will have the first priority to purchase a plot and home with
25 years to complete payment. Plans were also underway to lease
56 houses at Estate Body Slob, St. Croix, from the Virgin Islands
Corporation, to be renovated and used as emergency houses. A long
range plan of housing, urban renewal and community development
with assistance from the Housing and Home Finance Agency under
the Federal Housing Act of 1961 was in the preliminary stage at the
close of the fiscal year.
The Legislature's regular session in April-June 1961 was held in
the finest framework of mutual cooperation and understanding.
Many important laws were enacted, including a new civil rights act.

Departmental Highlights of the Year
Within the Office of the Government Secretary, a new real property
tax assessment program has been made effective with a scientific sys-
tem of real property appraisal and evaluation.
The Department of Finance reports total revenues for the fiscal
year 1961 at $8,872,113.16, an increase of 22.34 percent over the pre-
vious fiscal year, the highest in the island's history.
Within the Department of Commerce, a preliminary study revealed
that revenues derived from visitors would exceed last year's figures
by approximately 10 percent. Three new small industries were
established.
In the Department of Education, construction was started on two
new elementary schools in St. Thomas to eliminate overcrowding.
Within the Department of Health, polio vaccine was given to 97
percent of school children. A new clinical annex of the Charles
Harwood Memorial Hospital is nearing completion. X-ray facilities
were installed for the first time at the Frederiksted Clinic.
The Public Works Department is supervising the construction of
a number of public works projects including a large elementary school
in St. Thomas, a pier at Frederiksted, an abbatoir in St. Croix, and a
number of road projects in all islands. A vigorous plan for accelera-
tion of street cleaning and garbage removal and city beautification has
been placed in operation.
The Department of Social Welfare, in collaboration with the De-
partment of Health, instituted the Medical Assistance for the Aged

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 3

Plan providing complete medical care for all persons over 65 years
of age meeting eligibility requirements of this Federal program.
The Department of Agriculure and Labor served the farmers by
supplying seeds, seedlings, fruit trees, fertilizers and insecticides, land
preparation, marketing of farm products, and farm management.
The Department of Property and Procurement issued awards on
major construction projects with total value in excess of $4 million.
The Department of Public Safety conducted a police training
school for a large number of recruits from all islands and instituted
a policy of transferring personnel from one district to another. A
traffic bureau was created and continued a vigorous campaign against
traffic violators.

Legislation
Five sessions of the Legislature were held-three special sessions
of the Third Legislature, September 8, 1960; November 21-22, 1960,
and March 24, 1961; the regular session of the Fourth Legislature
from April 10 to June 8, 1961, and a special session of the Fourth
Legislature on June 16, 1961.
At the September 8 special session, three bills were proposed,
adopted and approved. At the November special session, 25 bills
were proposed of which 23 were adopted and 22 were approved. At
the March special session, four bills were proposed and adopted and
three bills were approved.
At the regular session in April-June, 164 bills were introduced, not
including resolutions, of which 117 were adopted. One hundred and
eleven bills were approved, two were pocket vetoed, three were re-
called, and one became law without executive approval. At the
June 16 special session, five bills were proposed, adopted and approved.

The Population of the Virgin Islands
The population of the Virgin Islands according to the final report
of the 18th decennial census was 32,099 on April 1, 1960, as compared
with 26,665 on April 1, 1950. The population of the three major
islands on April 1, 1960, and April 1, 1950 was as follows:

Population Percentage
Island of increase
1960 over
1960 1950 1950
St. Thomas.---..------- -------- -----16,201 13,813 17.3
St. Croix----------------------- 14,973 12,103 23.7
St. John--------....... ---------------------... .---------------- 925 749 23.5
Total....----------.... .--------------------32,099 26,665 20.4

4 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

The distribution of the population between urban and rural areas
in 1960 and 1950 was as follows:

Population Percentage
Island and areas of increase
1960 over
1960 1950 1950

Urban areas:
St. Thomas-Charlotte Amalie -----............------------.. 12,880 11,469 12.3
St. Croix:
Christiansted ------------------------------- 5,137 4,112 24.9
Frederiksted .......... ........----------------------. 2,177 1,961 11.
Total-..........................----------------------.. 20,194 17,542 15.12
Rural areas:
St. Thomas.......------- ............--------------------- 3,321 2,344 41.7
St. Croix -----------.------------------------ 7,659 6,030 27.
St. John ------------------- --------------------- 925 749 23.5
Total.------------------------------------- 11,905 9,123 30.5

The distribution of the population according to nativity and coun-
try of birth was as follows in 1960 and 1950:

Population Percentage Percentage
Increase increase distribution
Nativity and place of birth over 1950 over 1950
1960 1950 1960 1950

Total population --------- -------- 32,099 26,665 5,434 20.4 100 100
Native --------- --- 26, 820 23, 581 3,239 13. 73 83. 55 88. 43
Virgin Islands of the United States----------- 20,338 19,616 722 3.72 63.36 73.56
Puerto Rico -... ------------ 3,897 2,874 1,023 35.59 12.14 10.77
Other U.S. offshore areas ----- ------ 11 57 46 __-- .03 .6
Continental United States _- --___ 2,574 1,034 1,540 148.93 8.02 3.5
Foreign____ --------------------- 5,279 3,084 2,295 71.17 16. 45 11.57

Office of the Government Secretary

Specific powers and duties of the Office of the Government Secre-
tary include, among other things, administration and enforcement of
the laws relating to insurance and to fraternal benefit associations and
assessment associations authorized to do business in the Virgin Is-
lands; administration and enforcement of the laws relating to banks,
trust companies, building and loan associations, corporations, part-
nerships, business associations, and other commercial business opera-
tions; administration and enforcement of the laws relating to the sale
and transfer of stocks and securities; and administration of the laws
relating to the manufacture, sale and taxation of alcoholic and non-
alcoholic beverages.
The Office supplies the Equity Publishing Corporation with the
necessary documents to maintain compilation and publication of all
legal documentation for the Government of the Virgin Islands, in-
cluding supplements to the Virgin Islands Code, Virgin Islands Rules
and Regulations, Virgin Islands Register, Virgin Islands Session

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 5

Laws, Virgin Islands Reports, and Slip Laws of the Virgin Islands.
During the year, 144 acts and 25 resolutions of the Virgin Islands
Legislature were filed with the Government Secretary pursuant to law
and were ordered printed in slip law form.
The growth of the islands' economy is reflected in the expansion
of businesses and occupations. The Office of the Government Secre-
tary, charged with the responsibility for licensing all businesses with-
in the Virgin Islands, is conducting surveys and on-the-spot inspec-
tions to ensure coverage of all businesses by the appropriate license.
The following chart shows a comparison of licenses issued and fees
collected over the past 3 fiscal years:

Licenses issued and fees collected

1959 1960 1961
District
Licenses Fees Licenses Fees Licenses Fees

St. Thomas and St. John ...-- --._ 1,165 $43,918.80 1,227 $46,238.50 1,393 $51,689.00
St. Croix-------------- 630 21,224.20 886 30, 549.00 974 34,659.00
Total------------------------- 1,795 65,143.00 2,113 76,787.50 2,367 86,348.00

Corporate activity showed a steady increase in the number of new
corporations registered. Very few corporations were dissolved or
withdrawn, resulting in a sizeable roster of active corporations. At
the end of the fiscal year 1961, there were 557 domestic corporations
appearing on the active list of registered corporations, and 36 foreign,
a total of 593.
Total corporate franchise taxes collected amounted to $16,463.50 as
compared with $16,657.56 in the preceding fiscal year. Other cor-
poration fees collected during the fiscal year total $11,874.49 as com-
pared with $12,306.09 in the preceding year.

Comparative Table

Fiscal year 1959 Fiscal year 1960 Fiscal year 1961

Foreign Domestic Foreign Domestic Foreign Domestic

Certificates of incorporation issued........ 5 82 8 111 14 115
Certificates of amendments issued --......._--- ----- 8 1 30 1 24
Dissolutions_---------------------- --- 2 .-------- 4 3
Withdrawals----- ---------- 2 -------------- ------- ----------
Mergers.--------------------------------- .------------------- ---------------- --- 2

Trademark and patent activity did not show any considerable in-
crease in registration over last year's record.
The Office of the Government Secretary continues the preparation
and issuance of all passports in accordance with rules and regulations
622662 0-62---2

6 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

prescribed by the Department of State of the United States. During
the fiscal year 191 passports were issued, 55 were renewed, 5 were
amended and 1 was extended, a total of 252 passports actions as
compared with 214 in the preceding year.
On June 30, 1961, 47 insurance companies were authorized to
conduct business in the Virgin Islands as compared with 43 companies
last fiscal year. There were seven new registrations while three com-
panies did not renew their certificate of authority.
Forty-seven insurance agent's licenses were issued, as compared with
33 in the preceding year. One insurance broker's license was issued.
The following is a comparative table of taxes and fees collected for
the past 3 years:

1959 1960 1961

Renewal of certificates of authority and original registrations---..... $1,538. 50 $1,651.00 $1, 951.00
Agent's licenses ...........................---------------------- 1,831.00 1,521.00 2,111.00
Broker's license................... ------------ ------------ --- ---- ----- 100.00
Gross premium taxes---............-------------------------- 5,079.08 6,602.95 12,316.87
Filing annual statements-------................---------------. --- 101.00 98.50 126.00
Filing power of attorney.....-----------........ --------------. 15.00 15.00 45.00
Booklet of insurance laws....---------------------------- -------- --------- 51.00
Total---.......- ----------- --------------------------- 8,564.58 9,888.45 16,700.87

Of major significance during the year, not only to the rum industry
but to the economy of the islands as a whole, was the passage by the
Legislature of an act to establish standards for the production and
labeling of rum in the Virgin Islands. The objective of the act is to
maintain (and, where possible, to further improve) the high standards
of rum produced in the islands. Regulations were issued by the
Board of Control of Alcoholic Beverages and approved by the Gover-
nor on the qualification of producers, rectifiers, and bottlers of dis-
tilled spirits.
General elections for members of the Legislature of the Virgin
Islands were held on November 8, 1960, and returns were reported to
the Office of the Government Secretary and announced from that office
in accordance with law. The results as well as a comparison of total
votes cast in this and the 1958 elections follow:

St. Thomas St. John St. Croix Total

1958 1960 1958 1960 1958 1960 1958 1960

Total number of voters registered.... 4,752 5,092 357 333 4,651 5,253 9,760 10,678
Total number of persons voting-..... 3,742 3,908 226 243 3,284 3,508 7,252 7,659
Highest total votes received by dis-
trict candidates----......--------. 2,262 2,460 212 222 1,469 1,786 ------
Highest total votes received by an
at-large candidate.... ---- -- ----------- ----- ------------- 2,257 2,470

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 7

Totals of winning candidates, 1960 election

District St. St. John St. Croix Total
Thomas

1st member.-- ---------.-------------------- 2,460 222 1,786 ..........
2d member---.......----- ---- ------------ 2,225 ..---..---. 1,719 .
At Large
1st member .-........-------...----...... -----. 695 139 1,636 2,470
2d member..... --- ------------------- 2,127 43 129 2,299
3d member -------------------- 758 150 1,102 2,010
4th member....---------------------------..- 1,793 25 53 1,871
5th member.............------ ...................------------ 126 3 1,197 1,326
6th member.......--- ---------------- 384 0 754 1,138

It will be noted that the number of persons voting equals 71.7 per-
cent of the total voters registered, as compared with 74.3 percent in
1958.
Upon recommendation of the Government Secretary as chairman
of the Sanitary Facilities Committee, the Governor issued on June
13, 1961, a proclamation amending previous proclamations of 1959
and 1960 concerning the health of the territory and establishing target
dates for the elimination of the nightsoil removal system. It specifies
that all necessary sanitary facilities shall be completed and con-
nected by June 30, 1962, in the towns of Christiansted and Frederik-
sted and by December 31, 1962, for the city of Charlotte Amalie in
full compliance with existing law.
During the year, the Government Secretary's Office was concerned
with housing, the acuteness of which continues to increase and which
ranks as one of the most-if not the most-urgent problems with
which these islands are faced. This office concentrated on three phases
of this problem:
1. Community development at Estate Bordeaux;
2. Continuation of the construction of urgently needed emergency
housing; and
3. The development of an Aided Self-Care Home for aging.

Office of the Tax Assessor
During the year the former Division of Real Property Assessment
and Recording was abolished and its functions were transferred to
the Office of the Tax Assessor, Virgin Islands; the Office of the Re-
corder of Deeds, St. Thomas and St. John; and the Office of the
Recorder of Deeds, St. Croix. Responsibility for the operation of
these offices continues to rest within the Office of the Government
Secretary.
The Office of the Tax Assessor, through the reassessment project,
developed a system of real property appraisal and evaluation for

8 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

scientific tax purposes. This reassessment project was conducted by
a private management consultant firm. The major aim of the project
was to develop a sound, effective, efficient, and equitable real property
tax program. The project resulted in some 9,008 improvements and
14,000 parcels of land were appraised. The result of this work has
been the establishment of an up-to-date system of real property evalu-
ation and taxation, and a clearer understanding of the proper pro-
cedures and techniques used in real property evaluation.
In view of the short time which elapsed between the date of com-
pletion of the revised assessments for 1960 and the date tax bills were
required to be issued by law, there was not sufficient time properly to
evaluate the impact which the increased assessments would have on
the public. The Legislature, therefore, on June 20, 1961, passed an
act which was approved by the Governor providing that 1960 real
property taxes shall not exceed 25 percent of the tax liability for the
year 1959 except as a result of improvements to properties made since
the 1959 assessment. The following is a detailed table of assessments
and taxes by islands:

Island Assessment Tax Increase
value

St. Thomas:
1960-_..___ --------------- $28,939,384 $296,228.45 $12,092,884.00
1959 .. --------- -- 16,846, 500 210,581.02 85,647.43
St. Croix:
1960__ ------------------------------_ 27, 391, 290 231,907.98 14,370,992.00
1959.-------------------- 13,020,298 162,855.73 69,052.25
St. John:
1960 .--.... ----- ------- 1,890,266 14,112.96 1,247,310.00
1959 -.--------------------------- 642, 956 8,036.96 6,076.00

Office of the Recorder of Deeds, St. Thomas

The following is a comparative table of documents recorded during
the last 2 fiscal years:

1960 1961

Deeds.....----..-------------------------------------------------------- 448 426
Mortgages ---------...........--------.------------------- 327 360
Chattel mortgages .................. ..------------ ------------------------- 70 116
Conditional sales contracts ....-----............ ---------------- ---- ------- 863 886
Cancellations and releases.........--- .-------------------------. 220 216
Adjudications__ ----------- ------------------------- ---18 24
Certificates of death .- .------------- ----------------------- ------ 5
Assignments.----....----------------- ------------------------------------------ ----- ..35
Leases ------------------------8---------------------------- ------------ 18
Easements.....--------.. --------....-----.----.--------------------- --------- 15
Liens..............------..------------------------------------------------- ------- 34
Miscellaneous--...................---------------------------------------- 116 86
Total...-----.....-------------------------- ------------- 2,062 2,221

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 9

Office of the Recorder of Deeds, St. Croix
The following is a comparative table of documents recorded during
the last 2 fiscal years:

1960 1961

Deeds. ---------------------------------- -------- 480 441
Mortgages..----------- -------------------- 325 383
Chattel mortgages. -----------------------113 144
Conditional sales contracts ---_-- ..-------------------.... -------------- -- 59 106
Cancellations ----------------- 240 401
Adjudications------------------------ 8 15
Certificates of attachment -------------------------- ------- ----------- 107
Certificates of death ----..------.. --...-----.. ----__------ 16 8
Miscellaneous..------------------------------------------ 119 132
Total .----... ----.. -----.--------------..-------------- 1,360 1,737

Division of Personnel
From the point of view of employee benefits, the most significant
development during the fiscal year was the passage of a new pay plan
for Government employees. Not only did the plan change the en-
trance and within-grade step values of the various pay ranges, but it
also made comparable increases applicable to the unclassified service
positions paid within these ranges. The new plan provided for in-
creases averaging 12 percent and ranging between a 1 percent increase
for the highest categories to a 30 percent increase in the lowest cate-
gories. The plan also reestablished provisions for within-grade in-
creases which were not provided for previously.
Since the new plan did not change the basic number of ranges, the
transition was accomplished by an automatic application of the values
of the various ranges in which positions were paid. Another prece-
dent-making provision of this new plan provided that, unlike what
was done in the past, the employees involved would not be required
to have their salaries placed at a minimum of the salary range, but
instead would come in under the new plan at whatever step they were
in under the old plan.
In May of 1961, the Territorial Government was host to one session
of the 33d Eastern Regional Conference of the Public Personnel Asso-
ciation. While all the earlier sessions were held in Puerto Rico, the
conference readily accepted the suggestion to hold its closing session
in St. Thomas. Over 200 persons attended this session, including
almost 100 conferees from Puerto Rico.
To the satisfaction of all the operating departments, the Division of
Personnel changed the minimum length of the probationary period
from 3 to 6 months. All classes of positions for which there were

10 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

longer periods remained unchanged. The change in the minimum pe-
riod was brought about mainly by a recognition that 6 months is a
more adequate period during which to assess the performance of
new employees in most classes of positions.
Again, this year, and from all indications the trend will continue
for the next several years, the emerging pattern of the labor market
is a factor requiring serious attention. To some extent the increases
granted by the new pay plan of 1960 relieved some of the difficulties
of recruitment. However, the respite is at best expected to be short-
lived, for much of the difficulty lies in a shortage of workers in many
categories, particularly in the laboring and clerical classes. This
shortage probably would extend as well to the trades groups, were it
not for the fact that the Government employs comparatively few
tradesmen, most of the work being accomplished by casual employment
where a somewhat higher hourly wage is permissible.
These market conditions have resulted in several serious problems,
the most important of which is a general shortage of available help,
with the result that turnover has increased thus causing increased
expense for constantly training new replacements.
The retirement system for Government employees was in its second
year of operation as an insular system combining the two former
municipal systems. The consulting actuary has made a strong rec-
ommendation that the employer's contribution be changed from 4 per-
cent to 7.63 percent in order to make the fund actuarially sound. At
the present time the employees' contribution is 4 percent and the em-
ployer's contribution is 4 percent. Unfortunately, sufficient funds
have not yet been available to provide this increase in the employer's
contribution. The following is a distribution of positions as to major
occupational groups:

St. Thomas St. Croix Total-Vir-
and St. John gin Islands

Clerical ------------------ ------------------195 86 281
Administrative ------- ------------------------------------- 90 25 115
Supervisory .--------------------------------------------- 5 4 9
Professional ...:::: ...------------ ---------- 297 206 503
Subprofessional------------------------------------------- 100 79 179
Public safety....--------------------------------------------- 70 81 151
Inspectional ----------------------- 10 4 14
Equipment operators...-----------------------..----- 43 47 90
Tradesandlabor--------------------------------- 203 138 341
Housekeeping ---------7--------------------- 73 83 156
Food service --------------------------------76 57 133
Farming and gardening_ ------------------------------------ 3 0 3
Total classified service ----..........- -------- 1,165 810 1,975
Unclassified service....-------------------------------- ------------------------- 97
Total Virgin Islands----............. ---------- ------- ----------- 2,072

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 11

The following comparative statistics indicate the activities in exam-
ination and certification:

Activity Fiscal year Fiscal year Fiscal year
1959 1960 1961

Personnel requisitions processed.--.-------------------------- 389 452 393
Number persons employed, permanent and temporary------- 407 446 370
Number applications received-------------------- 595 454 680
Number separations, permanent positions -------------------- 204 327 199
Number examinations administered -------------------------- 163 198 282
Number persons on eligible list -.---- 1,391 1,545 2,133
Total persons in permanent positions----------------------- 1,699 2,027 2,074
Number of promotions-------------------------------------- 43 84 66

Industrial Incentive Program
For the past 5 years the Government of the Virgin Islands has
conducted an ambitious industrial incentive program geared toward
attracting self-sustaining industries to the Virgin Islands with the
long range objective of providing the people of the Virgin Islands
with a larger source of employment, a chance for better wages, and
helping the Virgin Islands to become self-sustaining. In general
this program has been moderately effective and to date 36 tax exempt
small businesses and 19 tax exempt hotels and guest houses are in
operation, providing employment for some 1,450 Virgin Islanders
in a wide variety of categories. In addition, industries from various
parts of the United States have indicated an interest in extending to
the Virgin Islands and are particularly interested in learning more
about our industrial incentive program and tax exempt and subsidy
laws.
Despite its effectiveness, however, the industrial incentive program
has not had its full impact on the economy of the Virgin Islands,
and if the past is any guide to the future, this impact will not be
felt until present local laws are revised and clarified to conform to the
spirit and purpose of the program.
Being mindful of this problem, and being anxious to improve the
economic opportunities of the people of the Virgin Islands, the new
administration has been conducting a study of laws and policies gov-
erning the incentive program with a view toward determining and
making needed revisions.

Department of Law
Transfer of the responsibilities previously handled by the U.S.
Attorney in representing the legal interests of the Government of
the Virgin Islands has progressed to the point where the Department
of Law now represents the Government in all matters except the
trial of criminal matters in the District Court. This change, reflect-

12 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

ing congressional sanction of the duties and functions of the Attorney
General of the Virgin Islands (Section 27 of the Revised Organic Act,
as amended September 16, 1959), has resulted in a substantial increase
in the workload of the Department, and requires the full-time atten-
tion of at least one of the two attorneys who comprise the staff in
St. Thomas to appearances in the Municipal Court. In St. Croix
the Department continues to retain a part-time attorney on a con-
tractual basis to handle litigation in the Municipal Court in that
island.
The increase in opinion writing, counselling services to department
heads, preparation of legislation, regulations, contracts, leases, etc.,
and conferences with departmental heads, has been even more signifi-
cant, particularly since the change in administration of the executive
department of the Government in March. Because of the stepped
up tempo of governmental activities, the inauguration of new pro-
grams, and the increased attention to old ones, inevitably, the need
for governmental legal services has reflected an increase.

Virgin Islands Planning Board
During the year the Planning Board prepared and recommended
development plans for the Charlotte Amalie Harbor and waterfront
in St. Thomas; a new governmental and administration center; a
recreational area for Frederiksted; and better main road approaches
for Christiansted and Frederiksted in St. Croix. The Board also
devoted considerable time to the preparation of a zoning and sub-
division law and developed and submitted an application to the
Federal Housing and Home Finance Agency for a grant of matching
funds for planning purposes with particular reference to large scale
topographical maps which should form the basis of essential revisions
of existing master plans of the islands. The Board also prepared a
development plan for the first segment of the proposed Bordeaux
Community Center in St. Thomas. In broad terms, the Planning
Board is concerned with all those physical developments which influ-
ence the well-being, happiness, and prosperity of the people of the
Virgin Islands, together with the beauty of the islands themselves.
The beauty of the islands is constantly being damaged by uncontrolled
development. It is hoped that zoning and subdivision legislation
will be adopted by the Virgin Islands Legislature during the coming
year.
Office of the Probation Officer
During the year 53 defendants were investigated, representing an
increase of 76.6 percent over the number of cases investigated in 1959.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 13

The Probation Office also made 15 reports in connection with the
Interstate Compact Administration on persons who had previously
lived in the Virgin Islands or were desirous of taking up residence here.
Twenty-two prerelease reports were submitted to the Parole Board.
The Probation Officer had a monthly average of 45 persons under
supervision during the year.
Of the 67 individuals received from the courts, 28 had no higher
scholastic attainment than that of the sixth grade, while 39 had higher
than seventh grade. The heaviest concentration of offenders was
between the fifth and tenth grades. In the age grouping, it was found
that the largest concentration of offenders, 29 percent, was in the age
bracket 16 to 20 years. Looking closer at the trend, it is found that
99 percent of all offenders fell in the age range 16 to 40.
The large number of individuals placed on probation by the courts
indicates that the courts feel that this type of system is best for the
community, the offender and his family. The fact that the courts
are requesting reports prior to sentencing shows that they realize that
a total picture of the offenders is necessary in order to make a decision
which is in the best interest of the community and the offender.

Department of Agriculture and Labor
St. Croix Agricultural Program
The Division of Agriculture has responsibility for stimulating,
encouraging, promoting the cultivation of land, and all other activities
necessary to increasing the production of food in the Virgin Islands.
To meet these needs, the programs include supplying of seeds, plants,
insecticides, fertilizers and technical service; land preparation for
farmers; demonstration farm; and marketing of farm products.
Within the last three seasons, the surplus fruits and vegetables have
grown from 8,000 to over 35,200 pounds annually. Over 3,000 citrus
and avocado trees were distributed at cost. The foundation stock
of 12 head of swine for the swine improvement and production pro-
gram were imported tropically bred from Florida. Vegetables and
fruits produced on the demonstration farm include tomato, pepper,
eggplant, kohlrabi, yams, carrot, okra, cucumber, turnip, onion,
banana, watermelon, and papaya. Using our production advantage
over the cooler regions, over one thousand bushels of pepper, tomato
and eggplant were shipped from St. Croix to Puerto Rico and
St. Thomas.
St. Thomas Agricultural Program
During the year, the Virgin Islands Government purchased from
the Federal Government the agricultural station situated at Estate
622662 O-62---3

14 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Dorothea. Services of this station include the furnishing of seeds,
insecticides, fertilizers, water, vegetables, mould, assorted fruit trees
and ornamentals, technical information for the growing of quality
vegetables, trial of new crops and maintenance of a plant house where
several hundred economic and ornamental plants are grown to help
ornament and beautify the island of St. Thomas.

Parks and Beaches
The gates of the modern Cramer Park in St. Croix were opened to
the general public shortly before the close of the year. The public's
response to this new recreation spot has been gratifying. Attendance
has shown an increase of 250 percent over the attendance prior to im-
provements. The new facilities here include a modern restaurant and
bar, tennis and volleyball courts, modern bathhouses, beach umbrellas,
and a significant improvement in sanitation on the beach. All other
parks received new plantings and paint rejuvenation. The added re-
sponsibility of maintaining and further beautification of the landscape
at the Alexandar Hamilton Airport and the racetracks at Manning's
Bay, St. Croix, increases the magnitude of the parks and beaches
program by several hundred percent.

Sugarcane Subsidy in St. Croix
The sugarcane crop of 1961 showed an increase of 129.5 percent over
the crop for 1960. The 1960 tonnage was 71,076,770 and the tonnage
was 163,193,415. Two hundred and seventeen claims for subsidy for
new plantings of sugarcane and for tons of cane delivered to the
factory were paid as follows:
Dollars Paid
Farmers
$3,000 to $6,500- -------------------- ------- 4
$1,000 to $2,999--------------------------- 7
$500 to $999----------------------- ---- 10
$100 to $499----------------------------- --- 61
$50 to $99------------------------------------ 47
$1.00 to $49 ------ -------------------------88

Total --------------- ------------ 217

Workmen's Compensation
A total of 646 injury reports were processed involving compensation
for disability, death compensation, medical attendance, and funeral

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 15

expenses. Eight hundred and fifty-two awards were made represent-
ing a total of $95,391.59 as follows:
Temporary total disability -- ------------- $26, 407. 29
Permanent partial disability-------- -------- 26, 975. 61
Medical attendance ------ -------------_ 22, 588. 99
Death compensation -- -----_------------ 18, 050. 00
Funeral expenses ---- --------------- 861.20
Publication costs------- --------------- 508. 50

Fair Labor Standards and Labor Relations Acts
As a result of complaints, a total of $3,344.31 was collected in back
wages and overtime. The majority of these complaints was filed by
alien employees. Under the provisions of the Labor Relations Law,
31 petitions for certification were filed by labor unions. In some
instances, certification was made without an election where the union
and the employees satisfied the hearing officer that more than 50 per-
cent of any unit wanted the union. In other cases, elections were held
by secret ballot to determine the representative. One case of unfair
labor practice was listed. In this instance, an appeal was made over
the decision of the wage officer but the ruling was upheld by the appeal
board.

Office of Veterans Affairs
The Office of Veterans Affairs made 2,473 contacts with veterans,
servicemen, dependents of veterans and servicemen, representatives of
Government Agencies and other persons interested in the affairs of
veterans and their dependents.

Finances
Total obligations of the Department of Agriculture and Labor
amounted to $166,818.07.

Department of Education
The Department of Education is responsible for the operation of
four main divisions, namely: Administration, Educational Programs,
Community Services and Miscellaneous Grants. During the fiscal
year 1961, expenses for Administration were 6 percent of the total
Education Budget; expenses for Educational Programs represented
81 percent of the Education Budget; Community Services, 8 percent;
and Miscellaneous Grants, 5 percent.

16 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Office of Administration
The Department experienced a turnover of two commissioners dur-
ing the year. A commissioner resigned on September 30 to accept a
position with the Federal Government. His successor resigned on
April 30 to accept appointment as Director of Cultural Affairs and
Higher Educational Programs for the islands. The stewardship of
the Department was then assigned to the Assistant Commissioner of
Education pending the appointment of a new commissioner.
Two elementary school contracts were awarded. The largest school
to be constructed is a 32-classroom building, located on 10 acres of
land at the Sugar Estate area in St. Thomas, adjacent to the Char-
lotte Amalie High School. The other new facility is an eight-room,
two story elementary school building which will serve the Nisky area
in St. Thomas, where children now attend school in the improvised
facilities of a warehouse at the former submarine base in St. Thomas.
The amount of the contracts for these two buildings is $1,015,099.
These schools should be occupied in September 1962. New elementary
classrooms are urgently needed in St. Thomas.
Emphasis was continued on improving the management of funds
in the business and accounting section. Refinements in accounting
procedures were achieved, resulting in an improved control in the
management of funds for the several divisions of the Department. It
is believed that this latter accomplishment is significant because in
an era of inflation the management of the "school dollar" to obtain the
maximum of education for monies expended becomes a challenging
responsibility of school administration.
A new administration building for the Department of Education
headquarters in St. Croix was occupied. This facility should satisfy
the space needs of that office. Availability of funds for the main-
tenance of buildings owned and operated by this department remains
a most serious challenge. Adequate funds are required for the repair
and preservation of all physical facilities.

Division of Educational Programs
Expenditures of the Government of the Virgin Islands for public
educational programs have increased rapidly in recent years, reflect-
ing a desire on the part of the Legislature and the Administration
for increased support for public education. In 1958-59, the current
expenditures per pupil in average daily attendance, averaged for the
50 States, were $360 compared with $217 in the Virgin Islands. For
1959-60, average current expenditures for the 50 States per pupil were
$369 compared with $266 for the Virgin Islands. In 1960-61, the
average in the 50 States was $390 with $326.18 expended per pupil

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 17

in the Virgin Islands for the same period. Within the next 5 years
the Virgin Islands may be able to plan for annual current expendi-
tures per pupil in public schools equal to the average pupil expendi-
ture of the 50 States.

Elementary Schools
Four thousand nine hundred and thirty-three pupils were enrolled
in the elementary schools in the 1960-61 school term, including 426
children attending kindergarten on a voluntary basis. One hundred
and thirty-one teachers were assigned to elementary education pro-
grams. Since no new elementary school buildings or facilities were
added, pupil-teacher ratios were too high in some buildings. Over-
crowded elementary classrooms in Charlotte Amalie, St. Thomas, and
in Christiansted and Frederiksted, St. Croix, produced the continuing
problem of shortage of pupil desks and insufficient textbooks and teach-
ing materials. During the second semester, however, additional pupil
desks, textbooks and teaching materials were purchased.
Despite overcrowded classrooms and the attendant shortage of
textbooks and supplies, there was an overall upgrading of curriculum
and standards in elementary education programs.
This improvement of instruction and curriculum is attributed, in
part, to equipment, materials and reference books obtained from Na-
tional Defense Education Act funds.
All public school pupils from the first through the sixth grades
were given standardized achievement and mental maturity tests. It
is significant to note that of the 423 sixth graders from St. Thomas and
St. John tested, 78 percent obtained achievement between 5.5 and 5.8
with the median score from this group being 6.4 or only 4 months
less than the national norm, and this despite the fact that 63 percent
of the elementary classroom teachers do not possess academic degrees.
Programs for in-service training of these teachers were continued this
year. Teachers, principals, and supervisors were selected to attend
Virgin Islands Conferences such as the Guidance Institute and Mental
Retardation Conference. Additionally, many of the nondegree ele-
mentary teachers continue to obtain extension courses credits through
enrollment in the Hampton Institute Extension Program and branches
of Catholic University of Puerto Rico, offering college level courses in
St. Thomas and St. Croix.
The new administration quickly learned that the use of sub-
standard physical facilities located on inadequate sites causes severe
limitations in raising standards of instruction and improving the
educational environment for teachers and pupils enrolled in these
schools. Successful upgrading of curriculum and staff in the ele-

18 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

mentary schools will not be realized until the "teaching-principal" is
eliminated in some schools and replaced by full-time, professionally
trained elementary school administrators who would provide the
leadership and energy required for classroom supervision, in-service
training for teachers, and effective guidance for pupils.
Secondary Schools
During the past 3 years the rising tide of increased elementary
enrollment has inundated the high schools of the islands with seventh
graders. Overcrowded secondary schools have produced provoking
problems affecting schedules, curriculums, and recruitment of qualified
teachers. Two thousand one hundred and ninety-nine pupils were en-
rolled in public secondary schools. With an enrollment of 1,411
pupils at the Charlotte Amalie High School in St. Thomas, the normal
capacity of this school being 900, it was necessary to schedule seventh
and eighth graders on an interlocking or double shift program. This
double shift program caused strain on teachers and facilities.
When the new elementary school on Sugar Estate in St. Thomas is
completed and occupied, all seventh graders from the Charlotte Amalie
High School will be transferred to this new facility to relieve some
of the overcrowding at Charlotte Amalie High School.
Failure to recruit enough qualified secondary school teachers
threatened the ability of the Department to improve and strengthen
instruction to necessary and desired standards. There are several
reasons for this teacher recruitment failure. First, the high cost of
living in the Virgin Islands. Second, certification standards for
degree teachers do not require certain undergraduate courses and no
supervised experience or training in practice-teaching. Third, because
of these explanations, recruitment of academic teachers too frequently
becomes a matter of availability and not suitability. Fourth, certifica-
tion of inexperienced and untrained teachers, often assigned to teach
other than in their major fields, causes an unusually high turnover of
the secondary staff, with mid-year resignations creating manifest
problems.
Despite pupil overcrowding and failures in teacher recruitment,
the standards of education in the high schools have shown marked
improvement. Large sums were expended for textbooks, equipment,
and teaching aides. A unified curriculum for the high schools is
nearing reality. Courses of study guides are being developed to
reflect goals for improved instruction and upgraded curriculum.
From funds made available under the National Defense Education
Act, instruction in science, mathematics, and foreign languages has
been strengthened, and guidance programs from counseling and testing
have been made available to the majority of students.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 19

Since book collections in the high school libraries are inadequate,
use of these facilities is minimal. Priority has been given, due to
fund limitations, to procurement of much needed textbooks and in-
structional materials; thus, funds for the purchase of library books
have not been available. However, with the recent acquisition of
new and modern equipment and materials for science, mathematics,
and foreign languages under the National Defense Education Act,
and with the purchase of new and modern textbooks, for these subject
areas, it is mandatory that our school libraries contain modern ref-
erence books. It is planned to allot adequate funds for Title III,
National Defense Education Act, during the coming year, to acquire
reference books in science, mathematics, and foreign languages which
will be suitable for high school library purposes.

Vocational Education
Three types of Vocational Education Training Programs were
offered: the in-school program, the adult all-day program, and the
evening school program. In the in-school program, as part of the
comprehensive high school curriculum, courses offered at the Char-
lotte Amalie High School included automotive mechanics, carpentry,
commercial sewing, electricity, home economics, masonry, and plumb-
ing. At Christiansted, courses offered were automotive mechanics,
agriculture, electricity, home economics, masonry and plumbing. At
Frederiksted, courses included home economics and agriculture.
The adult all-day program offered courses in practical nursing
in St. Thomas for the second year, and in St. Croix for the first
time. The Practical Nursing Course graduated one group of 11 and
started training another group of 13 in St. Thomas. In St. Croix
training of a group of 15 students was begun.
Evening school courses were offered as unit courses for adults
and out-of-school youths. In St. Thomas, these courses were offered:
Consumer education, foods and nutrition, sewing for the home, home
improvements, mathematics for the building trades, blueprint reading
for the building trades, and automobile mechanics. In St. Croix,
courses offered were consumer education, foods and nutrition, sewing
for the home, home improvements, and pipe fittings and plumbing.
Vocational training for adults included hotel training, agriculture,
home economics, including clothing, consumer education, and diet
therapy; and trades and industry, including mathematics for the
trades, blueprint reading for the trades, and preparatory plumbing.
Enrollment for the in-school program totaled 354 trainees; there
were 43 graduates from the in-school program of vocational training
in St. Thomas and 10 from St. Croix.

20 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

National Defense Education Act
The Department of Education received $56,175.62 in Federal match-
ing funds under Public Law 85-864 and earned $83,130.93 of Federal
nonmatching funds under Public Law 874. These Federal funds
were used to improve and strengthen education programs. Forty
thousand dollars worth of much needed materials and equipment for
mathematics and science programs were acquired for both the elemen-
tary and secondary levels. A special outside consultant was employed
to evaluate the adequacy of the mathematics program from grades
1 through 12. A speech laboratory for foreign language instruction
was installed at Charlotte Amalie High School and at the Chris-
tiansted High School. The equipment for these laboratories is of a
quality and design comparable to speech laboratories found in better
American colleges and universities.
Institutes and conferences on the mainland, sponsored by the U.S.
Office of Education, on foreign languages, mathematics and science
teaching were attended by teachers as a part of in-service training
program to upgrade the instructional staff. Plans have been made
to recruit an outstanding science consultant to evaluate the adequacy
of the entire science program.
Guidance and testing under Title V Program of the National De-
fense Education Act was started. Prior to the beginning of the
program, guidance activities in the public secondary schools were car-
ried on by 2 vocational guidance counsellors, who attempted to serve
1,783 students. The number of counsellors serving public secondary
schools has increased to 4, and guidance services have been extended
to 3 public secondary schools and 3 combination elementary-junior
high schools, serving 2,198 students. In addition to an increase in
the number of counsellors, a testing program has been initiated.
During the year, 1,999 students in the public secondary schools were
tested out of a total of 2,198. Under Title 10 of the National De-
fense Education Act, for the first time in 17 years, the system of public
attendance accounting was completely modernized, and a new teacher
school and attendance register developed, printed and placed in use.
Division of Community Services
Libraries and Museums.-Progress was favorable in the activities
of the Bureau of Libraries and Museums. Many new volumes were
added and processed for all branches of the system. Of these addi-
tions, many have been gifts from friends on the islands and abroad.
The Photo-Duplication Laboratory continues to serve Government
agencies, having completed the records of the St. Thomas Tax Asses-
sor's Office and the records of the Reassessment Study Project, and

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 21

is presently working on the records,of the St. Croix Tax Assessor's
Office.
The Special Collection of Caribbean Material is rapidly growing.
It is widely used by residents and visitors, and many reference ques-
tions to be answered from this collection are continuously received.
Public Recreation.-The program sponsored by the Bureau of
Public Recreation has shown marked improvement in the areas of
sports, general recreation, school programs, facilities, regulations and
policies, personnel and budget. The assignment of recreation aides
on a part-time, 12-month basis has given proper supervision of pro-
grams for the entire year. Recreation leaders assisted in the elemen-
tary schools with recess activities.
Vocational Rehabilitation.-During the year, 29 new cases were
referred for Vocational Rehabilitation service which, when added to
the 62 cases remaining from last fiscal year, make a total of 91 cases
in referred status. Of these, 27 cases were determined likely to
profit from Vocational Rehabilitation services and were added to the
active caseload. There were 81 cases actually receiving some type
of Vocational Rehabilitation service. Twenty-one cases were closed
as rehabilitated-that is, they received Vocational Rehabilitation serv-
ices and were placed on jobs commensurate with their abilities and
interests.
Other Activities.-For the first time in the history of the islands,
a Sheltered Workshop for the Aged and Chronically Ill will be estab-
lished, and has been made possible through a grant from the Federal
Office of Vocational Rehabilitation. It will serve as a training and
evaluation center for the aged and chronically ill.

Teachers employed in public schools, Virgin Islands (including vocational and
kindergarten programs)
Year: Total
1956-57 --------------------------------- --------- 207
1957-58 ------------------------ ---------- -----214
1958-59 ----------------------------------------228
1959-60 ---- --------------------- -------- 242
1960-61 -------------------------------------- -- 255

Expenditures by years (1955-61, inclusive), Virgin Islands
Year: Total
1955-56 --------- -------__$1,180, 397.94
1956-57 ---------------------------------------------- 1,107, 254.32
1957-58 -------------------------------------1,286, 009.36
1958-59 ------------------------------------------------ 1,540, 727.21
1959-60 ------------ --------------------- -- 2, 049, 619.15
1960-61 -----_-_-- ___________- 2, 623, 131. 71
622662 0-62---4

22 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Average cost per pupil (1955-61, inclusive), Virgin Islands

Year: Total
1955-56 --------- ---------------------------------------- $141. 00
1956-57 ---------------------------------------------------- 137. 30
1957-58------------------------------------------- 151.84
1958-59--------------------------------------------------- 216. 97
1959-60------------------------------------------------------- 266. 00
1960-61 ------------------------------------------- 326. 18

Average annual salaries of teachers according to certification and assignments,
Virgin Islands, 1960-61

Certification and assignments:
Salary
Master's degree-------------------------------------------- $4, 958
College 4-year----------------------------------------- 4,164
College 3-year------------------------------------------------ 3, 719
College 2-year------------ ------------------------------ 3, 203
College 1-year--------------------------------------------- 2, 571
Senior high school---------------------------------- --- 2,367
Special service-vocational--------------------------------- 4, 084
Special class A------------------------------------- 4, 405
Second class teachers and other special service------------------- 2, 340
Elementary and kindergarten teachers-------------------------- 3,502
High school teachers-------------------------------- --- 4,344
Supervisors--------------------------------------------------- 6, 197
Average salary per teacher -------------------------------- 4, 153

Average annual salary per teacher by years, Virgin Islands
Year: Salary
1955-56 -------------------------------------------------- $2, 821.32
1956-57--------------------------------------------------- 3, 075.48
1957-58---------------------------------------------------- 3, 167. 76
1958-59 -------------------------------- ----------------- 3, 514. 08
1959-60-------------------------------- --------- 3, 455. 04
1960-61-------------------------------------------------- 4, 152. 94

Teacher training (including vocational)

College graduates--------------------------------------------------- 129
Normal school (2 years or more) ---------------------------------- 66
Less than 2 years of college------------- ---------------------- 23
Other ------------- ------------------------------------------- 37

Total --------------------------------------------------.--- 255

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 23

Miscellaneous data

1956-57 1957-58 1958-59 1959-60 1960-61

Number of schools:
Public (including kindergartens)...--------- 28 28 29 29 28
Parochial -------- 7 8 10 10 10
Private.------------------------------------- 5 5 4 4 4

Total ----.........----------------------------..
School enrollment:
Public.-- .------------ ------------------
Parochial-----..-----------------------------.
Private...----.---------------------------------
Total ------...........----------------------
Public school enrollment:
Kindergartens .------- ----------- -------
Grades 1 through 6 --------------------------
Grades 7 through 12-------------------------

40 41 43 43 42

6,192 6,391 6,466 6,849 7,132
2,032 2,077 2,185 2,534 2,611
380 228 170 232 302
8,604 8,696 8,821 9,615 10,045

324 312 392 422 426
4,022 4,122 4,098 4,229 4,507
1,846 1,957 1,976 2,198 2,199

Total................--------- -------------- 6,192 6,391 6,466 6,849 7,132

1960-61 public school attendance and membership

Average daily attendance------------------------------ ---- 6, 425
Average daily membership------------------------------------------ 6,933
Average pupils per classroom teacher ------- -------------------- 33
Rural elementary -------------------------------------------- 37
Urban elementary ------------ ------------------------- 42
High school---------------------------------------------------- 32

Disposition of funds by source and activity

General fund regular programs and activities------------------ $1, 624, 751. 00
Matching fund appropriation--------------------------- -130, 260. 00

Total------------------- ------------------------ 1,755, 011. 00

Special funds:
Rural libraries extension------------------- $20, 813. 89
Vocational rehabilitation----------------- 49, 676. 71
Vocational education----------------------- 219, 609. 85
School lunch fund-------------------------- 307,903.53
National defense education------------------- 143,444. 12
Special Federal grants to education --------- 126, 672. 61

Total special funds---------------------------------- 868,120.71

Total funds available for the fiscal year--------------- 2, 623, 131.71

24 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Department of Finance

For the sixth consecutive fiscal year, revenues and receipts col-
lected during the fiscal year 1961 set new record highs.
As of June 30, 1961, the balance of cash in the treasury of the Vir-
gin Islands amounted to $12,137,313.53 distributed as follows:
General fund--------------------------------------------- $1, 062,087. 16
Federal appropriation matching single "i" fund----------------- 4, 722,221. 73
Federal appropriation essential public projects double "i" fund__ 3, 587,280. 05
Special fund--------------------------------- ------ 1,282,213.51
Enterprise and revolving fund------------------------------- 430, 139. 89
Agency fund------------------------------ ----- 41, 686. 83
Trust and legacy fund------------------------------------ 186,943. 83
Special deposits fund------------------------------------ 824, 709. 84
Payroll fund------------------------------- ----- 30. 69

Total---------------- ------------------ ------ 12, 137,313. 53

The General Fund
At the close of the fiscal year, the general fund, the principal oper-
ating fund of the Government, showed a cash surplus of $354,623.76
over known obligations of $699,624.57 and adjustments to surplus of
$17,838.83 amounting to a total of $707,463.40. This is the fifth con-
secutive year that there has been sufficient money in the general fund
to finance operations of the Government at the beginning of the fiscal
year without recourse to deficit financing.
Cash balances in the Federal appropriation matching single "i"
fund and the Federal appropriation essential public projects double
"i" fund, as well as the various other special and nonbudgetary funds,
also showed surpluses. The high level of income reached established
a new high in fiscal year 1961.
General fund revenues collected amounted to $8,768,163.83, an in-
crease of $1,497,055.80, or 20.59 percent over adjusted revenues for
fiscal year 1960 of $7,271,108.03.
Principal sources of revenues and receipts were (a) taxes, (b) cus-
toms duties, (c) income from Government operations and services,
(d) miscellaneous Government receipts, and (e) the Federal Govern-
ment's matching fund contributions. Of the total amount of
$8,768,163.83 collected as revenues and receipts, taxes amounted to
$8,361,751.88, or 95.36 percent, and Government service operations and
miscellaneous revenues and receipts to $406,411.95, or 4.64 percent.
Of the $8,361,751.88 total collected for taxes and revenues, income
tax amounted to $5,619,721, or 67.21 percent; taxes on businesses

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 25

either direct or indirect, and personal, amounted to $1,901,798.82, or
22.75 percent; customs duties, $431,780.70, or 5.16 percent; real prop-
erty taxes, $348,174.57, or 4.16 percent, and other miscellaneous rev-
enues, $60,276.79, or 0.72 percent.

Road Fund
This fund was established in 1957 by legislative enactment which
provided that all taxes upon the sale of gasoline and all fines imposed
by the courts for violation of traffic laws should be deposited therein.
During the fiscal year, revenues collected and deposited into the Road
Fund amounted to $235,556.58, an increase of $12,890.40, or 5.79 per-
cent over that of fiscal year 1959. Of this amount, $212,001.58 repre-
sented collections from taxes on the sale of gasoline, and $23,555 from
the collection of fines imposed for violation of traffic laws. No con-
tribution was made to the fund this fiscal year from the general or
any other fund.

Marine and Aviation Fund
The Marine and Aviation Fund was established in October 1960 by
legislative enactment which provided that all revenues and receipts
collected from activities applicable to the harbors and airports of the
Virgin Islands be deposited into this fund. The legislative enactment
also provided for an original grant of $25,000 to the Marine and Avia-
tion Fund from the General Fund, and the transfer of unobligated
balances of allotments from the appropriations made to the Alexander
Hamilton Airport and the Harbor Division of the Public Works De-
partment totaling $100,804.
In addition to the original grant and transfers, revenues and
receipts collected into the Marine and Aviation Fund during fiscal
year 1961 amounted to $140,503.41, while expenditures for the same
period amounted to $101,283.41. The fund is used for the operation
of harbors and airports owned by the Territorial Government within
the Virgin Islands.
Federal Matching Funds
Contributions by the Federal Government of matching funds for
the fiscal year based on fiscal year 1960 net revenues as certified by the
Government Comptroller of the Virgin Islands amounted to $6,494,-
445.33, an increase of $1,576,493.18, or 32.06 percent over matching
funds received during the previous fiscal year."
Revenues collected during fiscal year 1961, on which the net revenues
as certified to by the Comptroller are based, amounted to $8,704,868.

26 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Of this amount collected, $7,817,779.79 represented revenues applicable
to the general fund; $322,853.94 represents collection of revenues
applicable to the Special Fund (including the amount of $235,556.58
deposited to the Road Fund) and $564,234.27 represented collection of
revenues applicable to the Special Deposit Fund.

Federal Contributions
During the fiscal year, the Federal Government's contributions to
grant-in-aid programs, and other programs, amounted to $1,096,191.50,
an increase of $256,948.21, or 30.62 percent over the previous fiscal
year.

Government Expenditures
Of the total amount of $15,494,474.74 expended by the Government
for its operations, $8,500,366.37 was from the General Fund; $2,470,-
730.34 from the Federal Appropriation Single "i" Matching Fund;
$911,397.65 from Federal Appropriation Essential Public Projects
Double "i" Fund, and $3,611,980.38 from special and other non-
budgetary funds.
Of the total $15,494,474.74 expended, $7,526,550.84, or 48.57 percent,
was for payrolls; $5,365,281.52, or 34.63 percent for all other general
and operating expenses, and $2,602,642.38, or 16.80 percent for essential
public projects; $3,017,728.35, or 19.48 percent for health services;
$2,472,378.48, or 15.95 percent for educational services; $1,982,040.95,
or 12.79 percent for regular public works; $697,610.37, or 4.50 percent
for public safety; $1,092,487.78, or 7.05 percent for welfare services;
$197,869.41, or 1.28 percent for legislative services; $397,625.56, or
2.57 percent for commerce; $2,664,392.33, or 17.20 percent for essential
public projects; $192,687.06, or 1.24 percent for tax incentive sub-
sidies; and $2,779,654.45, or 17.94 percent, for all other administrative
and executive agencies and activities of the Government.
On June 30, 1961, there were unliquidated obligations outstanding
(obligations incurred during fiscal year 1961 to be liquidated during
fiscal year 1962) totaling $4,103,134.86, and distributed as follows:
General fund---------------------------------------_ $483, 232. 26
Federal appropriation matching single "i" fund ---------- 1, 795, 554. 65
Federal appropriation essential public projects double "i" fund___ 1,485, 259. 75
Special fund----------------------- ------ ---- 326, 727. 34
Enterprise and revolving fund --------------------------------- 12, 360. 86

Total ------------------------------------ 4, 103,134. 86

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 27

Department's Operations, Programs and Policies
Improvements and progress continued in the functioning of the
Department, as a whole, during the fiscal year 1961 despite the draw-
backs of inadequate space and high rate of personnel turnover.
The electronic accounting and data processing equipment is now in
full operation, and continues to contribute greatly to the efficiency of
the Department. Its operations now cover the drawing of checks
for all payrolls and general disbursements; maintenance of all treasury
bank accounts and disbursing accounts, as well as payrolls and social
security records.
During the fiscal year the functions of the electronic accounting and
data processing section were expanded to include the preparation of
all budgetary and accounting records for the Department of Finance
and certain selected activities of the Government.
During the fiscal year steps were undertaken to improve and ex-
pand the function of the Internal Audit Section. The section has now
been reorganized on a divisional basis with a deputy commissioner
placed in charge thereof. The change from decentralized to centralized
accounting and the requirements for preaudit and examination of
vouchers prior to payment will require greater participation in this
phase of operations by the audit division, and all provisions are being
made to assure a proper fulfillment of its duties and responsibilities
in this respect. Recruitment and retention of audit personnel still
continue to be a problem, but plans for fiscal year 1962 to provide
for increases in salary compensation to attract and retain qualified
personnel, not only in this division, but within the department as a
whole should solve this difficult problem.
Expenditures for operating the Department of Finance and its
related activities were:
Office of the commissioner ------------------------- $67, 628. 78
Division of accounting ----------- -------------- 81, 105. 34
Division of treasury -------- --------------------- 140, 694. 58
Division of tax -------- ----_------------ -------- 110, 057.38
Internal audit section--- ------------------------- 18,460.51

Total finance --------------------- ----- ---- 417, 946. 59
Alcohol control board ------- ---------------------- 10, 604.55
Banking board --- --------------------------- 3, 108. 00

Grand total ------------------------------- 431,659.14

to
00

Comparative statement of revenues, fiscal years 1954-61 +

General fund

1954 1955 1956 1957 1958 1959 1960 1961

Source of revenue 0
Taxes:
Real property taxes--...--------....-------------- $211,300 $230,611 $218,210.47 $268,632.28 $278,587.49 $276,349.18 $372,724.81 $348,174. 57
Income taxes ....... ...........--- -----------. 915,045 1,059,632 1,549,309.68 1,863,494.09 2,239,414.96 3,054,223.06 4,329,017.86 5,619,721.00
Inheritance taxes ... -.. ............. --------------6,268 15,935 3,721.26 13,489. 47 13,304.82 37,960. 44 23,011.19 42,541.45
Stamp taxes ----------------- -------... --- 25,603 44,017 4,521.25 35,718.60 50,498.17 97,151.92 71,495.93 112, 883.01 d
Trade, excise and gross receipts taxes---...........--. 659, 558 585,308 393, 686. 64 669,292. 82 719,961.74 886,513.22 1,185,743.54 1,357,491.33
Transportation taxes ....--- -------------- 22,962 20,467 12,552.24 268.00 ------- --------------...------- -
Custom duties ............--------------------. 65,756 89,928 151,100.00 222,000.00 295,000.00 284,000.00 487,000.00 431,780.70 O
Licenses, fees, and permits -........------...------- 56,692 66,955 43,533. 88 102,590. 54 260,227.93 269,747,30 331,377. 55 372,391.70 <
Automobile licenses .....----------- -------------. 58,504 66,921 65,630.66 87,599.77 (') --. -------------
Amusement taxes -----------......--------------- 4,225 2,826 1,428.11 7,123.71 (2) ....................... -----..
Gasoline taxes .---------......------------------ 95,236 107,771 110,299.66 152,716.69 (3) .---- -------Z-
Corporation franchise tax .--------- -------- --- --- --.... --....... ---------- 4,518.00 16,702.63 16,419. 33
Fines, forfeits, and penalties...-------... --... ----. ------.------ ---------------. 15,264.12 29,155.49 39,549.05 33,709.72 p
Interest on government funds-..----.----------------------------- 356.94 548.44 100. 68 26,567.07
Total taxes and revenues---..-..-...... ------------. 2,121,149 2,290,371 2,553,993.85 3,422,925.97 3,872,616.17 4,940,167.05 6,856,723.24 8,361,751.88
Other income:
Court costs, fees, and charges .----.. --------- -------- 33,320 29,204 38,932.38 18,299.62 10,533.69 10,403.50 42,962.40 15,799.20
Wharfage and ship fees ..---...---- -------- ------ 37,565 36,910 26,713.00 31,358.50 31,857.75 32,155.00 39,153. 50 8,981.00
Medical service fees ................------ --------.-- 53,707 68,334 80,245.62 66,932. 69 70,740.85 72,154.34 75,941.15 88,626.56
Sanitary service fees...----...........------------.--- 5,427 6,436 16,097.05 20,257.89 30,150.88 27,855.02 32,881.10 35,260.26 <.
Water supply system ----.......... --.... ------------------------- 69, 736. 18 97,897.39 91, 818. 90 103,916. 63 119,459. 58
Miscellaneous receipts..--------------------- -------- 103,482 348,873 195,793.23 55,573.61 47,592.54 50,024.03 100,289.92 138,285.35
Total other income----------------------------- 233,501 489,757 357,781.23 262,158.49 288,773.10 284,410.79 395,144.70 406,411.95
Grand total revenues...-- -.. .-------------------- 2,354,650 2,780,128 2,911,775.08 3,685,084.46 4,161,389.27 5,224,577.84 7,251,867.94 8,768,163.83

1 In licenses.
SIn trade taxes.
3 In road fund. H

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 29

Department of Health

The unique position of the Department of Health of the Virgin
Islands, among other Departments of Health in the several States and
territories, needs to be emphasized. The statement which has appeared
so often in previous reports that the Department of Health in the
Virgin Islands is the only truly integrated Department of Health
under the American Flag, needs to have its true import reemphasized.
The full meaning, of course, is that wherein Departments of Health
elsewhere are primarily concerned with those aspects of the health
problem which are commonly referred to as Public Health, the Virgin
Islands Department of Health is concerned also with the hospital and
medical care of the population of the islands, in addition to veterinary
care.
During the past 7 years, the Health Department expenditures
have increased about 250 percent. A small part was due to the in-
clusion within the Department of a Division of Veterinary Medicine,
not previously included. By far, however, the bulk was necessitated
by personnel salary increases. This relatively large increase has been
brought about chiefly by the unrealistically low salaries formerly
paid, and equally by the fierce competition which now exists generally
for the securing of the services of trained professional and technical
personnel. Another major, but as yet incompletely met, cause has been
the increase in the demand for medical and hospital services over the
past several years. To take but two examples, the number of out-
patient visits in St. Thomas has shown a 33 percent increase during
the fiscal year 1961 as compared with the previous fiscal year, and the
number of emergency visits has increased 50 percent. These increases,
expected to continue, place a heavy burden on the existing staff, and
they make it mandatory to have careful, adequate and realistic plan-
ning to provide services when needed, to avoid a breakdown due to
overloading.
Other important reasons for these increases have been the necessary
efforts to improve the quality of the medical care being rendered.
Included here would be the services of such personnel as did not exist
before; for example, resident or house physicians to provide around-
the-clock service at the hospitals, anesthesiologists to provide obviously
necessary functions, radiologists to provide equally obviously needed
functions, a pathologist, and other specialists. Add to these the
necessity for supporting personnel such as trained medical librarians,
and around-the-clock nursing supervisors, and it becomes clear that
the cost of adequate medical care comes very high in the Virgin
Islands.

622662 0-62----5

30 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

It should be pointed out emphatically that the era has passed when
the Virgin Islands could be referred to as an isolated area. With
airplanes serving the islands dozens of times daily, and with longer
nonstop services by jet aircraft in the offing, adequate steps must be
taken to prevent the introduction and spread of disease from the out-
side. The freedom from certain diseases which the islands have
enjoyed in the past may at any time be rudely shattered by the intro-
duction from the outside of any such disease.
The long-awaited annex to the Charles Harwood Memorial Hospi-
tal now nears completion and should be ready for occupancy during
the first months of the new fiscal year. Detailed plans are in process
for much needed expansion to the Knud-Hansen Memorial Hospital
in St. Thomas and should reach the stage within the next few months
where definite sums could be requested from the Legislature to begin
this project. Formula rooms in both the Knud-Hansen Memorial
Hospital and the Charles Harwood Memorial Hospital are being
completed, and new diagnostic X-ray facilities at the Knud-Hansen
Memorial Hospital are being installed. A new diagnostic X-ray
has been installed at the Frederiksted Clinic and a new and much
needed standby electric generating plant has been installed at the
Charles Harwood Hospital. New and adequate cold storage facilities
have been installed at the Knud-Hansen Memorial Hospital, and are
being installed at the Charles Harwood Memorial Hospital. On the
less satisfactory side, there has been the slowdown in the maintenance
program because of a lack of funds. Shortage of funds has also
resulted in a delay in starting and completing many of the planned
improvements at the several hospitals.

Boards and Commissions
The new Board of Nurse-Midwife Examiners was organized. The
Board reports that there are 19 practicing nurse-midwives in the
islands. A license was granted to one nurse-midwife. The Board of
Nurses Registration and Nursing Education licensed 13 registered
professional nurses and issued 13 practical nurse licenses. The Board
of Dental Examiners issued three licenses. The Board of Pharmacy
issued 1 license; the Board of Veterinary Examiners issued 1 license;
and the Board of Medical Examiners issued 9 licenses as well as
temporary licenses to 10 physicians on the staff of the Government
of the Virgin Islands.

Bureau of Vital Records and Statistical Services
During the calendar year there were 1,180 live births, an increase
of 50 over the record high of 1958 and of 72 in 1959. The birth rate

REPORT OF THE GOVERNOR THE OF VIRGIN ISLANDS + 31

was 35.3 per 1,000 estimated population. The figures by islands are
as follows: St. Croix, 530 live births with a rate of 35.1, a record
for that island, the previous high being 495 in 1959; St. John, 22 live
births with a rate of 22.6; St. Thomas, 628 live births with a rate of
36.2, also a record for that island, the previous high being 617 in
1958. In St. Croix, 93.2 percent of all live births occurred in hospitals;
in St. John, 90.9 percent; and St. Thomas, 99.2 percent. For the
Virgin Islands, this figure is 96.4 percent.
In contrast with the live birth picture there was almost no improve-
ment in the mortality experienced during the year. There were
333 deaths in 1960 and a death rate of 10.0 per 1,000 estimated popu-
lation, comparable to 1959 when there were 322 deaths and a death
rate of 10.1. In St. Croix there were 164 deaths with a rate of 10.9
which was an increase over 1959 when there were 143 deaths and a
death rate of 10.0. In St. Thomas there was a very slight decrease to
167 deaths with a rate of 9.6 against 169 deaths with a rate of 10.0 in
1959. There was a decrease in St. John where there were 2 deaths
with a rate of 2.2 as compared with 10 deaths in 1959 with a rate of
11.8. The age distribution and leading causes of death are as follows:

Age distribution

Virgin Islands

Deaths Percentage

Total ------------------------------------------------ --333 100.0
Under I year...-............... .----------.--------------- 42 12.6
1-4 years----------~... ------------------------------- 10 3.0
5-14 years..----. -----------. ---- ------------------- -7 2.1
15-24years 1------ --------------------------------------------------- 14 4.2
25-44 years -------------------...... ----------------....------------------------ 34 10.2
45-64 years -----...........------------------------------.------------------------- 63 18.9
65-74 years-- ----------------------------------------- 60 18.0
75 years and over -------------- -----------------------------100 30.0
Age unknown ----------------------------------------------------------- 3 0.9

Leading Causes of Death-Virgin Islands

Number Rate Percentage
of all deaths

1. Diseases of the heart.--- ------------------------- -75 224.4 22.5
2. Cerebral hemorrhage and other vascular lesions affecting central
nervoussystem ------------------------------------------- 37 110.7 11.1
3. Arteriosclerosis -------------------29 86.8 8.7
4. Certain diseases of early infancy-- ----------------------------- 29 86.8 8.7
5. Accidents---------------------- 23 68.8 6.9
6. Malignant neoplasms.. ---------------------------------------- 21 62.8 6.3

During the year there were 39 infant deaths and an infant death
rate of 33.0. This is an improvement over 1959 when there were 48
infant deaths and an infant death rate of 43.3. The number of 12

32 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

infant deaths for St. Croix for 1960 is the same as 1959, the infant
death rate being 22.6, while the infant death rate for 1959 is 24.2. The
St. Thomas figures are 27 with an infant death date of 42.9 as com-
pared with 35 infant deaths in 1959 and an infant death rate of 59.1.
No infant deaths were reported for St. John. The leading causes of
infant deaths for the Virgin Islands are as follows:

Percentage
Number Rate of total
1. Prematurity ----.--------------------------- ---- ............. 21 17.8 51.2
2. Pneumonia (including of newborn) -----------................... 5 4.2 12. 2
3. Asphyxia and atelectasis.......----------- -------------------... 4 3.4 9.8
4. Gastro-enteritis and colitis ---------..----------... _-------_ 4 3.4 9.8

There were 59 fetal deaths in 1960 with a rate of 50.0 per 1,000 live
births. This large statistical change in the reported 32 fetal deaths
in 1959 is due to an increase in fetal deaths over 20 weeks gestation
as well as to better reporting of fetal deaths under 20 weeks gestation
in St. Thomas. No fetal deaths under 20 weeks gestation were re-
ported for St. Croix.
No maternal deaths were reported during the year.
There was a substantial increase in marriages in 1960, and a slight
decrease in divorces, marriage figures being 361 in 1960 as compared
with 306 in 1959, and 135 divorces in 1960 as compared with 138 in
1959.
Adoption figures were 12 in 1960 compared to only 3 in 1959.

Bureau of Maternal and Child Health and Crippled Children's
Services
There has been an increase in almost all the services rendered, and
most of the clinics were conducted with a physician in attendance.
Daily attendance at the general Pediatric Out-Patient Clinic showed a
marked increase in St. Thomas.
Services under the Crippled Children's Program included diagnos-
tic, medical, surgical, and corrective treatment provided by physician
specialists. Attendance at these clinics has been very good, especially
in the Orthopedic and Ophthalmology Clinics. Two public health
nurses, employed to serve in the Crippled Children's Program, were
responsible for most of the nursing care to crippled children.
Several referrals were made from the Bureau of Mental Health
for electro encephalogram tests in Puerto Rico. The services of a
psychiatrist were made available to patients on the Crippled Chil-

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 33

dren's Registry. A speech-audiologist was added to the staff of spe-
cialists and speech therapy clinics were conducted once monthly in
each island.
Services of a medical social worker were secured on a part-time
basis. Two resident ophthalmologists served the Crippled Children's
Clinics, one in each island. Clinics were held regularly and nearly all
eye surgeries were performed locally instead of sending patients to
Puerto Rico.
The Cardiac Clinic nurse in St. Thomas had a month's observation
of a cardiac program at St. Peter's General Hospital in New Jersey.
A pediatric nurse from St. Croix received a 6-month course in
pediatric nursing at the Johns Hopkins Hospital in Baltimore, Md.
Travel arrangements were made for 30 children to travel to Puerto
Rico and the United States for medical services which were not avail-
able in the Virgin Islands. The number of children needing off-island
medical care has greatly increased.

Bureau of Business Management
The Bureau of Business Management was able to mechanize the
central storeroom on the island of St. Thomas, and plans are under-
way for doing the same thing on St. Croix after the clinical annex
and laboratory building are completed. Total employees in the De-
partment of Health at the end of the fiscal year was 485.

Division of Hospitals and Medical Services
A crash program of maintenance continued into this year, resulting
in the correction of most of the ugliest physical defects.
When the present facilities in the Virgin Islands were planned, a
ratio of 41/2 beds per thousand population was made the basis of the
construction. For many years, with the listed population of approxi-
mately 26,000, the bed capacity in the Virgin Islands seemed adequate
despite the realization of those who worked in the facilities that this
was not true. The 1960 census shows approximately 33,000 inhab-
itants in the islands. Adding to this a few thousand nonresident
alien workers and that portion of the more than 200,000 visitors who
become sick on their visits to the islands, the bed capacity in the
Virgin Islands is completely inadequate to meet the needs. Addi-
tionally, it has not been generally accepted that the proportion of
41/2 beds per thousand properly refers to acute general beds and not
to the type of all purpose beds which the hospitals in the Virgin Is-

34 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

lands must offer, and with no beds in current and long-term illness
to supplement the acute general beds, the 41/2 per thousand figure
becomes completely unrealistic. Now that additional outpatient fa-
cilities have been provided for the hospital in Christiansted, the two
most pressing needs are expansion of bed capacity for the Knud-
Hansen Memorial Hospital in St. Thomas and a similar expansion
of bed capacity for the Charles Harwood Memorial Hospital in St.
Croix.
During the year, a dietitian was appointed for the Knud-Hansen
Memorial Hospital, and at year's end one was appointed for the Charles
Harwood Memorial Hospital in St. Croix. The house staff of both
hospitals was increased to three physicians each to provide better
coverage. It is noteworthy that the quality of physicians recruited
for the house staff has been very high. A laboratory supervisor was
obtained for the Knud-Hansen Memorial Hospital. An ophthalmol-
ogist was appointed on the staff of the Knud-Hansen Memorial Hos-
pital in St. Thomas, and he also serves as otolaryngologist for the
islands. One class of practical nurses was employed by the Depart-
ment of Health after graduation providing much needed help in that
Department.
Almost any discussion of the problems facing the hospitals in the
Virgin Islands center around difficulty in recruitment. However,
during the past year, there have been some encouraging signs. The
salary for nurses was increased from $3,000 to $3,900, and $4,080,
respectively, depending upon the possession of a B.S. degree. This
has not proved to be as beneficial as was first thought, since it came
at a time when salaries paid to nurses in the United States were also
going up. However, it does form the basis for improvement and,
with minor adjustments, should prove beneficial in recruiting nurses
for the Virgin Islands. Actually, the problem in recruiting nurses
seems to be one of sending larger numbers of Virgin Islanders away to
study. For nonresident nurses recruited, the main problem is not
that of salary but of adequate housing facilities. With the critical
shortage of housing, the higher rentals discourage many of the poten-
tial recruits, and it is not uncommon to have them leave after 1 or
2 weeks of service.
After the salary and housing matter, a big obstacle for satisfactory
recruitment has been the opportunity for improvement on the job
and a relative lack of adequate professional contacts. This problem,
however, is inherent in the fact that the Virgin Islands are small.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 35

Statistical data on medical institutions-Virgin Islands

Charlotte Christian- Frederiksted Herbert
Amalie sted Grigg Home

Number of hospital beds...---------------- 125 60 12 120
Number of bassinets--------------------------- 25 10 4
Maximum occupancy --------------------- 116 68 24 118
Minimum occupancy--- .---------------------- 64 26 4 106
Average occupancy... ------ 79 51 13 112
Number of physicians- ----------------- 12 9 3 (1)
Number of graduate nurses-.----------- 35 24 8 4
Number of practical nurses_--------- 28 7 4 1
Number of nurse aides .---------------------- 23 22 5 -
Number of orderlies.--------- 7 2 ------.----------
Births in hospital... ..------..------ --.. 641 357 140
Deaths in hospital -.. ----.------- 106 60 22 26
Admissions to hospital. ---- ---. 3,078 2,208 608 50
Sick days in hospital -------- ._------ 33,081 18,697 4,728 40,711
Clinic visits.......--------------. ----------- 20,703 15,789 10,188 -----
Major surgical cases---..------------------.. -- 274 245 ------------- --------------
Minor surgical cases ---------------------------344 369 51 --
Number of X-ray examinations --------------- 4,339 6,229 288
Number of stillbirths -......-------- 35 14 2 --
Number of laboratory examinations ...------ 55,991 14,823 7.508-

1 Part time.

Division of Public Health Services

The full participation of the Virgin Islands in the world com-
munity, insofar as regards travel, poses many immediate public health
problems. Attention should be devoted to the eradication of the
Aedes Aegypti mosquito. Although diseases transmitted by this
mosquito, such as dengue fever and yellow fever, are not endemic to
the Virgin Islands, the potential danger exists and demand that im-
mediate steps be taken. An Aedes Aegypti eradication program is
now in effect and should be expanded.
Immediate and concentrated attention must be directed toward the
elimination or reduction of the mongoose. It has been shown in
other areas that the mongoose serves as a source of rabies. There
are no cases of rabies in the Virgin Islands, but the possibility of
introduction remains.
A complete reevaluation of the program of investigation of food
handlers has been completed. It is noteworthy that with the great
increase in the number of establishments handling food and drinks, no
cases of disease transferred by food or drink and traceable to such
institutions have been reported. For many years, it has been a legal
requirement that all persons participating in the serving of food or
drinks undergo physical examinations. During the past year these
examinations have been reviewed and a better system of enforcement
effected.
For the first time in the history of the islands a complete and thor-
ough physical examination was given to most of the school children.

I

36 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

At the year's end about 25 percent of the children remained to be
examined. When it is considered that there are almost 10,000 school
children in the islands of a total population of 33,000, the public health
importance of such an examination is immediately apparent. Phys-
ical defects found during such examinations are traced and the im-
provement in the general health should be remarkable. At the
present time, close to 100 percent of the school children in the islands
have been given at least three injections of the Salk vaccine. This
program of immunization against poliomyelitis has proved to be par-
ticularly helpful in view of the severe epidemic of polio in one of the
neighboring islands.
In the sanitation area, there has been considerable improvements
during the past several months. The Government has set certain
deadlines for the elimination of nightsoil removal in certain areas in
the islands and the meeting of these deadlines will, if it can be ac-
complished, mark a milestone of progress in sanitation in the islands.
Herbert Grigg Home for the Aged
The Herbert Grigg Home for the Aged continues to be completely
unsatisfactory. The basic problem here is that it is not primarily a
hospital but, rather, a home for the aged and infirm. It should
therefore be run as such, with one section staffed by the Department
of Health for those who are ill.
The new administration has planned a vigorous assault on this prob-
lem, the first step being the expenditure of considerable sums of
money for improvement of physical facilities. With the improve-
ment of these facilities, it is planned to transfer the administration
and operation of this institution from the Department of Health to
the Department of Social Welfare, which has the facilities for insti-
tutional care of aged and infirm persons.
Bureau of Environmental Sanitation
In the city of Charlotte Amalie, only 46 percent of properties are
connected to the public sewer system, in Christiansted, only 34.5
percent, and in Frederiksted, only 44.4 percent.
Target dates for the elimination of the nightsoil removal system
and connecting to the public sewer system have been set; July 1, 1962,
for the towns of Christiansted and Frederiksted, and December 31,
1962, for the town of Charlotte Amalie.
The potable water supply of both St. Thomas and St. Croix is
checked once a week by the Bureau of Environmental Sanitation.
One hundred and eighty-five restaurants, taverns, bars, hotels, and
other eating and drinking establishments in St. Thomas receive

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 37

monthly inspections during the year. Seventeen similar places in
St. John were inspected monthly, and 108 in St. Croix.
The garbage and refuse collection service, completely unsatisfac-
tory in the past, has shown a definite improvement in the past few
months. With the end of the fiscal year, arrangements were being
made for the contracting for a garbage scow for the purpose of taking
garbage in St. Thomas out to sea and eliminating the municipal
dump.
Bureau of Laboratories
Development of physical facilities continued in this Bureau. Con-
struction of a new laboratory in St. Croix will be completed by Sep-
tember 1961, and will provide twice the floor space that is presently
occupied by the Christiansted Laboratory. In St. Thomas, the new
physical facilities were occupied by the Bureau of Laboratories and
Central Laboratory during the year. A total of 105,339 tests were
performed in the three laboratories during the year as compared
with 87,758 for the preceding year.
Bureau of Mental Health
Emphasis on the Mental Health program was placed on the prob-
lems of mental retardation. A mental health survey was held during
the year by a team from the U.S. Public Health Service, but the
results have not yet been reported. Members of the Bureau partici-
pated in seminars, workshops, and institutes on various topics of
community interest, including juvenile delinquency, needs of the chil-
dren of the Virgin Islands, differential diagnosis in psychiatry, and
social work in mental health. The staff also participated in the Third
Caribbean Conference for Mental Health. Eighteen mental patients
were transferred to St. Elizabeths Hospital in Washington, D.C. A
part-time clinical psychologist was added to the staff of the Bureau.
Bureau of Dental Health
The program consists of preventive, early detection and treatment
of dental diseases in the preschool children and adults. Consultations
to hospitalized cases and emergency dental services are also included
in the total program.
The services conducted in the past fiscal year included dental screen-
ing of elementary and high school children, routine clinical examina-
tion and treatment, including X-rays, topical fluoride clinic and
fluoridation, routine prophylactic treatments, and dental education.
Division of Veterinary Medicine
Disease Eradication.-The key to controlling blood parasitic dis-
eases of cattle, Anaplasmosis and Piroplasmosis, is the eradication of

38 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

the vector Boophilus Microplus. The introduction of Toxophene 18
months ago as a cattle dip to augment the arsenic trioxide dipping
program already in use is apparently successful. The residual effect
of the new dip is more pronounced and of longer duration on the cattle.
There is a pronounced decrease in ticks and disease incidence in treated
herds. However, there are many small herd owners who do not have
dipping vats, and whose cattle are infected with both diseases.
Two hundred and fifteen new cases of anaplasmosis were found pri-
marily in the small herds where dipping programs are not rigidly
followed. There were 59 cases of piroplasmosis reported.
All cattle in St. John, 60 percent of the cattle on St. Thomas, and 40
percent of cattle in St. Croix were retested for Brucellosis and

Statement of appropriations and/or allocations, Virgin Islands Department of
Health, fiscal period July 1, 1960-June 30, 1961

Percent- Percent-
Appro- age of age of
priations appro- Obligated obliga- Matching
Source and/or priations and/or Balance tions requirements
alloca- and/or expended and/or
tions alloca- expend-
tions itures

General fund-- _.--------.--. ----. $1,278,708 0.403 $1,259,268 $19,440 0.4109
Internal revenues ------- --- 1,356,605 .4276 1,348,023 8,582 .4399
Maternal and child health, fund A ... 71,256 .0225 70,951 305 .0232 $1 State for $1
Federal.
Maternal and child health, fund B.... 31,198 .0098 30,924 274 .0101 None.
Crippled children's services, fund A-. 71,116 .02241 70,942 174 .0231 $1 State for $1
Federal.
Crippled children's services, fund B_ 36,979 .0117 36,612 367 .0119 None.
General health.--------------- ------ 8,701 .0027 8,539 162 .0028 $1 State for $1
Federal.
Veneral disease ..--.....------------. 4,821 .0015 4,742 79 .0015 Do.
Tuberculosis control ---------------- 8,380 .0026 8,286 94 .0027 Do.
Mental health -------------------- 41,021 .0129 30,295 10,726 .0099 Do.
Heart disease control ------------ 6,409 .0020 6,386 23 .0021 Do.
Cancer control_ -------------------- 6,245 .0020 6,228 17 .0020 Do.
Private contributions (T) ------...... 13,969 .0044 5,938 8,031 .0019
Private contributions (C) ..---------. 1,950 .0006 898 1,052 .0003
Water pollution ..- -----------. 3,936 .0012 3,936 .------. 0013
Veneral disease, matching ..--------. 8, 578 .0027 8, 576 2 .0028
Tuberculosis, matching-------------- 8,842 .0028 8,842 ........ .0029
Mental health, matching_-- ---- 32,051 .0101 32,051 ------... .0105
Heart disease control, matching--...-- 6,553 .0021 6,553 .-----... .0021
Cancer control, matching------------- 8,801 .0028 8,801 ......... 0029
General health, matching --- ---- 8,427 .0027 8,290 137 .0027
Maternal and child health, matching_. 29,057 .0092 28,690 367 .0094
Crippled children's service, matching_ 37,271 .0117 28,253 9,018 .0092
Water pollution, matching.---------. 2,135 .0007 1,158 977 .0004
Hospital construction-------------- 64,848 .0204 25,642 39,206 .0084
Home care program, matching .----.. 14,568 .0046 14,567 1 .0048
Medical practice fund--...---------- 10,313 .0033 1,134 9,179 .0004
3,172, 738 100 3, 064, 525 108,213 100

SUMMARY OF OPERATIONAL COST

Gross operational cost-....-- ---------------------------------------------
Less assets:
Cash-medical care. .-- .--------......----------------
Cash-veterinary services and services of environmental sanitation.. -----_ ----
Accounts receivable -------------.... .------------------____ ...
Less 40 percent of the amount that may be determined medically
indigent---------.......................-------------------------. $122,155
$183,232

$3,064,525
247,544
2,431
305,387

4.33 207

Net operational cost .....---- ------------------------------.. 2,631,318
Per capital gross....-- ------------- ----------------------------------- 88.96
Per capital net ----------.......................------------------------------------------- 76.38

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 39

Tuberculosis. No reactors were found. For all practical purposes,

Brucellosis has been successfully eradicated.
Hog Cholera also seems to have been eradicated from St. Thomas
and St. John and no cases were reported in St. Croix.
The present manner of slaughtering animals for most of the islands
is completely unsatisfactory. The slaughterhouses in both Christian-
sted and Frederiksted are in such bad condition and so completely un-
suited to the use for which they are put, that rushing construction of

the new abattoir in St. Croix is a measure of paramount importance.
A contract for a new abattoir for St. Croix was awarded during the

year at a cost of $161,698, and it is expected that it will be completed
by March 1, 1962. The St. Thomas slaughterhouse facilities could
be made satisfactory by the expenditure of approximately $100,000.

Virgin Islands Department of Health hospital services, July 1, 1960-June 30,
1961

Section and/or service Account
No.

Room and board--------------- 7703
Operations--------------------. 7704
Dental services.--------------- 7705
Outside calls:
1. Doctors -------- 7706
2. Postpartum ------.... 7707
Drugs and medicines .--------- 7708
Physiotherapy.-------- 7709
X-ray services ---------------- 7710
Ambulance services------------ 7711
Laboratory services------------ 7712
Examinations ----------------- 7713
All other--............-------- 7714
Gross revenues earned 7702
Free services------------------- ---------.
Net charges to accounts
receivable-------------- ----------
Total collections -....._ -- ---------
Accounts receivable, June 30,
1961 ----------- ------_
Accounts receivable, June 30,
1960 -------- --..--
Cumulative accounts re-
ceivable---------------- ---------
Free services--.........--------- ------
Less payments made based on
statistical information__ --........
Net free service-------- -------

Knud-
Hansen
Memorial
Hospital

$115,937
17,021
18,229
108
6
29,040
655
10,286
126
26,915
20,341
10,571

Charles Fred-
Harwood eriksted
Hospital Clinic

$157,844
7,049
6,568

20,859
454
12,908
677
14,358
8,780
19,959

$7,332
20
3,917
---.-------
----------
8, 369
522
254
2,620
3,771
5,764

Totals

$281,113
24,090
28,714
108
6
58,268
1,109
23,716
1,057
43,893
32,892
36,294

Percent-
age of
gross
revenues

52.9
4.5
5.4
.020
.010
11.0
.021
4.5
.20
8.3
6.2
6.8

249,235 249,456 32,569 531,260 100.
177,771 205,023 26,654 409,448 77.1

71,464 44,433 5,915 121,812 22.9
57,589 27,885 3,166 88,640 72.8

13,875 16,548 2,749 33,172 27.2
61,838 179,804 30,573 272,215 ..-----

75,713
177,771
100,000
77,771

196,352
205,023

57,955
147,068

33,322
26,654
949

25,705

305,387
409,448
158,904
250,544

Department of Property and Procurement

Division of Procurement and Supply

This Division put into use a new combined Requisition-Order-In-

voice-Voucher form, with simplified features enabling the Division

Percent-
age of
accounts
receivable

- - -
- - -
- - -
- - -

---.- 100.0
----------......

40 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

to keep its work current and save considerably in time, effort, and
money.
Essential Public Works Projects, formerly administered by the
Federal Government, are now administered by the Government of the
Virgin Islands. Construction contracts for St. Thomas totaled
$1,968,425; for St. Croix, $1,807,386, and for St. John, $15,644. Pur-
chases, exclusive of "more or less" contracts, totaled $2,307,099.
It has been found advantageous to maintain a stock of needed com-
modities which are in constant and adequate demand. Departments
find it economically desirable to use the facilities of the central ware-
house. A more effective service could be rendered by the central
warehouse, with resultant economies, depending on an increased ap-
propriation for the revolving fund on which this warehouse operates.

Property Division
Inventory control continued to be an important function of this
Division. The need for precision in this field has been fully recog-
nized and the Division, in conjunction and collaboration with the
Office of the Comptroller for the Virgin Islands, is now engaged in
developing a modern method of inventory control. It is expected that
a complete inventory of public property will be taken during the
coming fiscal year by teams under the Department of Property and
Procurement, and will then be recorded and maintained on electronic
equipment. A full inventory control should be in effect before the
end of the year.

Land Division
Necessary changes of the Homestead Law resulted in a more equi-
table Homestead Program. Eighty-two allocations of homestead land,
totaling a sales value of $29,746, were made and 35 deeds were issued.
Home loans granted totaled $167,800. More and more people are
taking advantage of this program and it is expected that even greater
use will be made of it since it is now possible to obtain loans for home
improvements. However, by the end of the fiscal year, there re-
mained very little money in the Home Loan Fund for this purpose.
Although the activity of the Price Control Program was confined
to a weekly survey of retail prices, consideration has been given to
ways and means to inaugurate a more effective system. Plans have
been developed for adequate control and supervision of weights and
measures.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 41

In the rent control field, the Division conducted investigations, held
hearings, made inspections of properties and counseled landlords and
tenants concerning rent control matters.
On May 15, 1961, the District Court of the Virgin Islands rendered
an opinion in a rent control case, finding as a fact that a public
emergency resulting from the shortage of business accommodations no
longer exists in the Territory of the Virgin Islands. This decision
set aside a rent order and remanded the cause back to the Rent Control
Officer for further hearing and investigation and for fixing a maxi-
mum rent which is fair and reasonable. The court gave an opinion
that the Rent Control Law of the Virgin Islands urgently needs
amendment to bring it into line with constitutional requirements and
the realities of economic conditions existing in the Territory. A new
Rent Control Law was prepared and submitted to the Legislature but
has not been acted upon. It will be reintroduced at a later date.
Operating expenses in the Department of Property and Procure-
ment were as follows:
Office of the Commissioner--- _----- ------- ----- $68, 941.34
Division of Procurement and Supply -------------------- 52, 398.25
Property Division ----------------- ---------- 65, 487. 14
Land Division--------------------------------------- 34, 667. 59

Total ------ ----------------------------221,494. 32

Virgin Islands Housing and Urban Renewal
Authority
The Board of Commissioners of this Authority which was comprised
of 5 men from the time that the Authority was organized in 1950 was
increased to a 7-man Board by legislation enacted during this year.
Considerable progress was achieved under the Public Housing Pro-
gram and is today well accepted by all segments of the community. The
Urban Renewal Program, which was started very recently, is still in
the preliminary stage and it will be some time before the benefits of
this federally-aided program can be appreciated by the community
as a whole.
Recognizing the need for more adequate housing for low income
families, the Authority is engaged in planning new projects totaling
480 units which, when combined with 564 units in the development
stage, and the 530 units under management now, will constitute a
fairly large federally-aided low-rent housing program. Under au-

42 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS
thority granted by local law, the housing agency is making full use of
assistance and benefits available from the Federal Government toward
the partial solution of the acute housing problem with which families
of low income in the Virgin Islands are faced. It is an accepted fact,
however, that the Federal low-rent housing alone cannot provide
adequate housing for all those in need. For this reason, the Govern-
ment of the Virgin Islands is engaged in a local emergency housing
program which is reported elsewhere in this annual report.
The Public Housing Program
During its 11 years of public service, the Authority has constructed
three projects, one in each of the three principal cities of the Virgin
Islands. In addition to these projects which total 420 dwelling units,
the agency has renovated 110 apartments constructed under an older
program which, together with the newly built projects, makes a total
of 530 apartments now under management.
A large percentage of the tenants in public housing continue to
pay rent of $20 per month or less. The Federal Government, through
the Public Housing Administration, contributes approximately two-
thirds of the cost of public housing with the annual contribution
amounting to a little more than $2 for each $1 derived from rentals.
The turnover in public housing in the islands is very low. On the
other hand, applicants are numerous and an already long waiting
list grows daily. A large number of applicants have been found to
be ineligible because of the very low maximum limits for admission.
Progress on the Ralph de Chabert Place in Christiansted, now
under construction, is satisfactory. The Authority, however, is con-
cerned over the slow rate of progress being achieved at the Oswald
E. Harris Court in Charlotte Amalie.
The Authority obtained an allocation of 480 units to be divided into
4 projects with 200 units for the city of Christiansted 80 units for
Frederiksted, and 200 units for Charlotte Amalie.

The Urban Renewal Program
The Authority has been engaged in preliminary planning work on
three urban renewal projects, one in St. Thomas, one in Christiansted
and one in Frederiksted, St. Croix. Whether the Authority will be
able to proceed beyond the planning stage with its Urban Renewal
Program will depend to a large extent on legislative action on a
Zoning and Subdivision Code. Such a code is now in preparation
and will be presented to the Legislature during the year.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 43

The financial statement of the Authority for the year shows as
follows:
Operating expenses, all projects---------------------------- $113, 899. 67
Capital expenditures -----------------------18, 508. 63
Provision for reserves---- --------------------- 1, 417. 97
Interest and reduction of principal (includes bonds retired)----- 286, 361. 06

420, 187. 33
Income from tenants ---------------------- 133, 826. 27

Deficit. ------------------------ 286, 361. 06
Contribution from local Government body:
Capitalized interest on bonds----------- ----- $9, 526. 56
Federal contribution------------- ----- 276, 834. 50

286, 361. 06

Department of Public Safety
Department of Public Safety operations continued to improve dur-
ing the fiscal year 1961 despite an ever increasing workload through-
out the divisions and activities. The largest and most thoroughly
trained group of recruits attended rookie police school in St. Thomas.
Communications with all headquarters in the Virgin Islands now
exist through a relay station. Standby electric generating equipment
was installed in St. Thomas and radio equipment will continue to
operate even during power outages. Similar installations are planned
for St. Croix and St. John.
An information program was initiated in collaboration with a local
television station. This program is designed to bring to the public,
through panel discussion and visual aid materials, subjects of timely
interest on the various facets of the Department's activities and to
develop an.awareness of the need for observance of law and accepted
safety practices.

Bureau of Criminal Investigation
A Deputy Commissioner was added to the staff of the Department
with the responsibility for coordinating the work of this bureau on an
insular basis. The bureau reorganized its internal organization.
Additional men were assigned to the investigation staff and promotions
were made within the ranks. A position of Captain, Insular Chief
of the Bureau of Investigation, was created and filled, thus maintain-
ing supervision on an insular basis.

44 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Patrol Bureau
The growth of the Virgin Islands in recent years has increased the
need for a larger patrol force. While the strength of the uniformed
force has increased, patrol bureau strength continues to fluctuate,
mainly because it is a training and proving ground for all manpower
of the division. The public has displayed an increasing respect for
the officers assigned to this bureau. This can be attributed largely
to the in-service training being received, particularly in public rela-
tions and in law enforcement techniques, and the attention paid to
the caliber of the men.

Highway Patrol
An intensified campaign to provide more safety on the public high-
ways was carried on throughout the year. As a result, the number
of traffic accidents decreased from 922 for the previous year to 600
for the current year. The number of persons injured dropped from
238 to 229. However, despite this enforcement activity the number
of insular deaths due to accidents increased from six in the previous
year to eight in this fiscal year. A total of 121 drivers' licenses was
suspended. The activity of the municipal judges in this area has been
effective in that the hazardous drivers have been made to feel the
pinch and other drivers now find it necessary to stay within the law.

Law Enforcement
The following figures show the activities of the police division as
compared with the previous fiscal year:
1959-60 1960-61
Criminal cases reported-all Virgin Islands----------------- 2, 674 4, 069
(a) Handled by foot patrol bureau:
St. Thomas and St. John------- ------------- 321 270
St. Croix--------------------- --------------- 177 454
(b) Handled by bureau of criminal investigation----------- 406 669
(c) Traffic violations brought to court:
St. Thomas------------------- ----------- 1,294 2,104
St. John------------------------------ 15 26
St. Croix------------------------------- 461 776
Marshal service to the Municipal Courts was provided on an aver-
age of 41/2 days a week as follows:

Documents served St. Croix St. Thomas

Criminal summons ---............---------------------------------------- 2,632 6,658
Civil summons---.............----------.--------------------------------- 582 2,026
Writs of execution ............---- .. ------------------------ 166 236
Conciliations---.... ..----------.. ----------------------------------------- 367 420
--------- 58
Automobile liens .....................-------------------------.....------------------------- ------ 58
Traffic summons ....--- .............----------------------------- 675--- 1,300
Warrantofarrest.......................------------------- ----------------- 8 120
Total.............----------------------------------- -- 4,430 10,818
Business inspection prior to issuing licenses----...--..........................------------------ 259

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 45

Vehicular Registration and Licensing

St. Thomas St. Croix

1959-60 1960-61 1959-60 1960-61

Motor vehicles (private) ------- ---------------- 1,597 2,030 1,430 1,580
Taxicabs and rented cars ... ------------- 910 976 327 363
Trucks (pickups) -------------- 382 664 834 873
Buses .-------------- ---- 20 20 10 15
Trailers __-_.. .------------------ --- -------- ------------ ------------ 28
Motorcycles .. .. .17 48 30 43
Motorbicycles---- ------- -- .7..16. 48 30 43
Motorbicycles-------------------------------------- l--
Motorscooters ----------- 72 41 64 41
Tractors ------------------------------------6 ---------- 5
Bicycles --___------.-. --... .. .. 231 48 482 337
Drivers' licenses:
Private - -- 3,128 3,469 2,936 3,303
Taxi --------------------_-..---- -- 449 554 151 509
Learners' permits ------------------ 739 746 287 385
Motor vehicles transfers ..----- 700 495 305 566
Traffic tickets issued------------- 1,416 2,112 461 776
Registration of vehicles ----------------- ...$59, 807.28 $75, 110.26 $57,270. 79 $61,165. 17
Fines for traffic violations ---- 10,373.00 15, 565.00 5, 056. 00 6,220.00
Visitors' permits ........--------------- 111,482.00 1,482.00 3,364.00 3,413.00

Insular Boys Shelter

An Insular Boys Shelter was opened in Frederiksted at Fort Chris-
tian on Jily 22, 1960. It was started to receive boys who, because of
antisocial behavior, have been committed by the Juvenile Court to
the Department of Social Welfare. Boys over 16 years of age are
kept in the shelter and work at trades until such time as they are put
on probation by the Department of Social Welfare. Counseling is
done by the Social Welfare Worker assigned to the shelter, by the
supervisor and by the counselors. Twenty-four boys were admitted
during the year. Of this number, 6 were sent to Insular school,
1 was returned to Puerto Rico, 4 are on probation, 1 is working in
private industry, and 12 were in the shelter at the close of the year.

Richmond Penitentiary

During the year, 122 inmates were admitted to the penitentiary in
St. Croix. At the end of the fiscal year there were 38 inmates. For
the same period there were 478 reports of inmates being sick and
receiving treatment.

46 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Of major note was the reorganization of the Richmond Prison In-
dustries-a program given to the training of prison inmates in new
skills and trades. In addition, the Richmond Industries Fund, pro-
vidina a means for the inmates of the penitentiary to earn an in-
come while learning the aforementioned skills and trades, was also
reactivated.
The rehabilitation program continues to improve although there is
still much to be done. The prison farm worked by the inmates pro-
duces much of the food for the penitentiary, and considerable livestock
is raised. Many of the inmates make a little money during their
leisure time making belts, doing radio repairs, knitting fishnets, doing
furniture upholstery and making saddles. Work of this sort and in
the prison industries is considered a basic part of the rehabilitation
program.

Fire Division
During the year the Fire Division responded to 109 fire calls, a
decrease of 41 fires from the figure for the previous year. Fire losses
in St. Croix amounted to $11,972 as against last year's loss of $15,060.
In St. Thomas, fire losses amounted to $15,000 as compared with
$20,101 for the previous year. No fires of any type were reported for
St. John.
The Division continues its schedule of weekly training drills geared
to a greater degree of familiarization with equipment and apparatus.
This, however, is felt to be insufficient. The Director of the Fire
Division, with the tentative approval of the Commissioner of Public
Safety, has made arrangements to have both, or at least one, of the
Fire Lieutenants attend the New York Fire College for advanced
training in Firemanics.
During the year the Division purchased two new portable pumps
which have already proved their usefulness in areas that are inacces-
sible to fire trucks, and where water has to be obtained by draft. In
addition, four chemical units of 200 pounds each were received. Two
of these units are in St. Croix and two are in St. Thomas, mounted on
the jeep truck. Two more are needed for the island of St. John.
Civil Defense
Major efforts were directed to developing the organization's po-
tential to meet emergencies resulting from such natural causes as
hurricanes, floods, etc., and from man-caused emergencies. To this
end emphasis was placed on perfecting the inter-island system of
communications and in revising and up-dating operational survival
plans. Much of this program has been effected and is under constant
review and revision.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 47

The Home Guard
The Home Guard, acting as wardens, assisted families throughout
the community, in prehurricane preparedness (boarding up of homes,
movement of persons from homes to shelters, etc.) and in the patrol-
ling of the roads and outlying areas of the islands.
At the close of the last fiscal year the Legislature in recognition of
the services rendered by the members of the Guard to the community,
amended the Virgin Islands Code to permit remuneration of members
of the Home Guard who are ordered to duty as auxiliary police. This
action had a marked effect on morale and engendered new spirit in the
organization.
During the year initial steps were taken to reactivate the long
dormant St. Croix Home Guard. It is anticipated that these steps
will materialize during the coming fiscal year and that units will
be informed in both Christiansted and Frederiksted.

Wildlife-Game Wardens
Assisting in the enforcement of the game and wildlife regulations
is a force of 11 men skilled in the use of firearms and who are familiar
with the laws pertaining to the various forms of game and wildlife
that inhabit the islands. This chief game warden and his 10 assistant
game wardens have been deputized by and are directly responsible to
the Commissioner of Public Safety. The wardens are all responsible
civic-minded individuals with a variety of skills and serve in such
capacity, without pay, as a public service in the interest of the com-
munity. .The game wardens maintain a constant patrol of the island
in and out of season and also serve as a specialized mobile warden force
in times of emergency for the civil defense organization undertaking
such tasks as first-aid, rescue, traffic direction and control, engineering,
etc., in line with their available skills.

Police and Fire Commission
During the year the Commission held six meetings and considered
seven cases involving members of the Police Division. As a result of
these hearings, six suspensions ranging in duration for from 1 to 3
weeks were ordered.

Parole Board
The Parole Board held its regular twice-a-year meetings and ap-
plicants for parole were heard and cases reviewed. Several applicants
were recommended for parole.

48 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Appropriations
A total of $700,823 was appropriated for the Department of Public
Safety. Actual obligations were as follows:
Activity Obligations
Commissioner's Office--- -----------_ -------------- $80, 751. 01
Police and Prison Division -------------------------------_ 482, 997. 91
Fire Division -------------------_---------__ 129, 660. 15
Police and Fire Commission --_------- _____-------_ --- 250. 55
Parole Board ____ ___----- --------------------------- 111.70
Home Guard...... ---- ------_---------_-------------- 3, 951. 00
Civil Defense--- .---------- -----__---------------------- 2, 434. 32

Total --.--......__---- ---------_-------_---_-- 700, 156. 64

Department of Public Works
The fiscal year just completed marked a change in the administra-
tion of the Department of Public Works. On May 1, 1961, the Office
of the Public Works Coordinator, responsible for the planning of
matching fund projects, was abolished and its functions were trans-
ferred to the Department of Public Works. The former Public Works
Coordinator was appointed Commissioner of Public Works.
The sum of $2,293,191 was obligated for routine functions of the
Department of Public Works in St. Thomas, St. Croix, and St. John,
Including maintenance of highways, streets and roads, garbage and
refuse collection and removal service, operation of the sewer and salt
water systems, the potable water system, the nightsoil removal service,
maintenance of public buildings and structures.
The sum of $2,707,047 was obligated for the construction of public
projects under the Internal Revenue Matching Fund.
One of the major problems of the Department is keeping the city
of Charlotte Amalie and its environs free of garbage and rubbish.
Rubbish and garbage are dumped indiscriminately on streets and
roads. Cans and bottles are dumped from passing cars by night and
day on the public roads. The island of St. Croix is comparatively
free of this type of litterbug activity. The Sanitary Division of
St. Thomas was reorganized for concentrated effort on garbage col-
lection and street cleaning, and new and modern equipment has been
ordered.
The second major problem is keeping an adequate supply of potable
water on demand at all times. On St. Croix, the potable water sys-
tem consists of a series of wells. The problem of supplying the
demand for water in the towns of Christiansted and Frederiksted
had reached the critical stage by the end of the year, but an energetic

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 49

program was in progress for exploration for additional ground water
sources which gives excellent hope of success.
In St. Thomas, the public water system consists of the runway at
the airport which is used as a catchment area with a storage tank of
approximately 1 million gallons of treated water, 11 catchment areas
in the city area, with 13 tanks, storage capacity of 3,847,000 gallons
and at the former submarine base, a storage capacity of 6 million
gallons. While this may appear impressive, it is far from adequate
in times of drought. Water is hauled from Puerto Rico daily on
contract by a self-propelled barge of approximately 250,000 gallons
capacity to augment the supply.
The contract for furnishing of water by barge has proved most
satisfactory as a dependable supply. The peak storage for the year
was in March with 411/2 days supply, and the low was in June with
23 days supply.

Roads and Highways
On St. Croix, maintenance was carried out on unpaved sections of
roads. Considerable flood damage was caused by unusual heavy
rains causing washouts of roadbeds and collapse of retaining walls.
Damage was particularly heavy on unpaved sections of city streets.
The damages were repaired from funds made available through the
Road Fund.
On St. Thomas, flood damage was repaired and maintenance was
done on all dirt roads including Wintberg-Donoe Road and the
Wintberg-Mandahl Road. The Rosendahl Road and the Blackpoint-
Sagus Road were rebuilt.
On St. John, maintenance continued on Centerline Road, Northside
Road, East End Road and the Coral Bay Quarter. On the Northside
Road the pond at Maho Bay overflowed and washed the road out
completely. Repairs were made by rock fill and dirt. Culverts were
cleaned of rock and debris and the usual brush cutting and patching
continued the year round.
Street Cleaning and Garbage Removal Service
Due to the ever increasing number of houses in the suburban
districts of Christiansted and Frederiksted on St. Croix, it has been
exceedingly difficult to give proper service with the limited number of
garbage trucks in operation. As funds become available for the pur-
chase of equipment, eight new garbage trucks will be purchased to
provide daily removal service in the towns and additional service to
the more populated areas in the country districts.
In St. Thomas, the garbage removal service has been gradually
extended from the city and is now almost island-wide.

50 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Nightsoil Removal Service
On St. Croix there has been a slow but steady decrease from year to
year of the number of cans in use, particularly in the Frederiksted
District. In Christiansted, there are a large number of houses still
being served. On St. Thomas, the major number of dwellings being
served are in the Kronprindsens Quarter and in the Demerara-
Welgunst Altona Area with their many superficiary houses. It is
hoped to have the nightsoil removal service practically eliminated by
December 1962.

Sewer System
General maintenance was carried on in St. Croix, and in St. Thomas
many months were devoted to the cleaning of the sewer mains which
were choked solid from the flood of May 8, 1960, and subsequent
storms.

Public Buildings
The first floor of the District Court Building in Charlotte Amalie
has been renovated and turned into office space for the U.S. Immi-
gration Service, the Public Utilities Commission, the Parole Board
and the Probation Officer.

Matching Funds Program
The Department was active in the planning, design, administration
and construction functions of the Essential Public Projects authorized
under the Internal Revenue Matching Funds. Principal projects
included improvements of roads and streets, construction of Sugar
Estate and Nisky Schools, improvements at the Harry S Truman
Airport, installation of sewers, fresh and salt water lines, construction
of the Frederiksted pier, construction of Christiansted harbor im-
provement, improvement of roads and streets, and sewers and fresh
and salt water lines, and the construction of a new abattoir. In St.
John, funds were appropriated for reconstruction of roads and school
additions.
The following Public Works statistics are of interest:

UTILITIES AND INSPECTIONS
Estimated con-
Building permits Number struction costs
St. Croix------------------ -------------- 224 $3,019,441
St. Thomas and St. John_ ---------- ------------ 460 6, 363,482
Number of sanitary installation permits
Sanitary installation permits -------------------------- 120
Sewer connection permits---------------------------------- --- 35
Water connection permits------------- ---------------- 19

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 51

Number of properties connected to salt water system
St. Croix---------------------------------------------- 59
St. Thomas----------------------------------------------------- 382
St. Thomas new connections ------------------------ ------ 19
Number of potable water connections
St. Croix new connections---------------- ---------------------- 79
St. Thomas new connections------------------------------- -- 68
Total number of potable water connections----------------------------- 802
Potable water consumption
Potable water pumped from wells --------------- ------- gal_ 47, 628, 528
Potable water brought in by barges-------------------- do 89, 103,300
Potable water hauled by trucks to consumers----------------do 625, 500
Potable water used by consumers by meters------------- do 90, 475, 685
Average daily consumption, St. Croix---------------------do 130, 516
Average daily consumption, St. Thomas---------------- do-- 250,000
Garbage and rubbish hauled
St. Thomas---------------------------------- -----cu yd 39,990
St. Croix-------------------------------------do 40,896
Nightsoil removal
St. Thomas .------------ -----------------------.gal 458,336
Cans in use, St. Thomas--------------------- --------------- 900
St. Croix_----------------- --------------------- ----- gal 242,986
Cans in use, St. Croix -------------------------- -------------- 433
Miles of road maintained
St. Croix------------------------------------ ----- 170
St. Thomas and St. John ---------------------------------- 90
Miles of streets maintained
St. Croix -------------------------------------------- 16. 4
St. Thomas---------------------------- ---------------------- 13

Department of Social Welfare
Public Welfare programs are subject to changing social and eco-
nomic conditions. The extent to which the community is protected
against the ills of poverty, illness, poor housing, unemployment and
broken homes depends upon the adequacy of the investment in health,
housing and welfare programs. Increased annual appropriations have
enabled the Department to provide assistance and services in such a
way that the causes of many community social ills have been greatly
decreased.
During the year new programs have been added and much progress
recorded.

Public Assistance Division
Assistance grants were increased twice during the year. In Sep-
tember 1960, food allowances were increased an average of $3 per

52 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

person for adults and for children aged 13 to 18 years. In April
1961, all Public Assistance grants were raised approximately $4 per
person. These increases were based upon the Virgin Islands "Low
Cost Family Food Plan" and brought all food grants up from 50 to
75 percent of minimum need.
A plan of Medical Assistance for the Aged and Medical Assistance
for OAA recipients was established pursuant to the 1960 Federal
social security amendments and began operation on February 1, 1961.
The Division concentrated on analysis of the caseload in an effort
to rehabilitate all possible employables, to establish eligibility on a
prompt and sound basis and to improve services.
The following charts show caseload distribution and expenditures
by category:
Caseload distribution by districts

Caseload July 1, Added during year Closed during year Caseload June 30,
1960 1961
Category _
StC StT-J StC StT-J StC StT-J StC StT-J

OAA--------.....--- 338 214 41 25 54 31 325 208
ADC. -------------- 196 60 65 32 63 25 198 67
AB ..-- ------- 15 4 0 1 1 1 14 4
AD-.......---- ------ 64 43 9 4 13 6 60 41
GA----.... ------. 60 42 40 48 32 26 68 64
EA---.-------- 0 0 13 54 13 54 0 0
Total---....... 673 363 168 164 176 143 665 384

Comparison of caseloads and expenditures

Number of persons aided Expenditures
Category
June 1960 June 1961 1960 1961

Old-age assistance----........-----------------. 561 527 $161,671.89 $183,554.78
Aid to dependent children .....---------------. 922 865 132,448.56 169,649.15
Aid to the blind -------------------- 19 19 6,129.50 6,199.02
Aid to the disabled -------------------------- 107 98 33,483.90 38,324. 70
General assistance .....-- ....-----------------. 107 124 30,694. 88 39,192. 48
Grand total ---------------------------- 1,716 1,633 364,428.73 436, 920.13

The movement of this program during the past 6 years is reflected
in the caseload changes noted in the following table:

Comparisons of caseloads 1956-61

Number of persons June June June June June June
1956 1957 1958 1959 1960 1961

Old-age assistance---........------------. 669 659 620 584 561 527
Aid to dependent children---------....... 821 1,007 785 777 922 865
Aid to the blind---.......--------------. 30 25 21 20 19 19
Aid to the disabled------.... .----------. 101 105 103 101 107 98
Total Federal categories...--------. 1,621 1,796 1,529 1,482 1,609 1,509
General assistance...-----.. ----------. 125 139 128 118 107 124
Grand total.--------------------- 1,746 1,935 1,657 1,600 1,716 1,633

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 53

Under the provisions of Act No. 651 of the Third Legislature the
Department of Social Welfare was made responsible for purchasing
medical care from the Department of Health for individuals 65 years
of age or older whose income and resources are not sufficient to meet
costs of necessary medical care whether or not they are receiving
assistance for other needs. By June 30, 1961, 288 persons had received
care and services under this program, including drugs, appliances,
and glasses.
Total assistance expenditures for assistance and administration
amounted to $574,612.64 as compared with $448,328.68 last year, an
increase of 17.6 percent. Federal matching funds earned this year
amounted to $251,154.02 compared with $216,116.20 last year and all
of it was received as this sum is less than the Federal ceiling of
$315,000.
The Division of Public Assistance worked closely with the Executive
Secretary of' the Commission on Aging in all areas of program
planning and in other special activities relating to the Virgin Islands
participation in the 1961 White House Conference. These activities
were climaxed with attendance of 11 Virgin Islanders at the White
House Conference on Aging in Washington in January.

Child Welfare Services
Casework service was provided to 756 children as compared with
818 last year and 627 the previous year. Below are tables showing the
type of services and the caseload during the year:

Caseload distribution by district offices

St. Croix St. Thomas Total
Children receiving service July 1, 1960 .....---------------.. 243 254 497
Children accepted for service during year .._------_----- _- 105 153 258
Service discontinued during the year.. -__-------.---___ ________. 72 80 152
Children receiving service June 30, 1961 .------- --_____-_-_- 276 328 604
Total number of different children receiving services during year__ 348 408 756

Whereabouts of children receiving service on June 30, 1961

St. Croix St. Thomas Total
In home of parents---.-........ ..________ ._ ......___o 110 161 271
In home of relatives ---..----------------------------_____ 47 26 73
In boarding homes---..--...._.__ ______._....__ __. ____--- ___ 49 70 119
In free foster homes -------- ---_ ~_--_... _...._ ______ 25 24 49
In institutions -------------------------------------------- 31 35 66
Elsewhere ........ ---------........______ .....______ 14 12 26
Total -.....-- .___------------.-.-. 276 328 604

54 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Foster Family Care
This program continued actively during the year and is still one of
the most encouraging operations. The foster care caseload is 168 of
which 49 are in free homes and 119 in boarding homes. These children
live in a total of 37 foster homes. There are 12 children awaiting
placement.
Insular Training Schools
The Boys School continued to achieve heartening improvement in
services to the boys and in boy and staff morale. The school provided
care for a total of 63 boys with enrollment averaging around 51 boys.
The institution caseworker enrolled at the Ohio State University
School of Social Work to secure professional training. The Depart-
ment of Education continued to provide academic services to the school
through two full-time academic teachers. Poultry, gardening, and
animal husbandry projects were expanded. Fourteen boys attended
high school in town and for the first time in the history of the school
one boy was graduated from the school and plans to go to college in
the fall.
The Girls School established in March 1958, was at a full capacity
of 12 throughout the year and provided care for a total of 17 girls.
The average age of girls in residence was 15 years. Six girls attended
high school in town.
The Mental Health Bureau in the Department of Health continues
to provide psychological and psychiatric services to the children of
these schools.
Detention facilities continue to be areas of great concern to the
Department and to citizens of both islands. A temporary delinquent
center for delinquent boys 16 to 21 years of age was established in
Frederiksted and administered by the Department of Public Safety
with intake, release and casework services being provided by the
Department of Social Welfare. Funds had been appropriated, at
year's end, for the construction of a detention facility on St. Thomas.
During the year 110 children were in detention care.
Day Care
During the year the day care program expanded from two to five
centers. An average of 90 children per month ranging from 3 months
to 41/2 years of age used the service. The Department pays a subsidy
for care furnished by private day care facilities to children whose
parents are not able to pay the minimum rates.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 55

Governor's Conference on Juvenile Delinquency
The second Governor's Conference on juvenile delinquency spon-
sored by this Division was held in February. The Departments of
Health, Education, Public Safety, the courts and many citizens and
groups of individuals interested in the welfare of children participated.
A complete report of the proceedings and recommendations of this
Conference is scheduled for publication in the near future.
The Child Welfare Program is summarized in the following table:

LOCAL FUNDS

Insular St. Croix St. Thomas All Virgin
Islands

Child welfare services..------- ------------ $1,048.30 $11, 691.37 $11, 556. 07 $24, 295.74
Foster home payments -----------.. --------.----------- 20,730. 80 27, 329. 80 48, 060. 60
Insular training schools:
For boys-----------------.... 81,014.63 ---------- ---- 81,014.53
For girls ...---- 19,037.51 ---..-------- --- ---- .-- 19, 037. 51
Day care centers.... ----------------------------------- 2, 858. 31 9,122. 20 11, 980. 51
Total.---.... ----...............--- 101,100.34 35,280.48 48,008.07 184,388.89

FEDERAL FUNDS

Child welfare services and supervision ...... 21,327.88 9, 912. 22 19, 467.62 50,707.72
Grand total ------------. _--------- 122, 428. 22 45,192. 70 67,475.69 235,096.61

Divisions of Institutions and Special Programs
The Queen Louise Home for the Aged on St. Thomas with a ca-
pacity of 24 beds provides custodial care for the aged and infirm.
There were 6 admissions and 5 deaths and at year end 16 persons were
in residence. Better care must be provided, since this hilltop institu-
tion is not readily accessible to relatives and other friends of the
residents and the feebler residents have difficulty negotiating the
stairways between the dining room and the bathrooms on the lower
floor and the dormitories on the upper floor.
The Corneiro Home located in St. Thomas is a shelter care home
with a total of 25 rooms available. There were 15 admissions and
4 deaths, 2 persons were transferred to the Queen Louise Home, 3
moved away and there were 27 residents at yearend.
The Aldersville Home located on St. Croix is also a shelter care
home with 31 rooms. Major repairs to all the cottages were in prog-
ress during the year. There were 2 admissions and 2 deaths and
at yearend there were 32 residents.

56 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

The Herbert Grigg Home for the Aged is administered by the De-
partment of Health with a capacity of 140 residents. During the
year the Division certified 18 persons for placement in this home.
This institution also badly needs physical as well as operational im-
provements. At yearend vigorous action was being taken to remodel
the physical facilities and to transfer its operation to the Department
of Social Welfare.
Cancer Care
It was necessary to continue to send Virgin Islands patients, re-
ferred by the Department of Health, for care at the Puerto Rico
Cancer League. During the year 14 new cases in St. Croix and 7 in
St. Thomas were referred. In addition, 16 repeaters returned for
periodic follow-up treatment. This program is financed by the Com-
munity Chest, Government Funds and Lottery appropriations.
Services to the Mentally Ill
The Department provides a limited amount of casework service
for mental patients hospitalized in the Virgin Islands while they are
in institutional care, when they are being discharged, and after-care
upon discharge. The Division has responsibility for planning and
arranging the returning of mental patients from St. Elizabeths Hos-
pital in Washington where 136 such patients are hospitalized.
During the year 35 studies on mental patients were completed.
Twenty were residents of St. Elizabeths Hospital in Washington, D.C.,
and eight were residents of New York State Hospitals. Six patients
returned from St. Elizabeths Hospital and were provided after-care
casework service.
Emergency Housing
The accelerated building and remodeling boom, in progress par-
ticularly in St. Thomas, continues to transform many slum areas into
high rental residential or industrial developments. At the same time,
hundreds of low-income tenants are being deprived of quarters within
their capacity to pay. In their dilemma, they continue to turn to the
Department for assistance in locating suitable housing.
As a result of a housing survey conducted by the Department, funds
were appropriated to erect Emergency Housing to assist with this
problem until other public housing projects and private buildings
can provide adequate housing for the low-income group. During the
year 10 three-bedroom houses were constructed bringing the total of

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 57

prefabricated emergency houses to 16. The following chart shows
the progress of the program in St. Thomas:

Report of emergency housing

Total Men Women Girls Boys Infants Total
families persons

Applications pending July 1, 1960........ 161 118 176 224 212 29 757
Received during year --------------..... 229 166 251 265 279 73 1,034
Closed during year -----.----.......... 21 24 26 47 34 7 138
Applications pending June 30, 1961------ 369 260 401 442 457 95 1, 655
Total housed July 1, 1960 ----------...... 19 13 20 26 33 5 97
Housed during year------ --------......- 17 20 22 42 31 12 127
Removed during year--------..... .... __ 3 4 3 11 3 3 24
Totalhoused June 30, 1961-..--_________ 33 29 39 57 61 14 200
St. Croix applications:
Total applications August 1, 1960 ... 51 22 45 51 38 1 157
Received...------------------------ 3 1 3 3 5 0 12
Housed--.----.-- ____...----------- 0 0 0 0 0 0 0
Applications pending June 30, 1961- 54 23 48 54 43 1 169

In St. Croix, hundreds of low-income tenants also continue to live
in quarters which are unsuitable. By year's end the Government was
giving considerable attention to this matter and the extension of the
Emergency Housing Program to St. Croix was in the planning stage.

Surplus Food Distribution Program
Responsibility for the distribution of federally donated surplus
food commodities was assigned to the Department in May 1961.
Arrangements were made to secure adequate warehouse space and
necessary personnel. Plans were completed for inauguration of the
program at the beginning of the new fiscal year.

The Community Chest
St. Thomas.-The 1960 campaign was an outstanding success, the
goal of $15,000 being surpassed by total pledges and payments of
$15,712.31. Expenditures totaled $15,970.81.
The following is a summary of traditional Chest services provided
during the fiscal year.

Program Cost Services Rendered

Housekeeping and laundry--------------- ----- $3,135.43 2,710 cleaning, etc., 1,116 pieces.
Home nursing --------- ------------ 4, 507.62 Increased caseload.
Cancer care_---- 2,016.00 Hospital bills and travel costs.
Emergency needs------... -------------- 3,211.06 Cash grants, furniture, etc.
Special aid to patients in institutions-----.----- 488.29 Monthly grants, etc.
Homemaker service (St. John)--------.---------- 523.80 Care of aged.

St. Croix.-The Community Chest of St. Croix staged a generally
successful campaign although its goal of $10,000 was not realized.

58 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Expenditures
Total expenditures of the Department of Social Welfare amounted
to $974,009.95 of which $230,323.01 were for Insular Programs,
$322,541.26 for programs allocated to the islands of St. Thomas and
St. John, and $421,145.68 for programs allocated to the island of St.
Croix. The total cost is distributed as follows:
Central administrative costs---------------- $80, 510. 71
Public assistance division .--------------- 530, 648. 38
Institutions and special programs --------- 111, 783.44
Child welfare division .----.----------- -235, 096. 61
Community Chest------------------------- 15, 970. 81

Total ------------------------- 974, 009. 95

Department of Commerce
The Department of Commerce of the Virgin Islands was estab-
lished on May 1, 1961, to implement a broad program of economic de-
velopment pledged by the new Governor in his inaugural address.
Encompassing and supplementing the former Department of
Tourism and Trade and its components serving tourism, trade, in-
dustrial development, marine and aviation, the new department's mis-
sion is to promote broadly the whole economy of the islands.
The remaining days of the last fiscal year were devoted to estab-
lishing sound departmental procedures based upon revised organiza-
tion charts, job analyses of personnel, and in defining the administra-
tive responsibilities of division and departmental executives.

Division of Tourism
From the beginning of the fiscal year until the organization of the
new Department of Commerce, this Department operated as the De-
partment of Tourism and Trade.

Promotional Program
The overall promotional program for the Department of Tourism
and Trade was materially increased due to more funds. One of the
principal factors in the promotional program, as well as in the ad-
vertising program, was the excellent cooperation received from tourist
interests, particularly shops and hotels, in various joint ventures cover-
ing visiting groups, promotional efforts and joint advertising.
Approximately $95,000 was spent by the Department in advertising
during the year. With this vastly increased budget over previous
years, together with the cooperation of tourist interests, it was possible
to accomplish a number of "firsts" in advertising, namely, the first

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 59

full-page, four-color advertisement in a New York City newspaper's
World Travel Guide; two-color ads appearing in national magazines,
and four industry magazines; three full-page cooperative advertise-
ments in another New York newspaper in which the Government
participated with the various Virgin Islands tourist interests; and
cooperative pages on the Caribbean area in other national publications.
In addition to the above advertising in newspapers and magazines
special Virgin Islands advertisements were inserted in a number of
local papers and magazines which have stateside as well as local
distribution.
Literature
As in former years the Department printed and distributed the
Three-Island Brochure, "Summer and Winter Hotel and Guest House
Rate Sheets", and "Pertinent Facts", booklet. These pieces of liter-
ature are updated in each reprinting to keep them in line with the
constant changes in the islands tourist economy and are distributed
to individuals, travel agents, steamship and airline companies and
various groups requesting them, and to cruise ships calling at the
ports of the Virgin Islands. The Department also prepares and dis-
tributes a monthly news bulletin, a seasonal cruise ship list and
preseason and postseason lists of cruise ships at Virgin Islands ports.
Publicity
Under the publicity program handled jointly by the Department
and a private company during the last year, 34 articles varying
from 15 to 100 lines were published. In addition, about 100 vignettes
were published. In connection with these articles and other news-
paper stories, 1,131 publicity photographs were distributed to news-
papers, many of them featuring specific persons and groups of persons
who visited the islands. The clipping service returned 1,728 clippings
of the islands during the year. It is estimated that close to 5,200
articles mentioning the Virgin Islands were published.

New York Office
After many years a beautiful street-level office, located at 16 West
49th Street in the heart of Rockefeller Center, early in calendar 1961
was officially opened with suitable ceremonies. This office has an
enviable location just three doors from the corner of Rockefeller Plaza.
The spectacular increase in the number of inquiries both by mail and
telephone has been reflected in the additional traffic to the Virgin Is-
lands that this office has produced. The opening of this office and its
functioning has been a big step forward in the promotion of the
islands.

60 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Cruise Ships
From 12 ships, carrying 5,293 passengers to St. Thomas in 1951-52,
to 157 ships carrying 57,470 passengers in 1960-61, the record is ample
proof of the increasing importance of cruise ship traffic to the tourist
industry. It is also important to note that certain cruise ships are now
calling at all three islands. The schedule below graphically demon-
strates this increase.

Year Nu
St. Thomas
1951-52 -__----_----- __-_--
1952-53 ----------------
1953-54 _---- ------__
1954-55 ------- _---
1955-56 --- ----_-
1956-57 --------
1957-58 --- __-- ____
1958-59 ------------------ ---
1959-60------------_-
1960-61 ------ ---- ---
St. Croix
1959-60 ------ --
1960-61 ---------
St. John
1958-59 ---------
1959-60 -___-_- -__ --------_
1960-61 _- -- __ _____ ____

mber of ships Passengers

12 5, 293
20 12, 300
30 13, 323
33 16, 000
36 18,500
48 22, 035
74 35,420
89 36, 900
126 49, 088
157 57, 470

2 700
10 1, 100

2 827
2 906
2 800

In May 1961, the U.S. Congress passed a bill authorizing U.S. flag
vessels to deviate from their normal runs without sacrificing their
regular subsidy payments. This law opened up the Caribbean area
for all U.S. flag passenger ships and created a vast new cruise ship
market. As a result of solicitation for this business, it is hoped that
many large U.S. flag cruise ships will visit the Virgin Islands this
coming winter.

Tourist Visitors
A total of 254,700 visitors came to the Virgin Islands during the
year as compared with 203,400 in the preceding year. Of these, it
Tourist visitors
St. Thomas St. Croix
and St. John

1960-1961 1960-1961

Caribair ----------------- -------------- -_ ------------ --...-....-... 101,000 37,000
Cruise ships- .-----_---- ---- ----- ---__-.. .. ... 57, 000 1,100
Pan American_-_.._--.----_____-____.__. ..--- ----- ---- -- (1) 5,100
BWIA --....------- ---------.. ... ---- 3,000 (1)
Armed services, private yachts, regular steamers .. ....-- ..-..._ .---------- 48, 000 2, 500
Totals .--_.___-- ...-- ........._____. -----------------------. 209, 000 45, 700
I No service.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 61

is estimated that 209,000 visited St. Thomas and St. John and 45,700
visited St. Croix.

Estimated Gross Tourist Expenditures
Following is a table of estimated gross tourist expenditures for
1959-60, as compared with 1960-61.

St. Thomas and St. John St. Croix

1959-60 1960-61 1959-60 1960-61

Hotel and guest houses-....---.-___. $6, 200, 000 $6, 400, 000 $3, 450, 000 $2, 050, 000
Retail tourist establishments--- 10, 223, 000 10,800, 000 1,900,000 2, 200, 000
Bars, restaurants, not including hotels..----... 810, 000 1,192, 000 317, 000 325, 000
Interests --- ..............-------------- 1,650,000 2,600,000 230,000 250,000
Totals..---.... .. ._.____ __-----__ --_.._ 18, 883, 000 20, 992, 000 5, 897, 000 4, 825, 000

Marine and Aviation Division
The Marine and Aviation Division, established on October 1, 1960,
and formerly under the Public Works Department was transferred
to the Department of Tourism and Trade and then to the Depart-
ment of Commerce. The improved runway and new terminal build-
ing at the Alexander Hamilton Airport was completed and put into
operation. The work of constructing the new deep water pier at
Frederiksted is progressing satisfactorily. During the year 748 ves-
sels of over 100 tons visited the port of Charlotte Amalie.
The following tables show traffic at the two airports:

Harry S Truman Airport, St. Thomas

Passengers-
Landings
In Out
Caribbean Atlantic Airlines.--..-------------. -----------.. .... 6,869 120,717 129,883
B.W.I.A. and Leeward Islands Air Transport------------- ----- 728 (1) (1)
Nonscheduled and private aircrafts- ----------.------------------ 1,306
Military aircrafts--...---._....._______ __---------- 6 59 -
Air taxi -.....---.....-.- -- ...---- --- -------_ _-____._ 1,960 -.----
Total......------.._-- __.-------- ----------------_ 11,522

1 Not available.
Alexander Hamilton Airport, St. Croix

Landings Passengers-
Landings__In Out
In Out
Pan American World Airways-...-- ----------------......_ ... 385 5,337 4,912
Caribbean Atlantic Airlines ---.-------.---.-------- 2,470 41,868 42,301
Nonscheduled and private aircraft ------- -- -------_--- 2,880 .. -------
M military aircraft --.- --- --- - - -- - -- 400 -. .. --- _- -
Passengers nonscheduled and private planes--- --------- --- -_________ 9,989 9,900
Passengers military and Government planes-----------.. ... .._____-_- 1,635 1,635
Total.. --_- ____----------------___-- 6,135 58,829 58,748

62 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

Cargo pounds Mail pounds

Air cargo inbound Caribair ..----- ....- ----.. -------------------- 503,084 ----------
Air cargo outbound Caribair .--------------------------------- 57,435 ------
Mail inbound Caiibair --------------- ---------------------- -------------- 79,771
Mail outbound Caribair...---.........------. ------------------------ -------------- 54,950

Division of Trade
The Virgin Islands showed a healthy trend upward in trade, indus-
try and agriculture.
The 1960 census reflected an appreciable population increase which
is one of the principal factors in community growth. Fifteen new
businesses were established during the year, two new hotels and three
guest houses opened their doors to business, and two hotels are under
construction. Unemployment is at a minimum and there is a scarcity
of skilled labor.
The port of Frederiksted, St. Croix expects to double its shipping
activity upon completion of the dock now under construction. The
port of Charlotte Amalie will shortly be dredged to accommodate
large tourist liners now obliged to anchor outside. A salt water
distillation plant when completed will furnish St. Thomas with an
additional 250,000 gallons of water daily and the supply of electrical
power should be substantially increased with the addition of two
5,000 kilowatt plants for St. Croix and St. Thomas, respectively.
A business survey conducted during the year disclosed a total of 733
business establishments as follows:

Total Number St. Number
Industry division and kind of business number Thomas and St. Croix
established St. John

Mining and manufacturing ...------------------------------- 57 30 27
Wholesale trade ------------------------------------- 26 19 7
Retailtrade --------------------------------- ---415 214 201
Selected services..----------------------------- -235 131 104

The steady growth of the Virgin Islands is reflected in the increase
in imports in 1960 as compared in 1959. During the calendar year
1960, goods valued at $42,283,052 were imported into the islands,
compared with $33,642,297 in 1959, or an increase of 20.4 percent.
The bulk of the external trade of the islands is with continental
United States and with Puerto Rico. In 1960, 69.5 percent of the
islands' imports were shipped from the mainland and Puerto Rico
compared with 75.8 percent in the previous year. During the past
calendar year exports valued at $7,444,605 were shipped to the
United States from the Virgin Islands and showed an increase of
$1,977,400 over the previous year.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 63

Total obligations of the Department of Tourism and Trade and the
Department of Commerce made during the fiscal year are as follows:
Office of the Commissioner---------------------$73, 072. 98
Division of Tourism---------------------- 238,914.68
Division of Trade--------------------- 19, 875. 35

Total-------- ---------------- 331, 863.01

Selective Service Operations
Fiscal year 1961 witnessed the twentieth anniversary of Selective
Service Operations throughout the Nation, except for a brief inter-
ruption of approximately 1 year in 1947-1948. Since September
1950, when the first registrant from the Virgin Islands to be inducted
into the armed forces since World War II departed for the induction
station in Puerto Rico, 2,639 registrants have been examined to deter-
mine their acceptability for military service, and of those found
acceptable, 1,314 registrants have been inducted into the various
services, with the exception of the Air Force and the Coast Guard,
from these islands. Selective Service operations have helped to result
in enlistment of over 675 Virgin Islanders into the various branches
of the service and in the reenlistment of over 300. Moreover, 710
standby reservists have been screened and categorized as to their avail-
ability for recall to active duty in time of national emergency.

Registration
A total of 4,884 registrants are listed by the local boards including
a total of 380 new registrants during the year.

Virgin Islands Employment Service
Included in the activities of the Virgin Islands Employment Service
were placement service, employment counseling and selective place-
ment service, special service to veterans, labor market information
service, community participation, farm placement service, and ad-
ministration of the Federal unemployment insurance programs.

Placement Services
Placements during the year were slightly above the figures for last
fiscal year, up 289 from 3,203 to 3,492. Most of the increase was in
unskilled and service placements, with a small decrease in skilled and
semiskilled placements offset by an increase in placement of profes-
sional and clerical workers. Employment opportunities remained at
a high level throughout the year with public and private construction
setting the pace.

64 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

The prime source of needed labor continued to be the contiguous
British and French islands, together with some minor recruitment
success from Puerto Rico and the United States. Openings certified
for the importation of foreign nationals to do nonagricultural work
represented approximately 3,994 workers. Openings certified for the
importation of foreign nationals to do agricultural work represented
approximately 1,000 workers.
Occupational Testing
The occupational testing program continued to provide one of the
most effective services in the field of employment. Its purpose is to
aid in the selection, counseling, and placement process.
Tests administered included the general aptitude test battery, spe-
cific aptitude tests and proficiency tests. During the year a total of
251 general aptitude tests were administered, 184 specific aptitude
tests, 139 proficiency tests.
Job Counseling and Service Placements
Job Counseling and service placements showed a definite increase.
Both programs have become increasingly important not only in as-
sisting the employer in the selection of qualified help, but in offering
applicants guidance in the choice of their careers. Eight hundred and
twenty-eight counseling interviews were conducted to facilitate the
placement of certain types of applicants.
As a part of. this continuous program of services, the Employment
Service endeavors to expand the opportunities for the physically
handicapped. During the year, 12 of the physically handicapped
applicants were placed in gainful occupations.
Special Service to Veterans
The Employment Service placed 160 veterans and exservicemen
in jobs during the year. Exservicemen returning home are quickly
placed as a result of the continued demand for workers of all
descriptions.
Cooperative Programs with Schools
An increased number of youths availed themselves of the services
of the Employment Service and profited by the counseling and testing
services. Of the 251 general aptitude test batteries administered, 179
were given to high school students in St. Thomas and St. Croix.
Placements among the youth group numbered 536.
Unemployment Insurance Activities
Unemployment Insurance work loads remained light during the
year. The territory's most important step forward was taken when
the Governor signed into law in June an act to provide for a program

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 65

of unemployment compensation. The law established an unemploy-
ment compensation service in the Virgin Islands Employment Service
and goes into effect on January 1, 1962.
Virgin Islands Employment Service budget for the fiscal year
amounted to $108,618.

Summary of employment service activities
New applications---------------------------------- 3, 430
Counseling interviews ------- -------- ---------- 828
Employer visits, nonagricultural-------------------- ---- 478
Promotional telephone contacts_-- ---------------------- 242
G.A.T.B.'s administered--------------------------------- ----- 251
Specific aptitude tests administered----------- ------ ----- 184
Proficiency tests administered __--_ ------- 138
Placements, nonagricultural ------------- ------------ 3,492
Professional and clerical -------------__ -- 470
Skilled and semiskilled--- -------------- ------- 802
Unskilled --------- --------- ---------- 1,078
Service ------------------------------1,135
Day work and casual--------------- ------------- 7
Placements, agricultural--------------------- ---- --- --- 262

Municipal Courts

St. Thomas and St. John
During the year, 4,363 cases were disposed of. Divisionally, they
are as follows, including preliminary hearings:
Criminal division------------------- ------ 2, 833
Conciliation division -------------------------- 465
Civil division------------------ --- ------ 330
Small claims division -------- ------------------ 574
Juvenile and domestic relations division -- -------- 161

Total------------- -------------- 4,363
Two hundred and seventy-five applications were made for marriage
licenses. Of these, 258 marriages were reported as follows:
Anglican Church------------------- -------------- 38
Apostolic Faith--------------------- 1
Church of God---------------------- 2
Calvary Baptist Church-------------------------- 4
District Court------ ..----- -------------- 4
Lutheran Church -------------------- 11
Methodist Church --.--.--------- ------------------- 70
Moravian Church------------------- --------------- 23
Municipal Court-------------- ------------ 53
Pilgrim Holiness Church ------------------- 1
Roman Catholic Church-------- --------------- 42
Seventh Day Adventist Church-------------------- 9

Total --------------------------_ 258

66 + REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS

There were three coroner's inquests conducted during the year.
The total cost of operating the Municipal Court was $29,762.47. A
total of $25,168.90 was collected from court fines, notary fees, court
costs and fees, and other miscellaneous charges.
The Probation Officer and the Child Welfare workers along with
the Mental Health Division rendered valuable service to the court
in providing reports, by supervising probationers and juvenile offend-
ers, and by assisting juveniles and adults alike in need of special help.

St. Croix
A total of 2,076 cases were disposed of in the Municipal Court of
St. Croix as follows:
Preliminary hearings------------------------------ 55
Criminal cases --------------------------------- 434
Civil cases------------------------------------ 138
Small claims cases--------------------------------- 165
Traffic cases------------------ ----------------- 877
Juvenile and domestic relations cases--------------- 207
Conciliation cases---------------------------------- 200

Total------------------------------------ 2, 076
The overall increase of cases terminated during the year just ended
as compared with those terminated in the previous fiscal year is 203
cases or approximately 11 percent.
There were 152 marriage licenses issued. A total of 152 marriages
were reported as follows:
Municipal Court------------------------------------ 54
Roman Catholic Church-------------------------- 28
Anglican Church ----------------------------------- 26
Lutheran Church-----.------------------------- 15
Moravian Church------------------------------- 10
A.M.E. Church ---------------------------------- 7
United Brothers in Christ Church -------- -------- 5
Pilgrim Holiness Church---------------------------- 3
Pentecostal Church -------------------------------- 2
Jewish Synagogue -..------------------------------- 1
Spanish Methodist Church---------------- --------- 1

Total----------------- ------------------- 152
The Municipal Court of St. Croix collected revenue totaling
$11,756.30 from notary fees, miscellaneous police and court fees, court
fines, forfeitures, court costs and other charges, representing an in-
crease of approximately 35 percent over the court's revenues of the
preceding year.
The total cost of operating the Municipal Court of St. Croix was
$32,384.68.

REPORT OF THE GOVERNOR OF THE VIRGIN ISLANDS + 67

Conclusion
This annual report presents a picture of some progress in all areas
of the Government. However, it is written by an administration that
was not quite 3 months in office when the fiscal year ended. It has
taken time and hard work in that short period to fully assess the
needs for continuing programs, for new programs and priorities.
As of the time this report was written, nevertheless, the new admin-
istration had already made considerable progress in solving the many
problems of the territory. Housing, education, airport, financial and
business improvements-in about that order-have all been acted
upon vigorously. The new fiscal year will establish some of the last-
ing benefits of the programs started under the New Frontier.
The Territory's goal is responsible Government which will lead the
islands to become truly self-governing. The conduct of the Territo-
rial Government should be such as to merit the full support of the
United States Congress in achieving the Virgin Islands' desire to be
given a delegate in Congress and to have the right to elect their own
Governor.

U. S. GOVERNMENT PRINTING OFFICE : 1962 0 -622662

	Front Cover
	Title Page
	Table of Contents
	Introduction and highlights of...
	Legislation and the population...
	Office of the government secre...
	Department of law
	Virgin Islands planning board and...
	Department of agriculture...
	Department of education
	Department of finance
	Department of health
	Department of property and...
	Department of public safety
	Department of public works
	Department of social welfare
	Department of commerce
	Selective service operations and...
	Municipal courts
	Conclusion
	Back Cover