score:4
It is a compromise, using best data available in 1913 when those boundaries were drawn up, between:
respecting the natural hinterland of each designated bank;
respecting state and county borders; and
having each bank represent approximately the same number of citizens.
A useful proxy for the third is the Electoral College weights is the 1912 Presidential Election. With a total of 531 E.C. votes, one twelfth of that is ~44.
District # 1: 44 E.C. votes in ME, NH, VT, MA, RI & CT
District # 2: 45 E.C. votes in NY plus part of NJ
District # 3: 55 E.C. Votes in PA, DE & NJ; less a bit in North NJ and West PA
District # 5: 49 E.C. votes in SC, NC, VA, WV & MD
District #10: 37 E.C. votes in CO, KS, NE, OK & WY; plus a bit more in west MO and north NM
District #12: 39 E.C. votes
Clearly Districts 9 and 11 are exceptions to this at about 30 and high 20's respectively. However given 12 as the desired number of banks, I see no obvious better solution to the constraints proposed above than the divisions chosen.