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diff --git a/.gitattributes b/.gitattributes new file mode 100644 index 0000000..6833f05 --- /dev/null +++ b/.gitattributes @@ -0,0 +1,3 @@ +* text=auto +*.txt text +*.md text diff --git a/5030-h.zip b/5030-h.zip Binary files differnew file mode 100644 index 0000000..98b9c69 --- /dev/null +++ b/5030-h.zip diff --git a/5030-h/5030-h.htm b/5030-h/5030-h.htm new file mode 100644 index 0000000..a65288b --- /dev/null +++ b/5030-h/5030-h.htm @@ -0,0 +1,6708 @@ +<!DOCTYPE html PUBLIC "-//W3C//DTD XHTML 1.1//EN" + "http://www.w3.org/TR/xhtml11/DTD/xhtml11.dtd"> + +<html xmlns="http://www.w3.org/1999/xhtml" xml:lang="en"> + +<head> + +<meta http-equiv="Content-Type" content="text/html; charset=ISO-8859-1" /> + +<title> +The Project Gutenberg E-text of State of the Union Addresses, by Benjamin Harrison +</title> + +<style type="text/css"> +body { color: black; + background: white; + margin-right: 10%; + margin-left: 10%; + font-family: "Times New Roman", serif; + text-align: justify } + +p {text-indent: 4% } + +p.noindent {text-indent: 0% } + +p.t1 {text-indent: 0% ; + font-size: 200%; + text-align: center } + +p.t2 {text-indent: 0% ; + font-size: 150%; + text-align: center } + +p.t3 {text-indent: 0% ; + font-size: 100%; + text-align: center } + +p.t3b {text-indent: 0% ; + font-size: 100%; + font-weight: bold; + text-align: center } + +p.t4 {text-indent: 0% ; + font-size: 80%; + text-align: center } + +p.t4b {text-indent: 0% ; + font-size: 80%; + font-weight: bold; + text-align: center } + +p.t5 {text-indent: 0% ; + font-size: 60%; + text-align: center } + +h1 { text-align: center } +h2 { text-align: center } +h3 { text-align: center } +h4 { text-align: center } +h5 { text-align: center } + +p.poem {text-indent: 0%; + margin-left: 10%; } + +p.contents {text-indent: -3%; + margin-left: 5% } + +p.thought {text-indent: 0% ; + letter-spacing: 4em ; + text-align: center } + +p.letter {text-indent: 0%; + margin-left: 10% ; + margin-right: 10% } + +p.footnote {text-indent: 0% ; + font-size: 80%; + margin-left: 10% ; + margin-right: 10% } + +p.transnote {text-indent: 0% ; + margin-left: 0% ; + margin-right: 0% } + +p.intro {font-size: 90% ; + text-indent: -5% ; + margin-left: 5% ; + margin-right: 0% } + +p.quote {text-indent: 4% ; + margin-left: 0% ; + margin-right: 0% } + +p.finis { font-size: larger ; + text-align: center ; + text-indent: 0% ; + margin-left: 0% ; + margin-right: 0% } + +</style> + +</head> + +<body> + + +<pre> + +The Project Gutenberg EBook of State of the Union Addresses of Benjamin +Harrison, by Benjamin Harrison + +This eBook is for the use of anyone anywhere in the United States and most +other parts of the world at no cost and with almost no restrictions +whatsoever. You may copy it, give it away or re-use it under the terms of +the Project Gutenberg License included with this eBook or online at +www.gutenberg.org. If you are not located in the United States, you'll have +to check the laws of the country where you are located before using this ebook. + +Title: State of the Union Addresses of Benjamin Harrison + +Author: Benjamin Harrison + +Posting Date: December 3, 2014 [EBook #5030] +Release Date: February, 2004 +First Posted: April 11, 2002 +Last Updated: December 16, 2004 + +Language: English + +Character set encoding: ISO-8859-1 + +*** START OF THIS PROJECT GUTENBERG EBOOK STATE OF THE UNION ADDRESSES *** + + + + +Produced by James Linden. HTML version by Al Haines. + + + + + +</pre> + + +<h1> +<br /><br /><br /> +State of the Union Addresses of Benjamin Harrison +</h1> + +<p class="noindent"> +<br /><br /> +The addresses are separated by three asterisks: *** +</p> + +<p class="noindent"> +Dates of addresses by Benjamin Harrison in this eBook: +</p> + +<p class="noindent"> + <a href="#dec1889">December 3, 1889</a><br /> + <a href="#dec1890">December 1, 1890</a><br /> + <a href="#dec1891">December 9, 1891</a><br /> + <a href="#dec1892">December 6, 1892</a><br /> +</p> + +<p><br /><br /></p> + +<p class="t3"> +*** +</p> + +<p><a id="dec1889"></a></p> + +<p class="noindent"> +State of the Union Address<br /> +Benjamin Harrison<br /> +December 3, 1889<br /> +</p> + +<p class="noindent"> +To the Senate and House of Representatives: +</p> + +<p> +There are few transactions in the administration of the Government that are +even temporarily held in the confidence of those charged with the conduct +of the public business. Every step taken is under the observation of an +intelligent and watchful people. The state of the Union is known from day +to day, and suggestions as to needed legislation find an earlier voice than +that which speaks in these annual communications of the President to +Congress. +</p> + +<p> +Good will and cordiality have characterized our relations and +correspondence with other governments, and the year just closed leaves few +international questions of importance remaining unadjusted. No obstacle is +believed to exist that can long postpone the consideration and adjustment +of the still pending questions upon satisfactory and honorable terms. The +dealings of this Government with other states have been and should always +be marked by frankness and sincerity, our purposes avowed, and our methods +free from intrigue. This course has borne rich fruit in the past, and it is +our duty as a nation to preserve the heritage of good repute which a +century of right dealing with foreign governments has secured to us. +</p> + +<p> +It is a matter of high significance and no less of congratulation that the +first year of the second century of our constitutional existence finds as +honored guests within our borders the representatives of all the +independent States of North and South America met together in earnest +conference touching the best methods of perpetuating and expanding the +relations of mutual interest and friendliness existing among them. That the +opportunity thus afforded for promoting closer international relations and +the increased prosperity of the States represented will be used for the +mutual good of all I can not permit myself to doubt. Our people will await +with interest and confidence the results to flow from so auspicious a +meeting of allied and in large part identical interests. +</p> + +<p> +The recommendations of this international conference of enlightened +statesmen will doubtless have the considerate attention of Congress and its +cooperation in the removal of unnecessary barriers to beneficial +intercourse between the nations of America. But while the commercial +results which it is hoped will follow this conference are worthy of pursuit +and of the great interests they have excited, it is believed that the +crowning benefit will be found in the better securities which may be +devised for the maintenance of peace among all American nations and the +settlement of all contentions by methods that a Christian civilization can +approve. While viewing with interest our national resources and products, +the delegates will, I am sure, find a higher satisfaction in the evidences +of unselfish friendship which everywhere attend their intercourse with our +people. +</p> + +<p> +Another international conference having great possibilities for good has +lately assembled and is now in session in this capital. An invitation was +extended by the Government, under the act of Congress of July 9, 1888, to +all maritime nations to send delegates to confer touching the revision and +amendment of the rules and regulations governing vessels at sea and to +adopt a uniform system of marine signals. The response to this invitation +has been very general and very cordial. Delegates from twenty-six nations +are present in the conference, and they have entered upon their useful work +with great zeal and with an evident appreciation of its importance. So far +as the agreement to be reached may require legislation to give it effect, +the cooperation of Congress is confidently relied upon. +</p> + +<p> +It is an interesting, if not, indeed, an unprecedented, fact that the two +international conferences have brought together here the accredited +representatives of thirty-three nations. +</p> + +<p> +Bolivia, Ecuador, and Honduras are now represented by resident envoys of +the plenipotentiary grade. All the States of the American system now +maintain diplomatic representation at this capital. +</p> + +<p> +In this connection it may be noted that all the nations of the Western +Hemisphere, with one exception, send to Washington envoys extraordinary and +ministers plenipotentiary, being the highest grade accredited to this +Government. The United States, on the contrary, sends envoys of lower +grades to some of our sister Republics. Our representative in Paraguay and +Uruguay is a minister resident, while to Bolivia we send a minister +resident and consul-general. In view of the importance of our relations +with the States of the American system, our diplomatic agents in those +countries should be of the uniform rank of envoy extraordinary and minister +plenipotentiary. Certain missions were so elevated by the last Congress +with happy effect, and I recommend the completion of the reform thus begun, +with the inclusion also of Hawaii and Hayti, in view of their relations to +the American system of states. +</p> + +<p> +I also recommend that timely provision be made for extending to Hawaii an +invitation to be represented in the international conference now sitting at +this capital. +</p> + +<p> +Our relations with China have the attentive consideration which their +magnitude and interest demand. The failure of the treaty negotiated under +the Administration of my predecessor for the further and more complete +restriction of Chinese labor immigration, and with it the legislation of +the last session of Congress dependent thereon, leaves some questions open +which Congress should now approach in that wise and just spirit which +should characterize the relations of two great and friendly powers. While +our supreme interests demand the exclusion of a laboring element which +experience has shown to be incompatible with our social life, all steps to +compass this imperative need should be accompanied with a recognition of +the claim of those strangers now lawfully among us to humane and just +treatment. +</p> + +<p> +The accession of the young Emperor of China marks, we may hope, an era of +progress and prosperity for the great country over which he is called to +rule. +</p> + +<p> +The present state of affairs in respect to the Samoan Islands is +encouraging. The conference which was held in this city in the summer of +1887 between the representatives of the United States, Germany, and Great +Britain having been adjourned because of the persistent divergence of views +which was developed in its deliberations, the subsequent course of events +in the islands gave rise to questions of a serious character. On the 4th of +February last the German minister at this capital, in behalf of his +Government, proposed a resumption of the conference at Berlin. This +proposition was accepted, as Congress in February last was informed. +</p> + +<p> +Pursuant to the understanding thus reached, commissioners were appointed by +me, by and with the advice and consent of the Senate, who proceeded to +Berlin, where the conference was renewed. The deliberations extended +through several weeks, and resulted in the conclusion of a treaty which +will be submitted to the Senate for its approval. I trust that the efforts +which have been made to effect an adjustment of this question will be +productive of the permanent establishment of law and order in Samoa upon +the basis of the maintenance of the rights and interests of the natives as +well as of the treaty powers. +</p> + +<p> +The questions which have arisen during the past few years between Great +Britain and the United States are in abeyance or in course of amicable +adjustment. +</p> + +<p> +On the part of the government of the Dominion of Canada an effort has been +apparent during the season just ended to administer the laws and +regulations applicable to the fisheries with as little occasion for +friction as was possible, and the temperate representations of this +Government in respect of cases of undue hardship or of harsh +interpretations have been in most cases met with measures of transitory +relief. It is trusted that the attainment of our just rights under existing +treaties and in virtue of the concurrent legislation of the two contiguous +countries will not be long deferred and that all existing causes of +difference may be equitably adjusted. +</p> + +<p> +I recommend that provision be made by an international agreement for +visibly marking the water boundary between the United States and Canada in +the narrow channels that join the Great Lakes. The conventional line +therein traced by the northwestern boundary survey years ago is not in all +cases readily ascertainable for the settlement of jurisdictional +questions. +</p> + +<p> +A just and acceptable enlargement of the list of offenses for which +extradition may be claimed and granted is most desirable between this +country and Great Britain. The territory of neither should become a secure +harbor for the evil doers of the other through any avoidable shortcoming in +this regard. A new treaty on this subject between the two powers has been +recently negotiated and will soon be laid before the Senate. +</p> + +<p> +The importance of the commerce of Cuba and Puerto Rico with the United +States, their nearest and principal market, justifies the expectation that +the existing relations may be beneficially expanded. The impediments +resulting from varying dues on navigation and from the vexatious treatment +of our vessels on merely technical grounds of complaint in West India ports +should be removed. +</p> + +<p> +The progress toward an adjustment of pending claims between the United +States and Spain is not as rapid as could be desired. +</p> + +<p> +Questions affecting American interests in connection with railways +constructed and operated by our citizens in Peru have claimed the attention +of this Government. It is urged that other governments in pressing Peru to +the payment of their claims have disregarded the property rights of +American citizens. The matter will be carefully investigated with a view to +securing a proper and equitable adjustment. +</p> + +<p> +A similar issue is now pending with Portugal. The Delagoa Bay Railway, in +Africa, was constructed under a concession by Portugal to an American +citizen. When nearly completed the road was seized by the agents of the +Portuguese Government. Formal protest has been made through our minister at +Lisbon against this act, and no proper effort will be spared to secure +proper relief. +</p> + +<p> +In pursuance of the charter granted by Congress and under the terms of its +contract with the Government of Nicaragua the Interoceanic Canal Company +has begun the construction of the important waterway between the two oceans +which its organization contemplates. Grave complications for a time seemed +imminent, in view of a supposed conflict of jurisdiction between Nicaragua +and Costa Rica in regard to the accessory privileges to be conceded by the +latter Republic toward the construction of works on the San Juan River, of +which the right bank is Costa Rican territory. I am happy to learn that a +friendly arrangement has been effected between the two nations. This +Government has held itself ready to promote in every proper way the +adjustment of all questions that might present obstacles to the completion +of a work of such transcendent importance to the commerce of this country, +and, indeed, to the commercial interests of the world. +</p> + +<p> +The traditional good feeling between this country and the French Republic +has received additional testimony in the participation of our Government +and people in the international exposition held at Paris during the past +summer. The success of our exhibitors has been gratifying. The report of +the commission will be laid before Congress in due season. +</p> + +<p> +This Government has accepted, under proper reserve as to its policy in +foreign territories, the invitation of the Government of Belgium to take +part in an international congress, which opened at Brussels on the 16th of +November, for the purpose of devising measures to promote the abolition of +the slave trade in Africa and to prevent the shipment of slaves by sea. Our +interest in the extinction of this crime against humanity in the regions +where it yet survives has been increased by the results of emancipation +within our own borders. +</p> + +<p> +With Germany the most cordial relations continue. The questions arising +from the return to the Empire of Germans naturalized in this country are +considered and disposed of in a temperate spirit to the entire satisfaction +of both Governments. +</p> + +<p> +It is a source of great satisfaction that the internal disturbances of the +Republic of Hayti are at last happily ended, and that an apparently stable +government has been constituted. It has been duly recognized by the United +States. +</p> + +<p> +A mixed commission is now in session in this capital for the settlement of +long-standing claims against the Republic of Venezuela, and it is hoped +that a satisfactory conclusion will be speedily reached. This Government +has not hesitated to express its earnest desire that the boundary dispute +now pending between Great Britain and Venezuela may be adjusted amicably +and in strict accordance with the historic title of the parties. +</p> + +<p> +The advancement of the Empire of Japan has been evidenced by the recent +promulgation of a new constitution, containing valuable guaranties of +liberty and providing for a responsible ministry to conduct the +Government. +</p> + +<p> +It is earnestly recommended that our judicial rights and processes in Korea +be established on a firm basis by providing the machinery necessary to +carry out treaty stipulations in that regard. +</p> + +<p> +The friendliness of the Persian Government continues to be shown by its +generous treatment of Americans engaged in missionary labors and by the +cordial disposition of the Shah to encourage the enterprise of our citizens +in the development of Persian resources. +</p> + +<p> +A discussion is in progress touching the jurisdictional treaty rights of +the United States in Turkey. An earnest effort will be made to define those +rights to the satisfaction of both Governments. +</p> + +<p> +Questions continue to arise in our relations with several countries in +respect to the rights of naturalized citizens. Especially is this the case +with France, Italy, Russia, and Turkey, and to a less extent with +Switzerland. From time to time earnest efforts have been made to regulate +this subject by conventions with those countries. An improper use of +naturalization should not be permitted, but it is most important that those +who have been duly naturalized should everywhere be accorded recognition of +the rights pertaining to the citizenship of the country of their adoption. +The appropriateness of special conventions for that purpose is recognized +in treaties which this Government has concluded with a number of European +States, and it is advisable that the difficulties which now arise in our +relations with other countries on the same subject should be similarly +adjusted. +</p> + +<p> +The recent revolution in Brazil in favor of the establishment of a +republican form of government is an event of great interest to the United +States. Our minister at Rio de Janeiro was at once instructed to maintain +friendly diplomatic relations with the Provisional Government, and the +Brazilian representatives at this capital were instructed by the +Provisional Government to continue their functions. Our friendly +intercourse with Brazil has therefore suffered no interruption. +</p> + +<p> +Our minister has been further instructed to extend on the part of this +Government a formal and cordial recognition of the new Republic so soon as +the majority of the people of Brazil shall have signified their assent to +its establishment and maintenance. +</p> + +<p> +Within our own borders a general condition of prosperity prevails. The +harvests of the last summer were exceptionally abundant, and the trade +conditions now prevailing seem to promise a successful season to the +merchant and the manufacturer and general employment to our working +people. +</p> + +<p> +The report of the Secretary of the Treasury for the fiscal year ending June +30, 1889, has been prepared and will be presented to Congress. It presents +with clearness the fiscal operations of the Government, and I avail myself +of it to obtain some facts for use here. +</p> + +<p> +The aggregate receipts from all sources for the year were $387,050,058.84, +derived as follows: +</p> + +<p> +From customs - $223, 832, 741.69 +</p> + +<p> +From internal revenue - 130,881,513.92 +</p> + +<p> +From miscellaneous sources - 32,335,803.23 +</p> + +<p> +The ordinary expenditures for the same period were $281,996,615.60, and the +total expenditures, including the sinking fund, were $329,579,929.25. The +excess of receipts over expenditures was, after providing for the sinking +fund, $57,470,129.59. +</p> + +<p> +For the current fiscal year the total revenues, actual and estimated are +$385,000,000, and the ordinary expenditures, actual and estimated, are +$293,000,000, making with the sinking fund a total expenditure of +$341,321,116.99, leaving an estimated surplus of $43,678,883.01. +</p> + +<p> +During the fiscal year there was applied to the purchase of bonds, in +addition to those for the sinking fund, $90,456,172.35, and during the +first quarter of the current year the sum of $37,838,937.77, all of which +were credited to the sinking fund. The revenues for the fiscal year ending +June 30, 1891, are estimated by the Treasury Department at $385,000,000, +and the expenditures for the same period, including the sinking fund, at +$341,430,477.70. This shows an estimated surplus for that year of +$43,569,522.30, which is more likely to be increased than reduced when the +actual transactions are written up. +</p> + +<p> +The existence of so large an actual and anticipated surplus should have the +immediate attention of Congress, with a view to reducing the receipts of +the Treasury to the needs of the Government as closely as may be. The +collection of moneys not needed for public uses imposes an unnecessary +burden upon our people, and the presence of so large a surplus in the +public vaults is a disturbing element in the conduct of private business. +It has called into use expedients for putting it into circulation of very +questionable propriety. We should not collect revenue for the purpose of +anticipating our bonds beyond the requirements of the sinking fund, but any +unappropriated surplus in the Treasury should be so used, as there is no +other lawful way of returning the money to circulation, and the profit +realized by the Government offers a substantial advantage. +</p> + +<p> +The loaning of public funds to the banks without interest Upon the security +of Government bonds I regard as an unauthorized and dangerous expedient. It +results in a temporary and unnatural increase of the banking capital of +favored localities and compels a cautious and gradual recall of the +deposits to avoid injury to the commercial interests. It is not to be +expected that the banks having these deposits will sell their bonds to the +Treasury so long as the present highly beneficial arrangement is continued. +They now practically get interest both upon the bonds and their proceeds. +No further use should be made of this method of getting the surplus into +circulation, and the deposits now outstanding should be gradually withdrawn +and applied to the purchase of bonds. It is fortunate that such a use can +be made of the existing surplus, and for some time to come of any casual +surplus that may exist after Congress has taken the necessary steps for a +reduction of the revenue. Such legislation should be promptly but very +considerately enacted. +</p> + +<p> +I recommend a revision of our tariff law both in its administrative +features and in the schedules. The need of the former is generally +conceded, and an agreement upon the evils and inconveniences to be remedied +and the best methods for their correction will probably not be difficult. +Uniformity of valuation at all our ports is essential, and effective +measures should be taken to secure it. It is equally desirable that +questions affecting rates and classifications should be promptly decided. +</p> + +<p> +The preparation of a new schedule of customs duties is a matter of great +delicacy because of its direct effect upon the business of the country, and +of great difficulty by reason of the wide divergence of opinion as to the +objects that may properly be promoted by such legislation. Some disturbance +of business may perhaps result from the consideration of this subject by +Congress, but this temporary ill effect will be reduced to the minimum by +prompt action and by the assurance which the country already enjoys that +any necessary changes will be so made as not to impair the just and +reasonable protection of our home industries. The inequalities of the law +should be adjusted, but the protective principle should be maintained and +fairly applied to the products of our farms as well as of our shops. These +duties necessarily have relation to other things besides the public +revenues. We can not limit their effects by fixing our eyes on the public +Treasury alone. They have a direct relation to home production, to work, to +wages, and to the commercial independence of our country, and the wise and +patriotic legislator should enlarge the field of his vision to include all +of these. The necessary reduction in our public revenues can, I am sure, be +made without making the smaller burden more onerous than the larger by +reason of the disabilities and limitations which the process of reduction +puts upon both capital and labor. The free list can very safely be extended +by placing thereon articles that do not offer injurious competition to such +domestic products as our home labor can supply. The removal of the internal +tax upon tobacco would relieve an important agricultural product from a +burden which was imposed only because our revenue from customs duties was +insufficient for the public needs. If safe provision against fraud can be +devised, the removal of the tax upon spirits used in the arts and in +manufactures would also offer an unobjectionable method of reducing the +surplus. +</p> + +<p> +A table presented by the Secretary of the Treasury showing the amount of +money of all kinds in circulation each year from 1878 to the present time +is of interest. It appears that the amount of national-bank notes in +circulation has decreased during that period $114,109,729, of which +$37,799,229 is chargeable to the last year. The withdrawal of bank +circulation will necessarily continue under existing conditions. It is +probable that the adoption of the suggestions made by the Comptroller of +the Currency, namely, that the minimum deposit of bonds for the +establishment of banks be reduced and that an issue of notes to the par +value of the bonds be allowed, would help to maintain the bank circulation. +But while this withdrawal of bank notes has been going on there has been a +large increase in the amount of gold and silver coin in circulation and in +the issues of gold and silver certificates. +</p> + +<p> +The total amount of money of all kinds in circulation on March 1, 1878, was +$805,793,807, while on October 1, 1889, the total was $1,405,018,000. There +was an increase of $293,417,552 in gold coin, of $57,554,100 in standard +silver dollars, of $72,311,249 in gold certificates, of $276,619,715 in +silver certificates, and of $14,073,787 in United States notes, making a +total of $713,976,403. There was during the same period a decrease of +$114,109,729 in bank circulation and of $642,481 in subsidiary silver. The +net increase was $599,224,193. The circulation per capita has increased +about $5 during the time covered by the table referred to. +</p> + +<p> +The total coinage of silver dollars was on November 1, 1889, $343,638,001, +of which $283,539,521 were in the Treasury vaults and $60,098,480 were in +circulation. Of the amount in the vaults $277,319,944 were represented by +outstanding silver certificates, leaving $6,219,577 not in circulation and +not represented by certificates. +</p> + +<p> +The law requiring the purchase by the Treasury of $2,000,000 worth of +silver bullion each month, to be coined into silver dollars of 412 1/2 +grains, has been observed by the Department, but neither the present +Secretary nor any of his predecessors has deemed it safe to exercise the +discretion given by law to increase the monthly purchases to $4,000,000. +When the law was enacted (February 28, 1878) the price of silver in the +market was $1.204 per ounce, making the bullion value of the dollar 93 +cents. Since that time the price has fallen as low as 91.2 cents per ounce, +reducing the bullion value of the dollar to 70.6 cents. Within the last few +months the market price has somewhat advanced, and on the 1st day of +November last the bullion value of the silver dollar was 72 cents. +</p> + +<p> +The evil anticipations which have accompanied the coinage and use of the +silver dollar have not been realized. As a coin it has not had general use, +and the public Treasury has been compelled to store it. But this is +manifestly owing to the fact that its paper representative is more +convenient. The general acceptance and the use of the silver certificate +show that silver has not been otherwise discredited. Some favorable +conditions have contributed to maintain this practical equality in their +commercial use between the gold and silver dollars; but some of these are +trade conditions that statutory enactments do not control and of the +continuance of which we can not be certain. +</p> + +<p> +I think it is clear that if we should make the coinage of silver at the +present ratio free we must expect that the difference in the bullion values +of the gold and silver dollars will be taken account of in commercial +transactions; and I fear the same result would follow any considerable +increase of the present rate of coinage. Such a result would be +discreditable to our financial management and disastrous to all business +interests. We should not tread the dangerous edge of such a peril. And, +indeed, nothing more harmful could happen to the silver interests. Any safe +legislation upon this subject must secure the equality of the two coins in +their commercial uses. +</p> + +<p> +I have always been an advocate of the use of silver in our currency. We are +large producers of that metal, and should not discredit it. To the plan +which will be presented by the Secretary of the Treasury for the issuance +of notes or certificates upon the deposit of silver bullion at its market +value I have been able to give only a hasty examination, owing to the press +of other matters and to the fact that it has been so recently formulated. +The details of such a law require careful consideration, but the general +plan suggested by him seems to satisfy the purpose--to continue the use of +silver in connection with our currency and at the same time to obviate the +danger of which I have spoken. At a later day I may communicate further +with Congress upon this subject. +</p> + +<p> +The enforcement of the Chinese exclusion act has been found to be very +difficult on the northwestern frontier. Chinamen landing at Victoria find +it easy to pass our border, owing to the impossibility with the force at +the command of the customs officers of guarding so long an inland line. The +Secretary of the Treasury has authorized the employment of additional +officers, who will be assigned to this duty, and every effort will be made +to enforce the law. The Dominion exacts a head tax of $50 for each Chinaman +landed, and when these persons, in fraud of our law, cross into our +territory and are apprehended our officers do not know what to do with +them, as the Dominion authorities will not suffer them to be sent back +without a second payment of the tax. An effort will be made to reach an +understanding that will remove this difficulty. +</p> + +<p> +The proclamation required by section 3 of the act of March 2, 1889, +relating to the killing of seals and other fur-bearing animals, was issued +by me on the 21st day of March, and a revenue vessel was dispatched to +enforce the laws and protect the interests of the United States. The +establishment of a refuge station at Point Barrow, as directed by Congress, +was successfully accomplished. +</p> + +<p> +Judged by modern standards, we are practically without coast defenses. Many +of the structures we have would enhance rather than diminish the perils of +their garrisons if subjected to the fire of improved guns, and very few are +so located as to give full effect to the greater range of such guns as we +are now making for coast-defense uses. This general subject has had +consideration in Congress for some years, and the appropriation for the +construction of large rifled guns made one year ago was, I am sure, the +expression of a purpose to provide suitable works in which these guns might +be mounted. An appropriation now made for that purpose would not advance +the completion of the works beyond our ability to supply them with fairly +effective guns. +</p> + +<p> +The security of our coast cities against foreign attacks should not rest +altogether in the friendly disposition of other nations. There should be a +second line wholly in our own keeping. I very urgently recommend an +appropriation at this session for the construction of such works in our +most exposed harbors. +</p> + +<p> +I approve the suggestion of the Secretary of War that provision be made for +encamping companies of the National Guard in our coast works for a +specified time each year and for their training in the use of heavy guns. +His suggestion that an increase of the artillery force of the Army is +desirable is also, in this connection, commended to the consideration of +Congress. +</p> + +<p> +The improvement of our important rivers and harbors should be promoted by +the necessary appropriations. Care should be taken that the Government is +not committed to the prosecution of works not of public and general +advantage and that the relative usefulness of works of that class is not +overlooked. So far as this work can ever be said to be completed, I do not +doubt that the end would be sooner and more economically reached if fewer +separate works were undertaken at the same time, and those selected for +their greater general interest were more rapidly pushed to completion. A +work once considerably begun should not be subjected to the risks and +deterioration which interrupted or insufficient appropriations necessarily +occasion. +</p> + +<p> +The assault made by David S. Terry upon the person of Justice Field, of the +Supreme Court of the United States, at Lathtop, Cal., in August last, and +the killing of the assailant by a deputy United States marshal who had been +deputed to accompany Justice Field and to protect him from anticipated +violence at the hands of Terry, in connection with the legal proceedings +which have followed, suggest questions which, in my judgment, are worthy of +the attention of Congress. +</p> + +<p> +I recommend that more definite provision be made by law not only for the +protection of Federal officers, but for a full trial of such cases in the +United States courts. In recommending such legislation I do not at all +impeach either the general adequacy of the provision made by the State laws +for the protection of all citizens or the general good disposition of those +charged with the execution of such laws to give protection to the officers +of the United States. The duty of protecting its officers, as such, and of +punishing those who assault them on account of their official acts should +not be devolved expressly or by acquiescence upon the local authorities. +</p> + +<p> +Events which have been brought to my attention happening in other parts of +the country have also suggested the propriety of extending by legislation +fuller protection to those who may be called as witnesses in the courts of +the United States. The law compels those who are supposed to have knowledge +of public offenses to attend upon our courts and grand juries and to give +evidence. There is a manifest resulting duty that these witnesses shall be +protected from injury on account of their testimony. The investigations of +criminal offenses are often rendered futile and the punishment of crime +impossible by the intimidation of witnesses. +</p> + +<p> +The necessity of providing some more speedy method for disposing of the +cases which now come for final adjudication to the Supreme Court becomes +every year more apparent and urgent. The plan of providing some +intermediate courts having final appellate jurisdiction of certain classes +of questions and cases has, I think, received a more general approval from +the bench and bar of the country than any other. Without attempting to +discuss details, I recommend that provision be made for the establishment +of such courts. +</p> + +<p> +The salaries of the judges of the district courts in many of the districts +are, in my judgment, inadequate. I recommend that all such salaries now +below $5,000 per annum be increased to that amount. It is quite true that +the amount of labor performed by these judges is very unequal, but as they +can not properly engage in other pursuits to supplement their incomes the +salary should be such in all cases as to provide an independent and +comfortable support. +</p> + +<p> +Earnest attention should be given by Congress to a consideration of the +question how far the restraint of those combinations of capital commonly +called "trusts" is matter of Federal jurisdiction. When organized, as they +often are, to crush out all healthy competition and to monopolize the +production or sale of an article of commerce and general necessity, they +are dangerous conspiracies against the public good, and should be made the +subject of prohibitory and even penal legislation. +</p> + +<p> +The subject of an international copyright has been frequently commended to +the attention of Congress by my predecessors. The enactment of such a law +would be eminently wise and just. +</p> + +<p> +Our naturalization laws should be so revised as to make the inquiry into +the moral character and good disposition toward our Government of the +persons applying for citizenship more thorough. This can only be done by +taking fuller control of the examination, by fixing the times for hearing +such applications, and by requiring the presence of some one who shall +represent the Government in the inquiry. Those who are the avowed enemies +of social order or who come to our shores to swell the injurious influence +and to extend the evil practices of any association that defies our laws +should not only be denied citizenship, but a domicile. +</p> + +<p> +The enactment of a national bankrupt law of a character to be a permanent +part of our general legislation is desirable. It should be simple in its +methods and inexpensive in its administration. +</p> + +<p> +The report of the Postmaster-General not only exhibits the operations of +the Department for the last fiscal year, but contains many valuable +suggestions for the improvement and extension of the service, which are +commended to your attention. No other branch of the Government has so close +a contact with the daily life of the people. Almost everyone uses the +service it offers, and every hour gained in the transmission of the great +commercial mails has an actual and possible value that only those engaged +in trade can understand. +</p> + +<p> +The saving of one day in the transmission of the mails between New York and +San Francisco, which has recently been accomplished, is an incident worthy +of mention. +</p> + +<p> +The plan suggested of a supervision of the post-offices in separate +districts that shall involve instruction and suggestion and a rating of the +efficiency of the postmasters would, I have no doubt, greatly improve the +service. +</p> + +<p> +A pressing necessity exists for the erection of a building for the joint +use of the Department and of the city post-office. The Department was +partially relieved by renting .outside quarters for a part of its force, +but it is again overcrowded. The building used by the city office never was +fit for the purpose, and is now inadequate and unwholesome. +</p> + +<p> +The unsatisfactory condition of the law relating to the transmission +through the mails of lottery advertisements and remittances is clearly +stated by the Postmaster-General, and his suggestion as to amendments +should have your favorable consideration. +</p> + +<p> +The report of the Secretary of the Navy shows a reorganization of the +bureaus of the Department that will, I do not doubt, promote the efficiency +of each. +</p> + +<p> +In general, satisfactory progress has been made in the construction of the +new ships of war authorized by Congress. The first vessel of the new Navy, +the Dolphin, was subjected to very severe trial tests and to very much +adverse criticism; but it is gratifying to be able to state that a cruise +around the world, from which she has recently returned, has demonstrated +that she is a first-class vessel of her rate. +</p> + +<p> +The report of the Secretary shows that while the effective force of the +Navy is rapidly increasing by reason of the improved build and armament of +the new ships, the number of our ships fit for sea duty grows very slowly. +We had on the 4th of March last 37 serviceable ships, and though 4 have +since been added to the list, the total has not been increased, because in +the meantime 4 have been lost or condemned. Twenty-six additional vessels +have been authorized and appropriated for; but it is probable that when +they are completed our list will only be increased to 42--a gain of 5. The +old wooden ships are disappearing almost as fast as the new vessels are +added. These facts carry their own argument. One of the new ships may in +fighting strength be equal to two of the old, but it can not do the +cruising duty of two. It is important, therefore, that we should have a +more rapid increase in the number of serviceable ships. I concur in the +recommendation of the Secretary that the construction of 8 armored ships, 3 +gunboats, and 5 torpedo boats be authorized. +</p> + +<p> +An appalling calamity befell three of our naval vessels on duty at the +Samoan Islands, in the harbor of Apia, in March last, involving the loss of +4 officers and 47 seamen, of two vessels, the Trenton and the Vandalia, and +the disabling of a third, the Nipsic. Three vessels of the German navy, +also in the harbor, shared with our ships the force of the hurricane and +suffered even more heavily. While mourning the brave officers and men who +died facing with high resolve perils greater than those of battle, it is +most gratifying to state that the credit of the American Navy for +seamanship, courage, and generosity was magnificently sustained in the +storm-beaten harbor of Apia. +</p> + +<p> +The report of the Secretary of the Interior exhibits the transactions of +the Government with the Indian tribes. Substantial progress has been made +in the education of the children of school age and in the allotment of +lands to adult Indians. It is to be regretted that the policy of breaking +up the tribal relation and of dealing with the Indian as an individual did +not appear earlier in our legislation. Large reservations held in common +and the maintenance of the authority of the chiefs and headmen have +deprived the individual of every incentive to the exercise of thrift, and +the annuity has contributed an affirmative impulse toward a state of +confirmed pauperism. +</p> + +<p> +Our treaty stipulations should be observed with fidelity and our +legislation should be highly considerate of the best interests of an +ignorant and helpless people. The reservations are now generally surrounded +by white settlements. We can no longer push the Indian back into the +wilderness, and it remains only by every suitable agency to push him upward +into the estate of a self-supporting and responsible citizen. For the adult +the first step is to locate him upon a farm, and for the child to place him +in a school. +</p> + +<p> +School attendance should be promoted by every moral agency, and those +failing should be compelled. The national schools for Indians have been +very successful and should be multiplied, and as far as possible should be +so organized and conducted as to facilitate the transfer of the schools to +the States or Territories in which they are located when the Indians in a +neighborhood have accepted citizenship and have become otherwise fitted for +such a transfer. This condition of things will be attained slowly, but it +will be hastened by keeping it in mind; and in the meantime that +cooperation between the Government and the mission schools which has +wrought much good should be cordially and impartially maintained. +</p> + +<p> +The last Congress enacted two distinct laws relating to negotiations with +the Sioux Indians of Dakota for a relinquishment of a portion of their +lands to the United States and for dividing the remainder into separate +reservations. Both were approved on the same day--March 2. The one +submitted to the Indians a specific proposition; the other (section 3 of +the Indian appropriation act) authorized the President to appoint three +commissioners to negotiate with these Indians for the accomplishment of the +same general purpose, and required that any agreements made should be +submitted to Congress for ratification. +</p> + +<p> +On the 16th day of April last I appointed Hon. Charles Foster, of Ohio, +Hon. William Warner, of Missouri, and Major-General George Crook, of the +United States Army, commissioners under the last-named law. They were, +however, authorized and directed first to submit to the Indians the +definite proposition made to them by the act first mentioned, and only in +the event of a failure to secure the assent of the requisite number to that +proposition to open negotiations for modified terms under the other act. +The work of the commission was prolonged and arduous, but the assent of the +requisite number was, it is understood, finally obtained to the proposition +made by Congress, though the report of the commission has not yet been +submitted. In view of these facts, I shall not, as at present advised, deem +it necessary to submit the agreement to Congress for ratification, but it +will in due course be submitted for information. This agreement releases to +the United States about 9,000,000 acres of land. +</p> + +<p> +The commission provided for by section 14 of the Indian appropriation bill +to negotiate with the Cherokee Indians and all other Indians owning or +claiming lands lying west of the ninety-sixth degree of longitude for the +cession to the United States of all such lands was constituted by the +appointment of Hon. Lucius Fairchild, of Wisconsin, Hon. John F. Hartranft, +of Pennsylvania, and Hon. Alfred M. Wilson, of Arkansas, and organized on +June 29 last. Their first conference with the representatives of the +Cherokees was held at Tahlequah July 29, with no definite results. General +John F. Hartranft, of Pennsylvania, was prevented by ill health from taking +part in the conference. His death, which occurred recently, is justly and +generally lamented by a people he had served with conspicuous gallantry in +war and with great fidelity in peace. The vacancy thus created was filled +by the appointment of Hon. Warren G. Sayre, of Indiana. +</p> + +<p> +A second conference between the commission and the Cherokees was begun +November 6, but no results have yet been obtained, nor is it believed that +a conclusion can be immediately expected. The cattle syndicate now +occupying the lands for grazing purposes is clearly one of the agencies +responsible for the obstruction of our negotiations with the Cherokees. The +large body of agricultural lands constituting what is known as the +"Cherokee Outlet" ought not to be, and, indeed, can not long be, held for +grazing and for the advantage of a few against the public interests and the +best advantage of the Indians themselves. The United States has now under +the treaties certain rights in these lands. These will not be used +oppressively, but it can not be allowed that those who by sufferance occupy +these lands shall interpose to defeat the wise and beneficent purposes of +the Government. I can not but believe that the advantageous character of +the offer made by the United States to the Cherokee Nation for a full +release of these lands as compared with other suggestions now made to them +will yet obtain for it a favorable consideration. +</p> + +<p> +Under the agreement made between the United States and the Muscogee (or +Creek) Nation of Indians on the 19th day of January, 1889, an absolute +title was secured by the United States to about 3,500,000 acres of land. +Section 12 of the general Indian appropriation act approved March 2, 1889, +made provision for the purchase by the United States from the Seminole +tribe of a certain portion of their lands. The delegates of the Seminole +Nation, having first duly evidenced to me their power to act in that +behalf, delivered a proper release or conveyance to the United States of +all the lands mentioned in the act, which was accepted by me and certified +to be in compliance with the statute. +</p> + +<p> +By the terms of both the acts referred to all the lands so purchased were +declared to be a part of the public domain and open to settlement under the +homestead law. But of the lands embraced in these purchases, being in the +aggregate about 5,500,000 acres, 3,500,000 acres had already, under the +terms of the treaty of 1866, been acquired by the United States for the +purpose of settling other Indian tribes thereon and had been appropriated +to that purpose. The land remaining and available for settlement consisted +of 1,887,796 acres, surrounded on all sides by lands in the occupancy of +Indian tribes. Congress had provided no civil government for the people who +were to be invited by my proclamation to settle upon these lands, except as +the new court which had been established at Muscogee or the United States +courts in some of the adjoining States had power to enforce the general +laws of the United States. +</p> + +<p> +In this condition of things I was quite reluctant to open the lands to +settlement; but in view of the fact that several thousand persons, many of +them with their families, had gathered upon the borders of the Indian +Territory with a view to securing homesteads on the ceded lands, and that +delay would involve them in much loss and suffering, I did on the 23d day +of March last issue a proclamation declaring that the lands therein +described would be open to settlement under the provisions of the law on +the 22d day of April following at 12 o'clock noon. Two land districts had +been established and the offices were opened for the transaction of +business when the appointed time arrived. +</p> + +<p> +It is much to the credit of the settlers that they very generally observed +the limitation as to the time when they might enter the Territory. Care +will be taken that those who entered in violation of the law do not secure +the advantage they unfairly sought. There was a good deal of apprehension +that the strife for locations would result in much violence and bloodshed, +but happily these anticipations were not realized. It is estimated that +there are now in the Territory about 60,000 people, and several +considerable towns have sprung up, for which temporary municipal +governments have been organized. Guthrie is said to have now a population +of almost 8,000. Eleven schools and nine churches have been established, +and three daily and five weekly newspapers are published in this city, +whose charter and ordinances have only the sanction of the voluntary +acquiescence of the people from day to day. +</p> + +<p> +Oklahoma City has a population of about 5,000, and is proportionately as +well provided as Guthrie with churches, schools, and newspapers. Other +towns and villages having populations of from 100 to 1,000 are scattered +over the Territory. +</p> + +<p> +In order to secure the peace of this new community in the absence of civil +government, I directed General Merritt, commanding the Department of the +Missouri, to act in conjunction with the marshals of the United States to +preserve the peace, and upon their requisition to use the troops to aid +them in executing warrants and in quieting any riots or breaches of the +peace that might occur. He was further directed to use his influence to +promote good order and to avoid any conflicts between or with the settlers. +Believing that the introduction and sale of liquors where no legal +restraints or regulations existed would endanger the public peace, and in +view of the fact that such liquors must first be introduced into the Indian +reservations before reaching the white settlements, I further directed the +general commanding to enforce the laws relating to the introduction of +ardent spirits into the Indian country. +</p> + +<p> +The presence of the troops has given a sense of security to the +well-disposed citizens and has tended to restrain the lawless. In one +instance the officer in immediate command of the troops went further than I +deemed justifiable in supporting the de facto municipal government of +Guthrie, and he was so informed, and directed to limit the interference of +the military to the support of the marshals on the lines indicated in the +original order. I very urgently recommend that Congress at once provide a +Territorial government for these people. Serious questions, which may at +any time lead to violent outbreaks, are awaiting the institution of courts +for their peaceful adjustment. The American genius for self-government has +been well illustrated in Oklahoma; but it is neither safe nor wise to leave +these people longer to the expedients which have temporarily served them. +</p> + +<p> +Provision should be made for the acquisition of title to town lots in the +towns now established in Alaska, for locating town sites, and for the +establishment of municipal governments. Only the mining laws have been +extended to that Territory, and no other form of title to lands can now be +obtained. The general land laws were framed with reference to the +disposition of agricultural lands, and it is doubtful if their operation in +Alaska would be beneficial. +</p> + +<p> +We have fortunately not extended to Alaska the mistaken policy of +establishing reservations for the Indian tribes, and can deal with them +from the beginning as individuals with, I am sure, better results; but any +disposition of the public lands and any regulations relating to timber and +to the fisheries should have a kindly regard to their interests. Having no +power to levy taxes, the people of Alaska are wholly dependent upon the +General Government, to whose revenues the seal fisheries make a large +annual contribution. An appropriation for education should neither be +overlooked nor stinted. +</p> + +<p> +The smallness of the population and the great distances between the +settlements offer serious obstacles to the establishment of the usual +Territorial form of government. Perhaps the organization of several +sub-districts with a small municipal council of limited powers for each +would be safe and useful. +</p> + +<p> +Attention is called in this connection to the suggestions of the Secretary +of the Treasury relating to the establishment of another port of entry in +Alaska and of other needed customs facilities and regulations. +</p> + +<p> +In the administration of the land laws the policy of facilitating in every +proper way the adjustment of the honest claims of individual settlers upon +the public lands has been pursued. The number of pending cases had during +the preceding Administration been greatly increased under the operation of +orders for a time suspending final action in a large part of the cases +originating in the West and Northwest, and by the subsequent use of unusual +methods of examination. Only those who are familiar with the conditions +under which our agricultural lands have been settled can appreciate the +serious and often fatal consequences to the settler of a policy that puts +his title under suspicion or delays the issuance of his patent. While care +is taken to prevent and to expose fraud, it should not be imputed without +reason. +</p> + +<p> +The manifest purpose of the homestead and preemption laws was to promote +the settlement of the public domain by persons having a bona fide intent to +make a home upon the selected lands. Where this intent is well established +and the requirements of the law have been substantially complied with, the +claimant is entitled to a prompt and friendly consideration of his case; +but where there is reason to believe that the claimant is the mere agent of +another who is seeking to evade a law intended to promote small holdings +and to secure by fraudulent methods large tracts of timber and other lands, +both principal and agent should not only be thwarted in their fraudulent +purpose, but should be made to feel the full penalties of our criminal +statutes. The laws should be so administered as not to confound these two +classes and to visit penalties only upon the latter. +</p> + +<p> +The unsettled state of the titles to large bodies of lands in the +Territories of New Mexico and Arizona has greatly retarded the development +of those Territories. Provision should be made by law for the prompt trial +and final adjustment before a judicial tribunal or commission of all claims +based upon Mexican grants. It is not just to an intelligent and +enterprising people that their peace should be disturbed and their +prosperity retarded by these old contentions. I express the hope that +differences of opinion as to methods may yield to the urgency of the case. +</p> + +<p> +The law now provides a pension for every soldier and sailor who was +mustered into the service of the United States during the Civil War and is +now suffering from wounds or disease having an origin in the service and in +the line of duty. Two of the three necessary facts, viz, muster and +disability, are usually susceptible of easy proof; but the third, origin in +the service, is often difficult and in many deserving cases impossible to +establish. That very many of those who endured the hardships of our most +bloody and arduous campaigns are now disabled from diseases that had a real +but not traceable origin in the service I do not doubt. Besides these there +is another class composed of men many of whom served an enlistment of three +full years and of reenlisted veterans who added a fourth year of service, +who escaped the casualties of battle and the assaults of disease, who were +always ready for any detail, who were in every battle line of their +command, and were mustered out in sound health, and have since the close of +the war, while fighting with the same indomitable and independent spirit +the contests of civil life, been overcome by disease or casualty. +</p> + +<p> +I am not unaware that the pension roll already involves a very large annual +expenditure; neither am I deterred by that fact from recommending that +Congress grant a pension to such honorably discharged soldiers and sailors +of the Civil War as, having rendered substantial service during the war, +are now dependent upon their own labor for a maintenance and by disease or +casualty are incapacitated from earning it. Many of the men who would be +included in this form of relief are now dependent upon public aid, and it +does not, in my judgment, consist with the national honor that they shall +continue to subsist upon the local relief given indiscriminately to paupers +instead of upon the special and generous provision of the nation they +served so gallantly and unselfishly. Our people will, I am sure, very +generally approve such legislation. And I am equally sure that the +survivors of the Union Army and Navy will feel a grateful sense of relief +when this worthy and suffering class of their comrades is fairly cared +for. +</p> + +<p> +There are some manifest inequalities in the existing law that should be +remedied. To some of these the Secretary of the Interior has called +attention. +</p> + +<p> +It is gratifying to be able to state that by the adoption of new and better +methods in the War Department the calls of the Pension Office for +information as to the military and hospital records of pension claimants +are now promptly answered and the injurious and vexatious delays that have +heretofore occurred are entirely avoided. This will greatly facilitate the +adjustment of all pending claims. +</p> + +<p> +The advent of four new States--South Dakota, North Dakota, Montana, and +Washington--into the Union under the Constitution in the same month, and +the admission of their duly chosen representatives to our National Congress +at the same session, is an event as unexampled as it is interesting. +</p> + +<p> +The certification of the votes cast and of the constitutions adopted in +each of the States was filed with me, as required by the eighth section of +the act of February 22, 1889, by the governors of said Territories, +respectively. Having after a careful examination found that the several +constitutions and governments were republican in form and not repugnant to +the Constitution of the United States, that all the provisions of the act +of Congress had been complied with, and that a majority of the votes cast +in each of said proposed States was in favor of the adoption of the +constitution submitted therein, I did so declare by a separate proclamation +as to each--as to North Dakota and South Dakota on Saturday, November 2; as +to Montana on Friday, November 8, and as to Washington on Monday, November +11. +</p> + +<p> +Each of these States has within it resources the development of which will +employ the energies of and yield a comfortable subsistence to a great +population. The smallest of these new States, Washington, stands twelfth, +and the largest, Montana, third, among the forty-two in area. The people of +these States are already well-trained, intelligent, and patriotic American +citizens, having common interests and sympathies with those of the older +States and a common purpose to defend the integrity and uphold the honor of +the nation. +</p> + +<p> +The attention of the Interstate Commerce Commission has been called to the +urgent need of Congressional legislation for the better protection of the +lives and limbs of those engaged in operating the great interstate freight +lines of the country, and especially of the yardmen and brakemen. A +petition signed by nearly 10,000 railway brakemen was presented to the +Commission asking that steps might be taken to bring about the use of +automatic brakes and couplers on freight cars. +</p> + +<p> +At a meeting of State railroad commissioners and their accredited +representatives held at Washington in March last upon the invitation of the +Interstate Commerce Commission a resolution was unanimously adopted urging +the Commission "to consider what can be done to prevent the loss of life +and limb in coupling and uncoupling freight cars and in handling the brakes +of such cars." During the year ending June 30, 1888, over 2,000 railroad +employees were killed in service and more than 20,000 injured. It is +competent, I think, for Congress to require uniformity in the construction +of cars used in interstate commerce and the use of improved safety +appliances upon such trains. Time will be necessary to make the needed +changes, but an earnest and intelligent beginning should be made at once. +It is a reproach to our civilization that any class of American workmen +should in the pursuit of a necessary and useful vocation be subjected to a +peril of life and limb as great as that of a soldier in time of war. +</p> + +<p> +The creation of an Executive Department to be known as the Department of +Agriculture by the act of February 9 last was a wise and timely response to +a request which had long been respectfully urged by the farmers of the +country; but much remains to be done to perfect the organization of the +Department so that it may fairly realize the expectations which its +creation excited. In this connection attention is called to the suggestions +contained in the report of the Secretary, which is herewith submitted. The +need of a law officer for the Department such as is provided for the other +Executive Departments is manifest. The failure of the last Congress to make +the usual provision for the publication of the annual report should be +promptly remedied. The public interest in the report and its value to the +farming community, I am sure, will not be diminished under the new +organization of the Department. +</p> + +<p> +I recommend that the weather service be separated from the War Department +and established as a bureau in the Department of Agriculture. This will +involve an entire reorganization both of the Weather Bureau and of the +Signal Corps, making of the first a purely civil organization and of the +other a purely military staff corps. The report of the Chief Signal Officer +shows that the work of the corps on its military side has been +deteriorating. +</p> + +<p> +The interests of the people of the District of Columbia should not be lost +sight of in the pressure for consideration of measures affecting the whole +country. Having no legislature of its own, either municipal or general, its +people must look to Congress for the regulation of all those concerns that +in the States are the subject of local control. Our whole people have an +interest that the national capital should be made attractive and beautiful, +and, above all, that its repute for social order should be well maintained. +The laws regulating the sale of intoxicating drinks in the District should +be revised with a view to bringing the traffic under stringent limitations +and control. +</p> + +<p> +In execution of the power conferred upon me by the act making +appropriations for the expenses of the District of Columbia for the year +ending June 30, 1890, I did on the 17th day of August last appoint Rudolph +Hering, of New York, Samuel M. Gray, of Rhode Island, and Frederick P. +Stearns, of Massachusetts, three eminent sanitary engineers, to examine and +report upon the system of sewerage existing in the District of Columbia. +Their report, which is not yet completed, will be in due course submitted +to Congress. +</p> + +<p> +The report of the Commissioners of the District is herewith transmitted, +and the attention of Congress is called to the suggestions contained +therein. +</p> + +<p> +The proposition to observe the four hundredth anniversary of the discovery +of America by the opening of a world's fair or exposition in some one of +our great cities will be presented for the consideration of Congress. The +value and interest of such an exposition may well claim the promotion of +the General Government. +</p> + +<p> +On the 4th of March last the Civil Service Commission had but a single +member. The vacancies were filled on the 7th day of May, and since then the +Commissioners have been industriously, though with an inadequate force, +engaged in executing the law. They were assured by me that a cordial +support would be given them in the faithful and impartial enforcement of +the statute and of the rules and regulations adopted in aid of it. +</p> + +<p> +Heretofore the book of eligibles has been closed to everyone, except as +certifications were made upon the requisition of the appointing officers. +This secrecy was the source of much suspicion and of many charges of +favoritism in the administration of the law. What is secret is always +suspected; what is open can be judged. The Commission, with the full +approval of all its members, has now opened the list of eligibles to the +public. The eligible lists for the classified post-offices and +custom-houses are now publicly posted in the respective offices, as are +also the certifications for appointments. The purpose of the civil-service +law was absolutely to exclude any other consideration in connection with +appointments under it than that of merit as tested by the examinations. The +business proceeds upon the theory that both the examining boards and the +appointing officers are absolutely ignorant as to the political views and +associations of all persons on the civil-service lists. It is not too much +to say, however, that some recent Congressional investigations have +somewhat shaken public confidence in the impartiality of the selections for +appointment. +</p> + +<p> +The reform of the civil service will make no safe or satisfactory advance +until the present law and its equal administration are well established in +the confidence of the people. It will be my pleasure, as it is my duty, to +see that the law is executed with firmness and impartiality. If some of its +provisions have been fraudulently evaded by appointing officers, our +resentment should not suggest the repeal of the law, but reform in its +administration. We should have one view of the matter, and hold it with a +sincerity that is not affected by the consideration that the party to which +we belong is for the time in power. +</p> + +<p> +My predecessor, on the 4th day of January, 1889, by an Executive order to +take effect March 15, brought the Railway Mail Service under the operation +of the civil-service law. Provision was made that the order should take +effect sooner in any State where an eligible list was sooner obtained. On +the 11th day of March Mr. Lyman, then the only member of the Commission, +reported to me in writing that it would not be possible to have the list of +eligibles ready before May 1, and requested that the taking effect of the +order be postponed until that time, which was done, subject to the same +provision contained in the original order as to States in which an eligible +list was sooner obtained. +</p> + +<p> +As a result of the revision of the rules, of the new classification, and of +the inclusion of the Railway Mail Service, the work of the Commission has +been greatly increased, and the present clerical force is found to be +inadequate. I recommend that the additional clerks asked by the Commission +be appropriated for. +</p> + +<p> +The duty of appointment is devolved by the Constitution or by the law, and +the appointing officers are properly held to a high responsibility in its +exercise. The growth of the country and the consequent increase of the +civil list have magnified this function of the Executive disproportionally. +It can not be denied, however, that the labor connected with this necessary +work is increased, often to the point of actual distress, by the sudden and +excessive demands that are made upon an incoming Administration for +removals and appointments. But, on the other hand, it is not true that +incumbency is a conclusive argument for continuance in office. +Impartiality, moderation, fidelity to public duty, and a good attainment in +the discharge of it must be added before the argument is complete. When +those holding administrative offices so conduct themselves as to convince +just political opponents that no party consideration or bias affects in any +way the discharge of their public duties, we can more easily stay the +demand for removals. +</p> + +<p> +I am satisfied that both in and out of the classified service great benefit +would accrue from the adoption of some system by which the officer would +receive the distinction and benefit that in all private employments comes +from exceptional faithfulness and efficiency in the performance of duty. +</p> + +<p> +I have suggested to the heads of the Executive Departments that they +consider whether a record might not be kept in each bureau of all those +elements that are covered by the terms "faithfulness" and "efficiency," and +a rating made showing the relative merits of the clerks of each class, this +rating to be regarded as a test of merit in making promotions. +</p> + +<p> +I have also suggested to the Postmaster-General that he adopt some plan by +which he can, upon the basis of the reports to the Department and of +frequent inspections, indicate the relative merit of postmasters of each +class. They will be appropriately indicated in the Official Register and in +the report of the Department. That a great stimulus would thus be given to +the whole service I do not doubt, and such a record would be the best +defense against inconsiderate removals from office. +</p> + +<p> +The interest of the General Government in the education of the people found +an early expression, not only in the thoughtful and sometimes warning +utterances of our ablest statesmen, but in liberal appropriations from the +common resources for the support of education in the new States. No one +will deny that it is of the gravest national concern that those who hold +the ultimate control of all public affairs should have the necessary +intelligence wisely to direct and determine them. National aid to education +has heretofore taken the form of land grants, and in that form the +constitutional power of Congress to promote the education of the people is +not seriously questioned. I do not think it can be successfully questioned +when the form is changed to that of a direct grant of money from the public +Treasury. +</p> + +<p> +Such aid should be, as it always has been, suggested by some exceptional +conditions. The sudden emancipation of the slaves of the South, the +bestowal of the suffrage which soon followed, and the impairment of the +ability of the States where these new citizens were chiefly found to +adequately provide educational facilities presented not only exceptional +but unexampled conditions. That the situation has been much ameliorated +there is no doubt. The ability and interest of the States have happily +increased. +</p> + +<p> +But a great work remains to be done, and I think the General Government +should lend its aid. As the suggestion of a national grant in aid of +education grows chiefly out of the condition and needs of the emancipated +slave and his descendants, the relief should as far as possible, while +necessarily proceeding upon some general lines, be applied to the need that +suggested it. It is essential, if much good is to be accomplished, that the +sympathy and active interest of the people of the States should be +enlisted, and that the methods adopted should be such as to stimulate and +not to supplant local taxation for school purposes. +</p> + +<p> +As one Congress can not bind a succeeding one in such a case and as the +effort must in some degree be experimental, I recommend that any +appropriation made for this purpose be so limited in annual amount and as +to the time over which it is to extend as will on the one hand give the +local school authorities opportunity to make the best use of the first +year's allowance, and on the other deliver them from the temptation to +unduly postpone the assumption of the whole burden themselves. +</p> + +<p> +The colored people did not intrude themselves upon us. They were brought +here in chains and held in the communities where they are now chiefly found +by a cruel slave code. Happily for both races, they are now free. They have +from a standpoint of ignorance and poverty--which was our shame, not +theirs--made remarkable advances in education and in the acquisition of +property. They have as a people shown themselves to be friendly and +faithful toward the white race under temptations of tremendous strength. +They have their representatives in the national cemeteries, where a +grateful Government has gathered the ashes of those who died in its +defense. They have furnished to our Regular Army regiments that have won +high praise from their commanding officers for courage and soldierly +qualities and for fidelity to the enlistment oath. In civil life they are +now the toilers of their communities, making their full contribution to the +widening streams of prosperity which these communities are receiving. Their +sudden withdrawal would stop production and bring disorder into the +household as well as the shop. Generally they do not desire to quit their +homes, and their employers resent the interference of the emigration agents +who seek to stimulate such a desire. +</p> + +<p> +But notwithstanding all this, in many parts of our country where the +colored population is large the people of that race are by various devices +deprived of any effective exercise of their political rights and of many of +their civil rights. The wrong does not expend itself upon those whose votes +are suppressed. Every constituency in the Union is wronged. +</p> + +<p> +It has been the hope of every patriot that a sense of justice and of +respect for the law would work a gradual cure of these flagrant evils. +Surely no one supposes that the present can be accepted as a permanent +condition. If it is said that these communities must work out this problem +for themselves, we have a right to ask whether they are at work upon it. Do +they suggest any solution? When and under what conditions is the black man +to have a free ballot? When is he in fact to have those full civil rights +which have so long been his in law? When is that equality of influence +which our form of government was intended to secure to the electors to be +restored? This generation should courageously face these grave questions, +and not leave them as a heritage of woe to the next. The consultation +should proceed with candor, calmness, and great patience, upon the lines of +justice and humanity, not of prejudice and cruelty. No question in our +country can be at rest except upon the firm base of justice and of the +law. +</p> + +<p> +I earnestly invoke the attention of Congress to the consideration of such +measures within its well-defined constitutional powers as will secure to +all our people a free exercise of the right of suffrage and every other +civil right under the Constitution and laws of the United States. No evil, +however deplorable, can justify the assumption either on the part of the +Executive or of Congress of powers not granted, but both will be highly +blamable if all the powers granted are not wisely but firmly used to +correct these evils. The power to take the whole direction and control of +the election of members of the House of Representatives is clearly given to +the General Government. A partial and qualified supervision of these +elections is now provided for by law, and in my opinion this law may be so +strengthened and extended as to secure on the whole better results than can +be attained by a law taking all the processes of such election into Federal +control. The colored man should be protected in all of his relations to the +Federal Government, whether as litigant, juror, or witness in our courts, +as an elector for members of Congress, or as a peaceful traveler upon our +interstate railways. +</p> + +<p> +There is nothing more justly humiliating to the national pride and nothing +more hurtful to the national prosperity than the inferiority of our +merchant marine compared with that of other nations whose general +resources, wealth, and seacoast lines do not suggest any reason for their +supremacy on the sea. It was not always so, and our people are agreed, I +think, that it shall not continue to be so. It is not possible in this +communication to discuss the causes of the decay of our shipping interests +or the differing methods by which it is proposed to restore them. The +statement of a few well-authenticated facts and some general suggestions as +to legislation is all that is practicable. That the great steamship lines +sailing under the flags of England, France, Germany, Spain, and Italy, and +engaged in foreign commerce, were .promoted and have since been and now are +liberally aided by grants of public money in one form or another is +generally known. That the American lines of steamships have been abandoned +by us to an unequal contest with the aided lines of other nations until +they have been withdrawn, or in the few cases where they are still +maintained are subject to serious disadvantages, is matter of common +knowledge. +</p> + +<p> +The present situation is such that travelers and merchandise find Liverpool +often a necessary intermediate port between New York and some of the South +American capitals. The fact that some of the delegates from South American +States to the conference of American nations now in session at Washington +reached our shores by reversing that line of travel is very conclusive of +the need of such a conference and very suggestive as to the first and most +necessary step in the direction of fuller and more beneficial intercourse +with nations that are now our neighbors upon the lines of latitude, but not +upon the lines of established commercial intercourse. +</p> + +<p> +I recommend that such appropriations be made for ocean mail service in +American steamships between our ports and those of Central and South +America, China, Japan, and the important islands in both of the great +oceans as will be liberally remunerative for the service rendered and as +will encourage the establishment and in some fair degree equalize the +chances of American steamship lines in the competitions which they must +meet. That the American States lying south of us will cordially cooperate +in establishing and maintaining such lines of steamships to their principal +ports I do not doubt. +</p> + +<p> +We should also make provision for a naval reserve to consist of such +merchant ships of American construction and of a specified tonnage and +speed as the owners will consent to place at the use of the Government in +case of need as armed cruisers. England has adopted this policy, and as a +result can now upon necessity at once place upon her naval list some of the +fastest steamships in the world. A proper supervision of the construction +of such vessels would make their conversion into effective ships of war +very easy. +</p> + +<p> +I am an advocate of economy in our national expenditures, but it is a +misuse of terms to make this word describe a policy that withholds an +expenditure for the purpose of extending our foreign commerce. The +enlargement and improvement of our merchant marine, the development of a +sufficient body of trained American seamen, the promotion of rapid and +regular mail communication between the ports of other countries and our +own, and the adaptation of large and swift American merchant steamships to +naval uses in time of war are public purposes of the highest concern. The +enlarged participation of our people in the carrying trade, the new and +increased markets that will be opened for the products of our farms and +factories, and the fuller and better employment of our mechanics which will +result from a liberal promotion of our foreign commerce insure the widest +possible diffusion of benefit to all the States and to all our people. +Everything is most propitious for the present inauguration of a liberal and +progressive policy upon this subject, and we should enter upon it with +promptness and decision. +</p> + +<p> +The legislation which I have suggested, it is sincerely believed, will +promote the peace and honor of our country and the prosperity and security +of the people. I invoke the diligent and serious attention of Congress to +the consideration of these and such other measures as may be presented +having the same great end in view. +</p> + +<p class="noindent"> +BENJ. HARRISON +</p> + +<p><br /><br /><br /></p> + +<p class="t3"> +*** +</p> + +<p><a id="dec1890"></a></p> + +<p class="noindent"> +State of the Union Address<br /> +Benjamin Harrison<br /> +December 1, 1890<br /> +</p> + +<p class="noindent"> +To the Senate and House of Representatives: +</p> + +<p> +The reports of the several Executive Departments, which will be laid before +Congress in the usual course, will exhibit in detail the operations of the +Government for the last fiscal year. Only the more important incidents and +results, and chiefly such as may be the foundation of the recommendations I +shall submit, will be referred to in this annual message. +</p> + +<p> +The vast and increasing business of the Government has been transacted by +the several Departments during the year with faithfulness, energy, and +success. +</p> + +<p> +The revenues, amounting to above $450,000,000, have been collected and +disbursed without revealing, so far as I can ascertain, a single case of +defalcation or embezzlement. An earnest effort has been made to stimulate a +sense of responsibility and public duty in all officers and employees of +every grade, and the work done by them has almost wholly escaped +unfavorable criticism. I speak of these matters with freedom because the +credit of this good work is not mine, but is shared by the heads of the +several Departments with the great body of faithful officers and employees +who serve under them. The closest scrutiny of Congress is invited to all +the methods of administration and to every item of expenditure. +</p> + +<p> +The friendly relations of our country with the nations of Europe and of the +East have been undisturbed, while the ties of good will and common interest +that bind us to the States of the Western Hemisphere have been notably +strengthened by the conference held in this capital to consider measures +for the general welfare. Pursuant to the invitation authorized by Congress, +the representatives of every independent State of the American continent +and of Hayti met in conference in this capital in October, 1889, and +continued in session until the 19th of last April. This important +convocation marks a most interesting and influential epoch in the history +of the Western Hemisphere. It is noteworthy that Brazil, invited while +under an imperial form of government, shared as a republic in the +deliberations and results of the conference. The recommendations of this +conference were all transmitted to Congress at the last session. +</p> + +<p> +The International Marine Conference, which sat at Washington last winter, +reached a very gratifying result. The regulations suggested have been +brought to the attention of all the Governments represented, and their +general adoption is confidently expected. The legislation of Congress at +the last session is in conformity with the propositions of the conference, +and the proclamation therein provided for will be issued when the other +powers have given notice of their adhesion. +</p> + +<p> +The Conference of Brussels, to devise means for suppressing the slave trade +in Africa, afforded an opportunity for a new expression of the interest the +American people feel in that great work. It soon became evident that the +measure proposed would tax the resources of the Kongo Basin beyond the +revenues available under the general act of Berlin of 1884. The United +States, not being a party to that act, could not share in its revision, but +by a separate act the Independent State of the Kongo was freed from the +restrictions upon a customs revenue. The demoralizing and destructive +traffic in ardent spirits among the tribes also claimed the earnest +attention of the conference, and the delegates of the United States were +foremost in advocating measures for its repression. An accord was reached +the influence of which will be very helpful and extend over a wide region. +As soon as these measures shall receive the sanction of the Netherlands, +for a time withheld, the general acts will be submitted for ratification by +the Senate. Meanwhile negotiations have been opened for a new and completed +treaty of friendship, commerce, and navigation between the United States +and the Independent State of the Kongo. +</p> + +<p> +Toward the end of the past year the only independent monarchical government +on the Western Continent, that of Brazil, ceased to exist, and was +succeeded by a republic. Diplomatic relations were at once established with +the new Government, but it was not completely recognized until an +opportunity had been afforded to ascertain that it had popular approval and +support. When the course of events had yielded assurance of this fact, no +time was lost in extending to the new Government a full and cordial welcome +into the family of American Commonwealths. It is confidently believed that +the good relations of the two countries will be preserved and that the +future will witness an increased intimacy of intercourse and an expansion +of their mutual commerce. +</p> + +<p> +The peace of Central America has again been disturbed through a +revolutionary change in Salvador, which was not recognized by other States, +and hostilities broke out between Salvador and Guatemala, threatening to +involve all Central America in conflict and to undo the progress which had +been made toward a union of their interests. The efforts of this Government +were promptly and zealously exerted to compose their differences, and +through the active efforts of the representative of the United States a +provisional treaty of peace was signed August 26, whereby the right of the +Republic of Salvador to choose its own rulers was recognized. General +Ezeta, the chief of the Provisional Government, has since been confirmed in +the Presidency by the Assembly, and diplomatic recognition duly followed. +</p> + +<p> +The killing of General Barrundia on board the Pacific mail steamer +Acapulco, while anchored in transit in the port of San Jose de Guatemala, +demanded careful inquiry. Having failed in a revolutionary attempt to +invade Guatemala from Mexican territory, General Barrundia took passage at +Acapulco for Panama. The consent of the representatives of the United +States was sought to effect his seizure, first at Champerico, where the +steamer touched, and afterwards at San Jose. The captain of the steamer +refused to give up his passenger without a written order from the United +States minister. The latter furnished the desired letter, stipulating as +the condition of his action that General Barrundia's life should be spared +and that he should be tried only for offenses growing out of his +insurrectionary movements. This letter was produced to the captain of the +Acapulco by the military commander at San Jose as his warrant to take the +passenger from the steamer. General Barrundia resisted capture and was +killed. It being evident that the minister, Mr. Mizner, had exceeded the +bounds of his authority in intervening, in compliance with the demands of +the Guatemalan authorities, to authorize and effect, in violation of +precedent, the seizure on a vessel of the United States of a passenger in +transit charged with political offenses, in order that he might be tried +for such offenses under what was described as martial law, I was +constrained to disavow Mr. Mizner's act and recall him from his post. +</p> + +<p> +The Nicaragua Canal project, under the control of our citizens, is making +most encouraging progress, all the preliminary conditions and initial +operations having been accomplished within the prescribed time. +</p> + +<p> +During the past year negotiations have been renewed for the settlement of +the claims of American citizens against the Government of Chile, +principally growing out of the late war with Peru. The reports from our +minister at Santiago warrant the expectation of an early and satisfactory +adjustment. +</p> + +<p> +Our relations with China, which have for several years occupied so +important a place in our diplomatic history, have called for careful +consideration and have been the subject of much correspondence. +</p> + +<p> +The communications of the Chinese minister have brought into view the whole +subject of our conventional relations with his country, and at the same +time this Government, through its legation at Peking, has sought to arrange +various matters and complaints touching the interests and protection of our +citizens in China. +</p> + +<p> +In pursuance of the concurrent resolution of October 1, 1890, I have +proposed to the Governments of Mexico and Great Britain to consider a +conventional regulation of the passage of Chinese laborers across our +southern and northern frontiers. +</p> + +<p> +On the 22d day of August last Sir Edmund Monson, the arbitrator selected +under the treaty of December 6, 1888, rendered an award to the effect that +no compensation was due from the Danish Government to the United States on +account of what is commonly known as the Carlos Butterfield claim. +</p> + +<p> +Our relations with the French Republic continue to be cordial. Our +representative at that court has very diligently urged the removal of the +restrictions imposed upon our meat products, and it is believed that +substantial progress has been made toward a just settlement. +</p> + +<p> +The Samoan treaty, signed last year at Berlin by the representatives of the +United States, Germany, and Great Britain, after due ratification and +exchange, has begun to produce salutary effects. The formation of the +government agreed upon will soon replace the disorder of the past by a +stable administration alike just to the natives and equitable to the three +powers most concerned in trade and intercourse with the Samoan Islands. The +chief justice has been chosen by the King of Sweden and Norway on the +invitation of the three powers, and will soon be installed. The land +commission and the municipal council are in process of organization. A +rational and evenly distributed scheme of taxation, both municipal and upon +imports, is in operation. Malietoa is respected as King. +</p> + +<p> +The new treaty of extradition with Great Britain, after due ratification, +was proclaimed on the 25th of last March. Its beneficial working is already +apparent. +</p> + +<p> +The difference between the two Governments touching the fur-seal question +in the Bering Sea is not yet adjusted, as will be seen by the +correspondence which will soon be laid before the Congress. The offer to +submit the question to arbitration, as proposed by Her Majesty's +Government, has not been accepted, for the reason that the form of +submission proposed is not thought to be calculated to assure a conclusion +satisfactory to either party. It is sincerely hoped that before the opening +of another sealing season some arrangement may be effected which will +assure to the United States a property right derived from Russia, which was +not disregarded by any nation for more than eighty years preceding the +outbreak of the existing trouble. +</p> + +<p> +In the tariff act a wrong was done to the Kingdom of Hawaii which I am +bound to presume was wholly unintentional. Duties were levied on certain +commodities which are included in the reciprocity treaty now existing +between the United States and the Kingdom of Hawaii, without indicating the +necessary exception in favor of that Kingdom. I hope Congress will repair +what might otherwise seem to be a breach of faith on the part of this +Government. +</p> + +<p> +An award in favor of the United States in the matter of the claim of Mr. +Van Bokkelen against Hayti was rendered on the 4th of December, 1888, but +owing to disorders then and afterwards prevailing in Hayti the terms of +payment were not observed. A new agreement as to the time of payment has +been approved and is now in force. Other just claims of citizens of the +United States for redress of wrongs suffered during the late political +conflict in Hayti will, it is hoped, speedily yield to friendly treatment. +</p> + +<p> +Propositions for the amendment of the treaty of extradition between the +United States and Italy are now under consideration. +</p> + +<p> +You will be asked to provide the means of accepting the invitation of the +Italian Government to take part in an approaching conference to consider +the adoption of a universal prime meridian from which to reckon longitude +and time. As this proposal follows in the track of the reform sought to be +initiated by the Meridian Conference of Washington, held on the invitation +of this Government, the United States should manifest a friendly interest +in the Italian proposal. +</p> + +<p> +In this connection I may refer with approval to the suggestion of my +predecessors that standing provision be made for accepting, whenever deemed +advisable, the frequent invitations of foreign governments to share in +conferences looking to the advancement of international reforms in regard +to science, sanitation, commercial laws and procedure, and other matters +affecting the intercourse and progress of modern communities. +</p> + +<p> +In the summer of 1889 an incident occurred which for some time threatened +to interrupt the cordiality of our relations with the Government of +Portugal. That Government seized the Delagoa Bay Railway, which was +constructed under a concession granted to an American citizen, and at the +same time annulled the charter. The concessionary, who had embarked his +fortune in the enterprise, having exhausted other means of redress, was +compelled to invoke the protection of his Government. Our representations, +made coincidently with those of the British Government, whose subjects were +also largely interested, happily resulted in the recognition by Portugal of +the propriety of submitting the claim for indemnity growing out of its +action to arbitration. This plan of settlement having been agreed upon, the +interested powers readily concurred in the proposal to submit the case to +the judgment of three eminent jurists, to be designated by the President of +the Swiss Republic, who, upon the joint invitation of the Governments of +the United States, Great Britain, and Portugal, has selected persons well +qualified for the task before them. +</p> + +<p> +The revision of our treaty relations with the Empire of Japan has continued +to be the subject of consideration and of correspondence. The questions +involved are both grave and delicate; and while it will be my duty to see +that the interests of the United States are not by any changes exposed to +undue discrimination, I sincerely hope that such revision as will satisfy +the legitimate expectations of the Japanese Government and maintain the +present and long-existing friendly relations between Japan and the United +States will be effected. +</p> + +<p> +The friendship between our country and Mexico, born of close neighborhood +and strengthened by many considerations of intimate intercourse and +reciprocal interest, has never been more conspicuous than now nor more +hopeful of increased benefit to both nations. The intercourse of the two +countries by rail, already great, is making constant growth. The +established lines and those recently projected add to the intimacy of +traffic and open new channels of access to fresh areas of demand and +supply. The importance of the Mexican railway system will be further +enhanced to a degree almost impossible to forecast if it should become a +link in the projected intercontinental railway. I recommend that our +mission in the City of Mexico be raised to the first class. +</p> + +<p> +The cordial character of our relations with Spain warrants the hope that by +the continuance of methods of friendly negotiation much may be accomplished +in the direction of an adjustment of pending questions and of the increase +of our trade. The extent and development of our trade with the island of +Cuba invest the commercial relations of the United States and Spain with a +peculiar importance. It is not doubted that a special arrangement in regard +to commerce, based upon the reciprocity provision of the recent tariff act, +would operate most beneficially for both Governments. This subject is now +receiving attention. +</p> + +<p> +The restoration of the remains of John Ericsson to Sweden afforded a +gratifying occasion to honor the memory of the great inventor, to whose +genius our country owes so much, and to bear witness to the unbroken +friendship which has existed between the land which bore him and our own, +which claimed him as a citizen. +</p> + +<p> +On the 2d of September last the commission appointed to revise the +proceedings of the commission under the claims convention between the +United States and Venezuela of 1866 brought its labors to a close within +the period fixed for that purpose. The proceedings of the late commission +were characterized by a spirit of impartiality and a high sense of justice, +and an incident which was for many years the subject of discussion between +the two Governments has been disposed of in a manner alike honorable and +satisfactory to both parties. For the settlement of the claim of the +Venezuela Steam Transportation Company, which was the subject of a joint +resolution adopted at the last session of Congress, negotiations are still +in progress, and their early conclusion is anticipated. +</p> + +<p> +The legislation of the past few years has evinced on the part of Congress a +growing realization of the importance of the consular service in fostering +our commercial relations abroad and in protecting the domestic revenues. As +the scope of operations expands increased provision must be made to keep up +the essential standard of efficiency. The necessity of some adequate +measure of supervision and inspection has been so often presented that I +need only commend the subject to your attention. +</p> + +<p> +The revenues of the Government from all sources for the fiscal year ending +June 30, 1890, were $463,963,080.55 and the total expenditures for the same +period were $358,618,584.52. The postal receipts have not heretofore been +included in the statement of these aggregates, and for the purpose of +comparison the sum of $60,882,097.92 should be deducted from both sides of +the account. The surplus for the year, including the amount applied to the +sinking fund, was $105,344,496.03. The receipts for 1890 were +$16,030,923.79 and the expenditures $15,739,871 in excess of those of 1889. +The customs receipts increased $5,835,842.88 and the receipts from internal +revenue $11,725,191.89, while on the side of expenditures that for pensions +was $19,312,075.96 in excess of the preceding year. +</p> + +<p> +The Treasury statement for the current fiscal year, partly actual and +partly estimated, is as follows: Receipts from all sources, $406,000,000; +total expenditures, $354,000,000, leaving a surplus of $52,000,000, not +taking the postal receipts into the account on either side. The loss of +revenue from customs for the last quarter is estimated at $25,000,000, but +from this is deducted a gain of about $16,000,000 realized during the first +four months of the year. +</p> + +<p> +For the year 1892 the total estimated receipts are $373,000,000 and the +estimated expenditures $357,852,209.42, leaving an estimated surplus of +$15,247,790.58, which, with a cash balance of $52,000,000 at the beginning +of the year, will give $67,247,790.58 as the sum available for the +redemption of outstanding bonds or other uses. The estimates of receipts +and expenditures for the Post-Office Department, being equal, are not +included in this statement on either side. +</p> + +<p> +The act "directing the purchase of silver bullion and the issue of Treasury +notes thereon," approved July 14, 1890, has been administered by the +Secretary of the Treasury with an earnest purpose to get into circulation +at the earliest possible dates the full monthly amounts of Treasury notes +contemplated by its provisions and at the same time to give to the market +for the silver bullion such support as the law contemplates. The recent +depreciation in the price of silver has been observed with regret. The +rapid rise in price which anticipated and followed the passage of the act +was influenced in some degree by speculation, and the recent reaction is in +part the result of the same cause and in part of the recent monetary +disturbances. Some months of further trial will be necessary to determine +the permanent effect of the recent legislation upon silver values, but it +is gratifying to know that the increased circulation secured by the act has +exerted, and will continue to exert, a most beneficial influence upon +business and upon general values. +</p> + +<p> +While it has not been thought best to renew formally the suggestion of an +international conference looking to an agreement touching the full use of +silver for coinage at a uniform ratio, care has been taken to observe +closely any change in the situation abroad, and no favorable opportunity +will be lost to promote a result which it is confidently believed would +confer very large benefits upon the commerce of the world. +</p> + +<p> +The recent monetary disturbances in England are not unlikely to suggest a +reexamination of opinions upon this subject. Our very large supply of gold +will, if not lost by impulsive legislation in the supposed interest of +silver, give us a position of advantage in promoting a permanent and safe +international agreement for the free use of silver as a coin metal. +</p> + +<p> +The efforts of the Secretary to increase the volume of money in circulation +by keeping down the Treasury surplus to the lowest practicable limit have +been unremitting and in a very high degree successful. The tables presented +by him showing the increase of money in circulation during the last two +decades, and especially the table showing the increase during the nineteen +months he has administered the affairs of the Department, are interesting +and instructive. The increase of money in circulation during the nineteen +months has been in the aggregate $93,866,813, or about $1.50 per capita, +and of this increase only $7,100,000 was due to the recent silver +legislation. That this substantial and needed aid given to commerce +resulted in an enormous reduction of the public debt and of the annual +interest charge is matter of increased satisfaction. There have been +purchased and redeemed since March 4, 1889, 4 and 4 1\2 per cent bonds to +the amount of $211,832,450, at a cost of $246,620,741, resulting in the +reduction of the annual interest charge of $8,967,609 and a total saving of +interest of $51,576,706. +</p> + +<p> +I notice with great pleasure the statement of the Secretary that the +receipts from internal revenue have increased during the last fiscal year +nearly $12,000,000, and that the cost of collecting this larger revenue was +less by $90,617 than for the same purpose in the preceding year. The +percentage of cost of collecting the customs revenue was less for the last +fiscal year than ever before. +</p> + +<p> +The Customs Administration Board, provided for by the act of June 10, 1890, +was selected with great care, and is composed in part of men whose previous +experience in the administration of the old customs regulations had made +them familiar with the evils to be remedied, and in part of men whose legal +and judicial acquirements and experience seemed to fit them for the work of +interpreting and applying the new statute. The chief aim of the law is to +secure honest valuations of all dutiable merchandise and to make these +valuations uniform at all our ports of entry. It had been made manifest by +a Congressional investigation that a system of undervaluation had been long +in use by certain classes of importers, resulting not only in a great loss +of revenue, but in a most intolerable discrimination against honesty. It is +not seen how this legislation, when it is understood, can be regarded by +the citizens of any country having commercial dealings with us as +unfriendly. If any duty is supposed to be excessive, let the complaint be +lodged there. It will surely not be claimed by any well-disposed people +that a remedy may be sought and allowed in a system of quasi smuggling. +</p> + +<p> +The report of the Secretary of War exhibits several gratifying results +attained during the year by wise and unostentatious methods. The percentage +of desertions from the Army (an evil for which both Congress and the +Department have long been seeking a remedy) has been reduced during the +past year 24 per cent, and for the months of August and September, during +which time the favorable effects of the act of June 16 were felt, 33 per +cent, as compared with the same months of 1889. +</p> + +<p> +The results attained by a reorganization and consolidation of the divisions +having charge of the hospital and service records of the volunteer soldiers +are very remarkable. This change was effected in July, 1889, and at that +time there were 40,654 cases awaiting attention, more than half of these +being calls from the Pension Office for information necessary to the +adjudication of pension claims. On the 30th day of June last, though over +300,000 new calls had come in, there was not a single case that had not +been examined and answered. +</p> + +<p> +I concur in the recommendations of the Secretary that adequate and regular +appropriations be continued for coast-defense works and ordnance. Plans +have been practically agreed upon, and there can be no good reason for +delaying the execution of them, while the defenseless state of our great +seaports furnishes an urgent reason for wise expedition. +</p> + +<p> +The encouragement that has been extended to the militia of the States, +generally and most appropriately designated the "National Guard," should be +continued and enlarged. These military organizations constitute in a large +sense the Army of the United States, while about five-sixths of the annual +cost of their maintenance is defrayed by the States. +</p> + +<p> +The report of the Attorney-General is under the law submitted directly to +Congress, but as the Department of Justice is one of the Executive +Departments some reference to the work done is appropriate here. +</p> + +<p> +A vigorous and in the main an effective effort has been made to bring to +trial and punishment all violators of the law, but at the same time care +has been taken that frivolous and technical offenses should not be used to +swell the fees of officers or to harass well-disposed citizens. Especial +attention is called to the facts connected with the prosecution of +violations of the election laws and of offenses against United States +officers. The number of convictions secured, very many of them upon pleas +of guilty, will, it is hoped, have a salutary restraining influence. There +have been several cases where postmasters appointed by me have been +subjected to violent interference in the discharge of their official duties +and to persecutions and personal violence of the most extreme character. +Some of these cases have been dealt with through the Department of Justice, +and in some cases the post-offices have been abolished or suspended. I have +directed the Postmaster-General to pursue this course in all cases where +other efforts failed to secure for any postmaster not himself in fault an +opportunity peacefully to exercise the duties of his office. But such +action will not supplant the efforts of the Department of Justice to bring +the particular offenders to punishment. +</p> + +<p> +The vacation by judicial decrees of fraudulent certificates of +naturalization, upon bills in equity filed by the Attorney-General in the +circuit court of the United States, is a new application of a familiar +equity jurisdiction. Nearly one hundred such decrees have been taken during +the year, the evidence disclosing that a very large number of fraudulent +certificates of naturalization have been issued. And in this connection I +beg to renew my recommendation that the laws be so amended as to require a +more full and searching inquiry into all the facts necessary to +naturalization before any certificates are granted. It certainly is not too +much to require that an application for American citizenship shall be heard +with as much care and recorded with as much formality as are given to cases +involving the pettiest property right. +</p> + +<p> +At the last session I returned without my approval a bill entitled "An act +to prohibit bookmaking and pool selling in the District of Columbia," and +stated my objection to be that it did not prohibit but in fact licensed +what it purported to prohibit. An effort will be made under existing laws +to suppress this evil, though it is not certain that they will be found +adequate. +</p> + +<p> +The report of the Postmaster-General shows the most gratifying progress in +the important work committed to his direction. The business methods have +been greatly improved. A large economy in expenditures and an increase of +four and three-quarters millions in receipts have been realized. The +deficiency this year is $5,786,300, as against $6,350,183 last year, +notwithstanding the great enlargement of the service. Mail routes have been +extended and quickened and greater accuracy and dispatch in distribution +and delivery have been attained. The report will be found to be full of +interest and suggestion, not only to Congress, but to those thoughtful +citizens who may be interested to know what business methods can do for +that department of public administration which most nearly touches all our +people. +</p> + +<p> +The passage of the act to amend certain sections of the Revised Statutes +relating to lotteries, approved September 19, 1890, has been received with +great and deserved popular favor. The Post-Office Department and the +Department of Justice at once entered upon the enforcement of the law with +sympathetic vigor, and already the public mails have been largely freed +from the fraudulent and demoralizing appeals and literature emanating from +the lottery companies. +</p> + +<p> +The construction and equipment of the new ships for the Navy have made very +satisfactory progress. Since March 4, 1889, nine new vessels have been put +in commission, and during this winter four more, including one monitor, +will be added. The construction of the other vessels authorized is being +pushed both in the Government and private yards with energy and watched +with the most scrupulous care. +</p> + +<p> +The experiments conducted during the year to test the relative resisting +power of armor plates have been so valuable as to attract great attention +in Europe. The only part of the work upon the new ships that is threatened +by unusual delay is the armor plating, and every effort is being made to +reduce that to the minimum. It is a source of congratulation that the +anticipated influence of these modern vessels upon the esprit de corps of +the officers and seamen has been fully realized. Confidence and pride in +the ship among the crew are equivalent to a secondary battery. Your +favorable consideration is invited to the recommendations of the +Secretary. +</p> + +<p> +The report of the Secretary of the Interior exhibits with great fullness +and clearness the vast work of that Department and the satisfactory results +attained. The suggestions made by him are earnestly commended to the +consideration of Congress, though they can not all be given particular +mention here. +</p> + +<p> +The several acts of Congress looking to the reduction of the larger Indian +reservations, to the more rapid settlement of the Indians upon individual +allotments, and the restoration to the public domain of lands in excess of +their needs have been largely carried into effect so far as the work was +confided to the Executive. Agreements have been concluded since March 4, +1889, involving the cession to the United States of about 14,726,000 acres +of land. These contracts have, as required by law, been submitted to +Congress for ratification and for the appropriations necessary to carry +them into effect. Those with the Sisseton and Wahpeton, Sac and Fox, Iowa, +Pottawatomies and Absentee Shawnees, and Coeur d'Alene tribes have not yet +received the sanction of Congress. Attention is also called to the fact +that the appropriations made in the case of the Sioux Indians have not +covered all the stipulated payments. This should be promptly corrected. If +an agreement is confirmed, all of its terms should be complied with without +delay and full appropriations should be made. +</p> + +<p> +The policy outlined in my last annual message in relation to the patenting +of lands to settlers upon the public domain has been carried out in the +administration of the Land Office. No general suspicion or imputation of +fraud has been allowed to delay the hearing and adjudication of individual +cases upon their merits. The purpose has been to perfect the title of +honest settlers with such promptness that the value of the entry might not +be swallowed up by the expense and extortions to which delay subjected the +claimant. The average monthly issue of agricultural patents has been +increased about 6,000. +</p> + +<p> +The disability-pension act, which was approved on the 27th of June last, +has been put into operation as rapidly as was practicable. The increased +clerical force provided was selected and assigned to work, and a +considerable part of the force engaged in examinations in the field was +recalled and added to the working force of the office. The examination and +adjudication of claims have by reason of improved methods been more rapid +than ever before. There is no economy to the Government in delay, while +there is much hardship and injustice to the soldier. The anticipated +expenditure, while very large, will not, it is believed, be in excess of +the estimates made before the enactment of the law. This liberal +enlargement of the general law should suggest a more careful scrutiny of +bills for special relief, both as to the cases where relief is granted and +as to the amount allowed. +</p> + +<p> +The increasing numbers and influence of the non-Mormon population of Utah +are observed with satisfaction. The recent letter of Wilford Woodruff, +president of the Mormon Church, in which he advised his people "to refrain +from contracting any marriage forbidden by the laws of the land," has +attracted wide attention, and it is hoped that its influence will be highly +beneficial in restraining infractions of the laws of the United States. But +the fact should not be overlooked that the doctrine or belief of the church +that polygamous marriages are rightful and supported by divine revelation +remains unchanged. President Woodruff does not renounce the doctrine, but +refrains from teaching it, and advises against the practice of it because +the law is against it. Now, it is quite true that the law should not +attempt to deal with the faith or belief of anyone; but it is quite another +thing, and the only safe thing, so to deal with the Territory of Utah as +that those who believe polygamy to be rightful shall not have the power to +make it lawful. +</p> + +<p> +The admission of the States of Wyoming and Idaho to the Union are events +full of interest and congratulation, not only to the people of those States +now happily endowed with a full participation in our privileges and +responsibilities, but to all our people. Another belt of States stretches +from the Atlantic to the Pacific. +</p> + +<p> +The work of the Patent Office has won from all sources very high +commendation. The amount accomplished has been very largely increased, and +all the results have been such as to secure confidence and consideration +for the suggestions of the Commissioner. +</p> + +<p> +The enumeration of the people of the United States under the provisions of +the act of March 1, 1889, has been completed, and the result will be at +once officially communicated to Congress. The completion of this decennial +enumeration devolves upon Congress the duty of making a new apportionment +of Representatives "among the several States according to their respective +numbers." +</p> + +<p> +At the last session I had occasion to return with my objections several +bills making provisions for the erection of public buildings for the reason +that the expenditures contemplated were, in my opinion, greatly in excess +of any public need. No class of legislation is more liable to abuse or to +degenerate into an unseemly scramble about the public Treasury than this. +There should be exercised in this matter a wise economy, based upon some +responsible and impartial examination and report as to each case, under a +general law. +</p> + +<p> +The report of the Secretary of Agriculture deserves especial attention in +view of the fact that the year has been marked in a very unusual degree by +agitation and organization among the farmers looking to an increase in the +profits of their business. It will be found that the efforts of the +Department have been intelligently and zealously devoted to the promotion +of the interests intrusted to its care. +</p> + +<p> +A very substantial improvement in the market prices of the leading farm +products during the year is noticed. The price of wheat advanced from 81 +cents in October, 1889, to $1.00 3/4 in October, 1890; corn from 31 cents +to 50 1/4 cents; oats from 19 1/4 cents to 43 cents, and barley from 63 +cents to 78 cents. Meats showed a substantial but not so large an increase. +The export trade in live animals and fowls shows a very large increase. The +total value of such exports for the year ending June 30, 1890, was +$33,000,000, and the increase over the preceding year was over $15,000,000. +Nearly 200,000 more cattle and over 45,000 more hogs were exported than in +the preceding year. The export trade in beef and pork products and in dairy +products was very largely increased, the increase in the article of butter +alone being from 15,504,978 pounds to 29,748,042 pounds, and the total +increase in the value of meat and dairy products exported being +$34,000,000. This trade, so directly helpful to the farmer, it is believed, +will be yet further and very largely increased when the system of +inspection and sanitary supervision now provided by law is brought fully +into operation. +</p> + +<p> +The efforts of the Secretary to establish the healthfulness of our meats +against the disparaging imputations that have been put upon them abroad +have resulted in substantial progress. Veterinary surgeons sent out by the +Department are now allowed to participate in the inspection of the live +cattle from this country landed at the English docks, and during the +several months they have been on duty no case of contagious +pleuro-pneumonia has been reported. This inspection abroad and the domestic +inspection of live animals and pork products provided for by the act of +August 30, 1890, will afford as perfect a guaranty for the wholesomeness of +our meats offered for foreign consumption as is anywhere given to any food +product, and its nonacceptance will quite clearly reveal the real motive of +any continued restriction of their use, and that having been made clear the +duty of the Executive will be very plain. +</p> + +<p> +The information given by the Secretary of the progress and prospects of the +beet-sugar industry is full of interest. It has already passed the +experimental stage and is a commercial success. The area over which the +sugar beet can be successfully cultivated is very large, and another field +crop of great value is offered to the choice of the farmer. +</p> + +<p> +The Secretary of the Treasury concurs in the recommendation of the +Secretary of Agriculture that the official supervision provided by the +tariff law for sugar of domestic production shall be transferred to the +Department of Agriculture. +</p> + +<p> +The law relating to the civil service has, so far as I can learn, been +executed by those having the power of appointment in the classified service +with fidelity and impartiality, and the service has been increasingly +satisfactory. The report of the Commission shows a large amount of good +work done during the year with very limited appropriations. +</p> + +<p> +I congratulate the Congress and the country upon the passage at the first +session of the Fifty-first Congress of an unusual number of laws of very +high importance. That the results of this legislation will be the +quickening and enlargement of our manufacturing industries, larger and +better markets for our breadstuffs and provisions both at home and abroad, +more constant employment and better wages for our working people, and an +increased supply of a safe currency for the transaction of business, I do +not doubt. Some of these measures were enacted at so late a period that the +beneficial effects upon commerce which were in the contemplation of +Congress have as yet but partially manifested themselves. +</p> + +<p> +The general trade and industrial conditions throughout the country during +the year have shown a marked improvement. For many years prior to 1888 the +merchandise balances of foreign trade had been largely in our favor, but +during that year and the year following they turned against us. It is very +gratifying to know that the last fiscal year again shows a balance in our +favor of over $68,000,000. The bank clearings, which furnish a good test of +the volume of business transacted, for the first ten months of the year +1890 show as compared with the same months of 1889 an increase for the +whole country of about 8.4 per cent, while the increase outside of the city +of New York was over 13 per cent. During the month of October the clearings +of the whole country showed an increase of 3.1 per cent over October, 1889, +while outside of New York the increase was 11.5 per cent. These figures +show that the increase in the volume of business was very general +throughout the country. That this larger business was being conducted upon +a safe and profitable basis is shown by the fact that there were 300 less +failures reported in October, 1890, than in the same month of the preceding +year, with liabilities diminished by about $5,000,000. +</p> + +<p> +The value of our exports of domestic merchandise during the last year was +over $115,000,000 greater than the preceding year, and was only exceeded +once in our history. About $100,000,000 of this excess was in agricultural +products. The production of pig iron, always a good gauge of general +prosperity, is shown by a recent census bulletin to have been 153 per cent +greater in 1890 than in 1880, and the production of steel 290 per cent +greater. Mining in coal has had no limitation except that resulting from +deficient transportation. The general testimony is that labor is everywhere +fully employed, and the reports for the last year show a smaller number of +employees affected by strikes and lockouts than in any year since 1884. The +depression in the prices of agricultural products had been greatly relieved +and a buoyant and hopeful tone was beginning to be felt by all our people. +</p> + +<p> +These promising influences have been in some degree checked by the +surprising and very unfavorable monetary events which have recently taken +place in England. It is gratifying to know that these did not grow in any +degree out of the financial relations of London with our people or out of +any discredit attached to our securities held in that market. The return of +our bonds and stocks was caused by a money stringency in England, not by +any loss of value or credit in the securities themselves. We could not, +however, wholly escape the ill effects of a foreign monetary agitation +accompanied by such extraordinary incidents as characterized this. It is +not believed, however, that these evil incidents, which have for the time +unfavorably affected values in this country, can long withstand the strong, +safe, and wholesome influences which are operating to give to our people +profitable returns in all branches of legitimate trade and industry. The +apprehension that our tariff may again and at once be subjected to +important general changes would undoubtedly add a depressing influence of +the most serious character. +</p> + +<p> +The general tariff act has only partially gone into operation, some of its +important provisions being limited to take effect at dates yet in the +future. The general provisions of the law have been in force less than +sixty days. Its permanent effects upon trade and prices still largely stand +in conjecture. It is curious to note that the advance in the prices of +articles wholly unaffected by the tariff act was by many hastily ascribed +to that act. Notice was not taken of the fact that the general tendency of +the markets was upward, from influences wholly apart from the recent tariff +legislation. The enlargement of our currency by the silver bill undoubtedly +gave an upward tendency to trade and had a marked effect on prices; but +this natural and desired effect of the silver legislation was by many +erroneously attributed to the tariff act. +</p> + +<p> +There is neither wisdom nor justice in the suggestion that the subject of +tariff revision shall be again opened before this law has had a fair trial. +It is quite true that every tariff schedule is subject to objections. No +bill was ever framed, I suppose, that in all of its rates and +classifications had the full approval even of a party caucus. Such +legislation is always and necessarily the product of compromise as to +details, and the present law is no exception. But in its general scope and +effect I think it will justify the support of those who believe that +American legislation should conserve and defend American trade and the +wages of American workmen. +</p> + +<p> +The misinformation as to the terms of the act which has been so widely +disseminated at home and abroad will be corrected by experience, and the +evil auguries as to its results confounded by the market reports, the +savings banks, international trade balances, and the general prosperity of +our people. Already we begin to hear from abroad and from our customhouses +that the prohibitory effect upon importations imputed to the act is not +justified. The imports at the port of New York for the first three weeks of +November were nearly 8 per cent greater than for the same period in 1889 +and 29 per cent greater than in the same period of 1888. And so far from +being an act to limit exports, I confidently believe that under it we shall +secure a larger and more profitable participation in foreign trade than we +have ever enjoyed, and that we shall recover a proportionate participation +in the ocean carrying trade of the world. +</p> + +<p> +The criticisms of the bill that have come to us from foreign sources may +well be rejected for repugnancy. If these critics really believe that the +adoption by us of a free-trade policy, or of tariff rates having reference +solely to revenue, would diminish the participation of their own countries +in the commerce of the world, their advocacy and promotion, by speech and +other forms of organized effort, of this movement among our people is a +rare exhibition of unselfishness in trade. And, on the other hand, if they +sincerely believe that the adoption of a protective-tariff policy by this +country inures to their profit and our hurt, it is noticeably strange that +they should lead the outcry against the authors of a policy so helpful to +their countrymen and crown with their favor those who would snatch from +them a substantial share of a trade with other lands already inadequate to +their necessities. +</p> + +<p> +There is no disposition among any of our people to promote prohibitory or +retaliatory legislation. Our policies are adopted not to the hurt of +others, but to secure for ourselves those advantages that fairly grow out +of our favored position as a nation. Our form of government, with its +incident of universal suffrage, makes it imperative that we shall save our +working people from the agitations and distresses which scant work and +wages that have no margin for comfort always beget. But after all this is +done it will be found that our markets are open to friendly commercial +exchanges of enormous value to the other great powers. +</p> + +<p> +From the time of my induction into office the duty of using every power and +influence given by law to the executive department for the development of +larger markets for our products, especially our farm products, has been +kept constantly in mind, and no effort has been or will be spared to +promote that end. We are under no disadvantage in any foreign market, +except that we pay our workmen and workwomen better wages than are paid +elsewhere--better abstractly, better relatively to the cost of the +necessaries of life. I do not doubt that a very largely increased foreign +trade is accessible to us without bartering for it either our home market +for such products of the farm and shop as our own people can supply or the +wages of our working people. +</p> + +<p> +In many of the products of wood and iron and in meats and breadstuffs we +have advantages that only need better facilities of intercourse and +transportation to secure for them large foreign markets. The reciprocity +clause of the tariff act wisely and effectively opens the way to secure a +large reciprocal trade in exchange for the free admission to our ports of +certain products. The right of independent nations to make special +reciprocal trade concessions is well established, and does not impair +either the comity due to other powers or what is known as the +"favored-nation clause," so generally found in commercial treaties. What is +given to one for an adequate agreed consideration can not be claimed by +another freely. The state of the revenues was such that we could dispense +with any import duties upon coffee, tea, hides, and the lower grades of +sugar and molasses. That the large advantage resulting to the countries +producing and exporting these articles by placing them on the free list +entitled us to expect a fair return in the way of customs concessions upon +articles exported by us to them was so obvious that to have gratuitously +abandoned this opportunity to enlarge our trade would have been an +unpardonable error. +</p> + +<p> +There were but two methods of maintaining control of this question open to +Congress--to place all of these articles upon the dutiable list, subject to +such treaty agreements as could be secured, or to place them all presently +upon the free list, but subject to the reimposition of specified duties if +the countries from which we received them should refuse to give to us +suitable reciprocal benefits. This latter method, I think, possesses great +advantages. It expresses in advance the consent of Congress to reciprocity +arrangements affecting these products, which must otherwise have been +delayed and unascertained until each treaty was ratified by the Senate and +the necessary legislation enacted by Congress. Experience has shown that +some treaties looking to reciprocal trade have failed to secure a +two-thirds vote in the Senate for ratification, and others having passed +that stage have for years awaited the concurrence of the House and Senate +in such modifications of our revenue laws as were necessary to give effect +to their provisions. We now have the concurrence of both Houses in advance +in a distinct and definite offer of free entry to our ports of specific +articles. The Executive is not required to deal in conjecture as to what +Congress will accept. Indeed, this reciprocity provision is more than an +offer. Our part of the bargain is complete; delivery has been made; and +when the countries from which we receive sugar, coffee, tea, and hides have +placed on their free lists such of our products as shall be agreed upon as +an equivalent for our concession, a proclamation of that fact completes the +transaction; and in the meantime our own people have free sugar, tea, +coffee, and hides. +</p> + +<p> +The indications thus far given are very hopeful of early and favorable +action by the countries from which we receive our large imports of coffee +and sugar, and it is confidently believed that if steam communication with +these countries can be promptly improved and enlarged the next year will +show a most gratifying increase in our exports of breadstuffs and +provisions, as well as of some important lines of manufactured goods. +</p> + +<p> +In addition to the important bills that became laws before the adjournment +of the last session, some other bills of the highest importance were well +advanced toward a final vote and now stand upon the calendars of the two +Houses in favored positions. The present session has a fixed limit, and if +these measures are not now brought to a final vote all the work that has +been done upon them by this Congress is lost. The proper consideration of +these, of an apportionment bill, and of the annual appropriation bills will +require not only that no working day of the session shall be lost, but that +measures of minor and local interest shall not be allowed to interrupt or +retard the progress of those that are of universal interest. In view of +these conditions, I refrain from bringing before you at this time some +suggestions that would otherwise be made, and most earnestly invoke your +attention to the duty of perfecting the important legislation now well +advanced. To some of these measures, which seem to me most important, I now +briefly call your attention. +</p> + +<p> +I desire to repeat with added urgency the recommendations contained in my +last annual message in relation to the development of American steamship +lines. The reciprocity clause of the tariff bill will be largely limited +and its benefits retarded and diminished if provision is not +contemporaneously made to encourage the establishment of first-class steam +communication between our ports and the ports of such nations as may meet +our overtures for enlarged commercial exchanges. The steamship, carrying +the mails statedly and frequently and offering to passengers a comfortable, +safe, and speedy transit, is the first condition of foreign trade. It +carries the order or the buyer, but not all that is ordered or bought. It +gives to the sailing vessels such cargoes as are not urgent or perishable, +and, indirectly at least, promotes that important adjunct of commerce. +There is now both in this country and in the nations of Central and South +America a state of expectation and confidence as to increased trade that +will give a double value to your prompt action upon this question. +</p> + +<p> +The present situation of our mail communication with Australia illustrates +the importance of early action by Congress. The Oceanic Steamship Company +maintains a line of steamers between San Francisco, Sydney, and Auckland +consisting of three vessels, two of which are of United States registry and +one of foreign registry. For the service done by this line in carrying the +mails we pay annually the sum of $46,000, being, as estimated, the full sea +and United States inland postage, which is the limit fixed by law. The +colonies of New South Wales and New Zealand have been paying annually to +these lines lbs. 37,000 for carrying the mails from Sydney and Auckland to +San Francisco. The contract under which this payment has been made is now +about to expire, and those colonies have refused to renew the contract +unless the United States shall pay a more equitable proportion of the whole +sum necessary to maintain the service. +</p> + +<p> +I am advised by the Postmaster-General that the United States receives for +carrying the Australian mails, brought to San Francisco in these steamers, +by rail to Vancouver, an estimated annual income of $75,000, while, as I +have stated, we are paying out for the support of the steamship line that +brings this mail to us only $46,000, leaving an annual surplus resulting +from this service of $29,000. The trade of the United States with +Australia, which is in a considerable part carried by these steamers, and +the whole of which is practically dependent upon the mail communication +which they maintain, is largely in our favor. Our total exports of +merchandise to Australasian ports during the fiscal year ending June 30, +1890, were $11,266,484, while the total imports of merchandise from these +ports were only $4,277,676. If we are not willing to see this important +steamship line withdrawn, or continued with Vancouver substituted for San +Francisco as the American terminal, Congress should put it in the power of +the Postmaster-General to make a liberal increase in the amount now paid +for the transportation of this important mail. +</p> + +<p> +The South Atlantic and Gulf ports occupy a very favored position toward the +new and important commerce which the reciprocity clause of the tariff act +and the postal shipping bill are designed to promote. Steamship lines from +these ports to some northern port of South America will almost certainly +effect a connection between the railroad systems of the continents long +before any continuous line of railroads can be put into operation. The very +large appropriation made at the last session for the harbor of Galveston +was justified, as it seemed to me, by these considerations. The great +Northwest will feel the advantage of trunk lines to the South as well as to +the East and of the new markets opened for their surplus food products and +for many of their manufactured products. +</p> + +<p> +I had occasion in May last to transmit to Congress a report adopted by the +International American Conference upon the subject of the incorporation of +an international American bank, with a view to facilitating money exchanges +between the States represented in that conference. Such an institution +would greatly promote the trade we are seeking to develop. I renew the +recommendation that a careful and well-guarded charter be granted. I do not +think the powers granted should include those ordinarily exercised by +trust, guaranty, and safe-deposit companies, or that more branches in the +United States should be authorized than are strictly necessary to +accomplish the object primarily in view, namely, convenient foreign +exchanges. It is quite important that prompt action should be taken in this +matter, in order that any appropriations for better communication with +these countries and any agreements that may be made for reciprocal trade +may not be hindered by the inconvenience of making exchanges through +European money centers or burdened by the tribute which is an incident of +that method of business. +</p> + +<p> +The bill for the relief of the Supreme Court has after many years of +discussion reached a position where final action is easily attainable, and +it is hoped that any differences of opinion may be so harmonized as to save +the essential features of this very important measure. In this connection I +earnestly renew my recommendation that the salaries of the judges of the +United States district courts be so readjusted that none of them shall +receive less than $5,000 per annum. +</p> + +<p> +The subject of the unadjusted Spanish and Mexican land grants and the +urgent necessity for providing some commission or tribunal for the trial of +questions of title growing out of them were twice brought by me to the +attention of Congress at the last session. Bills have been reported from +the proper committees in both Houses upon the subject, and I very earnestly +hope that this Congress will put an end to the delay which has attended the +settlement of the disputes as to the title between the settlers and the +claimants under these grants. These disputes retard the prosperity and +disturb the peace of large and important communities. The governor of New +Mexico in his last report to the Secretary of the Interior suggests some +modifications of the provisions of the pending bills relating to the small +holdings of farm lands. I commend to your attention the suggestions of the +Secretary of the Interior upon this subject. +</p> + +<p> +The enactment of a national bankrupt law I still regard as very desirable. +The Constitution having given to Congress jurisdiction of this subject, it +should be exercised and uniform rules provided for the administration of +the affairs of insolvent debtors. The inconveniences resulting from the +occasional and temporary exercise of this power by Congress and from the +conflicting State codes of insolvency which come into force intermediately +should be removed by the enactment of a simple, inexpensive, and permanent +national bankrupt law. +</p> + +<p> +I also renew my recommendation in favor of legislation affording just +copyright protection to foreign authors on a footing of reciprocal +advantage for our authors abroad. +</p> + +<p> +It may still be possible for this Congress to inaugurate by suitable +legislation a movement looking to uniformity and increased safety in the +use of couplers and brakes upon freight trains engaged in interstate +commerce. The chief difficulty in the way is to secure agreement as to the +best appliances, simplicity, effectiveness, and cost being considered. This +difficulty will only yield to legislation, which should be based upon full +inquiry and impartial tests. The purpose should be to secure the +cooperation of all well-disposed managers and owners; but the fearful fact +that every year's delay involves the sacrifice of 2,000 lives and the +maiming of 20,000 young men should plead both with Congress and the +managers against any needless delay. +</p> + +<p> +The subject of the conservation and equal distribution of the water supply +of the arid regions has had much attention from Congress, but has not as +yet been put upon a permanent and satisfactory basis. The urgency of the +subject does not grow out of any large present demand for the use of these +lands for agriculture, but out of the danger that the water supply and the +sites for the necessary catch basins may fall into the hands of individuals +or private corporations and be used to render subservient the large areas +dependent upon such supply. The owner of the water is the owner of the +lands, however the titles may run. All unappropriated natural water sources +and all necessary reservoir sites should be held by the Government for the +equal use at fair rates of the homestead settlers who will eventually take +up these lands. The United States should not, in my opinion, undertake the +construction of dams or canals, but should limit its work to such surveys +and observations as will determine the water supply, both surface and +subterranean, the areas capable of irrigation, and the location and storage +capacity of reservoirs. This done, the use of the water and of the +reservoir sites might be granted to the respective States or Territories or +to individuals or associations upon the condition that the necessary works +should be constructed and the water furnished at fair rates without +discrimination, the rates to be subject to supervision by the legislatures +or by boards of water commissioners duly constituted. The essential thing +to be secured is the common and equal use at fair rates of the accumulated +water supply. It were almost better that these lands should remain arid +than that those who occupy them should become the slaves of unrestrained +monopolies controlling the one essential element of land values and crop +results. +</p> + +<p> +The use of the telegraph by the Post-Office Department as a means for the +rapid transmission of written communications is, I believe, upon proper +terms, quite desirable. The Government does not own or operate the +railroads, and it should not, I think, own or operate the telegraph lines. +It does, however, seem to be quite practicable for the Government to +contract with the telegraph companies, as it does with railroad companies, +to carry at specified rates such communications as the senders may +designate for this method of transmission. I recommend that such +legislation be enacted as will enable the Post-Office Department fairly to +test by experiment the advantages of such a use of the telegraph. +</p> + +<p> +If any intelligent and loyal company of American citizens were required to +catalogue the essential human conditions of national life, I do not doubt +that with absolute unanimity they would begin with "free and honest +elections." And it is gratifying to know that generally there is a growing +and nonpartisan demand for better election laws; but against this sign of +hope and progress must be set the depressing and undeniable fact that +election laws and methods are sometimes cunningly contrived to secure +minority control, while violence completes the shortcomings of fraud. +</p> + +<p> +In my last annual message I suggested that the development of the existing +law providing a Federal supervision of Congressional elections offered an +effective method of reforming these abuses. The need of such a law has +manifested itself in many parts of the country, and its wholesome +restraints and penalties will be useful in all. The constitutionality of +such legislation has been affirmed by the Supreme Court. Its probable +effectiveness is evidenced by the character of the opposition that is made +to it. It has been denounced as if it were a new exercise of Federal power +and an invasion of the rights of States. Nothing could be further from the +truth. Congress has already fixed the time for the election of members of +Congress. It has declared that votes for members of Congress must be by +written or printed ballot; it has provided for the appointment by the +circuit courts in certain cases, and upon the petition of a certain number +of citizens, of election supervisors, and made it their duty to supervise +the registration of voters conducted by the State officers; to challenge +persons offering to register; to personally inspect and scrutinize the +registry lists, and to affix their names to the lists for the purpose of +identification and the prevention of frauds; to attend at elections and +remain with the boxes till they are all cast and counted; to attach to the +registry lists and election returns any statement touching the accuracy and +fairness of the registry and election, and to take and transmit to the +Clerk of the House of Representatives any evidence of fraudulent practices +which may be presented to them. The same law provides for the appointment +of deputy United States marshals to attend at the polls, support the +supervisors in the discharge of their duties, and to arrest persons +violating the election laws. The provisions of this familiar title of the +Revised Statutes have been put into exercise by both the great political +parties, and in the North as well as in the South, by the filing with the +court of the petitions required by the law. +</p> + +<p> +It is not, therefore, a question whether we shall have a Federal election +law, for we now have one and have had for nearly twenty years, but whether +we shall have an effective law. The present law stops just short of +effectiveness, for it surrenders to the local authorities all control over +the certification which establishes the prima facie right to a seat in the +House of Representatives. This defect should be cured. Equality of +representation and the parity of the electors must be maintained or +everything that is valuable in our system of government is lost. The +qualifications of an elector must be sought in the law, net in the +opinions, prejudices, or fears of any class, however powerful. The path of +the elector to the ballot box must be free from the ambush of fear and the +enticements of fraud; the count so true and open that none shall gainsay +it. Such a law should be absolutely nonpartisan and impartial. It should +give the advantage to honesty and the control to majorities. Surely there +is nothing sectional about this creed, and if it shall happen that the +penalties of laws intended to enforce these rights fall here and not there +it is not because the law is sectional, but because, happily, crime is +local and not universal. Nor should it be forgotten that every law, whether +relating to elections or to any other subject, whether enacted by the State +or by the nation, has force behind it; the courts, the marshal or +constable, the posse comitatus, the prison, are all and always behind the +law. +</p> + +<p> +One can not be justly charged with unfriendliness to any section or class +who seeks only to restrain violations of law and of personal right. No +community will find lawlessness profitable. No community can afford to have +it known that the officers who are charged with the preservation of the +public peace and the restraint of the criminal classes are themselves the +product of fraud or violence. The magistrate is then without respect and +the law without sanction. The floods of lawlessness can not be leveed and +made to run in one channel. The killing of a United States marshal carrying +a writ of arrest for an election offense is full of prompting and +suggestion to men who are pursued by a city marshal for a crime against +life or property. +</p> + +<p> +But it is said that this legislation will revive race animosities, and some +have even suggested that when the peaceful methods of fraud are made +impossible they may be supplanted by intimidation and violence. If the +proposed law gives to any qualified elector by a hair's weight more than +his equal influence or detracts by so much from any other qualified +elector, it is fatally impeached. But if the law is equal and the +animosities it is to evoke grow out of the fact that some electors have +been accustomed to exercise the franchise for others as well as for +themselves, then these animosities ought not to be confessed without shame, +and can not be given any weight in the discussion without dishonor No +choice is left to me but to enforce with vigor all laws intended to secure +to the citizen his constitutional rights and to recommend that the +inadequacies of such laws be promptly remedied. If to promote with zeal and +ready interest every project for the development of its material interests, +its rivers, harbors, mines, and factories, and the intelligence, peace, and +security under the law of its communities and its homes is not accepted as +sufficient evidence of friendliness to any State or section, I can not add +connivance at election practices that not only disturb local results, but +rob the electors of other States and sections of their most priceless +political rights. +</p> + +<p> +The preparation of the general appropriation bills should be conducted with +the greatest care and the closest scrutiny of expenditures. Appropriations +should be adequate to the needs of the public service, but they should be +absolutely free from prodigality. +</p> + +<p> +I venture again to remind you that the brief time remaining for the +consideration of the important legislation now awaiting your attention +offers no margin for waste. If the present duty is discharged with +diligence, fidelity, and courage, the work of the Fifty-first Congress may +be confidently submitted to the considerate judgment of the people. +</p> + +<p class="noindent"> +BENJ. HARRISON +</p> + +<p><br /><br /><br /></p> + +<p class="t3"> +*** +</p> + +<p><a id="dec1891"></a></p> + +<p class="noindent"> +State of the Union Address<br /> +Benjamin Harrison<br /> +December 9, 1891<br /> +</p> + +<p class="noindent"> +To the Senate and House of Representatives: +</p> + +<p> +The reports of the heads of the several Executive Departments required by +law to be submitted to me, which are herewith transmitted, and the reports +of the Secretary of the Treasury and the Attorney-General, made directly to +Congress, furnish a comprehensive view of the administrative work of the +last fiscal year relating to internal affair. It would be of great +advantage if these reports could have an alternative perusal by every +member of Congress and by all who take an interest in public affairs. Such +a perusal could not fail to excite a higher appreciation of the vast labor +and conscientious effort which are given to the conduct of our civil +administration. +</p> + +<p> +The reports will, I believe, show that every question has been approached, +considered, and decided from the standpoint of public duty upon +considerations affecting the public interests alone. Again I invite to +every branch of the service the attention and scrutiny of Congress. +</p> + +<p> +The work of the State Department during the last year has been +characterized by an unusual number of important negotiations and by +diplomatic results of a notable and highly beneficial character. Among +these are the reciprocal trade arrangements which have been concluded, in +the exercise of the powers conferred by section 3 of the tariff law, with +the Republic of Brazil, with Spain for its West India possessions, and with +Santo Domingo. Like negotiations with other countries have been much +advanced, and it is hoped that before the close of the year further +definitive trade arrangements of great value will be concluded. +</p> + +<p> +In view of the reports which had been received as to the diminution of the +seal herds in the Bering Sea, I deemed it wise to propose to Her Majesty's +Government in February last that an agreement for a closed season should be +made pending the negotiations for arbitration, which then seemed to be +approaching a favorable conclusion. After much correspondence and delays, +for which this Government was not responsible, an agreement was reached and +signed on the 15th of June, by which Great Britain undertook from that date +and until May 1, 1892, to prohibit the killing by her subjects of seals in +the Bering Sea, and the Government of the United States during the same +period to enforce its existing prohibition against pelagic sealing and to +limit the catch by the fur-seal company upon the islands to 7,500 skins. If +this agreement could have been reached earlier in response to the strenuous +endeavors of this Government, it would have been more effective; but coming +even as late as it did it unquestionably resulted in greatly diminishing +the destruction of the seals by the Canadian sealers. +</p> + +<p> +In my last annual message I stated that the basis of arbitration proposed +by Her Majesty's Government for the adjustment of the long-pending +controversy as to the seal fisheries was not acceptable. I am glad now to +be able to announce that terms satisfactory to this Government have been +agreed upon and that an agreement as to the arbitrators is all that is +necessary to the completion of the convention. In view of the advanced +position which this Government has taken upon the subject of international +arbitration, this renewed expression of our adherence to this method for +the settlement of disputes such as have arisen in the Bering Sea will, I +doubt not, meet with the concurrence of Congress. +</p> + +<p> +Provision should be made for a joint demarcation of the frontier line +between Canada and the United States wherever required by the increasing +border settlements, and especially for the exact location of the water +boundary in the straits and rivers. +</p> + +<p> +I should have been glad to announce some favorable disposition of the +boundary dispute between Great Britain and Venezuela touching the western +frontier of British Guiana, but the friendly efforts of the United States +in that direction have thus far been unavailing. This Government will +continue to express its concern at any appearance of foreign encroachment +on territories long under the administrative control of American States. +The determination of a disputed boundary is easily attainable by amicable +arbitration where the rights of the respective parties rest, as here, on +historic facts readily ascertainable. +</p> + +<p> +The law of the last Congress providing a system of inspection for our meats +intended for export, and clothing the President with power to exclude +foreign products from our market in case the country sending them should +perpetuate unjust discriminations against any product of the United States, +placed this Government in a position to effectively urge the removal of +such discriminations against our meats. It is gratifying to be able to +state that Germany, Denmark, Italy, Austria, and France, in the order +named, have opened their ports to inspected American pork products. The +removal of these restrictions in every instance was asked for and given +solely upon the ground that we have now provided a meat inspection that +should be accepted as adequate to the complete removal of the dangers, real +or fancied, which had been previously urged. The State Department, our +ministers abroad, and the Secretary of Agriculture have cooperated with +unflagging and intelligent zeal for the accomplishment of this great +result. The outlines of an agreement have been reached with Germany looking +to equitable trade concessions in consideration of the continued free +importation of her sugars, but the time has not yet arrived when this +correspondence can be submitted to Congress. +</p> + +<p> +The recent political disturbances in the Republic of Brazil have excited +regret and solicitude. The information we possessed was too meager to +enable us to form a satisfactory judgment of the causes leading to the +temporary assumption of supreme power by President Fonseca; but this +Government did not fail to express to him its anxious solicitude for the +peace of Brazil and for the maintenance of the free political institutions +which had recently been established there, nor to offer our advice that +great moderation should be observed in the clash of parties and the contest +for leadership. These counsels were received in the most friendly spirit, +and the latest information is that constitutional government has been +reestablished without bloodshed. +</p> + +<p> +The lynching at New Orleans in March last of eleven men of Italian nativity +by a mob of citizens was a most deplorable and discreditable incident. It +did not, however, have its origin in any general animosity to the Italian +people, nor in any disrespect to the Government of Italy, with which our +relations were of the most friendly character. The fury of the mob was +directed against these men as the supposed participants or accessories in +the murder of a city officer. I do not allude to this as mitigating in any +degree this offense against law and humanity, but only as affecting the +international questions which grew out of it. It was at once represented by +the Italian minister that several of those whose lives had been taken by +the mob were Italian subjects, and a demand was made for the punishment of +the participants and for an indemnity to the families of those who were +killed. It is to be regretted that the manner in which these claims were +presented was not such as to promote a calm discussion of the questions +involved; but this may well be attributed to the excitement and indignation +which the crime naturally evoked. The views of this Government as to its +obligations to foreigners domiciled here were fully stated in the +correspondence, as well as its purpose to make an investigation of the +affair with a view to determine whether there were present any +circumstances that could under such rules of duty as we had indicated +create an obligation upon the United States. The temporary absence of a +minister plenipotentiary of Italy at this capital has retarded the further +correspondence, but it is not doubted that a friendly conclusion is +attainable. +</p> + +<p> +Some suggestions growing out of this unhappy incident are worthy the +attention of Congress. It would, I believe, be entirely competent for +Congress to make offenses against the treaty rights of foreigners domiciled +in the United States cognizable in the Federal courts. This has not, +however, been done, and the Federal officers and courts have no power in +such cases to intervene, either for the protection of a foreign citizen or +for the punishment of his slayers. It seems to me to follow, in this state +of the law, that the officers of the State charged with police and judicial +powers in such cases must in the consideration of international questions +growing out of such incidents be regarded in such sense as Federal agents +as to make this Government answerable for their acts in cases where it +would be answerable if the United States had used its constitutional power +to define and punish crime against treaty rights. +</p> + +<p> +The civil war in Chile, which began in January last, was continued, but +fortunately with infrequent and not important armed collisions, until +August 28, when the Congressional forces landed near Valparaiso and after a +bloody engagement captured that city. President Balmaceda at once +recognized that his cause was lost, and a Provisional Government was +speedily established by the victorious party. Our minister was promptly +directed to recognize and put himself in communication with this Government +so soon as it should have established its de facto character, which was +done. During the pendency of this civil contest frequent indirect appeals +were made to this Government to extend belligerent rights to the insurgents +and to give audience to their representatives. This was declined, and that +policy was pursued throughout which this Government when wrenched by civil +war so strenuously insisted upon on the part of European nations. The +Itata, an armed vessel commanded by a naval officer of the insurgent fleet, +manned by its sailors and with soldiers on board, was seized under process +of the United States court at San Diego, Cal., for a violation of our +neutrality laws. While in the custody of an officer of the court the vessel +was forcibly wrested from his control and put to sea. It would have been +inconsistent with the dignity and self-respect of this Government not to +have insisted that the Itala should be returned to San Diego to abide the +judgment of the court. This was so clear to the junta of the Congressional +party, established at Iquique, that before the arrival of the Itata at that +port the secretary of foreign relations of the Provisional Government +addressed to Rear-Admiral Brown, commanding the United States naval forces, +a communication, from which the following is an extract: The Provisional +Government has learned by the cablegrams of the Associated Press that the +transport Itata, detained in San Diego by order of the United States for +taking on board munitions of war, and in possession of the marshal, left +the port, carrying on board this official, who was landed at a point near +the coast, and then continued her voyage. If this news be correct this +Government would deplore the conduct of the Itata, and as an evidence that +it is not disposed to support or agree to the infraction of the laws of the +United States the undersigned takes advantage of the personal relations you +have been good enough to maintain with him since your arrival in this port +to declare to you that as soon as she is within reach of our orders his +Government will put the Itata, with the arms and munitions she took on +board in Sail Diego, at the disposition of the United States. A trial in +the district court of the United States for the southern district of +California has recently resulted in a decision holding, among other things, +that inasmuch as the Congressional party had not been recognized as a +belligerent the acts done in its interest could not be a violation of our +neutrality laws. From this judgment the United States has appealed, not +that the condemnation of the vessel is a matter of importance, but that we +may know what the present state of our law is; for if this construction of +the statute is correct there is obvious necessity for revision and +amendment. +</p> + +<p> +During the progress of the war in Chile this Government tendered its good +offices to bring about a peaceful adjustment, and it was at one time hoped +that a good result might be reached; but in this we were disappointed. +</p> + +<p> +The instructions to our naval officers and to our minister at Santiago from +the first to the last of this struggle enjoined upon them the most +impartial treatment and absolute noninterference. I am satisfied that these +instructions were observed and that our representatives were always +watchful to use their influence impartially in the interest of humanity, +and on more than one occasion did so effectively. We could not forget, +however, that this Government was in diplomatic relations with the then +established Government of Chile, as it is now in such relations with the +successor of that Government. I am quite sure that President Montt, who +has, under circumstances of promise for the peace of Chile, been installed +as President of that Republic, will not desire that in the unfortunate +event of any revolt against his authority the policy of this Government +should be other than that which we have recently observed. No official +complaint of the conduct of our minister or of our naval officers during +the struggle has been presented to this Government, and it is a matter of +regret that so many of our own people should have given ear to unofficial +charges and complaints that manifestly had their origin in rival interests +and in a wish to pervert the relations of the United States with Chile. +</p> + +<p> +The collapse of the Government of Balmaceda brought about a condition which +is unfortunately too familiar in the history of the Central and South +American States. With the overthrow of the Balmaceda Government he and many +of his councilors and officers became at once fugitives for their lives and +appealed to the commanding officers of the foreign naval vessels in the +harbor of Valparaiso and to the resident foreign ministers at Santiago for +asylum. This asylum was freely given, according to my information, by the +naval vessels of several foreign powers and by several of the legations at +Santiago. The American minister as well as his colleagues, acting upon the +impulse of humanity, extended asylum to political refugees whose lives were +in peril. I have not been willing to direct the surrender of such of these +persons as are still in the American legation without suitable conditions. +</p> + +<p> +It is believed that the Government of Chile is not in a position, in view +of the precedents with which it has been connected, to broadly deny the +right of asylum, and the correspondence has not thus far presented any such +denial. The treatment of our minister for a time was such as to call for a +decided protest, and it was very gratifying to observe that unfriendly +measures, which were undoubtedly the result of the prevailing excitement, +were at once rescinded or suitably relaxed. +</p> + +<p> +On the 16th of October an event occurred in Valparaiso so serious and +tragic in its circumstances and results as to very justly excite the +indignation of our people and to call for prompt and decided action on the +part of this Government. A considerable number of the sailors of the United +States steamship Baltimore, then in the harbor at Valparaiso, being upon +shore leave and unarmed, were assaulted by armed men nearly simultaneously +in different localities in the city. One petty officer was killed outright +and seven or eight seamen were seriously wounded, one of whom has since +died. So savage and brutal was the assault that several of our sailors +received more than two and one as many as eighteen stab wounds. An +investigation of the affair was promptly made by a board of officers of the +Baltimore, and their report shows that these assaults were unprovoked, that +our men were conducting themselves in a peaceable and orderly manner, and +that some of the police of the city took part in the assault and used their +weapons with fatal effect, while a few others, with some well-disposed +citizens, endeavored to protect our men. Thirty-six of our sailors were +arrested, and some of them while being taken to prison were cruelly beaten +and maltreated. The fact that they were all discharged, no criminal charge +being lodged against any one of them, shows very clearly that they were +innocent of any breach of the peace. +</p> + +<p> +So far as I have yet been able to learn no other explanation of this bloody +work has been suggested than that it had its origin in hostility to those +men as sailors of the United States, wearing the uniform of their +Government, and not in any individual act or personal animosity. The +attention of the Chilean Government was at once called to this affair, and +a statement of the facts obtained by the investigation we had conducted was +submitted, accompanied by a request to be advised of any other or +qualifying facts in the possession of the Chilean Government that might +tend to relieve this affair of the appearance of an insult to this +Government. The Chilean Government was also advised that if such qualifying +facts did not exist this Government would confidently expect full and +prompt reparation. +</p> + +<p> +It is to be regretted that the reply of the secretary for foreign affairs +of the Provisional Government was couched in an offensive tone. To this no +response has been made. This Government is now awaiting the result of an +investigation which has been conducted by the criminal court at Valparaiso. +It is reported unofficially that the investigation is about completed, and +it is expected that the result will soon be communicated to this +Government, together with some adequate and satisfactory response to the +note by which the attention of Chile was called to this incident. If these +just expectations should be disappointed or further needless delay +intervene, I will by a special message bring this matter again to the +attention of Congress for such action as may be necessary. The entire +correspondence with the Government of Chile will at an early day be +submitted to Congress. +</p> + +<p> +I renew the recommendation of my special message dated January 16, 1890, +for the adoption of the necessary legislation to enable this Government to +apply in the case of Sweden and Norway the same rule in respect to the +levying of tonnage dues as was claimed and secured to the shipping of the +United States in 1828 under Article VIII of the treaty of 1827. +</p> + +<p> +The adjournment of the Senate without action on the pending acts for the +suppression of the slave traffic in Africa and for the reform of the +revenue tariff of the Independent State of the Kongo left this Government +unable to exchange those acts on the date fixed, July 2, 1891. A modus +vivendi has been concluded by which the power of the Kongo State to levy +duties on imports is left unimpaired, and by agreement of all the +signatories to the general slave-trade act the time for the exchange of +ratifications on the part of the United States has been extended to +February 2, 1892. +</p> + +<p> +The late outbreak against foreigners in various parts of the Chinese Empire +has been a cause of deep concern in view of the numerous establishments of +our citizens in the interior of that country. This Government can do no +less than insist upon a continuance of the protective and punitory measures +which the Chinese Government has heretofore applied. No effort will be +omitted to protect our citizens peaceably sojourning in China, but recent +unofficial information indicates that what was at first regarded as an +outbreak of mob violence against foreigners has assumed the larger form of +an insurrection against public order. +</p> + +<p> +The Chinese Government has declined to receive Mr. Blair as the minister of +the United States on the ground that as a participant while a Senator in +the enactment of the existing legislation against the introduction of +Chinese laborers he has become unfriendly and objectionable to China. I +have felt constrained to point out to the Chinese Government the +untenableness of this position, which seems to rest as much on the +unacceptability of our legislation as on that of the person chosen, and +which if admitted would practically debar the selection of any +representative so long as the existing laws remain in force. +</p> + +<p> +You will be called upon to consider the expediency of making special +provision by law for the temporary admission of some Chinese artisans and +laborers in connection with the exhibit of Chinese industries at the +approaching Columbian Exposition. I regard it as desirable that the Chinese +exhibit be facilitated in every proper way. +</p> + +<p> +A question has arisen with the Government of Spain touching the rights of +American citizens in the Caroline Islands. Our citizens there long prior to +the confirmation of Spain's claim to the islands had secured by settlement +and purchase certain rights to the recognition and maintenance of which the +faith of Spain was pledged. I have had reason within the past year very +strongly to protest against the failure to carry out this pledge on the +part of His Majesty's ministers, which has resulted in great injustice and +injury to the American residents. +</p> + +<p> +The Government and people of Spain propose to celebrate the four hundredth +anniversary of the discovery of America by holding an exposition at Madrid, +which will open on the 12th of September and continue until the 31st of +December, 1892. A cordial invitation has been extended to the United States +to take part in this commemoration, and as Spain was one of the first +nations to express the intention to participate in the World's Columbian +Exposition at Chicago, it would be very appropriate for this Government to +give this invitation its friendly promotion. +</p> + +<p> +Surveys for the connecting links of the projected intercontinental railway +are in progress, not only in Mexico, but at various points along the course +mapped out. Three surveying parties are now in the field under the +direction of the commission. Nearly 1,000 miles of the proposed road have +been surveyed, including the most difficult part, that through Ecuador and +the southern part of Colombia. The reports of the engineers are very +satisfactory, and show that no insurmountable obstacles have been met +with. +</p> + +<p> +On November 12, 1884, a treaty was concluded with Mexico reaffirming the +boundary between the two countries as described in the treaties of February +2, 1848, and December 30, 1853. March 1, 1889, a further treaty was +negotiated to facilitate the carrying out of the principles of the treaty +of 1884 and to avoid the difficulties occasioned by reason of the changes +and alterations that take place from natural causes in the Rio Grande and +Colorado rivers in the portions thereof constituting the boundary line +between the two Republics. The International Boundary Commission provided +for by the treaty of 1889 to have exclusive jurisdiction of any question +that may arise has been named by the Mexican Government. An appropriation +is necessary to enable the United States to fulfill its treaty obligations +in this respect. +</p> + +<p> +The death of King Kalakaua in the United States afforded occasion to +testify our friendship for Hawaii by conveying the King's body to his own +land in a naval vessel with all due honors. The Government of his +successor, Queen Liliuokolani is seeking to promote closer commercial +relations with the United States. Surveys for the much-needed submarine +cable from our Pacific coast to Honolulu are in progress, and this +enterprise should have the suitable promotion of the two Governments. I +strongly recommend that provision be made for improving the harbor of Pearl +River and equipping it as a naval station. +</p> + +<p> +The arbitration treaty formulated by the International American Conference +lapsed by reason of the failure to exchange ratifications fully within the +limit of time provided; but several of the Governments concerned have +expressed a desire to save this important result of the conference by an +extension of the period. It is, in my judgment, incumbent upon the United +States to conserve the influential initiative it has taken in this measure +by ratifying the instrument and by advocating the proposed extension of the +time for exchange. These views have been made known to the other +signatories. +</p> + +<p> +This Government has found occasion to express in a friendly spirit, but +with much earnestness, to the Government of the Czar its serious concern +because of the harsh measures now being enforced against the Hebrews in +Russia. By the revival of antisemitic laws, long in abeyance, great numbers +of those unfortunate people have been constrained to abandon their homes +and leave the Empire by reason of the impossibility of finding subsistence +within the pale to which it is sought to confine them. The immigration of +these people to the United States--many other countries being closed to +them--is largely increasing and is likely to assume proportions which may +make it difficult to find homes and employment for them here and to +seriously affect the labor market. It is estimated that over 1,000,000 will +be forced from Russia within a few years. The Hebrew is never a beggar; he +has always kept the law--life by toil--often under severe and oppressive +civil restrictions. It is also true that no race, sect, or class has more +fully cared for its own than the Hebrew race. But the sudden transfer of +such a multitude under conditions that tend to strip them of their small +accumulations and to depress their energies and courage is neither good for +them nor for us. +</p> + +<p> +The banishment, whether by direct decree or by not less certain indirect +methods, of so large a number of men and women is not a local question. A +decree to leave one country is in the nature of things an order to enter +another--some other. This consideration, as well as the suggestion of +humanity, furnishes ample ground for the remonstrances which we have +presented to Russia, while our historic friendship for that Government can +not fail to give the assurance that our representations are those of a +sincere wellwisher. +</p> + +<p> +The annual report of the Maritime Canal Company of Nicaragua shows that +much costly and necessary preparatory work has been done during the year in +the construction of shops, railroad tracks, and harbor piers and +breakwaters, and that the work of canal construction has made some +progress. +</p> + +<p> +I deem it to be a matter of the highest concern to the United States that +this canal, connecting the waters of the Atlantic and Pacific oceans and +giving to us a short water communication between our ports upon those two +great seas, should be speedily constructed and at the smallest practicable +limit of cost. The gain in freights to the people and the direct saving to +the Government of the United States in the use of its naval vessels would +pay the entire cost of this work within a short series of years. The report +of the Secretary of the Navy shows the saving in our naval expenditures +which would result. +</p> + +<p> +The Senator from Alabama (Mr. Morgan) in his argument upon this subject +before the Senate at the last session did not overestimate the importance +of this work when he said that "the canal is the most important subject now +connected with the commercial growth and progress of the United States." +</p> + +<p> +If this work is to be promoted by the usual financial methods and without +the aid of this Government, the expenditures in its interest-bearing +securities and stock will probably be twice the actual cost. This will +necessitate higher tolls and constitute a heavy and altogether needless +burden upon our commerce and that of the world. Every dollar of the bonds +and stock of the company should represent a dollar expended in the +legitimate and economical prosecution of the work. This is only possible by +giving to the bonds the guaranty of the United States Government. Such a +guaranty would secure the ready sale at par of a 3 per cent bond from time +to time as the money was needed. I do not doubt that built upon these +business methods the canal would when fully inaugurated earn its fixed +charges and operating expenses. But if its bonds are to be marketed at +heavy discounts and every bond sold is to be accompanied by a gift of +stock, as has come to be expected by investors in such enterprises, the +traffic will be seriously burdened to pay interest and dividends. I am +quite willing to recommend Government promotion in the prosecution of a +work which, if no other means offered for securing its completion, is of +such transcendent interest that the Government should, in my opinion, +secure it by direct appropriations from its Treasury. +</p> + +<p> +A guaranty of the bonds of the canal company to an amount necessary to the +completion of the canal could, I think, be so given as not to involve any +serious risk of ultimate loss. The things to be carefully guarded are the +completion of the work within the limits of the guaranty, the subrogation +of the United States to the rights of the first-mortgage bondholders for +any amounts it may have to pay, and in the meantime a control of the stock +of the company as a security against mismanagement and loss. I most +sincerely hope that neither party nor sectional lines will be drawn upon +this great American project, so full of interest to the people of all our +States and so influential in its effects upon the prestige and prosperity +of our common country. +</p> + +<p> +The island of Navassa, in the West Indian group, has, under the provisions +of Title VII of the Revised Statutes, been recognized by the President as +appertaining to the United States. It contains guano deposits, is owned by +the Navassa Phosphate Company, and is occupied solely its employees. In +September, 1889, a revolt took place among these laborers, resulting in the +killing of some of the agents of the company, caused, as the laborers +claimed, by cruel treatment. These men were arrested and tried in the +United States court at Baltimore, under section 5576 of the statute +referred to, as if the offenses had been committed on board a merchant +vessel of the United States on the high seas. There appeared on the trial +and otherwise came to me such evidences of the bad treatment of the men +that in consideration of this and of the fact that the men had no access to +any public officer or tribunal for protection or the redress of their +wrongs I commuted the death sentences that had been passed by the court +upon three of them. In April last my attention was again called to this +island and to the unregulated condition of things there by a letter from a +colored laborer, who complained that he was wrongfully detained upon the +island by the phosphate company after the expiration of his contract of +service. A naval vessel was sent to examine into the case of this man and +generally into the condition of things on the island. It was found that the +laborer referred to had been detained beyond the contract limit and that a +condition of revolt again existed among the laborers. A board of naval +officers reported, among other things, as follows: We would desire to state +further that the discipline maintained on the island seems to be that of a +convict establishment without its comforts and cleanliness, and that until +more attention is paid to the shipping of laborers by placing it under +Government supervision to prevent misunderstanding and misrepresentation, +and until some amelioration is shown in the treatment of the laborers, +these disorders will be of constant occurrence. I recommend legislation +that shall place labor contracts upon this and other islands having the +relation that Navassa has to the United States under the supervision of a +court commissioner, and that shall provide at the expense of the owners an +officer to reside upon the island, with power to judge and adjust disputes +and to enforce a just and humane treatment of the employees. It is +inexcusable that American laborers should be left within our own +jurisdiction without access to any Government officer or tribunal for their +protection and the redress of their wrongs. +</p> + +<p> +International copyright has been secured, in accordance with the conditions +of the act of March 3, 1891, with Belgium, France, Great Britain and the +British possessions, and Switzerland, the laws of those countries +permitting to our citizens the benefit of copyright on substantially the +same basis as to their own citizens or subjects. +</p> + +<p> +With Germany a special convention has been negotiated upon this subject +which will bring that country within the reciprocal benefits of our +legislation. +</p> + +<p> +The general interest in the operations of the Treasury Department has been +much augmented during the last year by reason of the conflicting +predictions, which accompanied and followed the tariff and other +legislation of the last Congress affecting the revenues, as to the results +of this legislation upon the Treasury and upon the country. On the one hand +it was contended that imports would so fall off as to leave the Treasury +bankrupt and that the prices of articles entering into the living of the +people would be so enhanced as to disastrously affect their comfort and +happiness, while on the other it was argued that the loss to the revenue, +largely the result of placing sugar on the free list, would be a direct +gain to the people; that the prices of the necessaries of life, including +those most highly protected, would not be enhanced; that labor would have a +larger market and the products of the farm advanced prices, while the +Treasury surplus and receipts would be adequate to meet the appropriations, +including the large exceptional expenditures for the refunding to the +States of the direct tax and the redemption of the 4 1/2 per cent bonds. +</p> + +<p> +It is not my purpose to enter at any length into a discussion of the +effects of the legislation to which I have referred; but a brief +examination of the statistics of the Treasury and a general glance at the +state of business throughout the country will, I think, satisfy any +impartial inquirer that its results have disappointed the evil prophecies +of its opponents and in a large measure realized the hopeful predictions of +its friends. Rarely, if ever before, in the history of the country has +there been a time when the proceeds of one day's labor or the product of +one farmed acre would purchase so large an amount of those things that +enter into the living of the masses of the people. I believe that a full +test will develop the fact that the tariff act of the Fifty-first Congress +is very favorable in its average effect upon the prices of articles +entering into common use. +</p> + +<p> +During the twelve months from October 1, 1890, to September 30, 1891, the +total value of our foreign commerce (imports and exports combined) was +$1,747,806,406, which was the largest of any year in the history of the +United States. The largest in any previous year was in 1890, when our +commerce amounted to $1,647,139,093, and the last year exceeds this +enormous aggregate by over one hundred millions. It is interesting, and to +some will be surprising, to know that during the year ending September 30, +1891, our imports of merchandise amounted to $824,715,270, which was an +increase of more than $11,000,000 over the value of the imports of the +corresponding months of the preceding year, when the imports of merchandise +were unusually large in anticipation of the tariff legislation then +pending. The average annual value of the imports of merchandise for the ten +years from 1881 to 1890 was $692,186,522, and during the year ending +September 30, 1891, this annual average was exceeded by $132,528,469. +</p> + +<p> +The value of free imports during the twelve months ending September 30, +1891, was $118,092,387 more than the value of free imports during the +corresponding twelve months of the preceding year, and there was during the +same period a decrease of $106,846,508 in the value of imports of dutiable +merchandise. The percentage of merchandise admitted free of duty during the +year to which I have referred, the first under the new tariff, was 48.18, +while during the preceding twelve months, under the old tariff, the +percentage was 34.27, an increase of 13.91 per cent. If we take the six +months ending September 30 last, which covers the time during which sugars +have been admitted free of duty, the per cent of value of merchandise +imported free of duty is found to be 55.37, which is a larger percentage of +free imports than during any prior fiscal year in the history of the +Government. +</p> + +<p> +If we turn to exports of merchandise, the statistics are full of +gratification. The value of such exports of merchandise for the twelve +months ending September 30, 1891, was $923,091,136, while for the +corresponding previous twelve months it was $860,177,115, an increase of +$62,914,021, which is nearly three times the average annual increase of +exports of merchandise for the preceding twenty years. This exceeds in +amount and value the exports of merchandise during any year in the history +of the Government. The increase in the value of exports of agricultural +products during the year referred to over the corresponding twelve months +of the prior year was $45,846,197, while the increase in the value of +exports of manufactured products was $16,838,240. +</p> + +<p> +There is certainly nothing in the condition of trade, foreign or domestic, +there is certainly nothing in the condition of our people of any class, to +suggest that the existing tariff and revenue legislation bears oppressively +upon the people or retards the commercial development of the nation. It may +be argued that our condition would be better if tariff legislation were +upon a free-trade basis; but it can not be denied that all the conditions +of prosperity and of general contentment are present in a larger degree +than ever before in our history, and that, too, just when it was prophesied +they would be in the worst state. Agitation for radical changes in tariff +and financial legislation can not help but may seriously impede business, +to the prosperity of which some degree of stability in legislation is +essential. +</p> + +<p> +I think there are conclusive evidences that the new tariff has created +several great industries, which will within a few years give employment to +several hundred thousand American working men and women. In view of the +somewhat overcrowded condition of the labor market of the United States, +every patriotic citizen should rejoice at such a result. +</p> + +<p> +The report of the Secretary of the Treasury shows that the total receipts +of the Government from all sources for the fiscal year ending June 30, +1891, were $458,544,233.03, while the expenditures for the same period were +$421,304,470.46, leaving a surplus of $37,239,762.57. +</p> + +<p> +The receipts of the fiscal year ending June 30, 1892, actual and estimated, +are $433,000,000 and the expenditures $409,000,000. For the fiscal year +ending June 30, 1893, the estimated receipts are $455,336,350 and the +expenditures $441,300,093. +</p> + +<p> +Under the law of July 14, 1890, the Secretary of the Treasury has purchased +(since August 13) during the fiscal year 48,393,113 ounces of silver +bullion at an average cost of $1.045 per ounce. The highest price paid +during the year was $1.2025 and the lowest $0.9636. In exchange for this +silver bullion there have been issued $50,577,498 of the Treasury notes +authorized by the act. The lowest price of silver reached during the fiscal +year was $0.9636 on April 22, 1891; but on November 1 the market price was +only $0.96, which would give to the silver dollar a bullion value of 74 1/4 +cents. +</p> + +<p> +Before the influence of the prospective silver legislation was felt in the +market silver was worth in New York about $0.955 per ounce. The ablest +advocates of free coinage in the last Congress were most confident in their +predictions that the purchases by the Government required by the law would +at once bring the price of silver to $1.2929 per ounce, which would make +the bullion value of a dollar 100 cents and hold it there. The prophecies +of the antisilver men of disasters to result from the coinage of $2,000,000 +per month were not wider of the mark. The friends of free silver are not +agreed, I think, as to the causes that brought their hopeful predictions to +naught. Some facts are known. The exports of silver from London to India +during the first nine months of this calendar year fell off over 50 per +cent, or $17,202,730, compared with the same months of the preceding year. +The exports of domestic silver bullion from this country, which had +averaged for the last ten years over $17,000,000, fell in the last fiscal +year to $13,797,391, while for the first time in recent years the imports +of silver into this country exceeded the exports by the sum of $2,745,365. +In the previous year the net exports of silver from the United States +amounted to $8,545,455. The production of the United States increased from +50,000,000 ounces in 1889 to 54,500,000 in 1890. The Government is now +buying and putting aside annually 54,000,000 ounces, which, allowing for +7,140,000 ounces of new bullion used in the arts, is 6,640,000 more than +our domestic products available for coinage. +</p> + +<p> +I hope the depression in the price of silver is temporary and that a +further trial of this legislation will more favorably affect it. That the +increased volume of currency thus supplied for the use of the people was +needed and that beneficial results upon trade and prices have followed this +legislation I think must be very clear to everyone. Nor should it be +forgotten that for every dollar of these notes issued a full dollar's worth +of silver bullion is at the time deposited in the Treasury as a security +for its redemption. Upon this subject, as upon the tariff, my +recommendation is that the existing laws be given a full trial and that our +business interests be spared the distressing influence which threats of +radical changes always impart. Under existing legislation it is in the +power of the Treasury Department to maintain that essential condition of +national finance as well as of commercial prosperity--the parity in use of +the coined dollars and their paper representatives. The assurance that +these powers would be freely and unhesitatingly used has done much to +produce and sustain the present favorable business conditions. +</p> + +<p> +I am still of the opinion that the free coinage of silver under existing +conditions would disastrously affect our business interests at home and +abroad. We could not hope to maintain an equality in the purchasing power +of the gold and silver dollar in our own markets, and in foreign trade the +stamp gives no added value to the bullion contained in coins. The producers +of the country, its farmers and laborers, have the highest interest that +every dollar, paper or coin, issued by the Government shall be as good as +any other. If there is one less valuable than another, its sure and +constant errand will be to pay them for their toil and for their crops. The +money lender will protect himself by stipulating for payment in gold, but +the laborer has never been able to do that. To place business upon a silver +basis would mean a sudden and severe contraction of the currency by the +withdrawal of gold and gold notes and such an unsettling of all values as +would produce a commercial panic. I can not believe that a people so strong +and prosperous as ours will promote such a policy. +</p> + +<p> +The producers of silver are entitled to just consideration, but they should +not forget that the Government is now buying and putting out of the market +what is the equivalent of the entire product of our silver mines. This is +more than they themselves thought of asking two years ago. I believe it is +the earnest desire of a great majority of the people, as it is mine, that a +full coin use shall be made of silver just as soon as the cooperation of +other nations can be secured and a ratio fixed that will give circulation +equally to gold and silver. The business of the world requires the use of +both metals; but I do not see any prospect of gain, but much of loss, by +giving up the present system, in which a full use is made of gold and a +large use of silver, for one in which silver alone will circulate. Such an +event would be at once fatal to the further progress of the silver +movement. Bimetallism is the desired end, and the true friends of silver +will be careful not to overrun the goal and bring in silver monometallism +with its necessary attendants--the loss of our gold to Europe and the +relief of the pressure there for a larger currency. I have endeavored by +the use of official and unofficial agencies to keep a close observation of +the state of public sentiment in Europe upon this question and have not +found it to be such as to justify me in proposing an international +conference. There is, however, I am sure, a growing sentiment in Europe in +favor of a larger use of silver, and I know of no more effectual way of +promoting this sentiment than by accumulating gold here. A scarcity of gold +in the European reserves will be the most persuasive argument for the use +of silver. +</p> + +<p> +The exports of gold to Europe, which began in February last and continued +until the close of July, aggregated over $70,000,000. The net loss of gold +during the fiscal year was nearly $68,000,000. That no serious monetary +disturbance resulted was most gratifying and gave to Europe fresh evidence +of the strength and stability of our financial institutions. With the +movement of crops the outflow of gold was speedily stopped and a return set +in. Up to December 1 we had recovered of our gold lost at the port of New +York $27,854,000, and it is confidently believed that during the winter and +spring this aggregate will be steadily and largely increased. +</p> + +<p> +The presence of a large cash surplus in the Treasury has for many years +been the subject of much unfavorable criticism, and has furnished an +argument to those who have desired to place the tariff upon a purely +revenue basis. It was agreed by all that the withdrawal from circulation of +so large an amount of money was an embarrassment to the business of the +country and made necessary the intervention of the Department at frequent +intervals to relieve threatened monetary panics. The surplus on March 1, +1889, was $183,827,190.29. The policy of applying this surplus to the +redemption of the interest-bearing securities of the United States was +thought to be preferable to that of depositing it without interest in +selected national banks. There have been redeemed since the date last +mentioned of interest-bearing securities $259,079,350, resulting in a +reduction of the annual interest charge of $11,684,675. The money which had +been deposited in banks without interest has been gradually withdrawn and +used in the redemption of bonds. +</p> + +<p> +The result of this policy, of the silver legislation, and of the refunding +of the 4 1/2 per cent bonds has been a large increase of the money in +circulation. At the date last named the circulation was $1,404,205,896, or +$23.03 per capita, while on the 1st day of December, 1891, it had increased +to $1,577,262,070, or $24.38 per capita. The offer of the Secretary of the +Treasury to the holders of the 4 1/2 per cent bonds to extend the time of +redemption, at the option of the Government, at an interest of 2 per cent, +was accepted by the holders of about one-half the amount, and the +unextended bonds are being redeemed on presentation. +</p> + +<p> +The report of the Secretary of War exhibits the results of an intelligent, +progressive, and businesslike administration of a Department which has been +too much regarded as one of mere routine. The separation of Secretary +Proctor from the Department by reason of his appointment as a Senator from +the State of Vermont is a source of great regret to me and to his +colleagues in the Cabinet, as I am sure it will be to all those who have +had business with the Department while under his charge. +</p> + +<p> +In the administration of army affairs some especially good work has been +accomplished. The efforts of the Secretary to reduce the percentage of +desertions by removing the causes that promoted it have been so successful +as to enable him to report for the last year a lower percentage of +desertion than has been before reached in the history of the Army. The +resulting money saving is considerable, but the improvement in the morale +of the enlisted men is the most valuable incident of the reforms which have +brought about this result. +</p> + +<p> +The work of securing sites for shore batteries for harbor defense and the +manufacture of mortars and guns of high power to equip them have made good +progress during the year. The preliminary work of tests and plans which so +long delayed a start is now out of the way. Some guns have been completed, +and with an enlarged shop and a more complete equipment at Watervliet the +Army will soon be abreast of the Navy in gun construction. Whatever +unavoidable causes of delay may arise, there should be none from delayed or +insufficient appropriations. We shall be greatly embarrassed in the proper +distribution and use of naval vessels until adequate shore defenses are +provided for our harbors. +</p> + +<p> +I concur in the recommendation of the Secretary that the three-battalion +organization be adopted for the infantry. The adoption of a smokeless +powder and of a modern rifle equal in range, precision, and rapidity of +fire to the best now in use will, I hope, not be longer delayed. +</p> + +<p> +The project of enlisting Indians and organizing them into separate +companies upon the same basis as other soldiers was made the subject of +very careful study by the Secretary and received my approval. Seven +companies have been completely organized and seven more are in process of +organization. The results of six months' training have more than realized +the highest anticipations. The men are readily brought under discipline, +acquire the drill with facility, and show great pride in the right +discharge of their duty and perfect loyalty to their officers, who declare +that they would take them into action with confidence. The discipline, +order, and cleanliness of the military posts will have a wholesome and +elevating influence upon the men enlisted, and through them upon their +tribes, while a friendly feeling for the whites and a greater respect for +the Government will certainly be promoted. +</p> + +<p> +The great work done in the Record and Pension Division of the War +Department by Major Ainsworth, of the Medical Corps, and the clerks under +him is entitled to honorable mention. Taking up the work with nearly 41,000 +cases behind, he closed the last fiscal year without a single case left +over, though the new cases had increased 52 per cent in number over the +previous year by reason of the pension legislation of the last Congress. +</p> + +<p> +I concur in the recommendation of the Attorney-General that the right in +felony cases to a review by the Supreme court be limited. It would seem +that personal liberty would have a safe guaranty if the right of review in +cases involving only fine and imprisonment were limited to the circuit +court of appeals, unless a constitutional question should in some way be +involved. +</p> + +<p> +The judges of the Court of Private Land Claims, provided for by the act of +March 3, 1891, have been appointed and the court organized. It is now +possible to give early relief to communities long repressed in their +development by unsettled land titles and to establish the possession and +right of settlers whose lands have been rendered valueless by adverse and +unfounded claims. +</p> + +<p> +The act of July 9, 1888, provided for the incorporation and management of a +reform school for girls in the District of Columbia; but it has remained +inoperative for the reason that no appropriation has been made for +construction or maintenance. The need of such an institution is very +urgent. Many girls could be saved from depraved lives by the wholesome +influences and restraints of such a school. I recommend that the necessary +appropriation be made for a site and for construction. +</p> + +<p> +The enforcement by the Treasury Department of the law prohibiting the +coming of Chinese to the United States has been effective as to such as +seek to land from vessels entering our ports. The result has been to divert +the travel to vessels entering the ports of British Columbia, whence +passage into the United States at obscure points along the Dominion +boundary is easy. A very considerable number of Chinese laborers have +during the past year entered the United States from Canada and Mexico. +</p> + +<p> +The officers of the Treasury Department and of the Department of Justice +have used every means at their command to intercept this immigration; but +the impossibility of perfectly guarding our extended frontier is apparent. +The Dominion government collects a head tax of $50 from every Chinaman +entering Canada, and thus derives a considerable revenue from those who +only use its ports to reach a position of advantage to evade our exclusion +laws. There seems to be satisfactory evidence that the business of passing +Chinamen through Canada to the United States is organized and quite active. +The Department of Justice has construed the laws to require the return of +any Chinaman found to be unlawfully in this country to China as the country +from which he came, notwithstanding the fact that he came by way of Canada; +but several of the district courts have in cases brought before them +overruled this view of the law and decided that such persons must be +returned to Canada. This construction robs the law of all effectiveness, +even if the decrees could be executed, for the men returned can the next +day recross our border. But the only appropriation made is for sending them +back to China, and the Canadian officials refuse to allow them to reenter +Canada without the payment of the fifty-dollar head tax. I recommend such +legislation as will remedy these defects in the law. +</p> + +<p> +In previous messages I have called the attention of Congress to the +necessity of so extending the jurisdiction of the United States courts as +to make triable therein any felony committed while in the act of violating +a law of the United States. These courts can not have that independence and +effectiveness which the Constitution contemplates so long as the felonious +killing of court officers, jurors, and witnesses in the discharge of their +duties or by reason of their acts as such is only cognizable in the State +courts. The work done by the Attorney-General and the officers of his +Department, even under the present inadequate legislation, has produced +some notable results in the interest of law and order. +</p> + +<p> +The Attorney-General and also the Commissioners of the District of Columbia +call attention to the defectiveness and inadequacy of the laws relating to +crimes against chastity in the District of Columbia. A stringent code upon +this subject has been provided by Congress for Utah, and it is a matter of +surprise that the needs of this District should have been so long +overlooked. +</p> + +<p> +In the report of the Postmaster-General some very gratifying results are +exhibited and many betterments of the service suggested. A perusal of the +report gives abundant evidence that the supervision and direction of the +postal system have been characterized by an intelligent and conscientious +desire to improve the service. The revenues of the Department show an +increase of over $5,000,000, with a deficiency for the year 1892 of less +than $4,000,000, while the estimate for the year 1893 shows a surplus of +receipts over expenditures. +</p> + +<p> +Ocean mail post-offices have been established upon the steamers of the +North German Lloyd and Hamburg lines, saving by the distribution on +shipboard from two to fourteen hours' time in the delivery of mail at the +port of entry and often much more than this in the delivery at interior +places. So thoroughly has this system, initiated by Germany and the United +States, evidenced its usefulness that it can not be long before it is +installed upon all the great ocean mail-carrying steamships. +</p> + +<p> +Eight thousand miles of new postal service has been established upon +railroads, the car distribution to substations in the great cities has been +increased about 12 per cent, while the percentage of errors in distribution +has during the past year been reduced over one-half. An appropriation was +given by the last Congress for the purpose of making some experiments in +free delivery in the smaller cities and towns. The results of these +experiments have been so satisfactory that the Postmaster-General +recommends, and I concur in the recommendation, that the free-delivery +system be at once extended to towns of 5,000 population. His discussion of +the inadequate facilities extended under our present system to rural +communities and his suggestions with a view to give these communities a +fuller participation in the benefits of the postal service are worthy of +your careful consideration. It is not just that the farmer, who receives +his mail at a neighboring town, should not only be compelled to send to the +post-office for it, but to pay a considerable rent for a box in which to +place it or to wait his turn at a general-delivery window, while the city +resident has his mail brought to his door. It is stated that over 54,000 +neighborhoods are under the present system receiving mail at post-offices +where money orders and postal notes are not issued. The extension of this +system to these communities is especially desirable, as the patrons of such +offices are not possessed of the other facilities offered in more populous +communities for the transmission of small sums of money. +</p> + +<p> +I have in a message to the preceding Congress expressed my views as to a +modified use of the telegraph in connection with the postal service. In +pursuance of the ocean mail law of March 3, 1891, and after a most careful +study of the whole subject and frequent conferences with ship-owners, +boards of trade, and others, advertisements were issued by the +postmaster-General for 53 lines of ocean mail service--10 to Great Britain +and the Continent, 27 to South America, 3 to China and Japan, 4 to +Australia and the Pacific islands, 7 to the West Indies, and 2 to Mexico. +It was not, of course, expected that bids for all these lines would be +received or that service upon them all would be contracted for. It was +intended, in furtherance of the act, to secure as many new lines as +possible, while including in the list most or all of the foreign lines now +occupied by American ships. It was hoped that a line to England and perhaps +one to the Continent would be secured; but the outlay required to equip +such lines wholly with new ships of the first class and the difficulty of +establishing new lines in competition with those already established +deterred bidders whose interest had been enlisted. It is hoped that a way +may yet be found of overcoming these difficulties. +</p> + +<p> +The Brazil Steamship Company, by reason of a miscalculation as to the speed +of its vessels, was not able to bid under the terms of the advertisement. +The policy of the Department was to secure from the established lines an +improved service as a condition of giving to them the benefits of the law. +This in all instances has been attained. The Postmaster-General estimates +that an expenditure in American shipyards of about $10,000,000 will be +necessary to enable the bidders to construct the ships called for by the +service which they have accepted. I do not think there is any reason for +discouragement or for any turning back from the policy of this legislation. +Indeed, a good beginning has been made, and as the subject is further +considered and understood by capitalists and shipping people new lines will +be ready to meet future proposals, and we may date from the passage of this +law the revival of American shipping interests and the recovery of a fair +share of the carrying trade of the world. We were receiving for foreign +postage nearly $2,000,000 under the old system, and the outlay for ocean +mail service did not exceed $600,000 per annum. It is estimated by the +Postmaster-General that if all the contracts proposed are completed it will +require $247,354 for this year in addition to the appropriation for sea and +inland postage already in the estimates, and that for the next fiscal year, +ending June 30, 1893, there would probably be needed about $560,000. +</p> + +<p> +The report of the Secretary of the Navy shows a gratifying increase of new +naval vessels in commission. The Newark, Concord, Bennington, and +Miantonomoh have been added during the year, with an aggregate of something +more than 11,000 tons. Twenty-four warships of all classes are now under +construction in the navy-yards and private shops; but while the work upon +them is going forward satisfactorily, the completion of the more important +vessels will yet require about a year's time. Some of the vessels now +under construction, it is believed, will be triumphs of naval engineering. +When it is recollected that the work of building a modern navy was only +initiated in the year 1883, that our naval constructors and shipbuilders +were practically without experience in the construction of large iron or +steel ships, that our engine shops were unfamiliar with great marine +engines, and that the manufacture of steel forgings for guns and plates was +almost wholly a foreign industry, the progress that has been made is not +only highly satisfactory, but furnishes the assurance that the United +States will before long attain in the construction of such vessels, with +their engines and armaments, the same preeminence which it attained when +the best instrument of ocean commerce was the clipper ship and the most +impressive exhibit of naval power the old wooden three-decker man-of-war. +The officers of the Navy and the proprietors and engineers of our great +private shops have responded with wonderful intelligence and professional +zeal to the confidence expressed by Congress in its liberal legislation. We +have now at Washington a gun shop, organized and conducted by naval +officers, that in its system, economy, and product is unexcelled. +Experiments with armor plate have been conducted during the year with most +important results. It is now believed that a plate of higher resisting +power than any in use has been found and that the tests have demonstrated +that cheaper methods of manufacture than those heretofore thought necessary +can be used. +</p> + +<p> +I commend to your favorable consideration the recommendations of the +Secretary, who has, I am sure, given to them the most conscientious study. +There should be no hesitation in promptly completing a navy of the best +modern type large enough to enable this country to display its flag in all +seas for the protection of its citizens and of its extending commerce. The +world needs no assurance of the peaceful purposes of the United States, but +we shall probably be in the future more largely a competitor in the +commerce of the world, and it is essential to the dignity of this nation +and to that peaceful influence which it should exercise on this hemisphere +that its Navy should be adequate both upon the shores of the Atlantic and +of the Pacific. +</p> + +<p> +The report of the Secretary of the Interior shows that a very gratifying +progress has been made in all of the bureaus which make up that complex and +difficult Department. +</p> + +<p> +The work in the Bureau of Indian Affairs was perhaps never so large as now, +by reason of the numerous negotiations which have been proceeding with the +tribes for a reduction of the reservations, with the incident labor of +making allotments, and was never more carefully conducted. The provision of +adequate school facilities for Indian children and the locating of adult +Indians upon farms involve the solution of the "Indian question." +Everything else--rations, annuities, and tribal negotiations, with the +agents, inspectors, and commissioners who distribute and conduct them--must +pass away when the Indian has become a citizen, secure in the individual +ownership of a farm from which he derives his subsistence by his own labor, +protected by and subordinate to the laws which govern the white man, and +provided by the General Government or by the local communities in which he +lives with the means of educating his children. When an Indian becomes a +citizen in an organized State or Territory, his relation to the General +Government ceases in great measure to be that of a ward; but the General +Government ought not at once to put upon the State or Territory the burden +of the education of his children. +</p> + +<p> +It has been my thought that the Government schools and school buildings +upon the reservations would be absorbed by the school systems of the States +and Territories; but as it has been found necessary to protect the Indian +against the compulsory alienation of his land by exempting him from +taxation for a period of twenty-five years, it would seem to be right that +the General Government, certainly where there are tribal funds in its +possession, should pay to the school fund of the State what would be +equivalent to the local school tax upon the property of the Indian. It will +be noticed from the report of the Commissioner of Indian Affairs that +already some contracts have been made with district schools for the +education of Indian children. There is great advantage, I think, in +bringing the Indian children into mixed schools. This process will be +gradual, and in the meantime the present educational provisions and +arrangements, the result of the best experience of those who have been +charged with this work, should be continued. This will enable those +religious bodies that have undertaken the work of Indian education with so +much zeal and with results so restraining and beneficent to place their +institutions in new and useful relations to the Indian and to his white +neighbors. +</p> + +<p> +The outbreak among the Sioux which occurred in December last is as to its +causes and incidents fully reported upon by the War Department and the +Department of the Interior. That these Indians had some just complaints, +especially in the matter of the reduction of the appropriation for rations +and in the delays attending the enactment of laws to enable the Department +to perform the engagements entered into with them, is probably true; but +the Sioux tribes are naturally warlike and turbulent, and their warriors +were excited by their medicine men and chiefs, who preached the coming of +an Indian messiah who was to give them power to destroy their enemies. In +view of the alarm that prevailed among the white settlers near the +reservation and of the fatal consequences that would have resulted from an +Indian incursion, I placed at the disposal of General Miles, commanding the +Division of the Missouri, all such forces as were thought by him to be +required. He is entitled to the credit of having given thorough protection +to the settlers and of bringing the hostiles into subjection with the least +possible loss of life. +</p> + +<p> +The appropriation of $2,991,450 for the Choctaws and Chickasaws contained +in the general Indian appropriation bill of March 3, 1891, has not been +expended, for the reason that I have not yet approved a release (to the +Government) of the Indian claim to the lands mentioned. This matter will be +made the subject of a special message, placing before Congress all the +facts which have come to my knowledge. +</p> + +<p> +The relation of the Five Civilized Tribes now occupying the Indian +Territory to the United States is not, I believe, that best calculated to +promote the highest advancement of these Indians. That there should be +within our borders five independent states having no relations, except +those growing out of treaties, with the Government of the United States, no +representation in the National Legislature, its people not citizens, is a +startling anomaly. +</p> + +<p> +It seems to me to be inevitable that there shall be before long some +organic changes in the relation of these people to the United States. What +form these changes should take I do not think it desirable now to suggest, +even if they were well defined in my own mind. They should certainly +involve the acceptance of citizenship by the Indians and a representation +in Congress. These Indians should have opportunity to present their claims +and grievances upon the floor rather than, as now, in the lobby. If a +commission could be appointed to visit these tribes to confer with them in +a friendly spirit upon this whole subject, even if no agreement were +presently reached the feeling of the tribes upon this question would be +developed, and discussion would prepare the way for changes which must come +sooner or later. +</p> + +<p> +The good work of reducing the larger Indian reservations by allotments in +severalty to the Indians and the cession of the remaining lands to the +United States for disposition under the homestead law has been prosecuted +during the year with energy and success. In September last I was enabled to +open to settlement in the Territory of Oklahoma 900,000 acres of land, all +of which was taken up by settlers in a single day. The rush for these lands +was accompanied by a great deal of excitement, but was happily free from +incidents of violence. +</p> + +<p> +It was a source of great regret that I was not able to open at the same +time the surplus lands of the Cheyenne and Arapahoe Reservation, amounting +to about 3,000,000 acres, by reason of the insufficiency of the +appropriation for making the allotments. Deserving and impatient settlers +are waiting to occupy these lands, and I urgently recommend that a special +deficiency appropriation be promptly made of the small amount needed, so +that the allotments may be completed and the surplus lands opened in time +to permit the settlers to get upon their homesteads in the early spring. +</p> + +<p> +During the past summer the Cherokee Commission have completed arrangements +with the Wichita, Kickapoo, and Tonkawa tribes whereby, if the agreements +are ratified by Congress, over 800,000 additional acres will be opened to +settlement in Oklahoma. +</p> + +<p> +The negotiations for the release by the Cherokees of their claim to the +Cherokee Strip have made no substantial progress so far as the Department +is officially advised, but it is still hoped that the cession of this large +and valuable tract may be secured. The price which the commission was +authorized to offer--$1.25 per acre--is, in my judgment, when all the +circumstances as to title and the character of the lands are considered, a +fair and adequate one, and should have been accepted by the Indians. +</p> + +<p> +Since March 4, 1889, about 23,000,000 acres have been separated from Indian +reservations and added to the public domain for the use of those who +desired to secure free homes under our beneficent laws. It is difficult to +estimate the increase of wealth which will result from the conversion of +these waste lands into farms, but it is more difficult to estimate the +betterment which will result to the families that have found renewed hope +and courage in the ownership of a home and the assurance of a comfortable +subsistence under free and healthful conditions. It is also gratifying to +be able to feel, as we may, that this work has proceeded upon lines of +justice toward the Indian, and that he may now, if he will, secure to +himself the good influences of a settled habitation, the fruits of +industry, and the security of citizenship. +</p> + +<p> +Early in this Administration a special effort was begun to bring up the +work of the General Land Office. By faithful work the arrearages have been +rapidly reduced. At the end of the last fiscal year only 84,172 final +agricultural entries remained undisposed of, and the Commissioner reports +that with the present force the work can be fully brought up by the end of +the next fiscal year. +</p> + +<p> +Your attention is called to the difficulty presented by the Secretary of +the Interior as to the administration of the law of March 3, 1891, +establishing a Court of Private Land Claims. The small holdings intended to +be protected by the law are estimated to be more than 15,000 in number. The +claimants are a most deserving class and their titles are supported by the +strongest equities. The difficulty grows out of the fact that the lands +have largely been surveyed according to our methods, while the holdings, +many of which have been in the same family for generations, are laid out in +narrow strips a few rods wide upon a stream and running back to the hills +for pasturage and timber.. Provision should be made for numbering these +tracts as lots and for patenting them by such numbers and without reference +to section lines. +</p> + +<p> +The administration of the Pension Bureau has been characterized during the +year by great diligence. The total number of pensioners upon the roll on +the 30th day of June, 1891, was 676,160. There were allowed during the +fiscal year ending at that time 250,565 cases. Of this number 102,387 were +allowed under the law of June 27, 1890. The issuing of certificates has +been proceeding at the rate of about 30,000 per month, about 75 per cent of +these being cases under the new law. The Commissioner expresses the opinion +that he will be able to carefully adjudicate and allow 350,000 claims +during the present fiscal year. The appropriation for the payment of +pensions for the fiscal year 1890-91 was $127,685,793.89 and the amount +expended $118,530,649.25, leaving an unexpended surplus of $9,155,144.64. +</p> + +<p> +The Commissioner is quite confident that there will be no call this year +for a deficiency appropriation, notwithstanding the rapidity with which the +work is being pushed. The mistake which has been made by many in their +exaggerated estimates of the cost of pensions is in not taking account of +the diminished value of first payments under the recent legislation. These +payments under the general law have been for many years very large, as the +pensions when allowed dated from the time of filing the claim, and most of +these claims had been pending for years. The first payments under the law +of June, 1890, are relatively small, and as the per cent of these cases +increases and that of the old cases diminishes the annual aggregate of +first payments is largely reduced. The Commissioner, under date of November +13, furnishes me with the statement that during the last four months +113,175 certificates were issued, 27,893 under the general law and 85,282 +under the act of June 27, 1890. The average first payment during these four +months was $131.85, while the average first payment upon cases allowed +during the year ending June 30, 1891, was $239.33, being a reduction in the +average first payments during these four months of $107.48. +</p> + +<p> +The estimate for pension expenditures for the fiscal year ending June 30, +1893, is $144,956,000, which, after a careful examination of the subject, +the Commissioner is of the opinion will be sufficient. While these +disbursements to the disabled soldiers of the great Civil War are large, +they do not realize the exaggerated estimates of those who oppose this +beneficent legislation. The Secretary of the Interior shows with great +fullness the care that is taken to exclude fraudulent claims, and also the +gratifying fact that the persons to whom these pensions are going are men +who rendered not slight but substantial war service. +</p> + +<p> +The report of the Commissioner of Railroads shows that the total debt of +the subsidized railroads to the United States was on December 31, 1890, +$112,512,613.06. A large part of this debt is now fast approaching +maturity, with no adequate provision for its payment. Some policy for +dealing with this debt with a view to its ultimate collection should be at +once adopted. It is very difficult, well-nigh impossible, for so large a +body as the Congress to conduct the necessary negotiations and +investigations. I therefore recommend that provision be made for the +appointment of a commission to agree upon and report a plan for dealing +with this debt. +</p> + +<p> +The work of the Census Bureau is now far in advance and the great bulk of +the enormous labor involved completed. It will be more strictly a +statistical exhibit and less encumbered by essays than its immediate +predecessors. The methods pursued have been fair, careful, and intelligent, +and have secured the approval of the statisticians who have followed them +with a scientific and nonpartisan interest. The appropriations necessary to +the early completion and publication of the authorized volumes should be +given in time to secure against delays, which increase the cost and at the +same time diminish the value of the work. +</p> + +<p> +The report of the Secretary exhibits with interesting fullness the +condition of the Territories. They have shared with the States the great +increase in farm products, and are bringing yearly large areas into +cultivation by extending their irrigating canals. This work is being done +by individuals or local corporations and without that system which a full +preliminary survey of the water supply and of the irrigable lands would +enable them to adopt. The future of the Territories of New Mexico, Arizona, +and Utah in their material growth and in the increase, independence, and +happiness of their people is very largely dependent upon wise and timely +legislation, either by Congress or their own legislatures, regulating the +distribution of the water supply furnished by their streams. If this matter +is much longer neglected, private corporations will have unrestricted +control of one of the elements of life and the patentees of the arid lands +will be tenants at will of the water companies. +</p> + +<p> +The United States should part with its ownership of the water sources and +the sites for reservoirs, whether to the States and Territories or to +individuals or corporations, only upon conditions that will insure to the +settlers their proper water supply upon equal and reasonable terms. In the +Territories this whole subject is under the full control of Congress, and +in the States it is practically so as long as the Government holds the +title to the reservoir sites and water sources and can grant them upon such +conditions as it chooses to impose. The improvident granting of franchises +of enormous value without recompense to the State or municipality from +which they proceed and without proper protection of the public interests is +the most noticeable and flagrant evil of modern legislation. This fault +should not be committed in dealing with a subject that will before many +years affect so vitally thousands of our people. +</p> + +<p> +The legislation of Congress for the repression of polygamy has, after years +of resistance on the part of the Mormons, at last brought them to the +conclusion that resistance is unprofitable and unavailing. The power of +Congress over this subject should not be surrendered until we have +satisfactory evidence that the people of the State to be created would +exercise the exclusive power of the State over this subject in the same +way. The question is not whether these people now obey the laws of Congress +against polygamy, but rather would they make, enforce, and maintain such +laws themselves if absolutely free to regulate the subject? We can not +afford to experiment with this subject, for when a State is once +constituted the act is final and any mistake irretrievable. No compact in +the enabling act could, in my opinion, be binding or effective. +</p> + +<p> +I recommend that provision be made for the organization of a simple form of +town government in Alaska, with power to regulate such matters as are +usually in the States under municipal control. These local civil +organizations will give better protection in some matters than the present +skeleton Territorial organization. Proper restrictions as to the power to +levy taxes and to create debt should be imposed. +</p> + +<p> +If the establishment of the Department of Agriculture was regarded by +anyone as a mere concession to the unenlightened demand of a worthy class +of people, that impression has been most effectually removed by the great +results already attained. Its home influence has been very great in +disseminating agricultural and horticultural information, in stimulating +and directing a further diversification of crops, in detecting and +eradicating diseases of domestic animals, and, more than all, in the close +and informal contact which it has established and maintains with the +farmers and stock raisers of the whole country. Every request for +information has had prompt attention and every suggestion merited +consideration. The scientific corps of the Department is of a high order +and is pushing its investigations with method and enthusiasm. +</p> + +<p> +The inspection by this Department of cattle and pork products intended for +shipment abroad has been the basis of the success which has attended our +efforts to secure the removal of the restrictions maintained by the +European Governments. +</p> + +<p> +For ten years protests and petitions upon this subject from the packers and +stock raisers of the United States have been directed against these +restrictions, which so seriously limited our markets and curtailed the +profits of the farm. It is a source of general congratulation that success +has at last been attained, for the effects of an enlarged foreign market +for these meats will be felt not only by the farmer, but in our public +finances and in every branch of trade. It is particularly fortunate that +the increased demand for food products resulting from the removal of the +restrictions upon our meats and from the reciprocal trade arrangements to +which I have referred should have come at a time when the agricultural +surplus is so large. Without the help thus derived lower prices would have +prevailed. The Secretary of Agriculture estimates that the restrictions +upon the importation of our pork products into Europe lost us a market for +$20,000,000 worth of these products annually. +</p> + +<p> +The grain crop of this year was the largest in our history--50 per cent +greater than that of last year--and yet the new markets that have been +opened and the larger demand resulting from short crops in Europe have +sustained prices to such an extent that the enormous surplus of meats and +breadstuffs will be marketed at good prices, bringing relief and prosperity +to an industry that was much depressed. The value of the grain crop of the +United States is estimated by the Secretary to be this year $500,000,000 +more than last; of meats $150,000,000 more, and of all products of the farm +$700,000,000 more. It is not inappropriate, I think, here to suggest that +our satisfaction in the contemplation of this marvelous addition to the +national wealth is unclouded by any suspicion of the currency by which it +is measured and in which the farmer is paid for the products of his +fields. +</p> + +<p> +The report of the Civil Service Commission should receive the careful +attention of the opponents as well as the friends of this reform. The +Commission invites a personal inspection by Senators and Representatives of +its records and methods, and every fair critic will feel that such an +examination should precede a judgment of condemnation either of the system +or its administration. It is not claimed that either is perfect, but I +believe that the law is being executed with impartiality and that the +system is incomparably better and fairer than that of appointments upon +favor. I have during the year extended the classified service to include +superintendents, teachers, matrons, and physicians in the Indian service. +This branch of the service is largely related to educational and +philanthropic work and will obviously be the better for the change. +</p> + +<p> +The heads of the several Executive Departments have been directed to +establish at once an efficiency record as the basis of a comparative rating +of the clerks within the classified service, with a view to placing +promotions therein upon the basis of merit. I am confident that such a +record, fairly kept and open to the inspection of those interested, will +powerfully stimulate the work of the Departments and will be accepted by +all as placing the troublesome matter of promotions upon a just basis. +</p> + +<p> +I recommend that the appropriation for the Civil Service Commission be made +adequate to the increased work of the next fiscal year. +</p> + +<p> +I have twice before urgently called the attention of Congress to the +necessity of legislation for the protection of the lives of railroad +employees, but nothing has yet been done. During the year ending June 30, +1890, 369 brakemen were killed and 7,841 maimed while engaged in coupling +cars. The total number of railroad employees killed during the year was +2,451 and the number injured 22,390. This is a cruel and largely needless +sacrifice. The Government is spending nearly $1,000,000 annually to save +the lives of shipwrecked seamen; every steam vessel is rigidly inspected +and required to adopt the most approved safety appliances. All this is +good. But how shall we excuse the lack of interest and effort in behalf of +this army of brave young men who in our land commerce are being sacrificed +every year by the continued use of antiquated and dangerous appliances? A +law requiring of every railroad engaged in interstate commerce the +equipment each year of a given per cent of its freight cars with automatic +couplers and air brakes would compel an agreement between the roads as to +the kind of brakes and couplers to be used, and would very soon and very +greatly reduce the present fearful death rate among railroad employees. +</p> + +<p> +The method of appointment by the States of electors of President and +Vice-President has recently attracted renewed interest by reason of a +departure by the State of Michigan from the method which had become uniform +in all the States. Prior to 1832 various methods had been used by the +different States, and even by the same State. In some the choice was made +by the legislature; in others electors were chosen by districts, but more +generally by the voters of the whole State upon a general ticket. The +movement toward the adoption of the last-named method had an early +beginning and went steadily forward among the States until in 1832 there +remained but a single State (South Carolina) that had not adopted it. That +State until the Civil War continued to choose its electors by a vote of the +legislature, but after the war changed its method and conformed to the +practice of the other States. For nearly sixty years all the States save +one have appointed their electors by a popular vote upon a general ticket, +and for nearly thirty years this method was universal. +</p> + +<p> +After a full test of other methods, without important division or dissent +in any State and without any purpose of party advantage, as we must +believe, but solely upon the considerations that uniformity was desirable +and that a general election in territorial divisions not subject to change +was most consistent with the popular character of our institutions, best +preserved the equality of the voters, and perfectly removed the choice of +President from the baneful influence of the "gerrymander," the practice of +all the States was brought into harmony. That this concurrence should now +be broken is, I think, an unfortunate and even a threatening episode, and +one that may well suggest whether the States that still give their approval +to the old and prevailing method ought not to secure by a constitutional +amendment a practice which has had the approval of all. The recent Michigan +legislation provides for choosing what are popularly known as the +Congressional electors for President by Congressional districts and the two +Senatorial electors by districts created for that purpose. This legislation +was, of course, accompanied by a new Congressional apportionment, and the +two statutes bring the electoral vote of the State under the influence of +the "gerrymander." +</p> + +<p> +These gerrymanders for Congressional purposes are in most cases buttressed +by a gerrymander of the legislative districts, thus making it impossible +for a majority of the legal voters of the State to correct the +apportionment and equalize the Congressional districts. A minority rule is +established that only a political convulsion can overthrow. I have recently +been advised that in one county of a certain State three districts for the +election of members of the legislature are constituted as follows: One has +65,000 population, one 15,000, and one 10,000, while in another county +detached, noncontiguous sections have been united to make a legislative +district. These methods have already found effective application to the +choice of Senators and Representatives in Congress, and now an evil start +has been made in the direction of applying them to the choice by the States +of electors of President and Vice-President. If this is accomplished, we +shall then have the three great departments of the Government in the grasp +of the "gerrymander," the legislative and executive directly and the +judiciary indirectly through the power of appointment. +</p> + +<p> +An election implies a body of electors having prescribed qualifications, +each one of whom has an equal value and influence in determining the +result. So when the Constitution provides that "each State shall appoint" +(elect), "in such manner as the legislature thereof may direct, a number of +electors," etc., an unrestricted power was not given to the legislatures in +the selection of the methods to be used. "A republican form of government" +is guaranteed by the Constitution to each State, and the power given by the +same instrument to the legislatures of the States to prescribe methods for +the choice by the State of electors must be exercised under that +limitation. The essential features of such a government are the right of +the people to choose their own officers and the nearest practicable +equality of value in the suffrages given in determining that choice. +</p> + +<p> +It will not be claimed that the power given to the legislature would +support a law providing that the persons receiving the smallest vote should +be the electors or a law that all the electors should be chosen by the +voters of a single Congressional district. The State is to choose, and +finder the pretense of regulating methods the legislature can neither vest +the right of choice elsewhere nor adopt methods not conformable to +republican institutions. It is not my purpose here to discuss the question +whether a choice by the legislature or by the voters of equal single +districts is a choice by the State, but only to recommend such regulation +of this matter by constitutional amendment as will secure uniformity and +prevent that disgraceful partisan jugglery to which such a liberty of +choice, if it exists, offers a temptation. +</p> + +<p> +Nothing just now is more important than to provide every guaranty for the +absolutely fair and free choice by an equal suffrage within the respective +States of all the officers of the National Government, whether that +suffrage is applied directly, as in the choice of members of the House of +Representatives, or indirectly, as in the choice of Senators and electors +of President. Respect for public officers and obedience to law will not +cease to be the characteristics of our people until our elections cease to +declare the will of majorities fairly ascertained without fraud, +suppression, or gerrymander. If I were called upon to declare wherein our +chief national danger lies, I should say without hesitation in the +overthrow of majority control by the suppression or perversion of the +popular suffrage. That there is a real danger here all must agree; but the +energies of those who see it have been chiefly expended in trying to fix +responsibility upon the opposite party rather than in efforts to make such +practices impossible by either party. +</p> + +<p> +Is it not possible now to adjourn that interminable and inconclusive debate +while we take by consent one step in the direction of reform by eliminating +the gerrymander, which has been denounced by all parties as an influence in +the selection of electors of President and members of Congress? All the +States have, acting freely and separately, determined that the choice of +electors by a general ticket is the wisest and safest method, and it would +seem there could be no objection to a constitutional amendment making that +method permanent. If a legislature chosen in one year upon purely local +questions should, pending a Presidential contest, meet, rescind the law for +a choice upon a general ticket, and provide for the choice of electors by +the legislature, and this trick should determine the result, it is not too +much to say that the public peace might be seriously and widely +endangered. +</p> + +<p> +I have alluded to the "gerrymander" as affecting the method of selecting +electors of President by Congressional districts, but the primary intent +and effect of this form of political robbery have relation to the selection +of members of the House of Representatives. The power of Congress is ample +to deal with this threatening and intolerable abuse. The unfailing test of +sincerity in election reform will be found in a willingness to confer as to +remedies and to put into force such measures as will most effectually +preserve the right of the people to free and equal representation. +</p> + +<p> +An attempt was made in the last Congress to bring to bear the +constitutional powers of the General Government for the correction of fraud +against the suffrage. It is important to know whether the opposition to +such measures is really rested in particular features supposed to be +objectionable or includes any proposition to give to the election laws of +the United States adequacy to the correction of grave and acknowledged +evils. I must yet entertain the hope that it is possible to secure a calm, +patriotic consideration of such constitutional or statutory changes as may +be necessary to secure the choice of the officers of the Government to the +people by fair apportionments and free elections. +</p> + +<p> +I believe it would be possible to constitute a commission, nonpartisan in +its membership and composed of patriotic, wise, and impartial men, to whom +a consideration of the question of the evils connected with our election +system and methods might be committed with a good prospect of securing +unanimity in some plan for removing or mitigating those evils. The +Constitution would permit the selection of the commission to be vested in +the Supreme Court if that method would give the best guaranty of +impartiality. This commission should be charged with the duty of inquiring +into the whole subject of the law of elections as related to the choice of +officers of the National Government, with a view to securing to every +elector a free and unmolested exercise of the suffrage and as near an +approach to an equality of value in each ballot cast as is attainable. +</p> + +<p> +While the policies of the General Government upon the tariff, upon the +restoration of our merchant marine, upon river and harbor improvements, and +other such matters of grave and general concern are liable to be turned +this way or that by the results of Congressional elections and +administrative policies, sometimes involving issues that tend to peace or +war, to be turned this way or that by the results of a Presidential +election, there is a rightful interest in all the States and in every +Congressional district that will not be deceived or silenced by the +audacious pretense that the question of the right of any body of legal +voters in any State or in any Congressional district to give their +suffrages freely upon these general questions is a matter only of local +concern or control. The demand that the limitations of suffrage shall be +found in the law, and only there, is a just demand, and no just man should +resent or resist it. My appeal is and must continue to be for a +consultation that shall "proceed with candor, calmness, and patience upon +the lines of justice and humanity, not of prejudice and cruelty." +</p> + +<p> +To the consideration of these very grave questions I invite not only the +attention of Congress, but that of all patriotic citizens. We must not +entertain the delusion that our people have ceased to regard a free ballot +and equal representation as the price of their allegiance to laws and to +civil magistrates. +</p> + +<p> +I have been greatly rejoiced to notice many evidences of the increased +unification of our people and of a revived national spirit. The vista that +now opens to us is wider and more glorious than ever before. Gratification +and amazement struggle for supremacy as we contemplate the population, +wealth, and moral strength of our country. A trust momentous in its +influence upon our people and upon the world is for a brief time committed +to us, and we must not be faithless to its first condition--the defense of +the free and equal influence of the people in the choice of public officers +and in the control of public affairs. +</p> + +<p class="noindent"> +BENJ. HARRISON +</p> + +<p><br /><br /><br /></p> + +<p class="t3"> +*** +</p> + +<p><a id="dec1892"></a></p> + +<p class="noindent"> +State of the Union Address<br /> +Benjamin Harrison<br /> +December 6, 1892<br /> +</p> + +<p class="noindent"> +To the Senate and House of Representatives: +</p> + +<p> +In submitting my annual message to Congress I have great satisfaction in +being able to say that the general conditions affecting the commercial and +industrial interests of the United States are in the highest degree +favorable. A comparison of the existing conditions with those of the most +favored period in the history of the country will, I believe, show that so +high a degree of prosperity and so general a diffusion of the comforts of +life were never before enjoyed by our people. +</p> + +<p> +The total wealth of the country in 1860 was $16,159,616,068. In 1890 it +amounted to $62,610,000,000, an increase of 287 per cent. +</p> + +<p> +The total mileage of railways in the United States in 1860 was 30,626. In +1890 it was 167,741, an increase of 448 per cent; and it is estimated that +there will be about 4,000 miles of track added by the close of the year +1892. +</p> + +<p> +The official returns of the Eleventh Census and those of the Tenth Census +for seventy-five leading cities furnish the basis for the following +comparisons: +</p> + +<p> +In 1880 the capital invested in manufacturing was $1,232,839,670. +</p> + +<p> +In 1890 the capital invested in manufacturing was $2,900,735,884. +</p> + +<p> +In 1880 the number of employees was 1,301,388. +</p> + +<p> +In 1890 the number of employees was 2,251,134. +</p> + +<p> +In 1880 the wages earned were $501,965,778. +</p> + +<p> +In 1890 the wages earned were $1,221,170,454. +</p> + +<p> +In 1880 the value of the product was $2,711,579,899. +</p> + +<p> +In 1890 the value of the product was $4,860,286,837. +</p> + +<p> +I am informed by the Superintendent of the Census that the omission of +certain industries in 1880 which were included in 1890 accounts in part for +the remarkable increase thus shown, but after making full allowance for +differences of method and deducting the returns for all industries not +included in the census of 1880 there remain in the reports from these +seventy-five cities an increase in the capital employed of $1,522,745,604, +in the value of the product of $2,024,236,166, in wages earned of +$677,943,929, and in the number of wage earners employed of 856,029. The +wage earnings not only show an increased aggregate, but an increase per +capita from $386 in 1880 to $547 in 1890, or 41.71 per cent. +</p> + +<p> +The new industrial plants established since October 6, 1890, and up to +October 22, 1892, as partially reported in the American Economist, number +345, and the extension of existing plants 108; the new capital invested +amounts to $40,449,050, and the number of additional employees to 37,285. +</p> + +<p> +The Textile World for July, 1892, states that during the first six months +of the present calendar year 135 new factories were built, of which 40 are +cotton mills, 48 knitting mills, 26 woolen mills, 15 silk mills, 4 plush +mills, and 2 linen mills. Of the 40 cotton mills 21 have been built in the +Southern States. Mr. A. B. Shepperson, of the New York Cotton Exchange, +estimates the number of working spindles in the United States on September +1, 1892, at 15,200,000, an increase of 660,000 over the year 1891. The +consumption of cotton by American mills in 1891 was 2,396,000 bales, and in +1892 2,584,000 bales, an increase of 188,000 bales. From the year 1869 to +1892, inclusive, there has been an increase in the consumption of cotton in +Europe of 92 per cent, while during the same period the increased +consumption in the United States has been about 150 per cent. +</p> + +<p> +The report of Ira Ayer, special agent of the Treasury Department, shows +that at the date of September 30, 1892, there were 32 companies +manufacturing tin and terne plate in the United States and 14 companies +building new works for such manufacture. The estimated investment in +buildings and plants at the close of the fiscal year June 30, 1893, if +existing conditions were to be continued, was $5,000,000 and the estimated +rate of production 200,000,000 pounds per annum. The actual production for +the quarter ending September 30, 1892, was 10,952,725 pounds. +</p> + +<p> +The report of Labor Commissioner Peck, of New York, shows that during the +year 1891, in about 6,000 manufacturing establishments in that State +embraced within the special inquiry made by him, and representing 67 +different industries, there was a net increase over the year 1890 of +$30,315,130.68 in the value of the product and of $6,377,925.09 in the +amount of wages paid. The report of the commissioner of labor for the State +of Massachusetts shows that 3,745 industries in that State paid +$129,416,248 in wages during the year 1891, against $126,030,303 in 1890, +an increase of $3,335,945, and that there was an increase of $9,932,490 in +the amount of capital and of 7,346 in the number of persons employed in the +same period. +</p> + +<p> +During the last six months of the year 1891 and the first six months of +1892 the total production of pig iron was 9,710,819 tons, as against +9,202,703 tons in the year 1890, which was the largest annual production +ever attained. For the same twelve months of 1891-92 the production of +Bessemer ingots was 3,878,581 tons, an increase of 189,710 gross tons over +the previously unprecedented yearly production of 3,688,871 gross tons in +1890. The production of Bessemer steel rails for the first six months of +1892 was 772,436 gross tons, as against 702,080 gross tons during the last +six months of the year 1891. +</p> + +<p> +The total value of our foreign trade (exports and imports of merchandise) +during the last fiscal year was $1,857,680,610, an increase of $128,283,604 +over the previous fiscal year. The average annual value of our imports and +exports of merchandise for the ten fiscal years prior to 1891 was +$1,457,322,019. It will be observed that our foreign trade for 1892 +exceeded this annual average value by $400,358,591, an increase of 27.47 +per cent. The significance and value of this increase are shown by the fact +that the excess in the trade of 1892 over 1891 was wholly in the value of +exports, for there was a decrease in the value of imports of $17,513,754. +</p> + +<p> +The value of our exports during the fiscal year 1892 reached the highest +figure in the history of the Government, amounting to $1,030,278,148, +exceeding by $145,797,338 the exports of 1891 and exceeding the value of +the imports by $202,875,686. A comparison of the value of our exports for +1892 with the annual average for the ten years prior to 1891 shows an +excess of $265,142,651, or of 34.65 per cent. The value of our imports of +merchandise for 1892, which was $829,402,462, also exceeded the annual +average value of the ten years prior to 1891 by $135,215,940. During the +fiscal year 1892 the value of imports free of duty amounted to +$457,999,658, the largest aggregate in the history of our commerce. The +value of the imports of merchandise entered free of duty in 1892 was 55.35 +per cent of the total value of imports, as compared with 43.35 per cent in +1891 and 33.66 per cent in 1890. +</p> + +<p> +In our coastwise trade a most encouraging development is in progress, there +having been in the last four years an increase of 16 per cent. In internal +commerce the statistics show that no such period of prosperity has ever +before existed. The freight carried in the coastwise trade of the Great +Lakes in 1890 aggregated 28,295,959 tons. On the Mississippi, Missouri, and +Ohio rivers and tributaries in the same year the traffic aggregated +29,405,046 tons, and the total vessel tonnage passing through the Detroit +River during that year was 21,684,000 tons. The vessel tonnage entered and +cleared in the foreign trade of London during 1890 amounted to 13,480,767 +tons, and of Liverpool 10,941,800 tons, a total for these two great +shipping ports of 24,422,568 tons, only slightly in excess of the vessel +tonnage passing through the Detroit River. And it should be said that the +season for the Detroit River was but 228 days, while of course in London +and Liverpool the season was for the entire year. The vessel tonnage +passing through the St. Marys Canal for the fiscal year 1892 amounted to +9,828,874 tons, and the freight tonnage of the Detroit River is estimated +for that year at 25,000,000 tons, against 23,209,619 tons in 1891. The +aggregate traffic on our railroads for the year 1891 amounted to +704,398,609 tons of freight, compared with 691,344,437 tons in 1890, an +increase of 13,054,172 tons. +</p> + +<p> +Another indication of the general prosperity of the country is found in the +fact that the number of depositors in savings banks increased from 693,870 +in 1860 to 4,258,893 in 1890, an increase of 513 per cent, and the amount +of deposits from $149,277,504 in 1860 to $1,524,844,506 in 1890, an +increase of 921 per cent. In 1891 the amount of deposits in savings banks +was $1,623,079,749. It is estimated that 90 per cent of these deposits +represent the savings of wage earners. The bank clearances for nine months +ending September 30, 1891, amounted to $41,049,390,08. For the same months +in 1892 they amounted to $45,189,601,947, an excess for the nine months of +$4,140,211,139. +</p> + +<p> +There never has been a time in our history when work was so abundant or +when wages were as high, whether measured by the currency in which they are +paid or by their power to supply the necessaries and comforts of life. It +is true that the market prices of cotton and wheat have been low. It is one +of the unfavorable incidents of agriculture that the farmer can not produce +upon orders. He must sow and reap in ignorance of the aggregate production +of the year, and is peculiarly subject to the depreciation which follows +overproduction. But while the fact I have stated is true as to the crops +mentioned, the general average of prices has been such as to give to +agriculture a fair participation in the general prosperity. The value of +our total farm products has increased from $1,363,646,866 in 1860 to +$4,500,000,000 in 1891, as estimated by statisticians, an increase of 230 +per cent. The number of hogs January 1, 1891, was 50,625,106 and their +value $210,193,925; on January 1, 1892, the number was 52,398,019 and the +value $241,031,415. On January 1, 1891, the number of cattle was 36,875,648 +and the value $544,127,908; on January 1 ,1892, the number was 37,651,239 +and the value $570,749,155. +</p> + +<p> +If any are discontented with their state here, if any believe that wages or +prices, the returns for honest toil, are inadequate, they should not fail +to remember that there is no other country in the world where the +conditions that seem to them hard would not be accepted as highly +prosperous. The English agriculturist would be glad to exchange the returns +of his labor for those of the American farmer and the Manchester workmen +their wages for those of their fellows at Fall River. +</p> + +<p> +I believe that the protective system, which has now for something more than +thirty years continuously prevailed in our legislation, has been a mighty +instrument for the development of our national wealth and a most powerful +agency in protecting the homes of our workingmen from the invasion of want. +I have felt a most solicitous interest to preserve to our working people +rates of wages that would not only give daily bread but supply a +comfortable margin for those home attractions and family comforts and +enjoyments without which life is neither hopeful nor sweet. They are +American citizens--a part of the great people for whom our Constitution and +Government were framed and instituted--and it can not be a perversion of +that Constitution to so legislate as to preserve in their homes the +comfort, independence, loyalty, and sense of interest in the Government +which are essential to good citizenship in peace, and which will bring this +stalwart throng, as in 1861, to the defense of the flag when it is +assailed. +</p> + +<p> +It is not my purpose to renew here the argument in favor of a protective +tariff. The result of the recent election must be accepted as having +introduced a new policy. We must assume that the present tariff, +constructed upon the lines of protection, is to be repealed and that there +is to be substituted for it a tariff law constructed solely with reference +to revenue; that no duty is to be higher because the increase will keep +open an American mill or keep up the wages of an American workman, but that +in every case such a rate of duty is to be imposed as will bring to the +Treasury of the United States the largest returns of revenue. The +contention has not been between schedules, but between principles, and it +would be offensive to suggest that the prevailing party will not carry into +legislation the principles advocated by it and the pledges given to the +people. The tariff bills passed by the House of Representatives at the last +session were, as I suppose, even in the opinion of their promoters, +inadequate, and justified only by the fact that the Senate and House of +Representatives were not in accord and that a general revision could not +therefore be undertaken. +</p> + +<p> +I recommend that the whole subject of tariff revision be left to the +incoming Congress. It is matter of regret that this work must be delayed +for at least three months, for the threat of great tariff changes +introduces so much uncertainty that an amount, not easily estimated, of +business inaction and of diminished production will necessarily result. It +is possible also that this uncertainty may result in decreased revenues +from customs duties, for our merchants will make cautious orders for +foreign goods in view of the prospect of tariff reductions and the +uncertainty as to when they will take effect. Those who have advocated a +protective tariff can well afford to have their disastrous forecasts of a +change of policy disappointed. If a system of customs duties can be framed +that will set the idle wheels and looms of Europe in motion and crowd our +warehouses with foreign-made goods and at the same time keep our own mills +busy; that will give us an increased participation in the "markets of the +world" of greater value than the home market we surrender; that will give +increased work to foreign workmen upon products to be consumed by our +people without diminishing the amount of work to be done here; that will +enable the American manufacturer to pay to his workmen from 50 to 100 per +cent more in wages than is paid in the foreign mill, and yet to compete in +our market and in foreign markets with the foreign producer; that will +further reduce the cost of articles of wear and food without reducing the +wages of those who produce them; that can be celebrated, after its effects +have been realized, as its expectation has been in European as well as in +American cities, the authors and promoters of it will be entitled to the +highest praise. We have had in our history several experiences of the +contrasted effects of a revenue and of a protective tariff, but this +generation has not felt them, and the experience of one generation is not +highly instructive to the next. The friends of the protective system with +undiminished confidence in the principles they have advocated will await +the results of the new experiment. +</p> + +<p> +The strained and too often disturbed relations existing between the +employees and the employers in our great manufacturing establishments have +not been favorable to a calm consideration by the wage earner of the effect +upon wages of the protective system. The facts that his wages were the +highest paid in like callings in the world and that a maintenance of this +rate of wages in the absence of protective duties upon the product of his +labor was impossible were obscured by the passion evoked by these contests. +He may now be able to review the question in the light of his personal +experience under the operation of a tariff for revenue only. If that +experience shall demonstrate that present rates of wages are thereby +maintained or increased, either absolutely or in their purchasing power, +and that the aggregate volume of work to be done in this country is +increased or even maintained, so that there are more or as many days' work +in a year, at as good or better wages, for the American workmen as has been +the case under the protective system, everyone will rejoice. A general +process of wage reduction can not be contemplated by any patriotic citizen +without the gravest apprehension. It may be, indeed I believe is, possible +for the American manufacturer to compete successfully with his foreign +rival in many branches of production without the defense of protective +duties if the pay rolls are equalized; but the conflict that stands between +the producer and that result and the distress of our working people when it +is attained are not pleasant to contemplate. The Society of the Unemployed, +now holding its frequent and threatening parades in the streets of foreign +cities, should not be allowed to acquire an American domicile. +</p> + +<p> +The reports of the heads of the several Executive Departments, which are +herewith submitted, have very naturally included a resume of the whole work +of the Administration with the transactions of the last fiscal year. The +attention not only of Congress but of the country is again invited to the +methods of administration which have been pursued and to the results which +have been attained. Public revenues amounting to $1,414,079,292.28 have +been collected and disbursed without loss from misappropriation, without a +single defalcation of such importance as to attract the public attention, +and at a diminished per cent of cost for collection. The public business +has been transacted not only with fidelity, but progressively and with a +view to giving to the people in the fullest possible degree the benefits of +a service established and maintained for their protection and comfort. +</p> + +<p> +Our relations with other nations are now undisturbed by any serious +controversy. The complicated and threatening differences with Germany and +England relating to Samoan affairs, with England in relation to the seal +fisheries in the Bering Sea, and with Chile growing out of the Baltimore +affair have been adjusted. +</p> + +<p> +There have been negotiated and concluded, under section 3 of the tariff +law, commercial agreements relating to reciprocal trade with the following +countries: Brazil, Dominican Republic, Spain for Cuba and Puerto Rico, +Guatemala, Salvador, the German Empire, Great Britain for certain West +Indian colonies and British Guiana, Nicaragua, Honduras, and +Austria-Hungary. +</p> + +<p> +Of these, those with Guatemala, Salvador, the German Empire, Great Britain, +Nicaragua, Honduras, and Austria-Hungary have been concluded since my last +annual message. Under these trade arrangements a free or favored admission +has been secured in every case for an important list of American products. +Especial care has been taken to secure markets for farm products, in order +to relieve that great underlying industry of the depression which the lack +of an adequate foreign market for our surplus often brings. An opening has +also been made for manufactured products that will undoubtedly, if this +policy is maintained, greatly augment our export trade. The full benefits +of these arrangements can not be realized instantly. New lines of trade are +to be opened. The commercial traveler must survey the field. The +manufacturer must adapt his goods to the new markets and facilities for +exchange must be established. This work has been well begun, our merchants +and manufacturers having entered the new fields with courage and +enterprise. In the case of food products, and especially with Cuba, the +trade did not need to wait, and the immediate results have been most +gratifying. If this policy and these trade arrangements can be continued in +force and aided by the establishment of American steamship lines, I do not +doubt that we shall within a short period secure fully one-third of the +total trade of the countries of Central and South America, which now +amounts to about $600,000,000 annually. In 1885 we had only 8 per cent of +this trade. +</p> + +<p> +The following statistics show the increase in our trade with the countries +with which we have reciprocal trade agreements from the date when such +agreements went into effect up to September 30, 1892, the increase being in +some almost wholly and in others in an important degree the result of these +agreements: +</p> + +<p> +The domestic exports to Germany and Austria-Hungary have increased in value +from $47,673,756 to $57,993,064, an increase of $10,319,308, or 21.63 per +cent. With American countries the value of our exports has increased from +$44,160,285 to $54,613,598, an increase of $10,453,313, or 23.67 per cent. +The total increase in the value of exports to all the countries with which +we have reciprocity agreements has been $20,772,621. This increase is +chiefly in wheat, flour, meat, and dairy products and in manufactures of +iron and steel and lumber. There has been a large increase in the value of +imports from all these countries since the commercial agreements went into +effect, amounting to $74,294,525, but it has been entirely in imports from +the American countries, consisting mostly of sugar, coffee, india rubber, +and crude drugs. The alarmed attention of our European competitors for the +South American market has been attracted to this new American policy and to +our acquisition and their loss of South American trade. +</p> + +<p> +A treaty providing for the arbitration of the dispute between Great Britain +and the United States as to the killing of seals in the Bering Sea was +concluded on the 29th of February last. This treaty was accompanied by an +agreement prohibiting pelagic sealing pending the arbitration, and a +vigorous effort was made during this season to drive out all poaching +sealers from the Bering Sea. Six naval vessels, three revenue cutters, and +one vessel from the Fish Commission, all under the command of Commander +Evans, of the Navy, were sent into the sea, which was systematically +patrolled. Some seizures were made, and it is believed that the catch in +the Bering Sea by poachers amounted to less than 500 seals. It is true, +however, that in the North Pacific, while the seal herds were on their way +to the passes between the Aleutian Islands, a very large number, probably +35,000, were taken. The existing statutes of the United States do not +restrain our citizens from taking seals in the Pacific Ocean, and perhaps +should not unless the prohibition can be extended to the citizens of other +nations. I recommend that power be given to the President by proclamation +to prohibit the taking of seals in the North Pacific by American vessels in +case, either as the result of the findings of the Tribunal of Arbitration +or otherwise, the restraints can be applied to the vessels of all +countries. The case of the United States for the Tribunal of Arbitration +has been prepared with great care and industry by the Hon. John W. Foster, +and the counsel who represent this Government express confidence that a +result substantially establishing our claims and preserving this great +industry for the benefit of all nations will be attained. +</p> + +<p> +During the past year a suggestion was received through the British minister +that the Canadian government would like to confer as to the possibility of +enlarging upon terms of mutual advantage the commercial exchanges of Canada +and of the United States, and a conference was held at Washington, with Mr. +Blaine acting for this Government and the British minister at this capital +and three members of the Dominion cabinet acting as commissioners on the +part of Great Britain. The conference developed the fact that the Canadian +government was only prepared to offer to the United States in exchange for +the concessions asked the admission of natural products. The statement was +frankly made that favored rates could not be given to the United States as +against the mother country. This admission, which was foreseen, necessarily +terminated the conference upon this question. The benefits of an exchange +of natural products would be almost wholly with the people of Canada. Some +other topics of interest were considered in the conference, and have +resulted in the making of a convention for examining the Alaskan boundary +and the waters of Passamaquoddy Bay adjacent to Eastport, Me., and in the +initiation of an arrangement for the protection of fish life in the +coterminous and neighboring waters of our northern border. +</p> + +<p> +The controversy as to tolls upon the Welland Canal, which was presented to +Congress at the last session by special message, having failed of +adjustment, I felt constrained to exercise the authority conferred by the +act of July 26, 1892, and to proclaim a suspension of the free use of St. +Marys Falls Canal to cargoes in transit to ports in Canada. The Secretary +of the Treasury established such tolls as were thought to be equivalent to +the exactions unjustly levied upon our commerce in the Canadian canals. +</p> + +<p> +If, as we must suppose, the political relations of Canada and the +disposition of the Canadian government are to remain unchanged, a somewhat +radical revision of our trade relations should, I think, be made. Our +relations must continue to be intimate, and they should be friendly. I +regret to say, however, that in many of the controversies, notably those as +to the fisheries on the Atlantic, the sealing interests on the Pacific, and +the canal tolls, our negotiations with Great Britain have continuously been +thwarted or retarded by unreasonable and unfriendly objections and protests +from Canada in the matter of the canal tolls our treaty rights were +flagrantly disregarded. It is hardly too much to say that the Canadian +Pacific and other railway lines which parallel our northern boundary are +sustained by commerce having either its origin or terminus, or both, in the +United States. Canadian railroads compete with those of the United States +for our traffic, and without the restraints of our interstate-commerce act. +Their cars pass almost without detention into and out of our territory. +</p> + +<p> +The Canadian Pacific Railway brought into the United States from China and +Japan via British Columbia during the year ended June 30, 1892, 23,239,689 +pounds of freight, and it carried from the United States, to be shipped to +China and Japan via British Columbia, 24,068,346 pounds of freight. There +were also shipped from the United States over this road from Eastern ports +of the United States to our Pacific ports during the same year 13,912,073 +pounds of freight, and there were received over this road at the United +States Eastern ports from ports on the Pacific Coast 13,293,315 pounds of +freight. Mr. Joseph Nimmo, Jr., former chief of the Bureau of Statistics, +when before the Senate Select Committee on Relations with Canada, April 26, +1890, said that "the value of goods thus transported between different +points in the United States across Canadian territory probably amounts to +$100,000,000 a year." +</p> + +<p> +There is no disposition on the part of the people or Government of the +United States to interfere in the smallest degree with the political +relations of Canada. That question is wholly with her own people. It is +time for us, however, to consider whether, if the present state of things +and trend of things is to continue, our interchanges upon lines of land +transportation should not be put upon a different basis and our entire +independence of Canadian canals and of the St. Lawrence as an outlet to the +sea secured by the construction of an American canal around the Falls of +Niagara and the opening of ship communication between the Great Lakes and +one of our own seaports. We should not hesitate to avail ourselves of our +great natural trade advantages. We should withdraw the support which is +given to the railroads and steamship lines of Canada by a traffic that +properly belongs to us and no longer furnish the earnings which lighten the +otherwise crushing weight of the enormous public subsidies that have been +given to them. The subject of the power of the Treasury to deal with this +matter without further legislation has been under consideration, but +circumstances have postponed a conclusion. It is probable that a +consideration of the propriety of a modification or abrogation of the +article of the treaty of Washington relating to the transit of goods in +bond is involved in any complete solution of the question. +</p> + +<p> +Congress at the last session was kept advised of the progress of the +serious and for a time threatening difference between the United States and +Chile. It gives me now great gratification to report that the Chilean +Government in a most friendly and honorable spirit has tendered and paid as +an indemnity to the families of the sailors of the Baltimore who were +killed and to those who were injured in the outbreak in the city of +Valparaiso the sum of $75,000. This has been accepted not only as an +indemnity for a wrong done, but as a most gratifying evidence that the +Government of Chile rightly appreciates the disposition of this Government +to act in a spirit of the most absolute fairness and friendliness in our +intercourse with that brave people. A further and conclusive evidence of +the mutual respect and confidence now existing is furnished by the fact +that a convention submitting to arbitration the mutual claims of the +citizens of the respective Governments has been agreed upon. Some of these +claims have been pending for many years and have been the occasion of much +unsatisfactory diplomatic correspondence. +</p> + +<p> +I have endeavored in every way to assure our sister Republics of Central +and South America that the United States Government and its people have +only the most friendly disposition toward them all. We do not covet their +territory. We have no disposition to be oppressive or exacting in our +dealings with any of them, even the weakest. Our interests and our hopes +for them all lie in the direction of stable governments by their people and +of the largest development of their great commercial resources. The mutual +benefits of enlarged commercial exchanges and of a more familiar and +friendly intercourse between our peoples we do desire, and in this have +sought their friendly cooperation. +</p> + +<p> +I have believed, however, while holding these sentiments in the greatest +sincerity, that we must insist upon a just responsibility for any injuries +inflicted upon our official representatives or upon our citizens. This +insistence, kindly and justly but firmly made, will, I believe, promote +peace and mutual respect. +</p> + +<p> +Our relations with Hawaii have been such as to attract an increased +interest, and must continue to do so. I deem it of great importance that +the projected submarine cable, a survey for which has been made, should be +promoted. Both for naval and commercial uses we should have quick +communication with Honolulu. We should before this have availed ourselves +of the concession made many years ago to this Government for a harbor and +naval station at Pearl River. Many evidences of the friendliness of the +Hawaiian Government have been given in the past, and it is gratifying to +believe that the advantage and necessity of a continuance of very close +relations is appreciated. +</p> + +<p> +The friendly act of this Government in expressing to the Government of +Italy its reprobation and abhorrence of the lynching of Italian subjects in +New Orleans by the payment of 125,000 francs, or $24,330.90, was accepted +by the King of Italy with every manifestation of gracious appreciation, and +the incident has been highly promotive of mutual respect and good will. +</p> + +<p> +In consequence of the action of the French Government in proclaiming a +protectorate over certain tribal districts of the west coast of Africa +eastward of the San Pedro River, which has long been regarded as the +southeastern boundary of Liberia, I have felt constrained to make protest +against this encroachment upon the territory of a Republic which was +rounded by citizens of the United States and toward which this country has +for many years held the intimate relation of a friendly counselor. +</p> + +<p> +The recent disturbances of the public peace by lawless foreign marauders on +the Mexican frontier have afforded this Government an opportunity to +testify its good will for Mexico and its earnest purpose to fulfill the +obligations of international friendship by pursuing and dispersing the evil +doers. The work of relocating the boundary of the treaty of Guadalupe +Hidalgo westward from El Paso is progressing favorably. +</p> + +<p> +Our intercourse with Spain continues on a friendly footing. I regret, +however, not to be able to report as yet the adjustment of the claims of +the American missionaries arising from the disorders at Ponape, in the +Caroline Islands, but I anticipate a satisfactory adjustment in view of +renewed and urgent representations to the Government at Madrid. +</p> + +<p> +The treatment of the religious and educational establishments of American +citizens in Turkey has of late called for a more than usual share of +attention. A tendency to curtail the toleration which has so beneficially +prevailed is discernible and has called forth the earnest remonstrance of +this Government. Harassing regulations in regard to schools and churches +have been attempted in certain localities, but not without due protest and +the assertion of the inherent and conventional rights of our countrymen. +Violations of domicile and search of the persons and effects of citizens of +the United States by apparently irresponsible officials in the Asiatic +vilayets have from time to time been reported. An aggravated instance of +injury to the property of an American missionary at Bourdour, in the +province of Konia, called forth an urgent claim for reparation, which I am +pleased to say was promptly heeded by the Government of the Porte. +Interference with the trading ventures of our citizens in Asia Minor is +also reported, and the lack of consular representation in that region is a +serious drawback to instant and effective protection. I can not believe +that these incidents represent a settled policy, and shall not cease to +urge the adoption of proper remedies. +</p> + +<p> +International copyright has been extended to Italy by proclamation in +conformity with the act of March 3, 1891, upon assurance being given that +Italian law permits to citizens of the United States the benefit of +copyright on substantially the same basis as to subjects of Italy. By a +special convention proclaimed January 15, 1892, reciprocal provisions of +copyright have been applied between the United States and Germany. +Negotiations are in progress with other countries to the same end. +</p> + +<p> +I repeat with great earnestness the recommendation which I have made in +several previous messages that prompt and adequate support be given to the +American company engaged in the construction of the Nicaragua ship canal. +It is impossible to overstate the value from every standpoint of this great +enterprise, and I hope that there may be time, even in this Congress, to +give to it an impetus that will insure the early completion of the canal +and secure to the United States its proper relation to it when completed. +</p> + +<p> +The Congress has been already advised that the invitations of this +Government for the assembling of an international monetary conference to +consider the question of an enlarged use of silver were accepted by the +nations to which they were addressed. The conference assembled at Brussels +on the 22d of November, and has entered upon the consideration of this +great question. I have not doubted, and have taken occasion to express that +belief as well in the invitations issued for this conference as in my +public messages, that the free coinage of silver upon an agreed +international ratio would greatly promote the interests of our people and +equally those of other nations. It is too early to predict what results may +be accomplished by the conference. If any temporary check or delay +intervenes, I believe that very soon commercial conditions will compel the +now reluctant governments to unite with us in this movement to secure the +enlargement of the volume of coined money needed for the transaction of the +business of the world. +</p> + +<p> +The report of the Secretary of the Treasury will attract especial interest +in view of the many misleading statements that have been made as to the +state of the public revenues. Three preliminary facts should not only be +stated but emphasized before looking into details: First, that the public +debt has been reduced since March 4, 1889, $259,074,200, and the annual +interest charge $11,684,469; second, that there have been paid out for +pensions during this Administration up to November 1, 1892, +$432,564,178.70, an excess of $114,466,386.09 over the sum expended during +the period from March 1, 1885, to March 1, 1889; and, third, that under the +existing tariff up to December 1 about $93,000,000 of revenue which would +have been collected upon imported sugars if the duty had been maintained +has gone into the pockets of the people, and not into the public Treasury, +as before. If there are any who still think that the surplus should have +been kept out of circulation by hoarding it in the Treasury, or deposited +in favored banks without interest while the Government continued to pay to +these very banks interest upon the bonds deposited as security for the +deposits, or who think that the extended pension legislation was a public +robbery, or that the duties upon sugar should have been maintained, I am +content to leave the argument where it now rests while we wait to see +whether these criticisms will take the form of legislation. +</p> + +<p> +The revenues for the fiscal year ending June 30, 1892, from all sources +were $425,868,260.22, and the expenditures for all purposes were +$415,953,806.56, leaving a balance of $9,914,453.66. There were paid during +the year upon the public debt $40,570,467.98. The surplus in the Treasury +and the bank redemption fund passed by the act of July 14, 1890, to the +general fund furnished in large part the cash available and used for the +payments made upon the public debt. Compared with the year 1891, our +receipts from customs duties fell off $42,069,241.08, while our receipts +from internal revenue increased $8,284,823.13, leaving the net loss of +revenue from these principal sources $33,784,417.95. The net loss of +revenue from all sources was $32,675,972.81. +</p> + +<p> +The revenues, estimated and actual, for the fiscal year ending June 30, +1893, are placed by the Secretary at $463,336,350.44, and the expenditures +at $461,336,350.44, showing a surplus of receipts over expenditures of +$2,000,000. The cash balance in the Treasury at the end of the fiscal year +it is estimated will be $20,992,377.03. So far as these figures are based +upon estimates of receipts and expenditures for the remaining months of the +current fiscal year, there are not only the usual elements of uncertainty, +but some added elements. New revenue legislation, or even the expectation +of it, may seriously reduce the public revenues during the period of +uncertainty and during the process of business adjustment to the new +conditions when they become known. But the Secretary has very wisely +refrained from guessing as to the effect of possible changes in our revenue +laws, since the scope of those changes and the time of their taking effect +can not in any degree be forecast or foretold by him. His estimates must be +based upon existing laws and upon a continuance of existing business +conditions, except so far as these conditions may be affected by causes +other than new legislation. +</p> + +<p> +The estimated receipts for the fiscal year ending June 30, 1894, are +$490,121,365.38, and the estimated appropriations $457,261,335.33, leaving +an estimated surplus of receipts over expenditures of $32,860,030.05. This +does not include any payment to the sinking fund. In the recommendation of +the Secretary that the sinking-fund law be repealed I concur. The +redemption of bonds since the passage of the law to June 30, 1892, has +already exceeded the requirements by the sum of $990,510,681.49. The +retirement of bonds in the future before maturity should be a matter of +convenience, not of compulsion. We should not collect revenue for that +purpose, but only use any casual surplus. To the balance of $32,860,030.05 +of receipts over expenditures for the year 1894 should be added the +estimated surplus at the beginning of the year, $20,992,377.03, and from +this aggregate there must be deducted, as stated by the Secretary, about +$44,000,000 of estimated unexpended appropriations. +</p> + +<p> +The public confidence in the purpose and ability of the Government to +maintain the parity of all of our money issues, whether coin or paper, must +remain unshaken. The demand for gold in Europe and the consequent calls +upon us are in a considerable degree the result of the efforts of some of +the European Governments to increase their gold reserves, and these efforts +should be met by appropriate legislation on our part. The conditions that +have created this drain of the Treasury gold are in an important degree +political, and not commercial. In view of the fact that a general revision +of our revenue laws in the near future seems to be probable, it would be +better that any changes should be a part of that revision rather than of a +temporary nature. +</p> + +<p> +During the last fiscal year the Secretary purchased under the act of July +14, 1890, 54,355,748 ounces of silver and issued in payment therefor +$51,106,608 in notes. The total purchases since the passage of the act have +been 120,479,981 ounces and the aggregate of notes issued $116,783,590. The +average price paid for silver during the year was 94 cents per ounce, the +highest price being $1.02 3/4 July 1, 1891, and the lowest 83 cents March +21, 1892. In view of the fact that the monetary conference is now sitting +and that no conclusion has yet been reached, I withhold any recommendation +as to legislation upon this subject. +</p> + +<p> +The report of the Secretary of War brings again to the attention of +Congress some important suggestions as to the reorganization of the +infantry and artillery arms of the service, which his predecessors have +before urgently presented. Our Army is small, but its organization should +all the more be put upon the most approved modern basis. The conditions +upon what we have called the "frontier" have heretofore required the +maintenance of many small posts, but now the policy of concentration is +obviously the right one. The new posts should have the proper strategic +relations to the only "frontiers" we now have--those of the seacoast and of +our northern and part of our southern boundary. I do not think that any +question of advantage to localities or to States should determine the +location of the new posts. The reorganization and enlargement of the Bureau +of Military Information which the Secretary has effected is a work the +usefulness of which will become every year more apparent. The work of +building heavy guns and the construction of coast defenses has been well +begun and should be carried on without check. +</p> + +<p> +The report of the Attorney-General is by law submitted directly to +Congress, but I can not refrain from saying that he has conducted the +increasing work of the Department of Justice with great professional skill. +He has in several directions secured from the courts decisions giving +increased protection to the officers of the United States and bringing some +classes of crime that escaped local cognizance and punishment into the +tribunals of the United States, where they could be tried with +impartiality. +</p> + +<p> +The numerous applications for Executive clemency presented in behalf of +persons convicted in United States courts and given penitentiary sentences +have called my attention to a fact referred to by the Attorney-General in +his report, namely, that a time allowance for good behavior for such +prisoners is prescribed by the Federal statutes only where the State in +which the penitentiary is located has made no such provision. Prisoners are +given the benefit of the provisions of the State law regulating the +penitentiary to which they may be sent. These are various, some perhaps too +liberal and some perhaps too illiberal. The result is that a sentence for +five years means one thing if the prisoner is sent to one State for +confinement and quite a different thing if he is sent to another. I +recommend that a uniform credit for good behavior be prescribed by +Congress. +</p> + +<p> +I have before expressed my concurrence in the recommendation of the +Attorney-General that degrees of murder should be recognized in the Federal +statutes, as they are, I believe, in all the States. These grades are +rounded on correct distinctions in crime. The recognition of them would +enable the courts to exercise some discretion in apportioning punishment +and would greatly relieve the Executive of what is coming to be a very +heavy burden--the examination of these cases on application for +commutation. +</p> + +<p> +The aggregate of claims pending against the Government in the Court of +Claims is enormous. Claims to the amount of nearly $400,000,000 for the +taking of or injury to the property of persons claiming to be loyal during +the war are now before that court for examination. When to these are added +the Indian depredation claims and the French spoliation claims, an +aggregate is reached that is indeed startling. In the defense of all these +cases the Government is at great disadvantage. The claimants have preserved +their evidence, whereas the agents of the Government are sent into the +field to rummage for what they can find. This difficulty is peculiarly +great where the fact to be established is the disloyalty of the claimant +during the war. If this great threat against our revenues is to have no +other check, certainly Congress should supply the Department of Justice +with appropriations sufficiently liberal to secure the best legal talent in +the defense of these claims and to pursue its vague search for evidence +effectively. +</p> + +<p> +The report of the Postmaster-General shows a most gratifying increase and a +most efficient and progressive management of the great business of that +Department. The remarkable increase in revenues, in the number of +post-offices, and in the miles of mail carriage furnishes further evidence +of the high state of prosperity which our people are enjoying. New offices +mean new hamlets and towns, new routes mean the extension of our border +settlements, and increased revenues mean an active commerce. The +Postmaster-General reviews the whole period of his administration of the +office and brings some of his statistics down to the month of November +last. The postal revenues have increased during the last year nearly +$5,000,000. The deficit for the year ending June 30, 1892, is $848,341 less +than the deficiency of the preceding year. The deficiency of the present +fiscal year it is estimated will be reduced to $1,552,423, which will not +only be extinguished during the next fiscal year but a surplus of nearly +$1,000,000 should then be shown. In these calculations the payments to be +made under the contracts for ocean mail service have not been included. +There have been added 1,590 new mail routes during the year, with a mileage +of 8,563 miles, and the total number of new miles of mail trips added +during the year is nearly 17,000,000. The number of miles of mail journeys +added during the last four years is about 76,000,000, this addition being +21,000,000 miles more than were in operation in the whole country in 1861. +</p> + +<p> +The number of post-offices has been increased by 2,790 during the year, and +during the past four years, and up to October 29 last, the total increase +in the number of offices has been nearly 9,000. The number of free-delivery +offices has been nearly doubled in the last four years, and the number of +money-order offices more than doubled within that time. +</p> + +<p> +For the three years ending June 30, 1892, the postal revenue amounted to +$197,744,359, which was an increase of $52,263,150 over the revenue for the +three years ending June 30, 1888, the increase during the last three years +being more than three and a half times as great as the increase during the +three years ending June 30, 1888. No such increase as that shown for these +three years has ever previously appeared in the revenues of the Department. +The Postmaster-General has extended to the post-offices in the larger +cities the merit system of promotion introduced by my direction into the +Departments here, and it has resulted there, as in the Departments, in a +larger volume of work and that better done. +</p> + +<p> +Ever since our merchant marine was driven from the sea by the rebel +cruisers during the War of the Rebellion the United States has been paying +an enormous annual tribute to foreign countries in the shape of freight and +passage moneys. Our grain and meats have been taken at our own docks and +our large imports there laid down by foreign shipmasters. An increasing +torrent of American travel to Europe has contributed a vast sum annually to +the dividends of foreign shipowners. The balance of trade shown by the +books of our custom-houses has been very largely reduced and in many years +altogether extinguished by this constant drain. In the year 1892 only 12.3 +per cent of our imports were brought in American vessels. These great +foreign steamships maintained by our traffic are many of them under +contracts with their respective Governments by which in time of war they +will become a part of their armed naval establishments. Profiting by our +commerce in peace, they will become the most formidable destroyers of our +commerce in time of war. I have felt, and have before expressed the +feeling, that this condition of things was both intolerable and +disgraceful. A wholesome change of policy, and one having in it much +promise, as it seems to me, was begun by the law of March 3, 1891. Under +this law contracts have been made by the Postmaster-General for eleven mail +routes. The expenditure involved by these contracts for the next fiscal +year approximates $954,123.33. As one of the results already reached +sixteen American steamships, of an aggregate tonnage of 57,400 tons, +costing $7,400,000, have been built or contracted to be built in American +shipyards. +</p> + +<p> +The estimated tonnage of all steamships required under existing contracts +is 165,802, and when the full service required by these contracts is +established there will be forty-one mail steamers under the American flag, +with the probability of further necessary additions in the Brazilian and +Argentine service. The contracts recently let for transatlantic service +will result in the construction of five ships of 10,000 tons each, costing +$9,000,000 to $10,000,000, and will add, with the City of New York and City +of Paris, to which the Treasury Department was authorized by legislation at +the last session to give American registry, seven of the swiftest vessels +upon the sea to our naval reserve. The contracts made with the lines +sailing to Central and South American ports have increased the frequency +and shortened the time of the trips, added new ports of call, and sustained +some lines that otherwise would almost certainly have been withdrawn. The +service to Buenos Ayres is the first to the Argentine Republic under the +American flag. The service to Southampton, Boulogne, and Antwerp is also +new, and is to be begun with the steamships City of New York and City of +Paris in February next. +</p> + +<p> +I earnestly urge the continuance of the policy inaugurated by this +legislation, and that the appropriations required to meet the obligations +of the Government under the contracts may be made promptly, so that the +lines that have entered into these engagements may not be embarrassed. We +have had, by reason of connections with the transcontinental railway lines +constructed through our own territory, some advantages in the ocean trade +of the Pacific that we did not possess on the Atlantic. The construction of +the Canadian Pacific Railway and the establishment under large subventions +from Canada and England of fast steamship service from Vancouver with Japan +and China seriously threaten our shipping interests in the Pacific. This +line of English steamers receives, as is stated by the Commissioner of +Navigation, a direct subsidy of $400,000 annually, or $30,767 per trip for +thirteen voyages, in addition to some further aid from the Admiralty in +connection with contracts under which the vessels may be used for naval +purposes. The competing American Pacific mail line under the act of March +3, 1891, receives only $6,389 per round trip. +</p> + +<p> +Efforts have been making within the last year, as I am informed, to +establish under similar conditions a line between Vancouver and some +Australian port, with a view of seizing there a trade in which we have had +a large interest. The Commissioner of Navigation states that a very large +per cent of our imports from Asia are now brought to us by English +steamships and their connecting railways in Canada. With a view of +promoting this trade, especially in tea, Canada has imposed a +discriminating duty of 10 per cent upon tea and coffee brought into the +Dominion from the United States. If this unequal contest between American +lines without subsidy, or with diminished subsidies, and the English +Canadian line to which I have referred is to continue, I think we should at +least see that the facilities for customs entry and transportation across +our territory are not such as to make the Canadian route a favored one, and +that the discrimination as to duties to which I have referred is met by a +like discrimination as to the importation of these articles from Canada. +</p> + +<p> +No subject, I think, more nearly touches the pride, the power, and the +prosperity of our country than this of the development of our merchant +marine upon the sea. If we could enter into conference with other +competitors and all would agree to withhold government aid, we could +perhaps take our chances with the rest; but our great competitors have +established and maintained their lines by government subsidies until they +now have practically excluded us from participation. In my opinion no +choice is left to us but to pursue, moderately at least, the same lines. +</p> + +<p> +The report of the Secretary of the Navy exhibits great progress in the +construction of our new Navy. When the present Secretary entered upon his +duties, only 3 modern steel vessels were in commission. The vessels since +put in commission and to be put in commission during the winter will make a +total of 19 during his administration of the Department. During the current +year 10 war vessels and 3 navy tugs have been launched, and during the four +years 25 vessels will have been launched. Two other large ships and a +torpedo boat are under contract and the work upon them well advanced, and +the 4 monitors are awaiting only the arrival of their armor, which has been +unexpectedly delayed, or they would have been before this in commission. +</p> + +<p> +Contracts have been let during this Administration, under the +appropriations for the increase of the Navy, including new vessels and +their appurtenances, to the amount of $35,000,000, and there has been +expended during the same period for labor at navy-yards upon similar work +$8,000,000 without the smallest scandal or charge of fraud or partiality. +The enthusiasm and interest of our naval officers, both of the staff and +line, have been greatly kindled. They have responded magnificently to the +confidence of Congress and have demonstrated to the world an unexcelled +capacity in construction, in ordnance, and in everything involved in the +building, equipping, and sailing of great war ships. +</p> + +<p> +At the beginning of Secretary Tracy's administration several difficult +problems remained to be grappled with and solved before the efficiency in +action of our ships could be secured. It is believed that as the result of +new processes in the construction of armor plate our later ships will be +clothed with defensive plates of higher resisting power than are found on +any war vessels afloat. We were without torpedoes. Tests have been made to +ascertain the relative efficiency of different constructions, a torpedo has +been adopted, and the work of construction is now being carried on +successfully. We were without armor-piercing shells and without a shop +instructed and equipped for the construction of them. We are now making +what is believed to be a projectile superior to any before in use. A +smokeless powder has been developed and a slow-burning powder for guns of +large caliber. A high explosive capable of use in shells fired from service +guns has been found, and the manufacture of gun cotton has been developed +so that the question of supply is no longer in doubt. +</p> + +<p> +The development of a naval militia, which has been organized in eight +States and brought into cordial and cooperative relations with the Navy, is +another important achievement. There are now enlisted in these +organizations 1,800 men, and they are likely to be greatly extended. I +recommend such legislation and appropriations as will encourage and develop +this movement. The recommendations of the Secretary will, I do not doubt, +receive the friendly consideration of Congress, for he has enjoyed, as he +has deserved, the confidence of all those interested in the development of +our Navy, without any division upon partisan lines. I earnestly express the +hope that a work which has made such noble progress may not now be stayed. +The wholesome influence for peace and the increased sense of security which +our citizens domiciled in other lands feel when these magnificent ships +under the American flag appear is already most gratefully apparent. The +ships from our Navy which will appear in the great naval parade next April +in the harbor of New York will be a convincing demonstration to the world +that the United States is again a naval power. +</p> + +<p> +The work of the Interior Department, always very burdensome, has been +larger than ever before during the administration of Secretary Noble. The +disability-pension law, the taking of the Eleventh Census, the opening of +vast areas of Indian lands to settlement, the organization of Oklahoma, and +the negotiations for the cession of Indian lands furnish some of the +particulars of the increased work, and the results achieved testify to the +ability, fidelity, and industry of the head of the Department and his +efficient assistants. +</p> + +<p> +Several important agreements for the cession of Indian lands negotiated by +the commission appointed under the act of March 2, 1889, are awaiting the +action of Congress. Perhaps the most important of these is that for the +cession of the Cherokee Strip. This region has been the source of great +vexation to the executive department and of great friction and unrest +between the settlers who desire to occupy it and the Indians who assert +title. The agreement which has been made by the commission is perhaps the +most satisfactory that could have been reached. It will be noticed that it +is conditioned upon its ratification by Congress before March 4, 1893. The +Secretary of the Interior, who has given the subject very careful thought, +recommends the ratification of the agreement, and I am inclined to follow +his recommendation. Certain it is that some action by which this +controversy shall be brought to an end and these lands opened to settlement +is urgent. +</p> + +<p> +The form of government provided by Congress on May 17, 1884, for Alaska was +in its frame and purpose temporary. The increase of population and the +development of some important mining and commercial interests make it +imperative that the law should be revised and better provision made for the +arrest and punishment of criminals. +</p> + +<p> +The report of the Secretary shows a very gratifying state of facts as to +the condition of the General Land Office. The work of issuing agricultural +patents, which seemed to be hopelessly in arrear when the present Secretary +undertook the duties of his office, has been so expedited that the bureau +is now upon current business. The relief thus afforded to honest and worthy +settlers upon the public lands by giving to them an assured title to their +entries has been of incalculable benefit in developing the new States and +the Territories. +</p> + +<p> +The Court of Private Land Claims, established by Congress for the promotion +of this policy of speedily settling contested land titles, is making +satisfactory progress in its work, and when the work is completed a great +impetus will be given to the development of those regions where unsettled +claims under Mexican grants have so long exercised their repressive +influence. When to these results are added the enormous cessions of Indian +lands which have been opened to settlement, aggregating during this +Administration nearly 26,000,000 acres, and the agreements negotiated and +now pending in Congress for ratification by which about 10,000,000 +additional acres will be opened to settlement, it will be seen how much has +been accomplished. +</p> + +<p> +The work in the Indian Bureau in the execution of the policy of recent +legislation has been largely directed to two chief purposes: First, the +allotment of lands in severalty to the Indians and the cession to the +United States of the surplus lands, and, secondly, to the work of educating +the Indian for his own protection in his closer contact with the white man +and for the intelligent exercise of his new citizenship. Allotments have +been made and patents issued to 5,900 Indians under the present Secretary +and Commissioner, and 7,600 additional allotments have been made for which +patents are now in process of preparation. The school attendance of Indian +children has been increased during that time over 13 per cent, the +enrollment for 1892 being nearly 20,000. A uniform system of school +text-books and of study has been adopted and the work in these national +schools brought as near as may be to the basis of the free common schools +of the States. These schools can be transferred and merged into the +common-school systems of the States when the Indian has fully assumed his +new relation to the organized civil community in which he resides and the +new States are able to assume the burden. I have several times been called +upon to remove Indian agents appointed by me, and have done so promptly +upon every sustained complaint of unfitness or misconduct. I believe, +however, that the Indian service at the agencies has been improved and is +now administered on the whole with a good degree of efficiency. If any +legislation is possible by which the selection of Indian agents can be +wholly removed from all partisan suggestions or considerations, I am sure +it would be a great relief to the Executive and a great benefit to the +service. The appropriation for the subsistence of the Cheyenne and Arapahoe +Indians made at the last session of Congress was inadequate. This smaller +appropriation was estimated for by the Commissioner upon the theory that +the large fund belonging to the tribe in the public Treasury could be and +ought to be used for their support. In view, however, of the pending +depredation claims against this fund and other considerations, the +Secretary of the Interior on the 12th of April last submitted a +supplemental estimate for $50,000. This appropriation was not made, as it +should have been, and the oversight ought to be remedied at the earliest +possible date. +</p> + +<p> +In a special message to this Congress at the last session, I stated the +reasons why I had not approved the deed for the release to the United +States by the Choctaws and Chickasaws of the lands formerly embraced in the +Cheyenne and Arapahoe Reservation and remaining after allotments to that +tribe. A resolution of the Senate expressing the opinion of that body that +notwithstanding the facts stated in my special message the deed should be +approved and the money, $2,991,450, paid over was presented to me May 10, +1892. My special message was intended to call the attention of Congress to +the subject, and in view of the fact that it is conceded that the +appropriation proceeded upon a false basis as to the amount of lands to be +paid for and is by $50,000 in excess of the amount they are entitled to +(even if their claim to the land is given full recognition at the rate +agreed upon), I have not felt willing to approve the deed, and shall not do +so, at least until both Houses of Congress have acted upon the subject. It +has been informally proposed by the claimants to release this sum of +$50,000, but I have no power to demand or accept such a release, and such +an agreement would be without consideration and void. +</p> + +<p> +I desire further to call the attention of Congress to the fact that the +recent agreement concluded with the Kiowas and Comanches relates to lands +which were a part of the "leased district," and to which the claim of the +Choctaws and Chickasaws is precisely that recognized by Congress in the +legislation I have referred to. The surplus lands to which this claim would +attach in the Kiowa and Comanche Reservation is 2,500,000 acres, and at the +same rate the Government will be called upon to pay to the Choctaws and +Chickasaws for these lands $3,125,000. This sum will be further augmented, +especially if the title of the Indians to the tract now Greet County, Tex., +is established. The duty devolved upon me in this connection was simply to +pass upon the form of the deed; but as in my opinion the facts mentioned in +my special message were not adequately brought to the attention of Congress +in connection with the legislation, I have felt that I would not be +justified in acting without some new expression of the legislative will. +</p> + +<p> +The report of the Commissioner of Pensions, to which extended notice is +given by the Secretary of the Interior in his report, will attract great +attention. Judged by the aggregate amount of work done, the last year has +been the greatest in the history of the office. I believe that the +organization of the office is efficient and that the work has been done +with fidelity. The passage of what is known as the disability bill has, as +was foreseen, very largely increased the annual disbursements to the +disabled veterans of the Civil War. The estimate for this fiscal year was +$144,956,000, and that amount was appropriated. A deficiency amounting to +$10,508,621 must be provided for at this session. The estimate for pensions +for the fiscal year ending June 30, 1894, is $165,000,000. The Commissioner +of Pensions believes that if the present legislation and methods are +maintained and further additions to the pension laws are not made the +maximum expenditure for pensions will be reached June 30, 1894, and will be +at the highest point $188,000,000 per annum. +</p> + +<p> +I adhere to the views expressed in previous messages that the care of the +disabled soldiers of the War of the Rebellion is a matter of national +concern and duty. Perhaps no emotion cools sooner than that of gratitude, +but I can not believe that this process has yet reached a point with our +people that would sustain the policy of remitting the care of these +disabled veterans to the inadequate agencies provided by local laws. The +parade on the 20th of September last upon the streets of this capital of +60,000 of the surviving Union veterans of the War of the Rebellion was a +most touching and thrilling episode, and the rich and gracious welcome +extended to them by the District of Columbia and the applause that greeted +their progress from tens of thousands of people from all the States did +much to revive the glorious recollections of the Grand Review when these +men and many thousand others now in their graves were welcomed with +grateful joy as victors in a struggle in which the national unity, honor, +and wealth were all at issue. +</p> + +<p> +In my last annual message I called attention to the fact that some +legislative action was necessary in order to protect the interests of the +Government in its relations with the Union Pacific Railway. The +Commissioner of Railroads has submitted a very full report, giving exact +information as to the debt, the liens upon the company's property, and its +resources. We must deal with the question as we find it and take that +course which will under existing conditions best secure the interests of +the United States. I recommended in my last annual message that a +commission be appointed to deal with this question, and I renew that +recommendation and suggest that the commission be given full power. +</p> + +<p> +The report of the Secretary of Agriculture contains not only a most +interesting statement of the progressive and valuable work done under the +administration of Secretary Rusk, but many suggestions for the enlarged +usefulness of this important Department. In the successful efforts to break +down the restrictions to the free introduction of our meat products in the +countries of Europe the Secretary has been untiring from the first, +stimulating and aiding all other Government officers at home and abroad +whose official duties enabled them to participate in the work. The total +trade in hog products with Europe in May, 1892, amounted to 82,000,000 +pounds, against 46,900,000 in the same month of 1891; in June, 1892, the +export aggregated 85,700,000 pounds, against 46,500,000 pounds in the same +month of the previous year; in July there was an increase of 41 per cent +and in August of 55 per cent over the corresponding months of 1891. Over +40,000,000 pounds of inspected pork have been exported since the law was +put into operation, and a comparison of the four months of May, June, July, +and August, 1892, with the same months of 1891 shows an increase in the +number of pounds of our export of pork products of 62 per cent and an +increase in value of 66 1/2 per cent. The exports of dressed beef increased +from 137,900,000 pounds in 1889 to 220,500,000 pounds in 1892 or about 60 +per cent. During the past year there have been exported 394,607 head of +live cattle, as against 205,786 exported in 1889. This increased +exportation has been largely promoted by the inspection authorized by law +and the faithful efforts of the Secretary and his efficient subordinates to +make that inspection thorough and to carefully exclude from all cargoes +diseased or suspected cattle. The requirement of the English regulations +that live cattle arriving from the United States must be slaughtered at the +docks had its origin in the claim that pleuro-pneumonia existed among +American cattle and that the existence of the disease could only certainly +be determined by a post mortem inspection. +</p> + +<p> +The Department of Agriculture has labored with great energy and +faithfulness to extirpate this disease, and on the 26th day of September +last a public announcement was made by the Secretary that the disease no +longer existed anywhere within the United States. He is entirely satisfied +after the most searching inquiry that this statement was justified, and +that by a continuance of the inspection and quarantine now required of +cattle brought into this country the disease can be prevented from again +getting any foothold. The value to the cattle industry of the United States +of this achievement can hardly be estimated. We can not, perhaps, at once +insist that this evidence shall be accepted as satisfactory by other +countries; but if the present exemption from the disease is maintained and +the inspection of our cattle arriving at foreign ports, in which our own +veterinarians participate, confirms it, we may justly expect that the +requirement that our cattle shall be slaughtered at the docks will be +revoked, as the sanitary restrictions upon our pork products have been. If +our cattle can be taken alive to the interior, the trade will be enormously +increased. +</p> + +<p> +Agricultural products constituted 78.1 per cent of our unprecedented +exports for the fiscal year which closed June 30, 1892, the total exports +being $1,030,278,030 and the value of the agricultural products +$793,717,676, which exceeds by more than $150,000,000 the shipment of +agricultural products in any previous year. +</p> + +<p> +An interesting and a promising work for the benefit of the American farmer +has been begun through agents of the Agricultural Department in Europe, and +consists in efforts to introduce the various products of Indian corn as +articles of human food. The high price of rye offered a favorable +opportunity for the experiment in Germany of combining corn meal with rye +to produce a cheaper bread. A fair degree of success has been attained, and +some mills for grinding corn for food have been introduced. The Secretary +is of the opinion that this new use of the products of corn has already +stimulated exportations, and that if diligently prosecuted large and +important markets can presently be opened for this great American product. +</p> + +<p> +The suggestions of the Secretary for an enlargement of the work of the +Department are commended to your favorable consideration. It may, I think, +be said without challenge that in no corresponding period has so much been +done as during the last four years for the benefit of American +agriculture. +</p> + +<p> +The subject of quarantine regulations, inspection, and control was brought +suddenly to my attention by the arrival at our ports in August last of +vessels infected with cholera. Quarantine regulations should be uniform at +all our ports. Under the Constitution they are plainly within the exclusive +Federal jurisdiction when and so far as Congress shall legislate. In my +opinion the whole subject should be taken into national control and +adequate power given to the Executive to protect our people against plague +invasions. On the 1st of September last I approved regulations establishing +a twenty-day quarantine for all vessels bringing immigrants from foreign +ports. This order will be continued in force. Some loss and suffering have +resulted to passengers, but a due care for the homes of our people +justifies in such cases the utmost precaution. There is danger that with +the coming of spring cholera will again appear, and a liberal appropriation +should be made at this session to enable our quarantine and port officers +to exclude the deadly plague. +</p> + +<p> +But the most careful and stringent quarantine regulations may not be +sufficient absolutely to exclude the disease. The progress of medical and +sanitary science has been such, however, that if approved precautions are +taken at once to put all of our cities and towns in the best sanitary +condition, and provision is made for isolating any sporadic cases and for a +thorough disinfection, an epidemic can, I am sure, be avoided. This work +appertains to the local authorities, and the responsibility and the penalty +will be appalling if it is neglected or unduly delayed. +</p> + +<p> +We are peculiarly subject in our great ports to the spread of infectious +diseases by reason of the fact that unrestricted immigration brings to us +out of European cities, in the overcrowded steerages of great steamships, a +large number of persons whose surroundings make them the easy victims of +the plague. This consideration, as well as those affecting the political, +moral, and industrial interests of our country, leads me to renew the +suggestion that admission to our country and to the high privileges of its +citizenship should be more restricted and more careful. We have, I think, a +right and owe a duty to our own people, and especially to our working +people, not only to keep out the vicious, the ignorant, the civil +disturber, the pauper, and the contract laborer, but to check the too great +flow of immigration now coming by further limitations. +</p> + +<p> +The report of the World's Columbian Exposition has not yet been submitted. +That of the board of management of the Government exhibit has been received +and is herewith transmitted. The work of construction and of preparation +for the opening of the exposition in May next has progressed most +satisfactorily and upon a scale of liberality and magnificence that will +worthily sustain the honor of the United States. +</p> + +<p> +The District of Columbia is left by a decision of the supreme court of the +District without any law regulating the liquor traffic. An old statute of +the legislature of the District relating to the licensing of various +vocations has hitherto been treated by the Commissioners as giving them +power to grant or refuse licenses to sell intoxicating liquors and as +subjecting those who sold without licenses to penalties; but in May last +the supreme court of the District held against this view of the powers of +the Commissioners. It is of urgent importance, therefore, that Congress +should supply, either by direct enactment or by conferring discretionary +powers upon the Commissioners, proper limitations and restraints upon the +liquor traffic in the District. The District has suffered in its reputation +by many crimes of violence, a large per cent of them resulting from +drunkenness and the liquor traffic. The capital of the nation should be +freed from this reproach by the enactment of stringent restrictions and +limitations upon the traffic. +</p> + +<p> +In renewing the recommendation which I have made in three preceding annual +messages that Congress should legislate for the protection of railroad +employees against the dangers incident to the old and inadequate methods of +braking and coupling which are still in use upon freight trains, I do so +with the hope that this Congress may take action upon the subject. +Statistics furnished by the Interstate Commerce Commission show that during +the year ending June 30, 1891, there were forty-seven different styles of +car couplers reported to be in use, and that during the same period there +were 2,660 employees killed and 26,140 injured. Nearly 16 per cent of the +deaths occurred in the coupling and uncoupling of cars and over 36 per cent +of the injuries had the same origin. +</p> + +<p> +The Civil Service Commission ask for an increased appropriation for needed +clerical assistance, which I think should be given. I extended the +classified service March 1, 1892, to include physicians, superintendents, +assistant superintendents, school-teachers, and matrons in the Indian +service, and have had under consideration the subject of some further +extensions, but have not as yet fully determined the lines upon which +extensions can most properly and usefully be made. +</p> + +<p> +I have in each of the three annual messages which it has been my duty to +submit to Congress called attention to the evils and dangers connected with +our election methods and practices as they are related to the choice of +officers of the National Government. In my last annual message I endeavored +to invoke serious attention to the evils of unfair apportionments for +Congress. I can not close this message without again calling attention to +these grave and threatening evils. I had hoped that it was possible to +secure a nonpartisan inquiry by means of a commission into evils the +existence of which is known to all, and that out of this might grow +legislation from which all thought of partisan advantage should be +eliminated and only the higher thought appear of maintaining the freedom +and purity of the ballot and the equality of the elector, without the +guaranty of which the Government could never have been formed and without +the continuance of which it can not continue to exist in peace and +prosperity. +</p> + +<p> +It is time that mutual charges of unfairness and fraud between the great +parties should cease and that the sincerity of those who profess a desire +for pure and honest elections should be brought to the test of their +willingness to free our legislation and our election methods from +everything that tends to impair the public confidence in the announced +result. The necessity for an inquiry and for legislation by Congress upon +this subject is emphasized by the fact that the tendency of the legislation +in some States in recent years has in some important particulars been away +from and not toward free and fair elections and equal apportionments. Is it +not time that we should come together upon the high plane of patriotism +while we devise methods that shall secure the right of every man qualified +by law to cast a free ballot and give to every such ballot an equal value +in choosing our public officers and in directing the policy of the +Government? +</p> + +<p> +Lawlessness is not less such, but more, where it usurps the functions of +the peace officer and of the courts. The frequent lynching of colored +people accused of crime is without the excuse, which has sometimes been +urged by mobs for a failure to pursue the appointed methods for the +punishment of crime, that the accused have an undue influence over courts +and juries. Such acts are a reproach to the community where they occur, and +so far as they can be made the subject of Federal jurisdiction the +strongest repressive legislation is demanded. A public sentiment that will +sustain the officers of the law in resisting mobs and in protecting accused +persons in their custody should be promoted by every possible means. The +officer who gives his life in the brave discharge of this duty is worthy of +special honor. No lesson needs to be so urgently impressed upon our people +as this, that no worthy end or cause can be promoted by lawlessness. +</p> + +<p> +This exhibit of the work of the Executive Departments is submitted to +Congress and to the public in the hope that there will be found in it a due +sense of responsibility and an earnest purpose to maintain the national +honor and to promote the happiness and prosperity of all our people, and +this brief exhibit of the growth and prosperity of the country will give us +a level from which to note the increase or decadence that new legislative +policies may bring to us. There is no reason why the national influence, +power, and prosperity should not observe the same rates of increase that +have characterized the past thirty years. We carry the great impulse and +increase of these years into the future. There is no reason why in many +lines of production we should not surpass all other nations, as we have +already done in some. There are no near frontiers to our possible +development. Retrogression would be a crime. +</p> + +<p class="noindent"> +BENJ. HARRISON +</p> + +<p><br /><br /><br /><br /></p> + + + + + + + + +<pre> + + + + + +End of the Project Gutenberg EBook of State of the Union Addresses of +Benjamin Harrison, by Benjamin Harrison + +*** END OF THIS PROJECT GUTENBERG EBOOK STATE OF THE UNION ADDRESSES *** + +***** This file should be named 5030-h.htm or 5030-h.zip ***** +This and all associated files of various formats will be found in: + http://www.gutenberg.org/5/0/3/5030/ + +Produced by James Linden. HTML version by Al Haines. +Updated editions will replace the previous one--the old editions will +be renamed. + +Creating the works from print editions not protected by U.S. copyright +law means that no one owns a United States copyright in these works, +so the Foundation (and you!) can copy and distribute it in the United +States without permission and without paying copyright +royalties. 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You may copy it, give it away or re-use it under the terms of +the Project Gutenberg License included with this eBook or online at +www.gutenberg.org. If you are not located in the United States, you'll have +to check the laws of the country where you are located before using this ebook. + +Title: State of the Union Addresses of Benjamin Harrison + +Author: Benjamin Harrison + +Posting Date: December 3, 2014 [EBook #5030] +Release Date: February, 2004 +First Posted: April 11, 2002 +Last Updated: December 16, 2004 + +Language: English + +Character set encoding: ASCII + +*** START OF THIS PROJECT GUTENBERG EBOOK STATE OF THE UNION ADDRESSES *** + + + + +Produced by James Linden. HTML version by Al Haines. + + + + + + + + +State of the Union Addresses of Benjamin Harrison + + +The addresses are separated by three asterisks: *** + +Dates of addresses by Benjamin Harrison in this eBook: + + December 3, 1889 + December 1, 1890 + December 9, 1891 + December 6, 1892 + + + +*** + +State of the Union Address +Benjamin Harrison +December 3, 1889 + +To the Senate and House of Representatives: + +There are few transactions in the administration of the Government that are +even temporarily held in the confidence of those charged with the conduct +of the public business. Every step taken is under the observation of an +intelligent and watchful people. The state of the Union is known from day +to day, and suggestions as to needed legislation find an earlier voice than +that which speaks in these annual communications of the President to +Congress. + +Good will and cordiality have characterized our relations and +correspondence with other governments, and the year just closed leaves few +international questions of importance remaining unadjusted. No obstacle is +believed to exist that can long postpone the consideration and adjustment +of the still pending questions upon satisfactory and honorable terms. The +dealings of this Government with other states have been and should always +be marked by frankness and sincerity, our purposes avowed, and our methods +free from intrigue. This course has borne rich fruit in the past, and it is +our duty as a nation to preserve the heritage of good repute which a +century of right dealing with foreign governments has secured to us. + +It is a matter of high significance and no less of congratulation that the +first year of the second century of our constitutional existence finds as +honored guests within our borders the representatives of all the +independent States of North and South America met together in earnest +conference touching the best methods of perpetuating and expanding the +relations of mutual interest and friendliness existing among them. That the +opportunity thus afforded for promoting closer international relations and +the increased prosperity of the States represented will be used for the +mutual good of all I can not permit myself to doubt. Our people will await +with interest and confidence the results to flow from so auspicious a +meeting of allied and in large part identical interests. + +The recommendations of this international conference of enlightened +statesmen will doubtless have the considerate attention of Congress and its +cooperation in the removal of unnecessary barriers to beneficial +intercourse between the nations of America. But while the commercial +results which it is hoped will follow this conference are worthy of pursuit +and of the great interests they have excited, it is believed that the +crowning benefit will be found in the better securities which may be +devised for the maintenance of peace among all American nations and the +settlement of all contentions by methods that a Christian civilization can +approve. While viewing with interest our national resources and products, +the delegates will, I am sure, find a higher satisfaction in the evidences +of unselfish friendship which everywhere attend their intercourse with our +people. + +Another international conference having great possibilities for good has +lately assembled and is now in session in this capital. An invitation was +extended by the Government, under the act of Congress of July 9, 1888, to +all maritime nations to send delegates to confer touching the revision and +amendment of the rules and regulations governing vessels at sea and to +adopt a uniform system of marine signals. The response to this invitation +has been very general and very cordial. Delegates from twenty-six nations +are present in the conference, and they have entered upon their useful work +with great zeal and with an evident appreciation of its importance. So far +as the agreement to be reached may require legislation to give it effect, +the cooperation of Congress is confidently relied upon. + +It is an interesting, if not, indeed, an unprecedented, fact that the two +international conferences have brought together here the accredited +representatives of thirty-three nations. + +Bolivia, Ecuador, and Honduras are now represented by resident envoys of +the plenipotentiary grade. All the States of the American system now +maintain diplomatic representation at this capital. + +In this connection it may be noted that all the nations of the Western +Hemisphere, with one exception, send to Washington envoys extraordinary and +ministers plenipotentiary, being the highest grade accredited to this +Government. The United States, on the contrary, sends envoys of lower +grades to some of our sister Republics. Our representative in Paraguay and +Uruguay is a minister resident, while to Bolivia we send a minister +resident and consul-general. In view of the importance of our relations +with the States of the American system, our diplomatic agents in those +countries should be of the uniform rank of envoy extraordinary and minister +plenipotentiary. Certain missions were so elevated by the last Congress +with happy effect, and I recommend the completion of the reform thus begun, +with the inclusion also of Hawaii and Hayti, in view of their relations to +the American system of states. + +I also recommend that timely provision be made for extending to Hawaii an +invitation to be represented in the international conference now sitting at +this capital. + +Our relations with China have the attentive consideration which their +magnitude and interest demand. The failure of the treaty negotiated under +the Administration of my predecessor for the further and more complete +restriction of Chinese labor immigration, and with it the legislation of +the last session of Congress dependent thereon, leaves some questions open +which Congress should now approach in that wise and just spirit which +should characterize the relations of two great and friendly powers. While +our supreme interests demand the exclusion of a laboring element which +experience has shown to be incompatible with our social life, all steps to +compass this imperative need should be accompanied with a recognition of +the claim of those strangers now lawfully among us to humane and just +treatment. + +The accession of the young Emperor of China marks, we may hope, an era of +progress and prosperity for the great country over which he is called to +rule. + +The present state of affairs in respect to the Samoan Islands is +encouraging. The conference which was held in this city in the summer of +1887 between the representatives of the United States, Germany, and Great +Britain having been adjourned because of the persistent divergence of views +which was developed in its deliberations, the subsequent course of events +in the islands gave rise to questions of a serious character. On the 4th of +February last the German minister at this capital, in behalf of his +Government, proposed a resumption of the conference at Berlin. This +proposition was accepted, as Congress in February last was informed. + +Pursuant to the understanding thus reached, commissioners were appointed by +me, by and with the advice and consent of the Senate, who proceeded to +Berlin, where the conference was renewed. The deliberations extended +through several weeks, and resulted in the conclusion of a treaty which +will be submitted to the Senate for its approval. I trust that the efforts +which have been made to effect an adjustment of this question will be +productive of the permanent establishment of law and order in Samoa upon +the basis of the maintenance of the rights and interests of the natives as +well as of the treaty powers. + +The questions which have arisen during the past few years between Great +Britain and the United States are in abeyance or in course of amicable +adjustment. + +On the part of the government of the Dominion of Canada an effort has been +apparent during the season just ended to administer the laws and +regulations applicable to the fisheries with as little occasion for +friction as was possible, and the temperate representations of this +Government in respect of cases of undue hardship or of harsh +interpretations have been in most cases met with measures of transitory +relief. It is trusted that the attainment of our just rights under existing +treaties and in virtue of the concurrent legislation of the two contiguous +countries will not be long deferred and that all existing causes of +difference may be equitably adjusted. + +I recommend that provision be made by an international agreement for +visibly marking the water boundary between the United States and Canada in +the narrow channels that join the Great Lakes. The conventional line +therein traced by the northwestern boundary survey years ago is not in all +cases readily ascertainable for the settlement of jurisdictional +questions. + +A just and acceptable enlargement of the list of offenses for which +extradition may be claimed and granted is most desirable between this +country and Great Britain. The territory of neither should become a secure +harbor for the evil doers of the other through any avoidable shortcoming in +this regard. A new treaty on this subject between the two powers has been +recently negotiated and will soon be laid before the Senate. + +The importance of the commerce of Cuba and Puerto Rico with the United +States, their nearest and principal market, justifies the expectation that +the existing relations may be beneficially expanded. The impediments +resulting from varying dues on navigation and from the vexatious treatment +of our vessels on merely technical grounds of complaint in West India ports +should be removed. + +The progress toward an adjustment of pending claims between the United +States and Spain is not as rapid as could be desired. + +Questions affecting American interests in connection with railways +constructed and operated by our citizens in Peru have claimed the attention +of this Government. It is urged that other governments in pressing Peru to +the payment of their claims have disregarded the property rights of +American citizens. The matter will be carefully investigated with a view to +securing a proper and equitable adjustment. + +A similar issue is now pending with Portugal. The Delagoa Bay Railway, in +Africa, was constructed under a concession by Portugal to an American +citizen. When nearly completed the road was seized by the agents of the +Portuguese Government. Formal protest has been made through our minister at +Lisbon against this act, and no proper effort will be spared to secure +proper relief. + +In pursuance of the charter granted by Congress and under the terms of its +contract with the Government of Nicaragua the Interoceanic Canal Company +has begun the construction of the important waterway between the two oceans +which its organization contemplates. Grave complications for a time seemed +imminent, in view of a supposed conflict of jurisdiction between Nicaragua +and Costa Rica in regard to the accessory privileges to be conceded by the +latter Republic toward the construction of works on the San Juan River, of +which the right bank is Costa Rican territory. I am happy to learn that a +friendly arrangement has been effected between the two nations. This +Government has held itself ready to promote in every proper way the +adjustment of all questions that might present obstacles to the completion +of a work of such transcendent importance to the commerce of this country, +and, indeed, to the commercial interests of the world. + +The traditional good feeling between this country and the French Republic +has received additional testimony in the participation of our Government +and people in the international exposition held at Paris during the past +summer. The success of our exhibitors has been gratifying. The report of +the commission will be laid before Congress in due season. + +This Government has accepted, under proper reserve as to its policy in +foreign territories, the invitation of the Government of Belgium to take +part in an international congress, which opened at Brussels on the 16th of +November, for the purpose of devising measures to promote the abolition of +the slave trade in Africa and to prevent the shipment of slaves by sea. Our +interest in the extinction of this crime against humanity in the regions +where it yet survives has been increased by the results of emancipation +within our own borders. + +With Germany the most cordial relations continue. The questions arising +from the return to the Empire of Germans naturalized in this country are +considered and disposed of in a temperate spirit to the entire satisfaction +of both Governments. + +It is a source of great satisfaction that the internal disturbances of the +Republic of Hayti are at last happily ended, and that an apparently stable +government has been constituted. It has been duly recognized by the United +States. + +A mixed commission is now in session in this capital for the settlement of +long-standing claims against the Republic of Venezuela, and it is hoped +that a satisfactory conclusion will be speedily reached. This Government +has not hesitated to express its earnest desire that the boundary dispute +now pending between Great Britain and Venezuela may be adjusted amicably +and in strict accordance with the historic title of the parties. + +The advancement of the Empire of Japan has been evidenced by the recent +promulgation of a new constitution, containing valuable guaranties of +liberty and providing for a responsible ministry to conduct the +Government. + +It is earnestly recommended that our judicial rights and processes in Korea +be established on a firm basis by providing the machinery necessary to +carry out treaty stipulations in that regard. + +The friendliness of the Persian Government continues to be shown by its +generous treatment of Americans engaged in missionary labors and by the +cordial disposition of the Shah to encourage the enterprise of our citizens +in the development of Persian resources. + +A discussion is in progress touching the jurisdictional treaty rights of +the United States in Turkey. An earnest effort will be made to define those +rights to the satisfaction of both Governments. + +Questions continue to arise in our relations with several countries in +respect to the rights of naturalized citizens. Especially is this the case +with France, Italy, Russia, and Turkey, and to a less extent with +Switzerland. From time to time earnest efforts have been made to regulate +this subject by conventions with those countries. An improper use of +naturalization should not be permitted, but it is most important that those +who have been duly naturalized should everywhere be accorded recognition of +the rights pertaining to the citizenship of the country of their adoption. +The appropriateness of special conventions for that purpose is recognized +in treaties which this Government has concluded with a number of European +States, and it is advisable that the difficulties which now arise in our +relations with other countries on the same subject should be similarly +adjusted. + +The recent revolution in Brazil in favor of the establishment of a +republican form of government is an event of great interest to the United +States. Our minister at Rio de Janeiro was at once instructed to maintain +friendly diplomatic relations with the Provisional Government, and the +Brazilian representatives at this capital were instructed by the +Provisional Government to continue their functions. Our friendly +intercourse with Brazil has therefore suffered no interruption. + +Our minister has been further instructed to extend on the part of this +Government a formal and cordial recognition of the new Republic so soon as +the majority of the people of Brazil shall have signified their assent to +its establishment and maintenance. + +Within our own borders a general condition of prosperity prevails. The +harvests of the last summer were exceptionally abundant, and the trade +conditions now prevailing seem to promise a successful season to the +merchant and the manufacturer and general employment to our working +people. + +The report of the Secretary of the Treasury for the fiscal year ending June +30, 1889, has been prepared and will be presented to Congress. It presents +with clearness the fiscal operations of the Government, and I avail myself +of it to obtain some facts for use here. + +The aggregate receipts from all sources for the year were $387,050,058.84, +derived as follows: + +From customs - $223, 832, 741.69 + +From internal revenue - 130,881,513.92 + +From miscellaneous sources - 32,335,803.23 + +The ordinary expenditures for the same period were $281,996,615.60, and the +total expenditures, including the sinking fund, were $329,579,929.25. The +excess of receipts over expenditures was, after providing for the sinking +fund, $57,470,129.59. + +For the current fiscal year the total revenues, actual and estimated are +$385,000,000, and the ordinary expenditures, actual and estimated, are +$293,000,000, making with the sinking fund a total expenditure of +$341,321,116.99, leaving an estimated surplus of $43,678,883.01. + +During the fiscal year there was applied to the purchase of bonds, in +addition to those for the sinking fund, $90,456,172.35, and during the +first quarter of the current year the sum of $37,838,937.77, all of which +were credited to the sinking fund. The revenues for the fiscal year ending +June 30, 1891, are estimated by the Treasury Department at $385,000,000, +and the expenditures for the same period, including the sinking fund, at +$341,430,477.70. This shows an estimated surplus for that year of +$43,569,522.30, which is more likely to be increased than reduced when the +actual transactions are written up. + +The existence of so large an actual and anticipated surplus should have the +immediate attention of Congress, with a view to reducing the receipts of +the Treasury to the needs of the Government as closely as may be. The +collection of moneys not needed for public uses imposes an unnecessary +burden upon our people, and the presence of so large a surplus in the +public vaults is a disturbing element in the conduct of private business. +It has called into use expedients for putting it into circulation of very +questionable propriety. We should not collect revenue for the purpose of +anticipating our bonds beyond the requirements of the sinking fund, but any +unappropriated surplus in the Treasury should be so used, as there is no +other lawful way of returning the money to circulation, and the profit +realized by the Government offers a substantial advantage. + +The loaning of public funds to the banks without interest Upon the security +of Government bonds I regard as an unauthorized and dangerous expedient. It +results in a temporary and unnatural increase of the banking capital of +favored localities and compels a cautious and gradual recall of the +deposits to avoid injury to the commercial interests. It is not to be +expected that the banks having these deposits will sell their bonds to the +Treasury so long as the present highly beneficial arrangement is continued. +They now practically get interest both upon the bonds and their proceeds. +No further use should be made of this method of getting the surplus into +circulation, and the deposits now outstanding should be gradually withdrawn +and applied to the purchase of bonds. It is fortunate that such a use can +be made of the existing surplus, and for some time to come of any casual +surplus that may exist after Congress has taken the necessary steps for a +reduction of the revenue. Such legislation should be promptly but very +considerately enacted. + +I recommend a revision of our tariff law both in its administrative +features and in the schedules. The need of the former is generally +conceded, and an agreement upon the evils and inconveniences to be remedied +and the best methods for their correction will probably not be difficult. +Uniformity of valuation at all our ports is essential, and effective +measures should be taken to secure it. It is equally desirable that +questions affecting rates and classifications should be promptly decided. + +The preparation of a new schedule of customs duties is a matter of great +delicacy because of its direct effect upon the business of the country, and +of great difficulty by reason of the wide divergence of opinion as to the +objects that may properly be promoted by such legislation. Some disturbance +of business may perhaps result from the consideration of this subject by +Congress, but this temporary ill effect will be reduced to the minimum by +prompt action and by the assurance which the country already enjoys that +any necessary changes will be so made as not to impair the just and +reasonable protection of our home industries. The inequalities of the law +should be adjusted, but the protective principle should be maintained and +fairly applied to the products of our farms as well as of our shops. These +duties necessarily have relation to other things besides the public +revenues. We can not limit their effects by fixing our eyes on the public +Treasury alone. They have a direct relation to home production, to work, to +wages, and to the commercial independence of our country, and the wise and +patriotic legislator should enlarge the field of his vision to include all +of these. The necessary reduction in our public revenues can, I am sure, be +made without making the smaller burden more onerous than the larger by +reason of the disabilities and limitations which the process of reduction +puts upon both capital and labor. The free list can very safely be extended +by placing thereon articles that do not offer injurious competition to such +domestic products as our home labor can supply. The removal of the internal +tax upon tobacco would relieve an important agricultural product from a +burden which was imposed only because our revenue from customs duties was +insufficient for the public needs. If safe provision against fraud can be +devised, the removal of the tax upon spirits used in the arts and in +manufactures would also offer an unobjectionable method of reducing the +surplus. + +A table presented by the Secretary of the Treasury showing the amount of +money of all kinds in circulation each year from 1878 to the present time +is of interest. It appears that the amount of national-bank notes in +circulation has decreased during that period $114,109,729, of which +$37,799,229 is chargeable to the last year. The withdrawal of bank +circulation will necessarily continue under existing conditions. It is +probable that the adoption of the suggestions made by the Comptroller of +the Currency, namely, that the minimum deposit of bonds for the +establishment of banks be reduced and that an issue of notes to the par +value of the bonds be allowed, would help to maintain the bank circulation. +But while this withdrawal of bank notes has been going on there has been a +large increase in the amount of gold and silver coin in circulation and in +the issues of gold and silver certificates. + +The total amount of money of all kinds in circulation on March 1, 1878, was +$805,793,807, while on October 1, 1889, the total was $1,405,018,000. There +was an increase of $293,417,552 in gold coin, of $57,554,100 in standard +silver dollars, of $72,311,249 in gold certificates, of $276,619,715 in +silver certificates, and of $14,073,787 in United States notes, making a +total of $713,976,403. There was during the same period a decrease of +$114,109,729 in bank circulation and of $642,481 in subsidiary silver. The +net increase was $599,224,193. The circulation per capita has increased +about $5 during the time covered by the table referred to. + +The total coinage of silver dollars was on November 1, 1889, $343,638,001, +of which $283,539,521 were in the Treasury vaults and $60,098,480 were in +circulation. Of the amount in the vaults $277,319,944 were represented by +outstanding silver certificates, leaving $6,219,577 not in circulation and +not represented by certificates. + +The law requiring the purchase by the Treasury of $2,000,000 worth of +silver bullion each month, to be coined into silver dollars of 412 1/2 +grains, has been observed by the Department, but neither the present +Secretary nor any of his predecessors has deemed it safe to exercise the +discretion given by law to increase the monthly purchases to $4,000,000. +When the law was enacted (February 28, 1878) the price of silver in the +market was $1.204 per ounce, making the bullion value of the dollar 93 +cents. Since that time the price has fallen as low as 91.2 cents per ounce, +reducing the bullion value of the dollar to 70.6 cents. Within the last few +months the market price has somewhat advanced, and on the 1st day of +November last the bullion value of the silver dollar was 72 cents. + +The evil anticipations which have accompanied the coinage and use of the +silver dollar have not been realized. As a coin it has not had general use, +and the public Treasury has been compelled to store it. But this is +manifestly owing to the fact that its paper representative is more +convenient. The general acceptance and the use of the silver certificate +show that silver has not been otherwise discredited. Some favorable +conditions have contributed to maintain this practical equality in their +commercial use between the gold and silver dollars; but some of these are +trade conditions that statutory enactments do not control and of the +continuance of which we can not be certain. + +I think it is clear that if we should make the coinage of silver at the +present ratio free we must expect that the difference in the bullion values +of the gold and silver dollars will be taken account of in commercial +transactions; and I fear the same result would follow any considerable +increase of the present rate of coinage. Such a result would be +discreditable to our financial management and disastrous to all business +interests. We should not tread the dangerous edge of such a peril. And, +indeed, nothing more harmful could happen to the silver interests. Any safe +legislation upon this subject must secure the equality of the two coins in +their commercial uses. + +I have always been an advocate of the use of silver in our currency. We are +large producers of that metal, and should not discredit it. To the plan +which will be presented by the Secretary of the Treasury for the issuance +of notes or certificates upon the deposit of silver bullion at its market +value I have been able to give only a hasty examination, owing to the press +of other matters and to the fact that it has been so recently formulated. +The details of such a law require careful consideration, but the general +plan suggested by him seems to satisfy the purpose--to continue the use of +silver in connection with our currency and at the same time to obviate the +danger of which I have spoken. At a later day I may communicate further +with Congress upon this subject. + +The enforcement of the Chinese exclusion act has been found to be very +difficult on the northwestern frontier. Chinamen landing at Victoria find +it easy to pass our border, owing to the impossibility with the force at +the command of the customs officers of guarding so long an inland line. The +Secretary of the Treasury has authorized the employment of additional +officers, who will be assigned to this duty, and every effort will be made +to enforce the law. The Dominion exacts a head tax of $50 for each Chinaman +landed, and when these persons, in fraud of our law, cross into our +territory and are apprehended our officers do not know what to do with +them, as the Dominion authorities will not suffer them to be sent back +without a second payment of the tax. An effort will be made to reach an +understanding that will remove this difficulty. + +The proclamation required by section 3 of the act of March 2, 1889, +relating to the killing of seals and other fur-bearing animals, was issued +by me on the 21st day of March, and a revenue vessel was dispatched to +enforce the laws and protect the interests of the United States. The +establishment of a refuge station at Point Barrow, as directed by Congress, +was successfully accomplished. + +Judged by modern standards, we are practically without coast defenses. Many +of the structures we have would enhance rather than diminish the perils of +their garrisons if subjected to the fire of improved guns, and very few are +so located as to give full effect to the greater range of such guns as we +are now making for coast-defense uses. This general subject has had +consideration in Congress for some years, and the appropriation for the +construction of large rifled guns made one year ago was, I am sure, the +expression of a purpose to provide suitable works in which these guns might +be mounted. An appropriation now made for that purpose would not advance +the completion of the works beyond our ability to supply them with fairly +effective guns. + +The security of our coast cities against foreign attacks should not rest +altogether in the friendly disposition of other nations. There should be a +second line wholly in our own keeping. I very urgently recommend an +appropriation at this session for the construction of such works in our +most exposed harbors. + +I approve the suggestion of the Secretary of War that provision be made for +encamping companies of the National Guard in our coast works for a +specified time each year and for their training in the use of heavy guns. +His suggestion that an increase of the artillery force of the Army is +desirable is also, in this connection, commended to the consideration of +Congress. + +The improvement of our important rivers and harbors should be promoted by +the necessary appropriations. Care should be taken that the Government is +not committed to the prosecution of works not of public and general +advantage and that the relative usefulness of works of that class is not +overlooked. So far as this work can ever be said to be completed, I do not +doubt that the end would be sooner and more economically reached if fewer +separate works were undertaken at the same time, and those selected for +their greater general interest were more rapidly pushed to completion. A +work once considerably begun should not be subjected to the risks and +deterioration which interrupted or insufficient appropriations necessarily +occasion. + +The assault made by David S. Terry upon the person of Justice Field, of the +Supreme Court of the United States, at Lathtop, Cal., in August last, and +the killing of the assailant by a deputy United States marshal who had been +deputed to accompany Justice Field and to protect him from anticipated +violence at the hands of Terry, in connection with the legal proceedings +which have followed, suggest questions which, in my judgment, are worthy of +the attention of Congress. + +I recommend that more definite provision be made by law not only for the +protection of Federal officers, but for a full trial of such cases in the +United States courts. In recommending such legislation I do not at all +impeach either the general adequacy of the provision made by the State laws +for the protection of all citizens or the general good disposition of those +charged with the execution of such laws to give protection to the officers +of the United States. The duty of protecting its officers, as such, and of +punishing those who assault them on account of their official acts should +not be devolved expressly or by acquiescence upon the local authorities. + +Events which have been brought to my attention happening in other parts of +the country have also suggested the propriety of extending by legislation +fuller protection to those who may be called as witnesses in the courts of +the United States. The law compels those who are supposed to have knowledge +of public offenses to attend upon our courts and grand juries and to give +evidence. There is a manifest resulting duty that these witnesses shall be +protected from injury on account of their testimony. The investigations of +criminal offenses are often rendered futile and the punishment of crime +impossible by the intimidation of witnesses. + +The necessity of providing some more speedy method for disposing of the +cases which now come for final adjudication to the Supreme Court becomes +every year more apparent and urgent. The plan of providing some +intermediate courts having final appellate jurisdiction of certain classes +of questions and cases has, I think, received a more general approval from +the bench and bar of the country than any other. Without attempting to +discuss details, I recommend that provision be made for the establishment +of such courts. + +The salaries of the judges of the district courts in many of the districts +are, in my judgment, inadequate. I recommend that all such salaries now +below $5,000 per annum be increased to that amount. It is quite true that +the amount of labor performed by these judges is very unequal, but as they +can not properly engage in other pursuits to supplement their incomes the +salary should be such in all cases as to provide an independent and +comfortable support. + +Earnest attention should be given by Congress to a consideration of the +question how far the restraint of those combinations of capital commonly +called "trusts" is matter of Federal jurisdiction. When organized, as they +often are, to crush out all healthy competition and to monopolize the +production or sale of an article of commerce and general necessity, they +are dangerous conspiracies against the public good, and should be made the +subject of prohibitory and even penal legislation. + +The subject of an international copyright has been frequently commended to +the attention of Congress by my predecessors. The enactment of such a law +would be eminently wise and just. + +Our naturalization laws should be so revised as to make the inquiry into +the moral character and good disposition toward our Government of the +persons applying for citizenship more thorough. This can only be done by +taking fuller control of the examination, by fixing the times for hearing +such applications, and by requiring the presence of some one who shall +represent the Government in the inquiry. Those who are the avowed enemies +of social order or who come to our shores to swell the injurious influence +and to extend the evil practices of any association that defies our laws +should not only be denied citizenship, but a domicile. + +The enactment of a national bankrupt law of a character to be a permanent +part of our general legislation is desirable. It should be simple in its +methods and inexpensive in its administration. + +The report of the Postmaster-General not only exhibits the operations of +the Department for the last fiscal year, but contains many valuable +suggestions for the improvement and extension of the service, which are +commended to your attention. No other branch of the Government has so close +a contact with the daily life of the people. Almost everyone uses the +service it offers, and every hour gained in the transmission of the great +commercial mails has an actual and possible value that only those engaged +in trade can understand. + +The saving of one day in the transmission of the mails between New York and +San Francisco, which has recently been accomplished, is an incident worthy +of mention. + +The plan suggested of a supervision of the post-offices in separate +districts that shall involve instruction and suggestion and a rating of the +efficiency of the postmasters would, I have no doubt, greatly improve the +service. + +A pressing necessity exists for the erection of a building for the joint +use of the Department and of the city post-office. The Department was +partially relieved by renting .outside quarters for a part of its force, +but it is again overcrowded. The building used by the city office never was +fit for the purpose, and is now inadequate and unwholesome. + +The unsatisfactory condition of the law relating to the transmission +through the mails of lottery advertisements and remittances is clearly +stated by the Postmaster-General, and his suggestion as to amendments +should have your favorable consideration. + +The report of the Secretary of the Navy shows a reorganization of the +bureaus of the Department that will, I do not doubt, promote the efficiency +of each. + +In general, satisfactory progress has been made in the construction of the +new ships of war authorized by Congress. The first vessel of the new Navy, +the Dolphin, was subjected to very severe trial tests and to very much +adverse criticism; but it is gratifying to be able to state that a cruise +around the world, from which she has recently returned, has demonstrated +that she is a first-class vessel of her rate. + +The report of the Secretary shows that while the effective force of the +Navy is rapidly increasing by reason of the improved build and armament of +the new ships, the number of our ships fit for sea duty grows very slowly. +We had on the 4th of March last 37 serviceable ships, and though 4 have +since been added to the list, the total has not been increased, because in +the meantime 4 have been lost or condemned. Twenty-six additional vessels +have been authorized and appropriated for; but it is probable that when +they are completed our list will only be increased to 42--a gain of 5. The +old wooden ships are disappearing almost as fast as the new vessels are +added. These facts carry their own argument. One of the new ships may in +fighting strength be equal to two of the old, but it can not do the +cruising duty of two. It is important, therefore, that we should have a +more rapid increase in the number of serviceable ships. I concur in the +recommendation of the Secretary that the construction of 8 armored ships, 3 +gunboats, and 5 torpedo boats be authorized. + +An appalling calamity befell three of our naval vessels on duty at the +Samoan Islands, in the harbor of Apia, in March last, involving the loss of +4 officers and 47 seamen, of two vessels, the Trenton and the Vandalia, and +the disabling of a third, the Nipsic. Three vessels of the German navy, +also in the harbor, shared with our ships the force of the hurricane and +suffered even more heavily. While mourning the brave officers and men who +died facing with high resolve perils greater than those of battle, it is +most gratifying to state that the credit of the American Navy for +seamanship, courage, and generosity was magnificently sustained in the +storm-beaten harbor of Apia. + +The report of the Secretary of the Interior exhibits the transactions of +the Government with the Indian tribes. Substantial progress has been made +in the education of the children of school age and in the allotment of +lands to adult Indians. It is to be regretted that the policy of breaking +up the tribal relation and of dealing with the Indian as an individual did +not appear earlier in our legislation. Large reservations held in common +and the maintenance of the authority of the chiefs and headmen have +deprived the individual of every incentive to the exercise of thrift, and +the annuity has contributed an affirmative impulse toward a state of +confirmed pauperism. + +Our treaty stipulations should be observed with fidelity and our +legislation should be highly considerate of the best interests of an +ignorant and helpless people. The reservations are now generally surrounded +by white settlements. We can no longer push the Indian back into the +wilderness, and it remains only by every suitable agency to push him upward +into the estate of a self-supporting and responsible citizen. For the adult +the first step is to locate him upon a farm, and for the child to place him +in a school. + +School attendance should be promoted by every moral agency, and those +failing should be compelled. The national schools for Indians have been +very successful and should be multiplied, and as far as possible should be +so organized and conducted as to facilitate the transfer of the schools to +the States or Territories in which they are located when the Indians in a +neighborhood have accepted citizenship and have become otherwise fitted for +such a transfer. This condition of things will be attained slowly, but it +will be hastened by keeping it in mind; and in the meantime that +cooperation between the Government and the mission schools which has +wrought much good should be cordially and impartially maintained. + +The last Congress enacted two distinct laws relating to negotiations with +the Sioux Indians of Dakota for a relinquishment of a portion of their +lands to the United States and for dividing the remainder into separate +reservations. Both were approved on the same day--March 2. The one +submitted to the Indians a specific proposition; the other (section 3 of +the Indian appropriation act) authorized the President to appoint three +commissioners to negotiate with these Indians for the accomplishment of the +same general purpose, and required that any agreements made should be +submitted to Congress for ratification. + +On the 16th day of April last I appointed Hon. Charles Foster, of Ohio, +Hon. William Warner, of Missouri, and Major-General George Crook, of the +United States Army, commissioners under the last-named law. They were, +however, authorized and directed first to submit to the Indians the +definite proposition made to them by the act first mentioned, and only in +the event of a failure to secure the assent of the requisite number to that +proposition to open negotiations for modified terms under the other act. +The work of the commission was prolonged and arduous, but the assent of the +requisite number was, it is understood, finally obtained to the proposition +made by Congress, though the report of the commission has not yet been +submitted. In view of these facts, I shall not, as at present advised, deem +it necessary to submit the agreement to Congress for ratification, but it +will in due course be submitted for information. This agreement releases to +the United States about 9,000,000 acres of land. + +The commission provided for by section 14 of the Indian appropriation bill +to negotiate with the Cherokee Indians and all other Indians owning or +claiming lands lying west of the ninety-sixth degree of longitude for the +cession to the United States of all such lands was constituted by the +appointment of Hon. Lucius Fairchild, of Wisconsin, Hon. John F. Hartranft, +of Pennsylvania, and Hon. Alfred M. Wilson, of Arkansas, and organized on +June 29 last. Their first conference with the representatives of the +Cherokees was held at Tahlequah July 29, with no definite results. General +John F. Hartranft, of Pennsylvania, was prevented by ill health from taking +part in the conference. His death, which occurred recently, is justly and +generally lamented by a people he had served with conspicuous gallantry in +war and with great fidelity in peace. The vacancy thus created was filled +by the appointment of Hon. Warren G. Sayre, of Indiana. + +A second conference between the commission and the Cherokees was begun +November 6, but no results have yet been obtained, nor is it believed that +a conclusion can be immediately expected. The cattle syndicate now +occupying the lands for grazing purposes is clearly one of the agencies +responsible for the obstruction of our negotiations with the Cherokees. The +large body of agricultural lands constituting what is known as the +"Cherokee Outlet" ought not to be, and, indeed, can not long be, held for +grazing and for the advantage of a few against the public interests and the +best advantage of the Indians themselves. The United States has now under +the treaties certain rights in these lands. These will not be used +oppressively, but it can not be allowed that those who by sufferance occupy +these lands shall interpose to defeat the wise and beneficent purposes of +the Government. I can not but believe that the advantageous character of +the offer made by the United States to the Cherokee Nation for a full +release of these lands as compared with other suggestions now made to them +will yet obtain for it a favorable consideration. + +Under the agreement made between the United States and the Muscogee (or +Creek) Nation of Indians on the 19th day of January, 1889, an absolute +title was secured by the United States to about 3,500,000 acres of land. +Section 12 of the general Indian appropriation act approved March 2, 1889, +made provision for the purchase by the United States from the Seminole +tribe of a certain portion of their lands. The delegates of the Seminole +Nation, having first duly evidenced to me their power to act in that +behalf, delivered a proper release or conveyance to the United States of +all the lands mentioned in the act, which was accepted by me and certified +to be in compliance with the statute. + +By the terms of both the acts referred to all the lands so purchased were +declared to be a part of the public domain and open to settlement under the +homestead law. But of the lands embraced in these purchases, being in the +aggregate about 5,500,000 acres, 3,500,000 acres had already, under the +terms of the treaty of 1866, been acquired by the United States for the +purpose of settling other Indian tribes thereon and had been appropriated +to that purpose. The land remaining and available for settlement consisted +of 1,887,796 acres, surrounded on all sides by lands in the occupancy of +Indian tribes. Congress had provided no civil government for the people who +were to be invited by my proclamation to settle upon these lands, except as +the new court which had been established at Muscogee or the United States +courts in some of the adjoining States had power to enforce the general +laws of the United States. + +In this condition of things I was quite reluctant to open the lands to +settlement; but in view of the fact that several thousand persons, many of +them with their families, had gathered upon the borders of the Indian +Territory with a view to securing homesteads on the ceded lands, and that +delay would involve them in much loss and suffering, I did on the 23d day +of March last issue a proclamation declaring that the lands therein +described would be open to settlement under the provisions of the law on +the 22d day of April following at 12 o'clock noon. Two land districts had +been established and the offices were opened for the transaction of +business when the appointed time arrived. + +It is much to the credit of the settlers that they very generally observed +the limitation as to the time when they might enter the Territory. Care +will be taken that those who entered in violation of the law do not secure +the advantage they unfairly sought. There was a good deal of apprehension +that the strife for locations would result in much violence and bloodshed, +but happily these anticipations were not realized. It is estimated that +there are now in the Territory about 60,000 people, and several +considerable towns have sprung up, for which temporary municipal +governments have been organized. Guthrie is said to have now a population +of almost 8,000. Eleven schools and nine churches have been established, +and three daily and five weekly newspapers are published in this city, +whose charter and ordinances have only the sanction of the voluntary +acquiescence of the people from day to day. + +Oklahoma City has a population of about 5,000, and is proportionately as +well provided as Guthrie with churches, schools, and newspapers. Other +towns and villages having populations of from 100 to 1,000 are scattered +over the Territory. + +In order to secure the peace of this new community in the absence of civil +government, I directed General Merritt, commanding the Department of the +Missouri, to act in conjunction with the marshals of the United States to +preserve the peace, and upon their requisition to use the troops to aid +them in executing warrants and in quieting any riots or breaches of the +peace that might occur. He was further directed to use his influence to +promote good order and to avoid any conflicts between or with the settlers. +Believing that the introduction and sale of liquors where no legal +restraints or regulations existed would endanger the public peace, and in +view of the fact that such liquors must first be introduced into the Indian +reservations before reaching the white settlements, I further directed the +general commanding to enforce the laws relating to the introduction of +ardent spirits into the Indian country. + +The presence of the troops has given a sense of security to the +well-disposed citizens and has tended to restrain the lawless. In one +instance the officer in immediate command of the troops went further than I +deemed justifiable in supporting the de facto municipal government of +Guthrie, and he was so informed, and directed to limit the interference of +the military to the support of the marshals on the lines indicated in the +original order. I very urgently recommend that Congress at once provide a +Territorial government for these people. Serious questions, which may at +any time lead to violent outbreaks, are awaiting the institution of courts +for their peaceful adjustment. The American genius for self-government has +been well illustrated in Oklahoma; but it is neither safe nor wise to leave +these people longer to the expedients which have temporarily served them. + +Provision should be made for the acquisition of title to town lots in the +towns now established in Alaska, for locating town sites, and for the +establishment of municipal governments. Only the mining laws have been +extended to that Territory, and no other form of title to lands can now be +obtained. The general land laws were framed with reference to the +disposition of agricultural lands, and it is doubtful if their operation in +Alaska would be beneficial. + +We have fortunately not extended to Alaska the mistaken policy of +establishing reservations for the Indian tribes, and can deal with them +from the beginning as individuals with, I am sure, better results; but any +disposition of the public lands and any regulations relating to timber and +to the fisheries should have a kindly regard to their interests. Having no +power to levy taxes, the people of Alaska are wholly dependent upon the +General Government, to whose revenues the seal fisheries make a large +annual contribution. An appropriation for education should neither be +overlooked nor stinted. + +The smallness of the population and the great distances between the +settlements offer serious obstacles to the establishment of the usual +Territorial form of government. Perhaps the organization of several +sub-districts with a small municipal council of limited powers for each +would be safe and useful. + +Attention is called in this connection to the suggestions of the Secretary +of the Treasury relating to the establishment of another port of entry in +Alaska and of other needed customs facilities and regulations. + +In the administration of the land laws the policy of facilitating in every +proper way the adjustment of the honest claims of individual settlers upon +the public lands has been pursued. The number of pending cases had during +the preceding Administration been greatly increased under the operation of +orders for a time suspending final action in a large part of the cases +originating in the West and Northwest, and by the subsequent use of unusual +methods of examination. Only those who are familiar with the conditions +under which our agricultural lands have been settled can appreciate the +serious and often fatal consequences to the settler of a policy that puts +his title under suspicion or delays the issuance of his patent. While care +is taken to prevent and to expose fraud, it should not be imputed without +reason. + +The manifest purpose of the homestead and preemption laws was to promote +the settlement of the public domain by persons having a bona fide intent to +make a home upon the selected lands. Where this intent is well established +and the requirements of the law have been substantially complied with, the +claimant is entitled to a prompt and friendly consideration of his case; +but where there is reason to believe that the claimant is the mere agent of +another who is seeking to evade a law intended to promote small holdings +and to secure by fraudulent methods large tracts of timber and other lands, +both principal and agent should not only be thwarted in their fraudulent +purpose, but should be made to feel the full penalties of our criminal +statutes. The laws should be so administered as not to confound these two +classes and to visit penalties only upon the latter. + +The unsettled state of the titles to large bodies of lands in the +Territories of New Mexico and Arizona has greatly retarded the development +of those Territories. Provision should be made by law for the prompt trial +and final adjustment before a judicial tribunal or commission of all claims +based upon Mexican grants. It is not just to an intelligent and +enterprising people that their peace should be disturbed and their +prosperity retarded by these old contentions. I express the hope that +differences of opinion as to methods may yield to the urgency of the case. + +The law now provides a pension for every soldier and sailor who was +mustered into the service of the United States during the Civil War and is +now suffering from wounds or disease having an origin in the service and in +the line of duty. Two of the three necessary facts, viz, muster and +disability, are usually susceptible of easy proof; but the third, origin in +the service, is often difficult and in many deserving cases impossible to +establish. That very many of those who endured the hardships of our most +bloody and arduous campaigns are now disabled from diseases that had a real +but not traceable origin in the service I do not doubt. Besides these there +is another class composed of men many of whom served an enlistment of three +full years and of reenlisted veterans who added a fourth year of service, +who escaped the casualties of battle and the assaults of disease, who were +always ready for any detail, who were in every battle line of their +command, and were mustered out in sound health, and have since the close of +the war, while fighting with the same indomitable and independent spirit +the contests of civil life, been overcome by disease or casualty. + +I am not unaware that the pension roll already involves a very large annual +expenditure; neither am I deterred by that fact from recommending that +Congress grant a pension to such honorably discharged soldiers and sailors +of the Civil War as, having rendered substantial service during the war, +are now dependent upon their own labor for a maintenance and by disease or +casualty are incapacitated from earning it. Many of the men who would be +included in this form of relief are now dependent upon public aid, and it +does not, in my judgment, consist with the national honor that they shall +continue to subsist upon the local relief given indiscriminately to paupers +instead of upon the special and generous provision of the nation they +served so gallantly and unselfishly. Our people will, I am sure, very +generally approve such legislation. And I am equally sure that the +survivors of the Union Army and Navy will feel a grateful sense of relief +when this worthy and suffering class of their comrades is fairly cared +for. + +There are some manifest inequalities in the existing law that should be +remedied. To some of these the Secretary of the Interior has called +attention. + +It is gratifying to be able to state that by the adoption of new and better +methods in the War Department the calls of the Pension Office for +information as to the military and hospital records of pension claimants +are now promptly answered and the injurious and vexatious delays that have +heretofore occurred are entirely avoided. This will greatly facilitate the +adjustment of all pending claims. + +The advent of four new States--South Dakota, North Dakota, Montana, and +Washington--into the Union under the Constitution in the same month, and +the admission of their duly chosen representatives to our National Congress +at the same session, is an event as unexampled as it is interesting. + +The certification of the votes cast and of the constitutions adopted in +each of the States was filed with me, as required by the eighth section of +the act of February 22, 1889, by the governors of said Territories, +respectively. Having after a careful examination found that the several +constitutions and governments were republican in form and not repugnant to +the Constitution of the United States, that all the provisions of the act +of Congress had been complied with, and that a majority of the votes cast +in each of said proposed States was in favor of the adoption of the +constitution submitted therein, I did so declare by a separate proclamation +as to each--as to North Dakota and South Dakota on Saturday, November 2; as +to Montana on Friday, November 8, and as to Washington on Monday, November +11. + +Each of these States has within it resources the development of which will +employ the energies of and yield a comfortable subsistence to a great +population. The smallest of these new States, Washington, stands twelfth, +and the largest, Montana, third, among the forty-two in area. The people of +these States are already well-trained, intelligent, and patriotic American +citizens, having common interests and sympathies with those of the older +States and a common purpose to defend the integrity and uphold the honor of +the nation. + +The attention of the Interstate Commerce Commission has been called to the +urgent need of Congressional legislation for the better protection of the +lives and limbs of those engaged in operating the great interstate freight +lines of the country, and especially of the yardmen and brakemen. A +petition signed by nearly 10,000 railway brakemen was presented to the +Commission asking that steps might be taken to bring about the use of +automatic brakes and couplers on freight cars. + +At a meeting of State railroad commissioners and their accredited +representatives held at Washington in March last upon the invitation of the +Interstate Commerce Commission a resolution was unanimously adopted urging +the Commission "to consider what can be done to prevent the loss of life +and limb in coupling and uncoupling freight cars and in handling the brakes +of such cars." During the year ending June 30, 1888, over 2,000 railroad +employees were killed in service and more than 20,000 injured. It is +competent, I think, for Congress to require uniformity in the construction +of cars used in interstate commerce and the use of improved safety +appliances upon such trains. Time will be necessary to make the needed +changes, but an earnest and intelligent beginning should be made at once. +It is a reproach to our civilization that any class of American workmen +should in the pursuit of a necessary and useful vocation be subjected to a +peril of life and limb as great as that of a soldier in time of war. + +The creation of an Executive Department to be known as the Department of +Agriculture by the act of February 9 last was a wise and timely response to +a request which had long been respectfully urged by the farmers of the +country; but much remains to be done to perfect the organization of the +Department so that it may fairly realize the expectations which its +creation excited. In this connection attention is called to the suggestions +contained in the report of the Secretary, which is herewith submitted. The +need of a law officer for the Department such as is provided for the other +Executive Departments is manifest. The failure of the last Congress to make +the usual provision for the publication of the annual report should be +promptly remedied. The public interest in the report and its value to the +farming community, I am sure, will not be diminished under the new +organization of the Department. + +I recommend that the weather service be separated from the War Department +and established as a bureau in the Department of Agriculture. This will +involve an entire reorganization both of the Weather Bureau and of the +Signal Corps, making of the first a purely civil organization and of the +other a purely military staff corps. The report of the Chief Signal Officer +shows that the work of the corps on its military side has been +deteriorating. + +The interests of the people of the District of Columbia should not be lost +sight of in the pressure for consideration of measures affecting the whole +country. Having no legislature of its own, either municipal or general, its +people must look to Congress for the regulation of all those concerns that +in the States are the subject of local control. Our whole people have an +interest that the national capital should be made attractive and beautiful, +and, above all, that its repute for social order should be well maintained. +The laws regulating the sale of intoxicating drinks in the District should +be revised with a view to bringing the traffic under stringent limitations +and control. + +In execution of the power conferred upon me by the act making +appropriations for the expenses of the District of Columbia for the year +ending June 30, 1890, I did on the 17th day of August last appoint Rudolph +Hering, of New York, Samuel M. Gray, of Rhode Island, and Frederick P. +Stearns, of Massachusetts, three eminent sanitary engineers, to examine and +report upon the system of sewerage existing in the District of Columbia. +Their report, which is not yet completed, will be in due course submitted +to Congress. + +The report of the Commissioners of the District is herewith transmitted, +and the attention of Congress is called to the suggestions contained +therein. + +The proposition to observe the four hundredth anniversary of the discovery +of America by the opening of a world's fair or exposition in some one of +our great cities will be presented for the consideration of Congress. The +value and interest of such an exposition may well claim the promotion of +the General Government. + +On the 4th of March last the Civil Service Commission had but a single +member. The vacancies were filled on the 7th day of May, and since then the +Commissioners have been industriously, though with an inadequate force, +engaged in executing the law. They were assured by me that a cordial +support would be given them in the faithful and impartial enforcement of +the statute and of the rules and regulations adopted in aid of it. + +Heretofore the book of eligibles has been closed to everyone, except as +certifications were made upon the requisition of the appointing officers. +This secrecy was the source of much suspicion and of many charges of +favoritism in the administration of the law. What is secret is always +suspected; what is open can be judged. The Commission, with the full +approval of all its members, has now opened the list of eligibles to the +public. The eligible lists for the classified post-offices and +custom-houses are now publicly posted in the respective offices, as are +also the certifications for appointments. The purpose of the civil-service +law was absolutely to exclude any other consideration in connection with +appointments under it than that of merit as tested by the examinations. The +business proceeds upon the theory that both the examining boards and the +appointing officers are absolutely ignorant as to the political views and +associations of all persons on the civil-service lists. It is not too much +to say, however, that some recent Congressional investigations have +somewhat shaken public confidence in the impartiality of the selections for +appointment. + +The reform of the civil service will make no safe or satisfactory advance +until the present law and its equal administration are well established in +the confidence of the people. It will be my pleasure, as it is my duty, to +see that the law is executed with firmness and impartiality. If some of its +provisions have been fraudulently evaded by appointing officers, our +resentment should not suggest the repeal of the law, but reform in its +administration. We should have one view of the matter, and hold it with a +sincerity that is not affected by the consideration that the party to which +we belong is for the time in power. + +My predecessor, on the 4th day of January, 1889, by an Executive order to +take effect March 15, brought the Railway Mail Service under the operation +of the civil-service law. Provision was made that the order should take +effect sooner in any State where an eligible list was sooner obtained. On +the 11th day of March Mr. Lyman, then the only member of the Commission, +reported to me in writing that it would not be possible to have the list of +eligibles ready before May 1, and requested that the taking effect of the +order be postponed until that time, which was done, subject to the same +provision contained in the original order as to States in which an eligible +list was sooner obtained. + +As a result of the revision of the rules, of the new classification, and of +the inclusion of the Railway Mail Service, the work of the Commission has +been greatly increased, and the present clerical force is found to be +inadequate. I recommend that the additional clerks asked by the Commission +be appropriated for. + +The duty of appointment is devolved by the Constitution or by the law, and +the appointing officers are properly held to a high responsibility in its +exercise. The growth of the country and the consequent increase of the +civil list have magnified this function of the Executive disproportionally. +It can not be denied, however, that the labor connected with this necessary +work is increased, often to the point of actual distress, by the sudden and +excessive demands that are made upon an incoming Administration for +removals and appointments. But, on the other hand, it is not true that +incumbency is a conclusive argument for continuance in office. +Impartiality, moderation, fidelity to public duty, and a good attainment in +the discharge of it must be added before the argument is complete. When +those holding administrative offices so conduct themselves as to convince +just political opponents that no party consideration or bias affects in any +way the discharge of their public duties, we can more easily stay the +demand for removals. + +I am satisfied that both in and out of the classified service great benefit +would accrue from the adoption of some system by which the officer would +receive the distinction and benefit that in all private employments comes +from exceptional faithfulness and efficiency in the performance of duty. + +I have suggested to the heads of the Executive Departments that they +consider whether a record might not be kept in each bureau of all those +elements that are covered by the terms "faithfulness" and "efficiency," and +a rating made showing the relative merits of the clerks of each class, this +rating to be regarded as a test of merit in making promotions. + +I have also suggested to the Postmaster-General that he adopt some plan by +which he can, upon the basis of the reports to the Department and of +frequent inspections, indicate the relative merit of postmasters of each +class. They will be appropriately indicated in the Official Register and in +the report of the Department. That a great stimulus would thus be given to +the whole service I do not doubt, and such a record would be the best +defense against inconsiderate removals from office. + +The interest of the General Government in the education of the people found +an early expression, not only in the thoughtful and sometimes warning +utterances of our ablest statesmen, but in liberal appropriations from the +common resources for the support of education in the new States. No one +will deny that it is of the gravest national concern that those who hold +the ultimate control of all public affairs should have the necessary +intelligence wisely to direct and determine them. National aid to education +has heretofore taken the form of land grants, and in that form the +constitutional power of Congress to promote the education of the people is +not seriously questioned. I do not think it can be successfully questioned +when the form is changed to that of a direct grant of money from the public +Treasury. + +Such aid should be, as it always has been, suggested by some exceptional +conditions. The sudden emancipation of the slaves of the South, the +bestowal of the suffrage which soon followed, and the impairment of the +ability of the States where these new citizens were chiefly found to +adequately provide educational facilities presented not only exceptional +but unexampled conditions. That the situation has been much ameliorated +there is no doubt. The ability and interest of the States have happily +increased. + +But a great work remains to be done, and I think the General Government +should lend its aid. As the suggestion of a national grant in aid of +education grows chiefly out of the condition and needs of the emancipated +slave and his descendants, the relief should as far as possible, while +necessarily proceeding upon some general lines, be applied to the need that +suggested it. It is essential, if much good is to be accomplished, that the +sympathy and active interest of the people of the States should be +enlisted, and that the methods adopted should be such as to stimulate and +not to supplant local taxation for school purposes. + +As one Congress can not bind a succeeding one in such a case and as the +effort must in some degree be experimental, I recommend that any +appropriation made for this purpose be so limited in annual amount and as +to the time over which it is to extend as will on the one hand give the +local school authorities opportunity to make the best use of the first +year's allowance, and on the other deliver them from the temptation to +unduly postpone the assumption of the whole burden themselves. + +The colored people did not intrude themselves upon us. They were brought +here in chains and held in the communities where they are now chiefly found +by a cruel slave code. Happily for both races, they are now free. They have +from a standpoint of ignorance and poverty--which was our shame, not +theirs--made remarkable advances in education and in the acquisition of +property. They have as a people shown themselves to be friendly and +faithful toward the white race under temptations of tremendous strength. +They have their representatives in the national cemeteries, where a +grateful Government has gathered the ashes of those who died in its +defense. They have furnished to our Regular Army regiments that have won +high praise from their commanding officers for courage and soldierly +qualities and for fidelity to the enlistment oath. In civil life they are +now the toilers of their communities, making their full contribution to the +widening streams of prosperity which these communities are receiving. Their +sudden withdrawal would stop production and bring disorder into the +household as well as the shop. Generally they do not desire to quit their +homes, and their employers resent the interference of the emigration agents +who seek to stimulate such a desire. + +But notwithstanding all this, in many parts of our country where the +colored population is large the people of that race are by various devices +deprived of any effective exercise of their political rights and of many of +their civil rights. The wrong does not expend itself upon those whose votes +are suppressed. Every constituency in the Union is wronged. + +It has been the hope of every patriot that a sense of justice and of +respect for the law would work a gradual cure of these flagrant evils. +Surely no one supposes that the present can be accepted as a permanent +condition. If it is said that these communities must work out this problem +for themselves, we have a right to ask whether they are at work upon it. Do +they suggest any solution? When and under what conditions is the black man +to have a free ballot? When is he in fact to have those full civil rights +which have so long been his in law? When is that equality of influence +which our form of government was intended to secure to the electors to be +restored? This generation should courageously face these grave questions, +and not leave them as a heritage of woe to the next. The consultation +should proceed with candor, calmness, and great patience, upon the lines of +justice and humanity, not of prejudice and cruelty. No question in our +country can be at rest except upon the firm base of justice and of the +law. + +I earnestly invoke the attention of Congress to the consideration of such +measures within its well-defined constitutional powers as will secure to +all our people a free exercise of the right of suffrage and every other +civil right under the Constitution and laws of the United States. No evil, +however deplorable, can justify the assumption either on the part of the +Executive or of Congress of powers not granted, but both will be highly +blamable if all the powers granted are not wisely but firmly used to +correct these evils. The power to take the whole direction and control of +the election of members of the House of Representatives is clearly given to +the General Government. A partial and qualified supervision of these +elections is now provided for by law, and in my opinion this law may be so +strengthened and extended as to secure on the whole better results than can +be attained by a law taking all the processes of such election into Federal +control. The colored man should be protected in all of his relations to the +Federal Government, whether as litigant, juror, or witness in our courts, +as an elector for members of Congress, or as a peaceful traveler upon our +interstate railways. + +There is nothing more justly humiliating to the national pride and nothing +more hurtful to the national prosperity than the inferiority of our +merchant marine compared with that of other nations whose general +resources, wealth, and seacoast lines do not suggest any reason for their +supremacy on the sea. It was not always so, and our people are agreed, I +think, that it shall not continue to be so. It is not possible in this +communication to discuss the causes of the decay of our shipping interests +or the differing methods by which it is proposed to restore them. The +statement of a few well-authenticated facts and some general suggestions as +to legislation is all that is practicable. That the great steamship lines +sailing under the flags of England, France, Germany, Spain, and Italy, and +engaged in foreign commerce, were .promoted and have since been and now are +liberally aided by grants of public money in one form or another is +generally known. That the American lines of steamships have been abandoned +by us to an unequal contest with the aided lines of other nations until +they have been withdrawn, or in the few cases where they are still +maintained are subject to serious disadvantages, is matter of common +knowledge. + +The present situation is such that travelers and merchandise find Liverpool +often a necessary intermediate port between New York and some of the South +American capitals. The fact that some of the delegates from South American +States to the conference of American nations now in session at Washington +reached our shores by reversing that line of travel is very conclusive of +the need of such a conference and very suggestive as to the first and most +necessary step in the direction of fuller and more beneficial intercourse +with nations that are now our neighbors upon the lines of latitude, but not +upon the lines of established commercial intercourse. + +I recommend that such appropriations be made for ocean mail service in +American steamships between our ports and those of Central and South +America, China, Japan, and the important islands in both of the great +oceans as will be liberally remunerative for the service rendered and as +will encourage the establishment and in some fair degree equalize the +chances of American steamship lines in the competitions which they must +meet. That the American States lying south of us will cordially cooperate +in establishing and maintaining such lines of steamships to their principal +ports I do not doubt. + +We should also make provision for a naval reserve to consist of such +merchant ships of American construction and of a specified tonnage and +speed as the owners will consent to place at the use of the Government in +case of need as armed cruisers. England has adopted this policy, and as a +result can now upon necessity at once place upon her naval list some of the +fastest steamships in the world. A proper supervision of the construction +of such vessels would make their conversion into effective ships of war +very easy. + +I am an advocate of economy in our national expenditures, but it is a +misuse of terms to make this word describe a policy that withholds an +expenditure for the purpose of extending our foreign commerce. The +enlargement and improvement of our merchant marine, the development of a +sufficient body of trained American seamen, the promotion of rapid and +regular mail communication between the ports of other countries and our +own, and the adaptation of large and swift American merchant steamships to +naval uses in time of war are public purposes of the highest concern. The +enlarged participation of our people in the carrying trade, the new and +increased markets that will be opened for the products of our farms and +factories, and the fuller and better employment of our mechanics which will +result from a liberal promotion of our foreign commerce insure the widest +possible diffusion of benefit to all the States and to all our people. +Everything is most propitious for the present inauguration of a liberal and +progressive policy upon this subject, and we should enter upon it with +promptness and decision. + +The legislation which I have suggested, it is sincerely believed, will +promote the peace and honor of our country and the prosperity and security +of the people. I invoke the diligent and serious attention of Congress to +the consideration of these and such other measures as may be presented +having the same great end in view. + +BENJ. HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 1, 1890 + +To the Senate and House of Representatives: + +The reports of the several Executive Departments, which will be laid before +Congress in the usual course, will exhibit in detail the operations of the +Government for the last fiscal year. Only the more important incidents and +results, and chiefly such as may be the foundation of the recommendations I +shall submit, will be referred to in this annual message. + +The vast and increasing business of the Government has been transacted by +the several Departments during the year with faithfulness, energy, and +success. + +The revenues, amounting to above $450,000,000, have been collected and +disbursed without revealing, so far as I can ascertain, a single case of +defalcation or embezzlement. An earnest effort has been made to stimulate a +sense of responsibility and public duty in all officers and employees of +every grade, and the work done by them has almost wholly escaped +unfavorable criticism. I speak of these matters with freedom because the +credit of this good work is not mine, but is shared by the heads of the +several Departments with the great body of faithful officers and employees +who serve under them. The closest scrutiny of Congress is invited to all +the methods of administration and to every item of expenditure. + +The friendly relations of our country with the nations of Europe and of the +East have been undisturbed, while the ties of good will and common interest +that bind us to the States of the Western Hemisphere have been notably +strengthened by the conference held in this capital to consider measures +for the general welfare. Pursuant to the invitation authorized by Congress, +the representatives of every independent State of the American continent +and of Hayti met in conference in this capital in October, 1889, and +continued in session until the 19th of last April. This important +convocation marks a most interesting and influential epoch in the history +of the Western Hemisphere. It is noteworthy that Brazil, invited while +under an imperial form of government, shared as a republic in the +deliberations and results of the conference. The recommendations of this +conference were all transmitted to Congress at the last session. + +The International Marine Conference, which sat at Washington last winter, +reached a very gratifying result. The regulations suggested have been +brought to the attention of all the Governments represented, and their +general adoption is confidently expected. The legislation of Congress at +the last session is in conformity with the propositions of the conference, +and the proclamation therein provided for will be issued when the other +powers have given notice of their adhesion. + +The Conference of Brussels, to devise means for suppressing the slave trade +in Africa, afforded an opportunity for a new expression of the interest the +American people feel in that great work. It soon became evident that the +measure proposed would tax the resources of the Kongo Basin beyond the +revenues available under the general act of Berlin of 1884. The United +States, not being a party to that act, could not share in its revision, but +by a separate act the Independent State of the Kongo was freed from the +restrictions upon a customs revenue. The demoralizing and destructive +traffic in ardent spirits among the tribes also claimed the earnest +attention of the conference, and the delegates of the United States were +foremost in advocating measures for its repression. An accord was reached +the influence of which will be very helpful and extend over a wide region. +As soon as these measures shall receive the sanction of the Netherlands, +for a time withheld, the general acts will be submitted for ratification by +the Senate. Meanwhile negotiations have been opened for a new and completed +treaty of friendship, commerce, and navigation between the United States +and the Independent State of the Kongo. + +Toward the end of the past year the only independent monarchical government +on the Western Continent, that of Brazil, ceased to exist, and was +succeeded by a republic. Diplomatic relations were at once established with +the new Government, but it was not completely recognized until an +opportunity had been afforded to ascertain that it had popular approval and +support. When the course of events had yielded assurance of this fact, no +time was lost in extending to the new Government a full and cordial welcome +into the family of American Commonwealths. It is confidently believed that +the good relations of the two countries will be preserved and that the +future will witness an increased intimacy of intercourse and an expansion +of their mutual commerce. + +The peace of Central America has again been disturbed through a +revolutionary change in Salvador, which was not recognized by other States, +and hostilities broke out between Salvador and Guatemala, threatening to +involve all Central America in conflict and to undo the progress which had +been made toward a union of their interests. The efforts of this Government +were promptly and zealously exerted to compose their differences, and +through the active efforts of the representative of the United States a +provisional treaty of peace was signed August 26, whereby the right of the +Republic of Salvador to choose its own rulers was recognized. General +Ezeta, the chief of the Provisional Government, has since been confirmed in +the Presidency by the Assembly, and diplomatic recognition duly followed. + +The killing of General Barrundia on board the Pacific mail steamer +Acapulco, while anchored in transit in the port of San Jose de Guatemala, +demanded careful inquiry. Having failed in a revolutionary attempt to +invade Guatemala from Mexican territory, General Barrundia took passage at +Acapulco for Panama. The consent of the representatives of the United +States was sought to effect his seizure, first at Champerico, where the +steamer touched, and afterwards at San Jose. The captain of the steamer +refused to give up his passenger without a written order from the United +States minister. The latter furnished the desired letter, stipulating as +the condition of his action that General Barrundia's life should be spared +and that he should be tried only for offenses growing out of his +insurrectionary movements. This letter was produced to the captain of the +Acapulco by the military commander at San Jose as his warrant to take the +passenger from the steamer. General Barrundia resisted capture and was +killed. It being evident that the minister, Mr. Mizner, had exceeded the +bounds of his authority in intervening, in compliance with the demands of +the Guatemalan authorities, to authorize and effect, in violation of +precedent, the seizure on a vessel of the United States of a passenger in +transit charged with political offenses, in order that he might be tried +for such offenses under what was described as martial law, I was +constrained to disavow Mr. Mizner's act and recall him from his post. + +The Nicaragua Canal project, under the control of our citizens, is making +most encouraging progress, all the preliminary conditions and initial +operations having been accomplished within the prescribed time. + +During the past year negotiations have been renewed for the settlement of +the claims of American citizens against the Government of Chile, +principally growing out of the late war with Peru. The reports from our +minister at Santiago warrant the expectation of an early and satisfactory +adjustment. + +Our relations with China, which have for several years occupied so +important a place in our diplomatic history, have called for careful +consideration and have been the subject of much correspondence. + +The communications of the Chinese minister have brought into view the whole +subject of our conventional relations with his country, and at the same +time this Government, through its legation at Peking, has sought to arrange +various matters and complaints touching the interests and protection of our +citizens in China. + +In pursuance of the concurrent resolution of October 1, 1890, I have +proposed to the Governments of Mexico and Great Britain to consider a +conventional regulation of the passage of Chinese laborers across our +southern and northern frontiers. + +On the 22d day of August last Sir Edmund Monson, the arbitrator selected +under the treaty of December 6, 1888, rendered an award to the effect that +no compensation was due from the Danish Government to the United States on +account of what is commonly known as the Carlos Butterfield claim. + +Our relations with the French Republic continue to be cordial. Our +representative at that court has very diligently urged the removal of the +restrictions imposed upon our meat products, and it is believed that +substantial progress has been made toward a just settlement. + +The Samoan treaty, signed last year at Berlin by the representatives of the +United States, Germany, and Great Britain, after due ratification and +exchange, has begun to produce salutary effects. The formation of the +government agreed upon will soon replace the disorder of the past by a +stable administration alike just to the natives and equitable to the three +powers most concerned in trade and intercourse with the Samoan Islands. The +chief justice has been chosen by the King of Sweden and Norway on the +invitation of the three powers, and will soon be installed. The land +commission and the municipal council are in process of organization. A +rational and evenly distributed scheme of taxation, both municipal and upon +imports, is in operation. Malietoa is respected as King. + +The new treaty of extradition with Great Britain, after due ratification, +was proclaimed on the 25th of last March. Its beneficial working is already +apparent. + +The difference between the two Governments touching the fur-seal question +in the Bering Sea is not yet adjusted, as will be seen by the +correspondence which will soon be laid before the Congress. The offer to +submit the question to arbitration, as proposed by Her Majesty's +Government, has not been accepted, for the reason that the form of +submission proposed is not thought to be calculated to assure a conclusion +satisfactory to either party. It is sincerely hoped that before the opening +of another sealing season some arrangement may be effected which will +assure to the United States a property right derived from Russia, which was +not disregarded by any nation for more than eighty years preceding the +outbreak of the existing trouble. + +In the tariff act a wrong was done to the Kingdom of Hawaii which I am +bound to presume was wholly unintentional. Duties were levied on certain +commodities which are included in the reciprocity treaty now existing +between the United States and the Kingdom of Hawaii, without indicating the +necessary exception in favor of that Kingdom. I hope Congress will repair +what might otherwise seem to be a breach of faith on the part of this +Government. + +An award in favor of the United States in the matter of the claim of Mr. +Van Bokkelen against Hayti was rendered on the 4th of December, 1888, but +owing to disorders then and afterwards prevailing in Hayti the terms of +payment were not observed. A new agreement as to the time of payment has +been approved and is now in force. Other just claims of citizens of the +United States for redress of wrongs suffered during the late political +conflict in Hayti will, it is hoped, speedily yield to friendly treatment. + +Propositions for the amendment of the treaty of extradition between the +United States and Italy are now under consideration. + +You will be asked to provide the means of accepting the invitation of the +Italian Government to take part in an approaching conference to consider +the adoption of a universal prime meridian from which to reckon longitude +and time. As this proposal follows in the track of the reform sought to be +initiated by the Meridian Conference of Washington, held on the invitation +of this Government, the United States should manifest a friendly interest +in the Italian proposal. + +In this connection I may refer with approval to the suggestion of my +predecessors that standing provision be made for accepting, whenever deemed +advisable, the frequent invitations of foreign governments to share in +conferences looking to the advancement of international reforms in regard +to science, sanitation, commercial laws and procedure, and other matters +affecting the intercourse and progress of modern communities. + +In the summer of 1889 an incident occurred which for some time threatened +to interrupt the cordiality of our relations with the Government of +Portugal. That Government seized the Delagoa Bay Railway, which was +constructed under a concession granted to an American citizen, and at the +same time annulled the charter. The concessionary, who had embarked his +fortune in the enterprise, having exhausted other means of redress, was +compelled to invoke the protection of his Government. Our representations, +made coincidently with those of the British Government, whose subjects were +also largely interested, happily resulted in the recognition by Portugal of +the propriety of submitting the claim for indemnity growing out of its +action to arbitration. This plan of settlement having been agreed upon, the +interested powers readily concurred in the proposal to submit the case to +the judgment of three eminent jurists, to be designated by the President of +the Swiss Republic, who, upon the joint invitation of the Governments of +the United States, Great Britain, and Portugal, has selected persons well +qualified for the task before them. + +The revision of our treaty relations with the Empire of Japan has continued +to be the subject of consideration and of correspondence. The questions +involved are both grave and delicate; and while it will be my duty to see +that the interests of the United States are not by any changes exposed to +undue discrimination, I sincerely hope that such revision as will satisfy +the legitimate expectations of the Japanese Government and maintain the +present and long-existing friendly relations between Japan and the United +States will be effected. + +The friendship between our country and Mexico, born of close neighborhood +and strengthened by many considerations of intimate intercourse and +reciprocal interest, has never been more conspicuous than now nor more +hopeful of increased benefit to both nations. The intercourse of the two +countries by rail, already great, is making constant growth. The +established lines and those recently projected add to the intimacy of +traffic and open new channels of access to fresh areas of demand and +supply. The importance of the Mexican railway system will be further +enhanced to a degree almost impossible to forecast if it should become a +link in the projected intercontinental railway. I recommend that our +mission in the City of Mexico be raised to the first class. + +The cordial character of our relations with Spain warrants the hope that by +the continuance of methods of friendly negotiation much may be accomplished +in the direction of an adjustment of pending questions and of the increase +of our trade. The extent and development of our trade with the island of +Cuba invest the commercial relations of the United States and Spain with a +peculiar importance. It is not doubted that a special arrangement in regard +to commerce, based upon the reciprocity provision of the recent tariff act, +would operate most beneficially for both Governments. This subject is now +receiving attention. + +The restoration of the remains of John Ericsson to Sweden afforded a +gratifying occasion to honor the memory of the great inventor, to whose +genius our country owes so much, and to bear witness to the unbroken +friendship which has existed between the land which bore him and our own, +which claimed him as a citizen. + +On the 2d of September last the commission appointed to revise the +proceedings of the commission under the claims convention between the +United States and Venezuela of 1866 brought its labors to a close within +the period fixed for that purpose. The proceedings of the late commission +were characterized by a spirit of impartiality and a high sense of justice, +and an incident which was for many years the subject of discussion between +the two Governments has been disposed of in a manner alike honorable and +satisfactory to both parties. For the settlement of the claim of the +Venezuela Steam Transportation Company, which was the subject of a joint +resolution adopted at the last session of Congress, negotiations are still +in progress, and their early conclusion is anticipated. + +The legislation of the past few years has evinced on the part of Congress a +growing realization of the importance of the consular service in fostering +our commercial relations abroad and in protecting the domestic revenues. As +the scope of operations expands increased provision must be made to keep up +the essential standard of efficiency. The necessity of some adequate +measure of supervision and inspection has been so often presented that I +need only commend the subject to your attention. + +The revenues of the Government from all sources for the fiscal year ending +June 30, 1890, were $463,963,080.55 and the total expenditures for the same +period were $358,618,584.52. The postal receipts have not heretofore been +included in the statement of these aggregates, and for the purpose of +comparison the sum of $60,882,097.92 should be deducted from both sides of +the account. The surplus for the year, including the amount applied to the +sinking fund, was $105,344,496.03. The receipts for 1890 were +$16,030,923.79 and the expenditures $15,739,871 in excess of those of 1889. +The customs receipts increased $5,835,842.88 and the receipts from internal +revenue $11,725,191.89, while on the side of expenditures that for pensions +was $19,312,075.96 in excess of the preceding year. + +The Treasury statement for the current fiscal year, partly actual and +partly estimated, is as follows: Receipts from all sources, $406,000,000; +total expenditures, $354,000,000, leaving a surplus of $52,000,000, not +taking the postal receipts into the account on either side. The loss of +revenue from customs for the last quarter is estimated at $25,000,000, but +from this is deducted a gain of about $16,000,000 realized during the first +four months of the year. + +For the year 1892 the total estimated receipts are $373,000,000 and the +estimated expenditures $357,852,209.42, leaving an estimated surplus of +$15,247,790.58, which, with a cash balance of $52,000,000 at the beginning +of the year, will give $67,247,790.58 as the sum available for the +redemption of outstanding bonds or other uses. The estimates of receipts +and expenditures for the Post-Office Department, being equal, are not +included in this statement on either side. + +The act "directing the purchase of silver bullion and the issue of Treasury +notes thereon," approved July 14, 1890, has been administered by the +Secretary of the Treasury with an earnest purpose to get into circulation +at the earliest possible dates the full monthly amounts of Treasury notes +contemplated by its provisions and at the same time to give to the market +for the silver bullion such support as the law contemplates. The recent +depreciation in the price of silver has been observed with regret. The +rapid rise in price which anticipated and followed the passage of the act +was influenced in some degree by speculation, and the recent reaction is in +part the result of the same cause and in part of the recent monetary +disturbances. Some months of further trial will be necessary to determine +the permanent effect of the recent legislation upon silver values, but it +is gratifying to know that the increased circulation secured by the act has +exerted, and will continue to exert, a most beneficial influence upon +business and upon general values. + +While it has not been thought best to renew formally the suggestion of an +international conference looking to an agreement touching the full use of +silver for coinage at a uniform ratio, care has been taken to observe +closely any change in the situation abroad, and no favorable opportunity +will be lost to promote a result which it is confidently believed would +confer very large benefits upon the commerce of the world. + +The recent monetary disturbances in England are not unlikely to suggest a +reexamination of opinions upon this subject. Our very large supply of gold +will, if not lost by impulsive legislation in the supposed interest of +silver, give us a position of advantage in promoting a permanent and safe +international agreement for the free use of silver as a coin metal. + +The efforts of the Secretary to increase the volume of money in circulation +by keeping down the Treasury surplus to the lowest practicable limit have +been unremitting and in a very high degree successful. The tables presented +by him showing the increase of money in circulation during the last two +decades, and especially the table showing the increase during the nineteen +months he has administered the affairs of the Department, are interesting +and instructive. The increase of money in circulation during the nineteen +months has been in the aggregate $93,866,813, or about $1.50 per capita, +and of this increase only $7,100,000 was due to the recent silver +legislation. That this substantial and needed aid given to commerce +resulted in an enormous reduction of the public debt and of the annual +interest charge is matter of increased satisfaction. There have been +purchased and redeemed since March 4, 1889, 4 and 4 1\2 per cent bonds to +the amount of $211,832,450, at a cost of $246,620,741, resulting in the +reduction of the annual interest charge of $8,967,609 and a total saving of +interest of $51,576,706. + +I notice with great pleasure the statement of the Secretary that the +receipts from internal revenue have increased during the last fiscal year +nearly $12,000,000, and that the cost of collecting this larger revenue was +less by $90,617 than for the same purpose in the preceding year. The +percentage of cost of collecting the customs revenue was less for the last +fiscal year than ever before. + +The Customs Administration Board, provided for by the act of June 10, 1890, +was selected with great care, and is composed in part of men whose previous +experience in the administration of the old customs regulations had made +them familiar with the evils to be remedied, and in part of men whose legal +and judicial acquirements and experience seemed to fit them for the work of +interpreting and applying the new statute. The chief aim of the law is to +secure honest valuations of all dutiable merchandise and to make these +valuations uniform at all our ports of entry. It had been made manifest by +a Congressional investigation that a system of undervaluation had been long +in use by certain classes of importers, resulting not only in a great loss +of revenue, but in a most intolerable discrimination against honesty. It is +not seen how this legislation, when it is understood, can be regarded by +the citizens of any country having commercial dealings with us as +unfriendly. If any duty is supposed to be excessive, let the complaint be +lodged there. It will surely not be claimed by any well-disposed people +that a remedy may be sought and allowed in a system of quasi smuggling. + +The report of the Secretary of War exhibits several gratifying results +attained during the year by wise and unostentatious methods. The percentage +of desertions from the Army (an evil for which both Congress and the +Department have long been seeking a remedy) has been reduced during the +past year 24 per cent, and for the months of August and September, during +which time the favorable effects of the act of June 16 were felt, 33 per +cent, as compared with the same months of 1889. + +The results attained by a reorganization and consolidation of the divisions +having charge of the hospital and service records of the volunteer soldiers +are very remarkable. This change was effected in July, 1889, and at that +time there were 40,654 cases awaiting attention, more than half of these +being calls from the Pension Office for information necessary to the +adjudication of pension claims. On the 30th day of June last, though over +300,000 new calls had come in, there was not a single case that had not +been examined and answered. + +I concur in the recommendations of the Secretary that adequate and regular +appropriations be continued for coast-defense works and ordnance. Plans +have been practically agreed upon, and there can be no good reason for +delaying the execution of them, while the defenseless state of our great +seaports furnishes an urgent reason for wise expedition. + +The encouragement that has been extended to the militia of the States, +generally and most appropriately designated the "National Guard," should be +continued and enlarged. These military organizations constitute in a large +sense the Army of the United States, while about five-sixths of the annual +cost of their maintenance is defrayed by the States. + +The report of the Attorney-General is under the law submitted directly to +Congress, but as the Department of Justice is one of the Executive +Departments some reference to the work done is appropriate here. + +A vigorous and in the main an effective effort has been made to bring to +trial and punishment all violators of the law, but at the same time care +has been taken that frivolous and technical offenses should not be used to +swell the fees of officers or to harass well-disposed citizens. Especial +attention is called to the facts connected with the prosecution of +violations of the election laws and of offenses against United States +officers. The number of convictions secured, very many of them upon pleas +of guilty, will, it is hoped, have a salutary restraining influence. There +have been several cases where postmasters appointed by me have been +subjected to violent interference in the discharge of their official duties +and to persecutions and personal violence of the most extreme character. +Some of these cases have been dealt with through the Department of Justice, +and in some cases the post-offices have been abolished or suspended. I have +directed the Postmaster-General to pursue this course in all cases where +other efforts failed to secure for any postmaster not himself in fault an +opportunity peacefully to exercise the duties of his office. But such +action will not supplant the efforts of the Department of Justice to bring +the particular offenders to punishment. + +The vacation by judicial decrees of fraudulent certificates of +naturalization, upon bills in equity filed by the Attorney-General in the +circuit court of the United States, is a new application of a familiar +equity jurisdiction. Nearly one hundred such decrees have been taken during +the year, the evidence disclosing that a very large number of fraudulent +certificates of naturalization have been issued. And in this connection I +beg to renew my recommendation that the laws be so amended as to require a +more full and searching inquiry into all the facts necessary to +naturalization before any certificates are granted. It certainly is not too +much to require that an application for American citizenship shall be heard +with as much care and recorded with as much formality as are given to cases +involving the pettiest property right. + +At the last session I returned without my approval a bill entitled "An act +to prohibit bookmaking and pool selling in the District of Columbia," and +stated my objection to be that it did not prohibit but in fact licensed +what it purported to prohibit. An effort will be made under existing laws +to suppress this evil, though it is not certain that they will be found +adequate. + +The report of the Postmaster-General shows the most gratifying progress in +the important work committed to his direction. The business methods have +been greatly improved. A large economy in expenditures and an increase of +four and three-quarters millions in receipts have been realized. The +deficiency this year is $5,786,300, as against $6,350,183 last year, +notwithstanding the great enlargement of the service. Mail routes have been +extended and quickened and greater accuracy and dispatch in distribution +and delivery have been attained. The report will be found to be full of +interest and suggestion, not only to Congress, but to those thoughtful +citizens who may be interested to know what business methods can do for +that department of public administration which most nearly touches all our +people. + +The passage of the act to amend certain sections of the Revised Statutes +relating to lotteries, approved September 19, 1890, has been received with +great and deserved popular favor. The Post-Office Department and the +Department of Justice at once entered upon the enforcement of the law with +sympathetic vigor, and already the public mails have been largely freed +from the fraudulent and demoralizing appeals and literature emanating from +the lottery companies. + +The construction and equipment of the new ships for the Navy have made very +satisfactory progress. Since March 4, 1889, nine new vessels have been put +in commission, and during this winter four more, including one monitor, +will be added. The construction of the other vessels authorized is being +pushed both in the Government and private yards with energy and watched +with the most scrupulous care. + +The experiments conducted during the year to test the relative resisting +power of armor plates have been so valuable as to attract great attention +in Europe. The only part of the work upon the new ships that is threatened +by unusual delay is the armor plating, and every effort is being made to +reduce that to the minimum. It is a source of congratulation that the +anticipated influence of these modern vessels upon the esprit de corps of +the officers and seamen has been fully realized. Confidence and pride in +the ship among the crew are equivalent to a secondary battery. Your +favorable consideration is invited to the recommendations of the +Secretary. + +The report of the Secretary of the Interior exhibits with great fullness +and clearness the vast work of that Department and the satisfactory results +attained. The suggestions made by him are earnestly commended to the +consideration of Congress, though they can not all be given particular +mention here. + +The several acts of Congress looking to the reduction of the larger Indian +reservations, to the more rapid settlement of the Indians upon individual +allotments, and the restoration to the public domain of lands in excess of +their needs have been largely carried into effect so far as the work was +confided to the Executive. Agreements have been concluded since March 4, +1889, involving the cession to the United States of about 14,726,000 acres +of land. These contracts have, as required by law, been submitted to +Congress for ratification and for the appropriations necessary to carry +them into effect. Those with the Sisseton and Wahpeton, Sac and Fox, Iowa, +Pottawatomies and Absentee Shawnees, and Coeur d'Alene tribes have not yet +received the sanction of Congress. Attention is also called to the fact +that the appropriations made in the case of the Sioux Indians have not +covered all the stipulated payments. This should be promptly corrected. If +an agreement is confirmed, all of its terms should be complied with without +delay and full appropriations should be made. + +The policy outlined in my last annual message in relation to the patenting +of lands to settlers upon the public domain has been carried out in the +administration of the Land Office. No general suspicion or imputation of +fraud has been allowed to delay the hearing and adjudication of individual +cases upon their merits. The purpose has been to perfect the title of +honest settlers with such promptness that the value of the entry might not +be swallowed up by the expense and extortions to which delay subjected the +claimant. The average monthly issue of agricultural patents has been +increased about 6,000. + +The disability-pension act, which was approved on the 27th of June last, +has been put into operation as rapidly as was practicable. The increased +clerical force provided was selected and assigned to work, and a +considerable part of the force engaged in examinations in the field was +recalled and added to the working force of the office. The examination and +adjudication of claims have by reason of improved methods been more rapid +than ever before. There is no economy to the Government in delay, while +there is much hardship and injustice to the soldier. The anticipated +expenditure, while very large, will not, it is believed, be in excess of +the estimates made before the enactment of the law. This liberal +enlargement of the general law should suggest a more careful scrutiny of +bills for special relief, both as to the cases where relief is granted and +as to the amount allowed. + +The increasing numbers and influence of the non-Mormon population of Utah +are observed with satisfaction. The recent letter of Wilford Woodruff, +president of the Mormon Church, in which he advised his people "to refrain +from contracting any marriage forbidden by the laws of the land," has +attracted wide attention, and it is hoped that its influence will be highly +beneficial in restraining infractions of the laws of the United States. But +the fact should not be overlooked that the doctrine or belief of the church +that polygamous marriages are rightful and supported by divine revelation +remains unchanged. President Woodruff does not renounce the doctrine, but +refrains from teaching it, and advises against the practice of it because +the law is against it. Now, it is quite true that the law should not +attempt to deal with the faith or belief of anyone; but it is quite another +thing, and the only safe thing, so to deal with the Territory of Utah as +that those who believe polygamy to be rightful shall not have the power to +make it lawful. + +The admission of the States of Wyoming and Idaho to the Union are events +full of interest and congratulation, not only to the people of those States +now happily endowed with a full participation in our privileges and +responsibilities, but to all our people. Another belt of States stretches +from the Atlantic to the Pacific. + +The work of the Patent Office has won from all sources very high +commendation. The amount accomplished has been very largely increased, and +all the results have been such as to secure confidence and consideration +for the suggestions of the Commissioner. + +The enumeration of the people of the United States under the provisions of +the act of March 1, 1889, has been completed, and the result will be at +once officially communicated to Congress. The completion of this decennial +enumeration devolves upon Congress the duty of making a new apportionment +of Representatives "among the several States according to their respective +numbers." + +At the last session I had occasion to return with my objections several +bills making provisions for the erection of public buildings for the reason +that the expenditures contemplated were, in my opinion, greatly in excess +of any public need. No class of legislation is more liable to abuse or to +degenerate into an unseemly scramble about the public Treasury than this. +There should be exercised in this matter a wise economy, based upon some +responsible and impartial examination and report as to each case, under a +general law. + +The report of the Secretary of Agriculture deserves especial attention in +view of the fact that the year has been marked in a very unusual degree by +agitation and organization among the farmers looking to an increase in the +profits of their business. It will be found that the efforts of the +Department have been intelligently and zealously devoted to the promotion +of the interests intrusted to its care. + +A very substantial improvement in the market prices of the leading farm +products during the year is noticed. The price of wheat advanced from 81 +cents in October, 1889, to $1.00 3/4 in October, 1890; corn from 31 cents +to 50 1/4 cents; oats from 19 1/4 cents to 43 cents, and barley from 63 +cents to 78 cents. Meats showed a substantial but not so large an increase. +The export trade in live animals and fowls shows a very large increase. The +total value of such exports for the year ending June 30, 1890, was +$33,000,000, and the increase over the preceding year was over $15,000,000. +Nearly 200,000 more cattle and over 45,000 more hogs were exported than in +the preceding year. The export trade in beef and pork products and in dairy +products was very largely increased, the increase in the article of butter +alone being from 15,504,978 pounds to 29,748,042 pounds, and the total +increase in the value of meat and dairy products exported being +$34,000,000. This trade, so directly helpful to the farmer, it is believed, +will be yet further and very largely increased when the system of +inspection and sanitary supervision now provided by law is brought fully +into operation. + +The efforts of the Secretary to establish the healthfulness of our meats +against the disparaging imputations that have been put upon them abroad +have resulted in substantial progress. Veterinary surgeons sent out by the +Department are now allowed to participate in the inspection of the live +cattle from this country landed at the English docks, and during the +several months they have been on duty no case of contagious +pleuro-pneumonia has been reported. This inspection abroad and the domestic +inspection of live animals and pork products provided for by the act of +August 30, 1890, will afford as perfect a guaranty for the wholesomeness of +our meats offered for foreign consumption as is anywhere given to any food +product, and its nonacceptance will quite clearly reveal the real motive of +any continued restriction of their use, and that having been made clear the +duty of the Executive will be very plain. + +The information given by the Secretary of the progress and prospects of the +beet-sugar industry is full of interest. It has already passed the +experimental stage and is a commercial success. The area over which the +sugar beet can be successfully cultivated is very large, and another field +crop of great value is offered to the choice of the farmer. + +The Secretary of the Treasury concurs in the recommendation of the +Secretary of Agriculture that the official supervision provided by the +tariff law for sugar of domestic production shall be transferred to the +Department of Agriculture. + +The law relating to the civil service has, so far as I can learn, been +executed by those having the power of appointment in the classified service +with fidelity and impartiality, and the service has been increasingly +satisfactory. The report of the Commission shows a large amount of good +work done during the year with very limited appropriations. + +I congratulate the Congress and the country upon the passage at the first +session of the Fifty-first Congress of an unusual number of laws of very +high importance. That the results of this legislation will be the +quickening and enlargement of our manufacturing industries, larger and +better markets for our breadstuffs and provisions both at home and abroad, +more constant employment and better wages for our working people, and an +increased supply of a safe currency for the transaction of business, I do +not doubt. Some of these measures were enacted at so late a period that the +beneficial effects upon commerce which were in the contemplation of +Congress have as yet but partially manifested themselves. + +The general trade and industrial conditions throughout the country during +the year have shown a marked improvement. For many years prior to 1888 the +merchandise balances of foreign trade had been largely in our favor, but +during that year and the year following they turned against us. It is very +gratifying to know that the last fiscal year again shows a balance in our +favor of over $68,000,000. The bank clearings, which furnish a good test of +the volume of business transacted, for the first ten months of the year +1890 show as compared with the same months of 1889 an increase for the +whole country of about 8.4 per cent, while the increase outside of the city +of New York was over 13 per cent. During the month of October the clearings +of the whole country showed an increase of 3.1 per cent over October, 1889, +while outside of New York the increase was 11.5 per cent. These figures +show that the increase in the volume of business was very general +throughout the country. That this larger business was being conducted upon +a safe and profitable basis is shown by the fact that there were 300 less +failures reported in October, 1890, than in the same month of the preceding +year, with liabilities diminished by about $5,000,000. + +The value of our exports of domestic merchandise during the last year was +over $115,000,000 greater than the preceding year, and was only exceeded +once in our history. About $100,000,000 of this excess was in agricultural +products. The production of pig iron, always a good gauge of general +prosperity, is shown by a recent census bulletin to have been 153 per cent +greater in 1890 than in 1880, and the production of steel 290 per cent +greater. Mining in coal has had no limitation except that resulting from +deficient transportation. The general testimony is that labor is everywhere +fully employed, and the reports for the last year show a smaller number of +employees affected by strikes and lockouts than in any year since 1884. The +depression in the prices of agricultural products had been greatly relieved +and a buoyant and hopeful tone was beginning to be felt by all our people. + +These promising influences have been in some degree checked by the +surprising and very unfavorable monetary events which have recently taken +place in England. It is gratifying to know that these did not grow in any +degree out of the financial relations of London with our people or out of +any discredit attached to our securities held in that market. The return of +our bonds and stocks was caused by a money stringency in England, not by +any loss of value or credit in the securities themselves. We could not, +however, wholly escape the ill effects of a foreign monetary agitation +accompanied by such extraordinary incidents as characterized this. It is +not believed, however, that these evil incidents, which have for the time +unfavorably affected values in this country, can long withstand the strong, +safe, and wholesome influences which are operating to give to our people +profitable returns in all branches of legitimate trade and industry. The +apprehension that our tariff may again and at once be subjected to +important general changes would undoubtedly add a depressing influence of +the most serious character. + +The general tariff act has only partially gone into operation, some of its +important provisions being limited to take effect at dates yet in the +future. The general provisions of the law have been in force less than +sixty days. Its permanent effects upon trade and prices still largely stand +in conjecture. It is curious to note that the advance in the prices of +articles wholly unaffected by the tariff act was by many hastily ascribed +to that act. Notice was not taken of the fact that the general tendency of +the markets was upward, from influences wholly apart from the recent tariff +legislation. The enlargement of our currency by the silver bill undoubtedly +gave an upward tendency to trade and had a marked effect on prices; but +this natural and desired effect of the silver legislation was by many +erroneously attributed to the tariff act. + +There is neither wisdom nor justice in the suggestion that the subject of +tariff revision shall be again opened before this law has had a fair trial. +It is quite true that every tariff schedule is subject to objections. No +bill was ever framed, I suppose, that in all of its rates and +classifications had the full approval even of a party caucus. Such +legislation is always and necessarily the product of compromise as to +details, and the present law is no exception. But in its general scope and +effect I think it will justify the support of those who believe that +American legislation should conserve and defend American trade and the +wages of American workmen. + +The misinformation as to the terms of the act which has been so widely +disseminated at home and abroad will be corrected by experience, and the +evil auguries as to its results confounded by the market reports, the +savings banks, international trade balances, and the general prosperity of +our people. Already we begin to hear from abroad and from our customhouses +that the prohibitory effect upon importations imputed to the act is not +justified. The imports at the port of New York for the first three weeks of +November were nearly 8 per cent greater than for the same period in 1889 +and 29 per cent greater than in the same period of 1888. And so far from +being an act to limit exports, I confidently believe that under it we shall +secure a larger and more profitable participation in foreign trade than we +have ever enjoyed, and that we shall recover a proportionate participation +in the ocean carrying trade of the world. + +The criticisms of the bill that have come to us from foreign sources may +well be rejected for repugnancy. If these critics really believe that the +adoption by us of a free-trade policy, or of tariff rates having reference +solely to revenue, would diminish the participation of their own countries +in the commerce of the world, their advocacy and promotion, by speech and +other forms of organized effort, of this movement among our people is a +rare exhibition of unselfishness in trade. And, on the other hand, if they +sincerely believe that the adoption of a protective-tariff policy by this +country inures to their profit and our hurt, it is noticeably strange that +they should lead the outcry against the authors of a policy so helpful to +their countrymen and crown with their favor those who would snatch from +them a substantial share of a trade with other lands already inadequate to +their necessities. + +There is no disposition among any of our people to promote prohibitory or +retaliatory legislation. Our policies are adopted not to the hurt of +others, but to secure for ourselves those advantages that fairly grow out +of our favored position as a nation. Our form of government, with its +incident of universal suffrage, makes it imperative that we shall save our +working people from the agitations and distresses which scant work and +wages that have no margin for comfort always beget. But after all this is +done it will be found that our markets are open to friendly commercial +exchanges of enormous value to the other great powers. + +From the time of my induction into office the duty of using every power and +influence given by law to the executive department for the development of +larger markets for our products, especially our farm products, has been +kept constantly in mind, and no effort has been or will be spared to +promote that end. We are under no disadvantage in any foreign market, +except that we pay our workmen and workwomen better wages than are paid +elsewhere--better abstractly, better relatively to the cost of the +necessaries of life. I do not doubt that a very largely increased foreign +trade is accessible to us without bartering for it either our home market +for such products of the farm and shop as our own people can supply or the +wages of our working people. + +In many of the products of wood and iron and in meats and breadstuffs we +have advantages that only need better facilities of intercourse and +transportation to secure for them large foreign markets. The reciprocity +clause of the tariff act wisely and effectively opens the way to secure a +large reciprocal trade in exchange for the free admission to our ports of +certain products. The right of independent nations to make special +reciprocal trade concessions is well established, and does not impair +either the comity due to other powers or what is known as the +"favored-nation clause," so generally found in commercial treaties. What is +given to one for an adequate agreed consideration can not be claimed by +another freely. The state of the revenues was such that we could dispense +with any import duties upon coffee, tea, hides, and the lower grades of +sugar and molasses. That the large advantage resulting to the countries +producing and exporting these articles by placing them on the free list +entitled us to expect a fair return in the way of customs concessions upon +articles exported by us to them was so obvious that to have gratuitously +abandoned this opportunity to enlarge our trade would have been an +unpardonable error. + +There were but two methods of maintaining control of this question open to +Congress--to place all of these articles upon the dutiable list, subject to +such treaty agreements as could be secured, or to place them all presently +upon the free list, but subject to the reimposition of specified duties if +the countries from which we received them should refuse to give to us +suitable reciprocal benefits. This latter method, I think, possesses great +advantages. It expresses in advance the consent of Congress to reciprocity +arrangements affecting these products, which must otherwise have been +delayed and unascertained until each treaty was ratified by the Senate and +the necessary legislation enacted by Congress. Experience has shown that +some treaties looking to reciprocal trade have failed to secure a +two-thirds vote in the Senate for ratification, and others having passed +that stage have for years awaited the concurrence of the House and Senate +in such modifications of our revenue laws as were necessary to give effect +to their provisions. We now have the concurrence of both Houses in advance +in a distinct and definite offer of free entry to our ports of specific +articles. The Executive is not required to deal in conjecture as to what +Congress will accept. Indeed, this reciprocity provision is more than an +offer. Our part of the bargain is complete; delivery has been made; and +when the countries from which we receive sugar, coffee, tea, and hides have +placed on their free lists such of our products as shall be agreed upon as +an equivalent for our concession, a proclamation of that fact completes the +transaction; and in the meantime our own people have free sugar, tea, +coffee, and hides. + +The indications thus far given are very hopeful of early and favorable +action by the countries from which we receive our large imports of coffee +and sugar, and it is confidently believed that if steam communication with +these countries can be promptly improved and enlarged the next year will +show a most gratifying increase in our exports of breadstuffs and +provisions, as well as of some important lines of manufactured goods. + +In addition to the important bills that became laws before the adjournment +of the last session, some other bills of the highest importance were well +advanced toward a final vote and now stand upon the calendars of the two +Houses in favored positions. The present session has a fixed limit, and if +these measures are not now brought to a final vote all the work that has +been done upon them by this Congress is lost. The proper consideration of +these, of an apportionment bill, and of the annual appropriation bills will +require not only that no working day of the session shall be lost, but that +measures of minor and local interest shall not be allowed to interrupt or +retard the progress of those that are of universal interest. In view of +these conditions, I refrain from bringing before you at this time some +suggestions that would otherwise be made, and most earnestly invoke your +attention to the duty of perfecting the important legislation now well +advanced. To some of these measures, which seem to me most important, I now +briefly call your attention. + +I desire to repeat with added urgency the recommendations contained in my +last annual message in relation to the development of American steamship +lines. The reciprocity clause of the tariff bill will be largely limited +and its benefits retarded and diminished if provision is not +contemporaneously made to encourage the establishment of first-class steam +communication between our ports and the ports of such nations as may meet +our overtures for enlarged commercial exchanges. The steamship, carrying +the mails statedly and frequently and offering to passengers a comfortable, +safe, and speedy transit, is the first condition of foreign trade. It +carries the order or the buyer, but not all that is ordered or bought. It +gives to the sailing vessels such cargoes as are not urgent or perishable, +and, indirectly at least, promotes that important adjunct of commerce. +There is now both in this country and in the nations of Central and South +America a state of expectation and confidence as to increased trade that +will give a double value to your prompt action upon this question. + +The present situation of our mail communication with Australia illustrates +the importance of early action by Congress. The Oceanic Steamship Company +maintains a line of steamers between San Francisco, Sydney, and Auckland +consisting of three vessels, two of which are of United States registry and +one of foreign registry. For the service done by this line in carrying the +mails we pay annually the sum of $46,000, being, as estimated, the full sea +and United States inland postage, which is the limit fixed by law. The +colonies of New South Wales and New Zealand have been paying annually to +these lines lbs. 37,000 for carrying the mails from Sydney and Auckland to +San Francisco. The contract under which this payment has been made is now +about to expire, and those colonies have refused to renew the contract +unless the United States shall pay a more equitable proportion of the whole +sum necessary to maintain the service. + +I am advised by the Postmaster-General that the United States receives for +carrying the Australian mails, brought to San Francisco in these steamers, +by rail to Vancouver, an estimated annual income of $75,000, while, as I +have stated, we are paying out for the support of the steamship line that +brings this mail to us only $46,000, leaving an annual surplus resulting +from this service of $29,000. The trade of the United States with +Australia, which is in a considerable part carried by these steamers, and +the whole of which is practically dependent upon the mail communication +which they maintain, is largely in our favor. Our total exports of +merchandise to Australasian ports during the fiscal year ending June 30, +1890, were $11,266,484, while the total imports of merchandise from these +ports were only $4,277,676. If we are not willing to see this important +steamship line withdrawn, or continued with Vancouver substituted for San +Francisco as the American terminal, Congress should put it in the power of +the Postmaster-General to make a liberal increase in the amount now paid +for the transportation of this important mail. + +The South Atlantic and Gulf ports occupy a very favored position toward the +new and important commerce which the reciprocity clause of the tariff act +and the postal shipping bill are designed to promote. Steamship lines from +these ports to some northern port of South America will almost certainly +effect a connection between the railroad systems of the continents long +before any continuous line of railroads can be put into operation. The very +large appropriation made at the last session for the harbor of Galveston +was justified, as it seemed to me, by these considerations. The great +Northwest will feel the advantage of trunk lines to the South as well as to +the East and of the new markets opened for their surplus food products and +for many of their manufactured products. + +I had occasion in May last to transmit to Congress a report adopted by the +International American Conference upon the subject of the incorporation of +an international American bank, with a view to facilitating money exchanges +between the States represented in that conference. Such an institution +would greatly promote the trade we are seeking to develop. I renew the +recommendation that a careful and well-guarded charter be granted. I do not +think the powers granted should include those ordinarily exercised by +trust, guaranty, and safe-deposit companies, or that more branches in the +United States should be authorized than are strictly necessary to +accomplish the object primarily in view, namely, convenient foreign +exchanges. It is quite important that prompt action should be taken in this +matter, in order that any appropriations for better communication with +these countries and any agreements that may be made for reciprocal trade +may not be hindered by the inconvenience of making exchanges through +European money centers or burdened by the tribute which is an incident of +that method of business. + +The bill for the relief of the Supreme Court has after many years of +discussion reached a position where final action is easily attainable, and +it is hoped that any differences of opinion may be so harmonized as to save +the essential features of this very important measure. In this connection I +earnestly renew my recommendation that the salaries of the judges of the +United States district courts be so readjusted that none of them shall +receive less than $5,000 per annum. + +The subject of the unadjusted Spanish and Mexican land grants and the +urgent necessity for providing some commission or tribunal for the trial of +questions of title growing out of them were twice brought by me to the +attention of Congress at the last session. Bills have been reported from +the proper committees in both Houses upon the subject, and I very earnestly +hope that this Congress will put an end to the delay which has attended the +settlement of the disputes as to the title between the settlers and the +claimants under these grants. These disputes retard the prosperity and +disturb the peace of large and important communities. The governor of New +Mexico in his last report to the Secretary of the Interior suggests some +modifications of the provisions of the pending bills relating to the small +holdings of farm lands. I commend to your attention the suggestions of the +Secretary of the Interior upon this subject. + +The enactment of a national bankrupt law I still regard as very desirable. +The Constitution having given to Congress jurisdiction of this subject, it +should be exercised and uniform rules provided for the administration of +the affairs of insolvent debtors. The inconveniences resulting from the +occasional and temporary exercise of this power by Congress and from the +conflicting State codes of insolvency which come into force intermediately +should be removed by the enactment of a simple, inexpensive, and permanent +national bankrupt law. + +I also renew my recommendation in favor of legislation affording just +copyright protection to foreign authors on a footing of reciprocal +advantage for our authors abroad. + +It may still be possible for this Congress to inaugurate by suitable +legislation a movement looking to uniformity and increased safety in the +use of couplers and brakes upon freight trains engaged in interstate +commerce. The chief difficulty in the way is to secure agreement as to the +best appliances, simplicity, effectiveness, and cost being considered. This +difficulty will only yield to legislation, which should be based upon full +inquiry and impartial tests. The purpose should be to secure the +cooperation of all well-disposed managers and owners; but the fearful fact +that every year's delay involves the sacrifice of 2,000 lives and the +maiming of 20,000 young men should plead both with Congress and the +managers against any needless delay. + +The subject of the conservation and equal distribution of the water supply +of the arid regions has had much attention from Congress, but has not as +yet been put upon a permanent and satisfactory basis. The urgency of the +subject does not grow out of any large present demand for the use of these +lands for agriculture, but out of the danger that the water supply and the +sites for the necessary catch basins may fall into the hands of individuals +or private corporations and be used to render subservient the large areas +dependent upon such supply. The owner of the water is the owner of the +lands, however the titles may run. All unappropriated natural water sources +and all necessary reservoir sites should be held by the Government for the +equal use at fair rates of the homestead settlers who will eventually take +up these lands. The United States should not, in my opinion, undertake the +construction of dams or canals, but should limit its work to such surveys +and observations as will determine the water supply, both surface and +subterranean, the areas capable of irrigation, and the location and storage +capacity of reservoirs. This done, the use of the water and of the +reservoir sites might be granted to the respective States or Territories or +to individuals or associations upon the condition that the necessary works +should be constructed and the water furnished at fair rates without +discrimination, the rates to be subject to supervision by the legislatures +or by boards of water commissioners duly constituted. The essential thing +to be secured is the common and equal use at fair rates of the accumulated +water supply. It were almost better that these lands should remain arid +than that those who occupy them should become the slaves of unrestrained +monopolies controlling the one essential element of land values and crop +results. + +The use of the telegraph by the Post-Office Department as a means for the +rapid transmission of written communications is, I believe, upon proper +terms, quite desirable. The Government does not own or operate the +railroads, and it should not, I think, own or operate the telegraph lines. +It does, however, seem to be quite practicable for the Government to +contract with the telegraph companies, as it does with railroad companies, +to carry at specified rates such communications as the senders may +designate for this method of transmission. I recommend that such +legislation be enacted as will enable the Post-Office Department fairly to +test by experiment the advantages of such a use of the telegraph. + +If any intelligent and loyal company of American citizens were required to +catalogue the essential human conditions of national life, I do not doubt +that with absolute unanimity they would begin with "free and honest +elections." And it is gratifying to know that generally there is a growing +and nonpartisan demand for better election laws; but against this sign of +hope and progress must be set the depressing and undeniable fact that +election laws and methods are sometimes cunningly contrived to secure +minority control, while violence completes the shortcomings of fraud. + +In my last annual message I suggested that the development of the existing +law providing a Federal supervision of Congressional elections offered an +effective method of reforming these abuses. The need of such a law has +manifested itself in many parts of the country, and its wholesome +restraints and penalties will be useful in all. The constitutionality of +such legislation has been affirmed by the Supreme Court. Its probable +effectiveness is evidenced by the character of the opposition that is made +to it. It has been denounced as if it were a new exercise of Federal power +and an invasion of the rights of States. Nothing could be further from the +truth. Congress has already fixed the time for the election of members of +Congress. It has declared that votes for members of Congress must be by +written or printed ballot; it has provided for the appointment by the +circuit courts in certain cases, and upon the petition of a certain number +of citizens, of election supervisors, and made it their duty to supervise +the registration of voters conducted by the State officers; to challenge +persons offering to register; to personally inspect and scrutinize the +registry lists, and to affix their names to the lists for the purpose of +identification and the prevention of frauds; to attend at elections and +remain with the boxes till they are all cast and counted; to attach to the +registry lists and election returns any statement touching the accuracy and +fairness of the registry and election, and to take and transmit to the +Clerk of the House of Representatives any evidence of fraudulent practices +which may be presented to them. The same law provides for the appointment +of deputy United States marshals to attend at the polls, support the +supervisors in the discharge of their duties, and to arrest persons +violating the election laws. The provisions of this familiar title of the +Revised Statutes have been put into exercise by both the great political +parties, and in the North as well as in the South, by the filing with the +court of the petitions required by the law. + +It is not, therefore, a question whether we shall have a Federal election +law, for we now have one and have had for nearly twenty years, but whether +we shall have an effective law. The present law stops just short of +effectiveness, for it surrenders to the local authorities all control over +the certification which establishes the prima facie right to a seat in the +House of Representatives. This defect should be cured. Equality of +representation and the parity of the electors must be maintained or +everything that is valuable in our system of government is lost. The +qualifications of an elector must be sought in the law, net in the +opinions, prejudices, or fears of any class, however powerful. The path of +the elector to the ballot box must be free from the ambush of fear and the +enticements of fraud; the count so true and open that none shall gainsay +it. Such a law should be absolutely nonpartisan and impartial. It should +give the advantage to honesty and the control to majorities. Surely there +is nothing sectional about this creed, and if it shall happen that the +penalties of laws intended to enforce these rights fall here and not there +it is not because the law is sectional, but because, happily, crime is +local and not universal. Nor should it be forgotten that every law, whether +relating to elections or to any other subject, whether enacted by the State +or by the nation, has force behind it; the courts, the marshal or +constable, the posse comitatus, the prison, are all and always behind the +law. + +One can not be justly charged with unfriendliness to any section or class +who seeks only to restrain violations of law and of personal right. No +community will find lawlessness profitable. No community can afford to have +it known that the officers who are charged with the preservation of the +public peace and the restraint of the criminal classes are themselves the +product of fraud or violence. The magistrate is then without respect and +the law without sanction. The floods of lawlessness can not be leveed and +made to run in one channel. The killing of a United States marshal carrying +a writ of arrest for an election offense is full of prompting and +suggestion to men who are pursued by a city marshal for a crime against +life or property. + +But it is said that this legislation will revive race animosities, and some +have even suggested that when the peaceful methods of fraud are made +impossible they may be supplanted by intimidation and violence. If the +proposed law gives to any qualified elector by a hair's weight more than +his equal influence or detracts by so much from any other qualified +elector, it is fatally impeached. But if the law is equal and the +animosities it is to evoke grow out of the fact that some electors have +been accustomed to exercise the franchise for others as well as for +themselves, then these animosities ought not to be confessed without shame, +and can not be given any weight in the discussion without dishonor No +choice is left to me but to enforce with vigor all laws intended to secure +to the citizen his constitutional rights and to recommend that the +inadequacies of such laws be promptly remedied. If to promote with zeal and +ready interest every project for the development of its material interests, +its rivers, harbors, mines, and factories, and the intelligence, peace, and +security under the law of its communities and its homes is not accepted as +sufficient evidence of friendliness to any State or section, I can not add +connivance at election practices that not only disturb local results, but +rob the electors of other States and sections of their most priceless +political rights. + +The preparation of the general appropriation bills should be conducted with +the greatest care and the closest scrutiny of expenditures. Appropriations +should be adequate to the needs of the public service, but they should be +absolutely free from prodigality. + +I venture again to remind you that the brief time remaining for the +consideration of the important legislation now awaiting your attention +offers no margin for waste. If the present duty is discharged with +diligence, fidelity, and courage, the work of the Fifty-first Congress may +be confidently submitted to the considerate judgment of the people. + +BENJ. HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 9, 1891 + +To the Senate and House of Representatives: + +The reports of the heads of the several Executive Departments required by +law to be submitted to me, which are herewith transmitted, and the reports +of the Secretary of the Treasury and the Attorney-General, made directly to +Congress, furnish a comprehensive view of the administrative work of the +last fiscal year relating to internal affair. It would be of great +advantage if these reports could have an alternative perusal by every +member of Congress and by all who take an interest in public affairs. Such +a perusal could not fail to excite a higher appreciation of the vast labor +and conscientious effort which are given to the conduct of our civil +administration. + +The reports will, I believe, show that every question has been approached, +considered, and decided from the standpoint of public duty upon +considerations affecting the public interests alone. Again I invite to +every branch of the service the attention and scrutiny of Congress. + +The work of the State Department during the last year has been +characterized by an unusual number of important negotiations and by +diplomatic results of a notable and highly beneficial character. Among +these are the reciprocal trade arrangements which have been concluded, in +the exercise of the powers conferred by section 3 of the tariff law, with +the Republic of Brazil, with Spain for its West India possessions, and with +Santo Domingo. Like negotiations with other countries have been much +advanced, and it is hoped that before the close of the year further +definitive trade arrangements of great value will be concluded. + +In view of the reports which had been received as to the diminution of the +seal herds in the Bering Sea, I deemed it wise to propose to Her Majesty's +Government in February last that an agreement for a closed season should be +made pending the negotiations for arbitration, which then seemed to be +approaching a favorable conclusion. After much correspondence and delays, +for which this Government was not responsible, an agreement was reached and +signed on the 15th of June, by which Great Britain undertook from that date +and until May 1, 1892, to prohibit the killing by her subjects of seals in +the Bering Sea, and the Government of the United States during the same +period to enforce its existing prohibition against pelagic sealing and to +limit the catch by the fur-seal company upon the islands to 7,500 skins. If +this agreement could have been reached earlier in response to the strenuous +endeavors of this Government, it would have been more effective; but coming +even as late as it did it unquestionably resulted in greatly diminishing +the destruction of the seals by the Canadian sealers. + +In my last annual message I stated that the basis of arbitration proposed +by Her Majesty's Government for the adjustment of the long-pending +controversy as to the seal fisheries was not acceptable. I am glad now to +be able to announce that terms satisfactory to this Government have been +agreed upon and that an agreement as to the arbitrators is all that is +necessary to the completion of the convention. In view of the advanced +position which this Government has taken upon the subject of international +arbitration, this renewed expression of our adherence to this method for +the settlement of disputes such as have arisen in the Bering Sea will, I +doubt not, meet with the concurrence of Congress. + +Provision should be made for a joint demarcation of the frontier line +between Canada and the United States wherever required by the increasing +border settlements, and especially for the exact location of the water +boundary in the straits and rivers. + +I should have been glad to announce some favorable disposition of the +boundary dispute between Great Britain and Venezuela touching the western +frontier of British Guiana, but the friendly efforts of the United States +in that direction have thus far been unavailing. This Government will +continue to express its concern at any appearance of foreign encroachment +on territories long under the administrative control of American States. +The determination of a disputed boundary is easily attainable by amicable +arbitration where the rights of the respective parties rest, as here, on +historic facts readily ascertainable. + +The law of the last Congress providing a system of inspection for our meats +intended for export, and clothing the President with power to exclude +foreign products from our market in case the country sending them should +perpetuate unjust discriminations against any product of the United States, +placed this Government in a position to effectively urge the removal of +such discriminations against our meats. It is gratifying to be able to +state that Germany, Denmark, Italy, Austria, and France, in the order +named, have opened their ports to inspected American pork products. The +removal of these restrictions in every instance was asked for and given +solely upon the ground that we have now provided a meat inspection that +should be accepted as adequate to the complete removal of the dangers, real +or fancied, which had been previously urged. The State Department, our +ministers abroad, and the Secretary of Agriculture have cooperated with +unflagging and intelligent zeal for the accomplishment of this great +result. The outlines of an agreement have been reached with Germany looking +to equitable trade concessions in consideration of the continued free +importation of her sugars, but the time has not yet arrived when this +correspondence can be submitted to Congress. + +The recent political disturbances in the Republic of Brazil have excited +regret and solicitude. The information we possessed was too meager to +enable us to form a satisfactory judgment of the causes leading to the +temporary assumption of supreme power by President Fonseca; but this +Government did not fail to express to him its anxious solicitude for the +peace of Brazil and for the maintenance of the free political institutions +which had recently been established there, nor to offer our advice that +great moderation should be observed in the clash of parties and the contest +for leadership. These counsels were received in the most friendly spirit, +and the latest information is that constitutional government has been +reestablished without bloodshed. + +The lynching at New Orleans in March last of eleven men of Italian nativity +by a mob of citizens was a most deplorable and discreditable incident. It +did not, however, have its origin in any general animosity to the Italian +people, nor in any disrespect to the Government of Italy, with which our +relations were of the most friendly character. The fury of the mob was +directed against these men as the supposed participants or accessories in +the murder of a city officer. I do not allude to this as mitigating in any +degree this offense against law and humanity, but only as affecting the +international questions which grew out of it. It was at once represented by +the Italian minister that several of those whose lives had been taken by +the mob were Italian subjects, and a demand was made for the punishment of +the participants and for an indemnity to the families of those who were +killed. It is to be regretted that the manner in which these claims were +presented was not such as to promote a calm discussion of the questions +involved; but this may well be attributed to the excitement and indignation +which the crime naturally evoked. The views of this Government as to its +obligations to foreigners domiciled here were fully stated in the +correspondence, as well as its purpose to make an investigation of the +affair with a view to determine whether there were present any +circumstances that could under such rules of duty as we had indicated +create an obligation upon the United States. The temporary absence of a +minister plenipotentiary of Italy at this capital has retarded the further +correspondence, but it is not doubted that a friendly conclusion is +attainable. + +Some suggestions growing out of this unhappy incident are worthy the +attention of Congress. It would, I believe, be entirely competent for +Congress to make offenses against the treaty rights of foreigners domiciled +in the United States cognizable in the Federal courts. This has not, +however, been done, and the Federal officers and courts have no power in +such cases to intervene, either for the protection of a foreign citizen or +for the punishment of his slayers. It seems to me to follow, in this state +of the law, that the officers of the State charged with police and judicial +powers in such cases must in the consideration of international questions +growing out of such incidents be regarded in such sense as Federal agents +as to make this Government answerable for their acts in cases where it +would be answerable if the United States had used its constitutional power +to define and punish crime against treaty rights. + +The civil war in Chile, which began in January last, was continued, but +fortunately with infrequent and not important armed collisions, until +August 28, when the Congressional forces landed near Valparaiso and after a +bloody engagement captured that city. President Balmaceda at once +recognized that his cause was lost, and a Provisional Government was +speedily established by the victorious party. Our minister was promptly +directed to recognize and put himself in communication with this Government +so soon as it should have established its de facto character, which was +done. During the pendency of this civil contest frequent indirect appeals +were made to this Government to extend belligerent rights to the insurgents +and to give audience to their representatives. This was declined, and that +policy was pursued throughout which this Government when wrenched by civil +war so strenuously insisted upon on the part of European nations. The +Itata, an armed vessel commanded by a naval officer of the insurgent fleet, +manned by its sailors and with soldiers on board, was seized under process +of the United States court at San Diego, Cal., for a violation of our +neutrality laws. While in the custody of an officer of the court the vessel +was forcibly wrested from his control and put to sea. It would have been +inconsistent with the dignity and self-respect of this Government not to +have insisted that the Itala should be returned to San Diego to abide the +judgment of the court. This was so clear to the junta of the Congressional +party, established at Iquique, that before the arrival of the Itata at that +port the secretary of foreign relations of the Provisional Government +addressed to Rear-Admiral Brown, commanding the United States naval forces, +a communication, from which the following is an extract: The Provisional +Government has learned by the cablegrams of the Associated Press that the +transport Itata, detained in San Diego by order of the United States for +taking on board munitions of war, and in possession of the marshal, left +the port, carrying on board this official, who was landed at a point near +the coast, and then continued her voyage. If this news be correct this +Government would deplore the conduct of the Itata, and as an evidence that +it is not disposed to support or agree to the infraction of the laws of the +United States the undersigned takes advantage of the personal relations you +have been good enough to maintain with him since your arrival in this port +to declare to you that as soon as she is within reach of our orders his +Government will put the Itata, with the arms and munitions she took on +board in Sail Diego, at the disposition of the United States. A trial in +the district court of the United States for the southern district of +California has recently resulted in a decision holding, among other things, +that inasmuch as the Congressional party had not been recognized as a +belligerent the acts done in its interest could not be a violation of our +neutrality laws. From this judgment the United States has appealed, not +that the condemnation of the vessel is a matter of importance, but that we +may know what the present state of our law is; for if this construction of +the statute is correct there is obvious necessity for revision and +amendment. + +During the progress of the war in Chile this Government tendered its good +offices to bring about a peaceful adjustment, and it was at one time hoped +that a good result might be reached; but in this we were disappointed. + +The instructions to our naval officers and to our minister at Santiago from +the first to the last of this struggle enjoined upon them the most +impartial treatment and absolute noninterference. I am satisfied that these +instructions were observed and that our representatives were always +watchful to use their influence impartially in the interest of humanity, +and on more than one occasion did so effectively. We could not forget, +however, that this Government was in diplomatic relations with the then +established Government of Chile, as it is now in such relations with the +successor of that Government. I am quite sure that President Montt, who +has, under circumstances of promise for the peace of Chile, been installed +as President of that Republic, will not desire that in the unfortunate +event of any revolt against his authority the policy of this Government +should be other than that which we have recently observed. No official +complaint of the conduct of our minister or of our naval officers during +the struggle has been presented to this Government, and it is a matter of +regret that so many of our own people should have given ear to unofficial +charges and complaints that manifestly had their origin in rival interests +and in a wish to pervert the relations of the United States with Chile. + +The collapse of the Government of Balmaceda brought about a condition which +is unfortunately too familiar in the history of the Central and South +American States. With the overthrow of the Balmaceda Government he and many +of his councilors and officers became at once fugitives for their lives and +appealed to the commanding officers of the foreign naval vessels in the +harbor of Valparaiso and to the resident foreign ministers at Santiago for +asylum. This asylum was freely given, according to my information, by the +naval vessels of several foreign powers and by several of the legations at +Santiago. The American minister as well as his colleagues, acting upon the +impulse of humanity, extended asylum to political refugees whose lives were +in peril. I have not been willing to direct the surrender of such of these +persons as are still in the American legation without suitable conditions. + +It is believed that the Government of Chile is not in a position, in view +of the precedents with which it has been connected, to broadly deny the +right of asylum, and the correspondence has not thus far presented any such +denial. The treatment of our minister for a time was such as to call for a +decided protest, and it was very gratifying to observe that unfriendly +measures, which were undoubtedly the result of the prevailing excitement, +were at once rescinded or suitably relaxed. + +On the 16th of October an event occurred in Valparaiso so serious and +tragic in its circumstances and results as to very justly excite the +indignation of our people and to call for prompt and decided action on the +part of this Government. A considerable number of the sailors of the United +States steamship Baltimore, then in the harbor at Valparaiso, being upon +shore leave and unarmed, were assaulted by armed men nearly simultaneously +in different localities in the city. One petty officer was killed outright +and seven or eight seamen were seriously wounded, one of whom has since +died. So savage and brutal was the assault that several of our sailors +received more than two and one as many as eighteen stab wounds. An +investigation of the affair was promptly made by a board of officers of the +Baltimore, and their report shows that these assaults were unprovoked, that +our men were conducting themselves in a peaceable and orderly manner, and +that some of the police of the city took part in the assault and used their +weapons with fatal effect, while a few others, with some well-disposed +citizens, endeavored to protect our men. Thirty-six of our sailors were +arrested, and some of them while being taken to prison were cruelly beaten +and maltreated. The fact that they were all discharged, no criminal charge +being lodged against any one of them, shows very clearly that they were +innocent of any breach of the peace. + +So far as I have yet been able to learn no other explanation of this bloody +work has been suggested than that it had its origin in hostility to those +men as sailors of the United States, wearing the uniform of their +Government, and not in any individual act or personal animosity. The +attention of the Chilean Government was at once called to this affair, and +a statement of the facts obtained by the investigation we had conducted was +submitted, accompanied by a request to be advised of any other or +qualifying facts in the possession of the Chilean Government that might +tend to relieve this affair of the appearance of an insult to this +Government. The Chilean Government was also advised that if such qualifying +facts did not exist this Government would confidently expect full and +prompt reparation. + +It is to be regretted that the reply of the secretary for foreign affairs +of the Provisional Government was couched in an offensive tone. To this no +response has been made. This Government is now awaiting the result of an +investigation which has been conducted by the criminal court at Valparaiso. +It is reported unofficially that the investigation is about completed, and +it is expected that the result will soon be communicated to this +Government, together with some adequate and satisfactory response to the +note by which the attention of Chile was called to this incident. If these +just expectations should be disappointed or further needless delay +intervene, I will by a special message bring this matter again to the +attention of Congress for such action as may be necessary. The entire +correspondence with the Government of Chile will at an early day be +submitted to Congress. + +I renew the recommendation of my special message dated January 16, 1890, +for the adoption of the necessary legislation to enable this Government to +apply in the case of Sweden and Norway the same rule in respect to the +levying of tonnage dues as was claimed and secured to the shipping of the +United States in 1828 under Article VIII of the treaty of 1827. + +The adjournment of the Senate without action on the pending acts for the +suppression of the slave traffic in Africa and for the reform of the +revenue tariff of the Independent State of the Kongo left this Government +unable to exchange those acts on the date fixed, July 2, 1891. A modus +vivendi has been concluded by which the power of the Kongo State to levy +duties on imports is left unimpaired, and by agreement of all the +signatories to the general slave-trade act the time for the exchange of +ratifications on the part of the United States has been extended to +February 2, 1892. + +The late outbreak against foreigners in various parts of the Chinese Empire +has been a cause of deep concern in view of the numerous establishments of +our citizens in the interior of that country. This Government can do no +less than insist upon a continuance of the protective and punitory measures +which the Chinese Government has heretofore applied. No effort will be +omitted to protect our citizens peaceably sojourning in China, but recent +unofficial information indicates that what was at first regarded as an +outbreak of mob violence against foreigners has assumed the larger form of +an insurrection against public order. + +The Chinese Government has declined to receive Mr. Blair as the minister of +the United States on the ground that as a participant while a Senator in +the enactment of the existing legislation against the introduction of +Chinese laborers he has become unfriendly and objectionable to China. I +have felt constrained to point out to the Chinese Government the +untenableness of this position, which seems to rest as much on the +unacceptability of our legislation as on that of the person chosen, and +which if admitted would practically debar the selection of any +representative so long as the existing laws remain in force. + +You will be called upon to consider the expediency of making special +provision by law for the temporary admission of some Chinese artisans and +laborers in connection with the exhibit of Chinese industries at the +approaching Columbian Exposition. I regard it as desirable that the Chinese +exhibit be facilitated in every proper way. + +A question has arisen with the Government of Spain touching the rights of +American citizens in the Caroline Islands. Our citizens there long prior to +the confirmation of Spain's claim to the islands had secured by settlement +and purchase certain rights to the recognition and maintenance of which the +faith of Spain was pledged. I have had reason within the past year very +strongly to protest against the failure to carry out this pledge on the +part of His Majesty's ministers, which has resulted in great injustice and +injury to the American residents. + +The Government and people of Spain propose to celebrate the four hundredth +anniversary of the discovery of America by holding an exposition at Madrid, +which will open on the 12th of September and continue until the 31st of +December, 1892. A cordial invitation has been extended to the United States +to take part in this commemoration, and as Spain was one of the first +nations to express the intention to participate in the World's Columbian +Exposition at Chicago, it would be very appropriate for this Government to +give this invitation its friendly promotion. + +Surveys for the connecting links of the projected intercontinental railway +are in progress, not only in Mexico, but at various points along the course +mapped out. Three surveying parties are now in the field under the +direction of the commission. Nearly 1,000 miles of the proposed road have +been surveyed, including the most difficult part, that through Ecuador and +the southern part of Colombia. The reports of the engineers are very +satisfactory, and show that no insurmountable obstacles have been met +with. + +On November 12, 1884, a treaty was concluded with Mexico reaffirming the +boundary between the two countries as described in the treaties of February +2, 1848, and December 30, 1853. March 1, 1889, a further treaty was +negotiated to facilitate the carrying out of the principles of the treaty +of 1884 and to avoid the difficulties occasioned by reason of the changes +and alterations that take place from natural causes in the Rio Grande and +Colorado rivers in the portions thereof constituting the boundary line +between the two Republics. The International Boundary Commission provided +for by the treaty of 1889 to have exclusive jurisdiction of any question +that may arise has been named by the Mexican Government. An appropriation +is necessary to enable the United States to fulfill its treaty obligations +in this respect. + +The death of King Kalakaua in the United States afforded occasion to +testify our friendship for Hawaii by conveying the King's body to his own +land in a naval vessel with all due honors. The Government of his +successor, Queen Liliuokolani is seeking to promote closer commercial +relations with the United States. Surveys for the much-needed submarine +cable from our Pacific coast to Honolulu are in progress, and this +enterprise should have the suitable promotion of the two Governments. I +strongly recommend that provision be made for improving the harbor of Pearl +River and equipping it as a naval station. + +The arbitration treaty formulated by the International American Conference +lapsed by reason of the failure to exchange ratifications fully within the +limit of time provided; but several of the Governments concerned have +expressed a desire to save this important result of the conference by an +extension of the period. It is, in my judgment, incumbent upon the United +States to conserve the influential initiative it has taken in this measure +by ratifying the instrument and by advocating the proposed extension of the +time for exchange. These views have been made known to the other +signatories. + +This Government has found occasion to express in a friendly spirit, but +with much earnestness, to the Government of the Czar its serious concern +because of the harsh measures now being enforced against the Hebrews in +Russia. By the revival of antisemitic laws, long in abeyance, great numbers +of those unfortunate people have been constrained to abandon their homes +and leave the Empire by reason of the impossibility of finding subsistence +within the pale to which it is sought to confine them. The immigration of +these people to the United States--many other countries being closed to +them--is largely increasing and is likely to assume proportions which may +make it difficult to find homes and employment for them here and to +seriously affect the labor market. It is estimated that over 1,000,000 will +be forced from Russia within a few years. The Hebrew is never a beggar; he +has always kept the law--life by toil--often under severe and oppressive +civil restrictions. It is also true that no race, sect, or class has more +fully cared for its own than the Hebrew race. But the sudden transfer of +such a multitude under conditions that tend to strip them of their small +accumulations and to depress their energies and courage is neither good for +them nor for us. + +The banishment, whether by direct decree or by not less certain indirect +methods, of so large a number of men and women is not a local question. A +decree to leave one country is in the nature of things an order to enter +another--some other. This consideration, as well as the suggestion of +humanity, furnishes ample ground for the remonstrances which we have +presented to Russia, while our historic friendship for that Government can +not fail to give the assurance that our representations are those of a +sincere wellwisher. + +The annual report of the Maritime Canal Company of Nicaragua shows that +much costly and necessary preparatory work has been done during the year in +the construction of shops, railroad tracks, and harbor piers and +breakwaters, and that the work of canal construction has made some +progress. + +I deem it to be a matter of the highest concern to the United States that +this canal, connecting the waters of the Atlantic and Pacific oceans and +giving to us a short water communication between our ports upon those two +great seas, should be speedily constructed and at the smallest practicable +limit of cost. The gain in freights to the people and the direct saving to +the Government of the United States in the use of its naval vessels would +pay the entire cost of this work within a short series of years. The report +of the Secretary of the Navy shows the saving in our naval expenditures +which would result. + +The Senator from Alabama (Mr. Morgan) in his argument upon this subject +before the Senate at the last session did not overestimate the importance +of this work when he said that "the canal is the most important subject now +connected with the commercial growth and progress of the United States." + +If this work is to be promoted by the usual financial methods and without +the aid of this Government, the expenditures in its interest-bearing +securities and stock will probably be twice the actual cost. This will +necessitate higher tolls and constitute a heavy and altogether needless +burden upon our commerce and that of the world. Every dollar of the bonds +and stock of the company should represent a dollar expended in the +legitimate and economical prosecution of the work. This is only possible by +giving to the bonds the guaranty of the United States Government. Such a +guaranty would secure the ready sale at par of a 3 per cent bond from time +to time as the money was needed. I do not doubt that built upon these +business methods the canal would when fully inaugurated earn its fixed +charges and operating expenses. But if its bonds are to be marketed at +heavy discounts and every bond sold is to be accompanied by a gift of +stock, as has come to be expected by investors in such enterprises, the +traffic will be seriously burdened to pay interest and dividends. I am +quite willing to recommend Government promotion in the prosecution of a +work which, if no other means offered for securing its completion, is of +such transcendent interest that the Government should, in my opinion, +secure it by direct appropriations from its Treasury. + +A guaranty of the bonds of the canal company to an amount necessary to the +completion of the canal could, I think, be so given as not to involve any +serious risk of ultimate loss. The things to be carefully guarded are the +completion of the work within the limits of the guaranty, the subrogation +of the United States to the rights of the first-mortgage bondholders for +any amounts it may have to pay, and in the meantime a control of the stock +of the company as a security against mismanagement and loss. I most +sincerely hope that neither party nor sectional lines will be drawn upon +this great American project, so full of interest to the people of all our +States and so influential in its effects upon the prestige and prosperity +of our common country. + +The island of Navassa, in the West Indian group, has, under the provisions +of Title VII of the Revised Statutes, been recognized by the President as +appertaining to the United States. It contains guano deposits, is owned by +the Navassa Phosphate Company, and is occupied solely its employees. In +September, 1889, a revolt took place among these laborers, resulting in the +killing of some of the agents of the company, caused, as the laborers +claimed, by cruel treatment. These men were arrested and tried in the +United States court at Baltimore, under section 5576 of the statute +referred to, as if the offenses had been committed on board a merchant +vessel of the United States on the high seas. There appeared on the trial +and otherwise came to me such evidences of the bad treatment of the men +that in consideration of this and of the fact that the men had no access to +any public officer or tribunal for protection or the redress of their +wrongs I commuted the death sentences that had been passed by the court +upon three of them. In April last my attention was again called to this +island and to the unregulated condition of things there by a letter from a +colored laborer, who complained that he was wrongfully detained upon the +island by the phosphate company after the expiration of his contract of +service. A naval vessel was sent to examine into the case of this man and +generally into the condition of things on the island. It was found that the +laborer referred to had been detained beyond the contract limit and that a +condition of revolt again existed among the laborers. A board of naval +officers reported, among other things, as follows: We would desire to state +further that the discipline maintained on the island seems to be that of a +convict establishment without its comforts and cleanliness, and that until +more attention is paid to the shipping of laborers by placing it under +Government supervision to prevent misunderstanding and misrepresentation, +and until some amelioration is shown in the treatment of the laborers, +these disorders will be of constant occurrence. I recommend legislation +that shall place labor contracts upon this and other islands having the +relation that Navassa has to the United States under the supervision of a +court commissioner, and that shall provide at the expense of the owners an +officer to reside upon the island, with power to judge and adjust disputes +and to enforce a just and humane treatment of the employees. It is +inexcusable that American laborers should be left within our own +jurisdiction without access to any Government officer or tribunal for their +protection and the redress of their wrongs. + +International copyright has been secured, in accordance with the conditions +of the act of March 3, 1891, with Belgium, France, Great Britain and the +British possessions, and Switzerland, the laws of those countries +permitting to our citizens the benefit of copyright on substantially the +same basis as to their own citizens or subjects. + +With Germany a special convention has been negotiated upon this subject +which will bring that country within the reciprocal benefits of our +legislation. + +The general interest in the operations of the Treasury Department has been +much augmented during the last year by reason of the conflicting +predictions, which accompanied and followed the tariff and other +legislation of the last Congress affecting the revenues, as to the results +of this legislation upon the Treasury and upon the country. On the one hand +it was contended that imports would so fall off as to leave the Treasury +bankrupt and that the prices of articles entering into the living of the +people would be so enhanced as to disastrously affect their comfort and +happiness, while on the other it was argued that the loss to the revenue, +largely the result of placing sugar on the free list, would be a direct +gain to the people; that the prices of the necessaries of life, including +those most highly protected, would not be enhanced; that labor would have a +larger market and the products of the farm advanced prices, while the +Treasury surplus and receipts would be adequate to meet the appropriations, +including the large exceptional expenditures for the refunding to the +States of the direct tax and the redemption of the 4 1/2 per cent bonds. + +It is not my purpose to enter at any length into a discussion of the +effects of the legislation to which I have referred; but a brief +examination of the statistics of the Treasury and a general glance at the +state of business throughout the country will, I think, satisfy any +impartial inquirer that its results have disappointed the evil prophecies +of its opponents and in a large measure realized the hopeful predictions of +its friends. Rarely, if ever before, in the history of the country has +there been a time when the proceeds of one day's labor or the product of +one farmed acre would purchase so large an amount of those things that +enter into the living of the masses of the people. I believe that a full +test will develop the fact that the tariff act of the Fifty-first Congress +is very favorable in its average effect upon the prices of articles +entering into common use. + +During the twelve months from October 1, 1890, to September 30, 1891, the +total value of our foreign commerce (imports and exports combined) was +$1,747,806,406, which was the largest of any year in the history of the +United States. The largest in any previous year was in 1890, when our +commerce amounted to $1,647,139,093, and the last year exceeds this +enormous aggregate by over one hundred millions. It is interesting, and to +some will be surprising, to know that during the year ending September 30, +1891, our imports of merchandise amounted to $824,715,270, which was an +increase of more than $11,000,000 over the value of the imports of the +corresponding months of the preceding year, when the imports of merchandise +were unusually large in anticipation of the tariff legislation then +pending. The average annual value of the imports of merchandise for the ten +years from 1881 to 1890 was $692,186,522, and during the year ending +September 30, 1891, this annual average was exceeded by $132,528,469. + +The value of free imports during the twelve months ending September 30, +1891, was $118,092,387 more than the value of free imports during the +corresponding twelve months of the preceding year, and there was during the +same period a decrease of $106,846,508 in the value of imports of dutiable +merchandise. The percentage of merchandise admitted free of duty during the +year to which I have referred, the first under the new tariff, was 48.18, +while during the preceding twelve months, under the old tariff, the +percentage was 34.27, an increase of 13.91 per cent. If we take the six +months ending September 30 last, which covers the time during which sugars +have been admitted free of duty, the per cent of value of merchandise +imported free of duty is found to be 55.37, which is a larger percentage of +free imports than during any prior fiscal year in the history of the +Government. + +If we turn to exports of merchandise, the statistics are full of +gratification. The value of such exports of merchandise for the twelve +months ending September 30, 1891, was $923,091,136, while for the +corresponding previous twelve months it was $860,177,115, an increase of +$62,914,021, which is nearly three times the average annual increase of +exports of merchandise for the preceding twenty years. This exceeds in +amount and value the exports of merchandise during any year in the history +of the Government. The increase in the value of exports of agricultural +products during the year referred to over the corresponding twelve months +of the prior year was $45,846,197, while the increase in the value of +exports of manufactured products was $16,838,240. + +There is certainly nothing in the condition of trade, foreign or domestic, +there is certainly nothing in the condition of our people of any class, to +suggest that the existing tariff and revenue legislation bears oppressively +upon the people or retards the commercial development of the nation. It may +be argued that our condition would be better if tariff legislation were +upon a free-trade basis; but it can not be denied that all the conditions +of prosperity and of general contentment are present in a larger degree +than ever before in our history, and that, too, just when it was prophesied +they would be in the worst state. Agitation for radical changes in tariff +and financial legislation can not help but may seriously impede business, +to the prosperity of which some degree of stability in legislation is +essential. + +I think there are conclusive evidences that the new tariff has created +several great industries, which will within a few years give employment to +several hundred thousand American working men and women. In view of the +somewhat overcrowded condition of the labor market of the United States, +every patriotic citizen should rejoice at such a result. + +The report of the Secretary of the Treasury shows that the total receipts +of the Government from all sources for the fiscal year ending June 30, +1891, were $458,544,233.03, while the expenditures for the same period were +$421,304,470.46, leaving a surplus of $37,239,762.57. + +The receipts of the fiscal year ending June 30, 1892, actual and estimated, +are $433,000,000 and the expenditures $409,000,000. For the fiscal year +ending June 30, 1893, the estimated receipts are $455,336,350 and the +expenditures $441,300,093. + +Under the law of July 14, 1890, the Secretary of the Treasury has purchased +(since August 13) during the fiscal year 48,393,113 ounces of silver +bullion at an average cost of $1.045 per ounce. The highest price paid +during the year was $1.2025 and the lowest $0.9636. In exchange for this +silver bullion there have been issued $50,577,498 of the Treasury notes +authorized by the act. The lowest price of silver reached during the fiscal +year was $0.9636 on April 22, 1891; but on November 1 the market price was +only $0.96, which would give to the silver dollar a bullion value of 74 1/4 +cents. + +Before the influence of the prospective silver legislation was felt in the +market silver was worth in New York about $0.955 per ounce. The ablest +advocates of free coinage in the last Congress were most confident in their +predictions that the purchases by the Government required by the law would +at once bring the price of silver to $1.2929 per ounce, which would make +the bullion value of a dollar 100 cents and hold it there. The prophecies +of the antisilver men of disasters to result from the coinage of $2,000,000 +per month were not wider of the mark. The friends of free silver are not +agreed, I think, as to the causes that brought their hopeful predictions to +naught. Some facts are known. The exports of silver from London to India +during the first nine months of this calendar year fell off over 50 per +cent, or $17,202,730, compared with the same months of the preceding year. +The exports of domestic silver bullion from this country, which had +averaged for the last ten years over $17,000,000, fell in the last fiscal +year to $13,797,391, while for the first time in recent years the imports +of silver into this country exceeded the exports by the sum of $2,745,365. +In the previous year the net exports of silver from the United States +amounted to $8,545,455. The production of the United States increased from +50,000,000 ounces in 1889 to 54,500,000 in 1890. The Government is now +buying and putting aside annually 54,000,000 ounces, which, allowing for +7,140,000 ounces of new bullion used in the arts, is 6,640,000 more than +our domestic products available for coinage. + +I hope the depression in the price of silver is temporary and that a +further trial of this legislation will more favorably affect it. That the +increased volume of currency thus supplied for the use of the people was +needed and that beneficial results upon trade and prices have followed this +legislation I think must be very clear to everyone. Nor should it be +forgotten that for every dollar of these notes issued a full dollar's worth +of silver bullion is at the time deposited in the Treasury as a security +for its redemption. Upon this subject, as upon the tariff, my +recommendation is that the existing laws be given a full trial and that our +business interests be spared the distressing influence which threats of +radical changes always impart. Under existing legislation it is in the +power of the Treasury Department to maintain that essential condition of +national finance as well as of commercial prosperity--the parity in use of +the coined dollars and their paper representatives. The assurance that +these powers would be freely and unhesitatingly used has done much to +produce and sustain the present favorable business conditions. + +I am still of the opinion that the free coinage of silver under existing +conditions would disastrously affect our business interests at home and +abroad. We could not hope to maintain an equality in the purchasing power +of the gold and silver dollar in our own markets, and in foreign trade the +stamp gives no added value to the bullion contained in coins. The producers +of the country, its farmers and laborers, have the highest interest that +every dollar, paper or coin, issued by the Government shall be as good as +any other. If there is one less valuable than another, its sure and +constant errand will be to pay them for their toil and for their crops. The +money lender will protect himself by stipulating for payment in gold, but +the laborer has never been able to do that. To place business upon a silver +basis would mean a sudden and severe contraction of the currency by the +withdrawal of gold and gold notes and such an unsettling of all values as +would produce a commercial panic. I can not believe that a people so strong +and prosperous as ours will promote such a policy. + +The producers of silver are entitled to just consideration, but they should +not forget that the Government is now buying and putting out of the market +what is the equivalent of the entire product of our silver mines. This is +more than they themselves thought of asking two years ago. I believe it is +the earnest desire of a great majority of the people, as it is mine, that a +full coin use shall be made of silver just as soon as the cooperation of +other nations can be secured and a ratio fixed that will give circulation +equally to gold and silver. The business of the world requires the use of +both metals; but I do not see any prospect of gain, but much of loss, by +giving up the present system, in which a full use is made of gold and a +large use of silver, for one in which silver alone will circulate. Such an +event would be at once fatal to the further progress of the silver +movement. Bimetallism is the desired end, and the true friends of silver +will be careful not to overrun the goal and bring in silver monometallism +with its necessary attendants--the loss of our gold to Europe and the +relief of the pressure there for a larger currency. I have endeavored by +the use of official and unofficial agencies to keep a close observation of +the state of public sentiment in Europe upon this question and have not +found it to be such as to justify me in proposing an international +conference. There is, however, I am sure, a growing sentiment in Europe in +favor of a larger use of silver, and I know of no more effectual way of +promoting this sentiment than by accumulating gold here. A scarcity of gold +in the European reserves will be the most persuasive argument for the use +of silver. + +The exports of gold to Europe, which began in February last and continued +until the close of July, aggregated over $70,000,000. The net loss of gold +during the fiscal year was nearly $68,000,000. That no serious monetary +disturbance resulted was most gratifying and gave to Europe fresh evidence +of the strength and stability of our financial institutions. With the +movement of crops the outflow of gold was speedily stopped and a return set +in. Up to December 1 we had recovered of our gold lost at the port of New +York $27,854,000, and it is confidently believed that during the winter and +spring this aggregate will be steadily and largely increased. + +The presence of a large cash surplus in the Treasury has for many years +been the subject of much unfavorable criticism, and has furnished an +argument to those who have desired to place the tariff upon a purely +revenue basis. It was agreed by all that the withdrawal from circulation of +so large an amount of money was an embarrassment to the business of the +country and made necessary the intervention of the Department at frequent +intervals to relieve threatened monetary panics. The surplus on March 1, +1889, was $183,827,190.29. The policy of applying this surplus to the +redemption of the interest-bearing securities of the United States was +thought to be preferable to that of depositing it without interest in +selected national banks. There have been redeemed since the date last +mentioned of interest-bearing securities $259,079,350, resulting in a +reduction of the annual interest charge of $11,684,675. The money which had +been deposited in banks without interest has been gradually withdrawn and +used in the redemption of bonds. + +The result of this policy, of the silver legislation, and of the refunding +of the 4 1/2 per cent bonds has been a large increase of the money in +circulation. At the date last named the circulation was $1,404,205,896, or +$23.03 per capita, while on the 1st day of December, 1891, it had increased +to $1,577,262,070, or $24.38 per capita. The offer of the Secretary of the +Treasury to the holders of the 4 1/2 per cent bonds to extend the time of +redemption, at the option of the Government, at an interest of 2 per cent, +was accepted by the holders of about one-half the amount, and the +unextended bonds are being redeemed on presentation. + +The report of the Secretary of War exhibits the results of an intelligent, +progressive, and businesslike administration of a Department which has been +too much regarded as one of mere routine. The separation of Secretary +Proctor from the Department by reason of his appointment as a Senator from +the State of Vermont is a source of great regret to me and to his +colleagues in the Cabinet, as I am sure it will be to all those who have +had business with the Department while under his charge. + +In the administration of army affairs some especially good work has been +accomplished. The efforts of the Secretary to reduce the percentage of +desertions by removing the causes that promoted it have been so successful +as to enable him to report for the last year a lower percentage of +desertion than has been before reached in the history of the Army. The +resulting money saving is considerable, but the improvement in the morale +of the enlisted men is the most valuable incident of the reforms which have +brought about this result. + +The work of securing sites for shore batteries for harbor defense and the +manufacture of mortars and guns of high power to equip them have made good +progress during the year. The preliminary work of tests and plans which so +long delayed a start is now out of the way. Some guns have been completed, +and with an enlarged shop and a more complete equipment at Watervliet the +Army will soon be abreast of the Navy in gun construction. Whatever +unavoidable causes of delay may arise, there should be none from delayed or +insufficient appropriations. We shall be greatly embarrassed in the proper +distribution and use of naval vessels until adequate shore defenses are +provided for our harbors. + +I concur in the recommendation of the Secretary that the three-battalion +organization be adopted for the infantry. The adoption of a smokeless +powder and of a modern rifle equal in range, precision, and rapidity of +fire to the best now in use will, I hope, not be longer delayed. + +The project of enlisting Indians and organizing them into separate +companies upon the same basis as other soldiers was made the subject of +very careful study by the Secretary and received my approval. Seven +companies have been completely organized and seven more are in process of +organization. The results of six months' training have more than realized +the highest anticipations. The men are readily brought under discipline, +acquire the drill with facility, and show great pride in the right +discharge of their duty and perfect loyalty to their officers, who declare +that they would take them into action with confidence. The discipline, +order, and cleanliness of the military posts will have a wholesome and +elevating influence upon the men enlisted, and through them upon their +tribes, while a friendly feeling for the whites and a greater respect for +the Government will certainly be promoted. + +The great work done in the Record and Pension Division of the War +Department by Major Ainsworth, of the Medical Corps, and the clerks under +him is entitled to honorable mention. Taking up the work with nearly 41,000 +cases behind, he closed the last fiscal year without a single case left +over, though the new cases had increased 52 per cent in number over the +previous year by reason of the pension legislation of the last Congress. + +I concur in the recommendation of the Attorney-General that the right in +felony cases to a review by the Supreme court be limited. It would seem +that personal liberty would have a safe guaranty if the right of review in +cases involving only fine and imprisonment were limited to the circuit +court of appeals, unless a constitutional question should in some way be +involved. + +The judges of the Court of Private Land Claims, provided for by the act of +March 3, 1891, have been appointed and the court organized. It is now +possible to give early relief to communities long repressed in their +development by unsettled land titles and to establish the possession and +right of settlers whose lands have been rendered valueless by adverse and +unfounded claims. + +The act of July 9, 1888, provided for the incorporation and management of a +reform school for girls in the District of Columbia; but it has remained +inoperative for the reason that no appropriation has been made for +construction or maintenance. The need of such an institution is very +urgent. Many girls could be saved from depraved lives by the wholesome +influences and restraints of such a school. I recommend that the necessary +appropriation be made for a site and for construction. + +The enforcement by the Treasury Department of the law prohibiting the +coming of Chinese to the United States has been effective as to such as +seek to land from vessels entering our ports. The result has been to divert +the travel to vessels entering the ports of British Columbia, whence +passage into the United States at obscure points along the Dominion +boundary is easy. A very considerable number of Chinese laborers have +during the past year entered the United States from Canada and Mexico. + +The officers of the Treasury Department and of the Department of Justice +have used every means at their command to intercept this immigration; but +the impossibility of perfectly guarding our extended frontier is apparent. +The Dominion government collects a head tax of $50 from every Chinaman +entering Canada, and thus derives a considerable revenue from those who +only use its ports to reach a position of advantage to evade our exclusion +laws. There seems to be satisfactory evidence that the business of passing +Chinamen through Canada to the United States is organized and quite active. +The Department of Justice has construed the laws to require the return of +any Chinaman found to be unlawfully in this country to China as the country +from which he came, notwithstanding the fact that he came by way of Canada; +but several of the district courts have in cases brought before them +overruled this view of the law and decided that such persons must be +returned to Canada. This construction robs the law of all effectiveness, +even if the decrees could be executed, for the men returned can the next +day recross our border. But the only appropriation made is for sending them +back to China, and the Canadian officials refuse to allow them to reenter +Canada without the payment of the fifty-dollar head tax. I recommend such +legislation as will remedy these defects in the law. + +In previous messages I have called the attention of Congress to the +necessity of so extending the jurisdiction of the United States courts as +to make triable therein any felony committed while in the act of violating +a law of the United States. These courts can not have that independence and +effectiveness which the Constitution contemplates so long as the felonious +killing of court officers, jurors, and witnesses in the discharge of their +duties or by reason of their acts as such is only cognizable in the State +courts. The work done by the Attorney-General and the officers of his +Department, even under the present inadequate legislation, has produced +some notable results in the interest of law and order. + +The Attorney-General and also the Commissioners of the District of Columbia +call attention to the defectiveness and inadequacy of the laws relating to +crimes against chastity in the District of Columbia. A stringent code upon +this subject has been provided by Congress for Utah, and it is a matter of +surprise that the needs of this District should have been so long +overlooked. + +In the report of the Postmaster-General some very gratifying results are +exhibited and many betterments of the service suggested. A perusal of the +report gives abundant evidence that the supervision and direction of the +postal system have been characterized by an intelligent and conscientious +desire to improve the service. The revenues of the Department show an +increase of over $5,000,000, with a deficiency for the year 1892 of less +than $4,000,000, while the estimate for the year 1893 shows a surplus of +receipts over expenditures. + +Ocean mail post-offices have been established upon the steamers of the +North German Lloyd and Hamburg lines, saving by the distribution on +shipboard from two to fourteen hours' time in the delivery of mail at the +port of entry and often much more than this in the delivery at interior +places. So thoroughly has this system, initiated by Germany and the United +States, evidenced its usefulness that it can not be long before it is +installed upon all the great ocean mail-carrying steamships. + +Eight thousand miles of new postal service has been established upon +railroads, the car distribution to substations in the great cities has been +increased about 12 per cent, while the percentage of errors in distribution +has during the past year been reduced over one-half. An appropriation was +given by the last Congress for the purpose of making some experiments in +free delivery in the smaller cities and towns. The results of these +experiments have been so satisfactory that the Postmaster-General +recommends, and I concur in the recommendation, that the free-delivery +system be at once extended to towns of 5,000 population. His discussion of +the inadequate facilities extended under our present system to rural +communities and his suggestions with a view to give these communities a +fuller participation in the benefits of the postal service are worthy of +your careful consideration. It is not just that the farmer, who receives +his mail at a neighboring town, should not only be compelled to send to the +post-office for it, but to pay a considerable rent for a box in which to +place it or to wait his turn at a general-delivery window, while the city +resident has his mail brought to his door. It is stated that over 54,000 +neighborhoods are under the present system receiving mail at post-offices +where money orders and postal notes are not issued. The extension of this +system to these communities is especially desirable, as the patrons of such +offices are not possessed of the other facilities offered in more populous +communities for the transmission of small sums of money. + +I have in a message to the preceding Congress expressed my views as to a +modified use of the telegraph in connection with the postal service. In +pursuance of the ocean mail law of March 3, 1891, and after a most careful +study of the whole subject and frequent conferences with ship-owners, +boards of trade, and others, advertisements were issued by the +postmaster-General for 53 lines of ocean mail service--10 to Great Britain +and the Continent, 27 to South America, 3 to China and Japan, 4 to +Australia and the Pacific islands, 7 to the West Indies, and 2 to Mexico. +It was not, of course, expected that bids for all these lines would be +received or that service upon them all would be contracted for. It was +intended, in furtherance of the act, to secure as many new lines as +possible, while including in the list most or all of the foreign lines now +occupied by American ships. It was hoped that a line to England and perhaps +one to the Continent would be secured; but the outlay required to equip +such lines wholly with new ships of the first class and the difficulty of +establishing new lines in competition with those already established +deterred bidders whose interest had been enlisted. It is hoped that a way +may yet be found of overcoming these difficulties. + +The Brazil Steamship Company, by reason of a miscalculation as to the speed +of its vessels, was not able to bid under the terms of the advertisement. +The policy of the Department was to secure from the established lines an +improved service as a condition of giving to them the benefits of the law. +This in all instances has been attained. The Postmaster-General estimates +that an expenditure in American shipyards of about $10,000,000 will be +necessary to enable the bidders to construct the ships called for by the +service which they have accepted. I do not think there is any reason for +discouragement or for any turning back from the policy of this legislation. +Indeed, a good beginning has been made, and as the subject is further +considered and understood by capitalists and shipping people new lines will +be ready to meet future proposals, and we may date from the passage of this +law the revival of American shipping interests and the recovery of a fair +share of the carrying trade of the world. We were receiving for foreign +postage nearly $2,000,000 under the old system, and the outlay for ocean +mail service did not exceed $600,000 per annum. It is estimated by the +Postmaster-General that if all the contracts proposed are completed it will +require $247,354 for this year in addition to the appropriation for sea and +inland postage already in the estimates, and that for the next fiscal year, +ending June 30, 1893, there would probably be needed about $560,000. + +The report of the Secretary of the Navy shows a gratifying increase of new +naval vessels in commission. The Newark, Concord, Bennington, and +Miantonomoh have been added during the year, with an aggregate of something +more than 11,000 tons. Twenty-four warships of all classes are now under +construction in the navy-yards and private shops; but while the work upon +them is going forward satisfactorily, the completion of the more important +vessels will yet require about a year's time. Some of the vessels now +under construction, it is believed, will be triumphs of naval engineering. +When it is recollected that the work of building a modern navy was only +initiated in the year 1883, that our naval constructors and shipbuilders +were practically without experience in the construction of large iron or +steel ships, that our engine shops were unfamiliar with great marine +engines, and that the manufacture of steel forgings for guns and plates was +almost wholly a foreign industry, the progress that has been made is not +only highly satisfactory, but furnishes the assurance that the United +States will before long attain in the construction of such vessels, with +their engines and armaments, the same preeminence which it attained when +the best instrument of ocean commerce was the clipper ship and the most +impressive exhibit of naval power the old wooden three-decker man-of-war. +The officers of the Navy and the proprietors and engineers of our great +private shops have responded with wonderful intelligence and professional +zeal to the confidence expressed by Congress in its liberal legislation. We +have now at Washington a gun shop, organized and conducted by naval +officers, that in its system, economy, and product is unexcelled. +Experiments with armor plate have been conducted during the year with most +important results. It is now believed that a plate of higher resisting +power than any in use has been found and that the tests have demonstrated +that cheaper methods of manufacture than those heretofore thought necessary +can be used. + +I commend to your favorable consideration the recommendations of the +Secretary, who has, I am sure, given to them the most conscientious study. +There should be no hesitation in promptly completing a navy of the best +modern type large enough to enable this country to display its flag in all +seas for the protection of its citizens and of its extending commerce. The +world needs no assurance of the peaceful purposes of the United States, but +we shall probably be in the future more largely a competitor in the +commerce of the world, and it is essential to the dignity of this nation +and to that peaceful influence which it should exercise on this hemisphere +that its Navy should be adequate both upon the shores of the Atlantic and +of the Pacific. + +The report of the Secretary of the Interior shows that a very gratifying +progress has been made in all of the bureaus which make up that complex and +difficult Department. + +The work in the Bureau of Indian Affairs was perhaps never so large as now, +by reason of the numerous negotiations which have been proceeding with the +tribes for a reduction of the reservations, with the incident labor of +making allotments, and was never more carefully conducted. The provision of +adequate school facilities for Indian children and the locating of adult +Indians upon farms involve the solution of the "Indian question." +Everything else--rations, annuities, and tribal negotiations, with the +agents, inspectors, and commissioners who distribute and conduct them--must +pass away when the Indian has become a citizen, secure in the individual +ownership of a farm from which he derives his subsistence by his own labor, +protected by and subordinate to the laws which govern the white man, and +provided by the General Government or by the local communities in which he +lives with the means of educating his children. When an Indian becomes a +citizen in an organized State or Territory, his relation to the General +Government ceases in great measure to be that of a ward; but the General +Government ought not at once to put upon the State or Territory the burden +of the education of his children. + +It has been my thought that the Government schools and school buildings +upon the reservations would be absorbed by the school systems of the States +and Territories; but as it has been found necessary to protect the Indian +against the compulsory alienation of his land by exempting him from +taxation for a period of twenty-five years, it would seem to be right that +the General Government, certainly where there are tribal funds in its +possession, should pay to the school fund of the State what would be +equivalent to the local school tax upon the property of the Indian. It will +be noticed from the report of the Commissioner of Indian Affairs that +already some contracts have been made with district schools for the +education of Indian children. There is great advantage, I think, in +bringing the Indian children into mixed schools. This process will be +gradual, and in the meantime the present educational provisions and +arrangements, the result of the best experience of those who have been +charged with this work, should be continued. This will enable those +religious bodies that have undertaken the work of Indian education with so +much zeal and with results so restraining and beneficent to place their +institutions in new and useful relations to the Indian and to his white +neighbors. + +The outbreak among the Sioux which occurred in December last is as to its +causes and incidents fully reported upon by the War Department and the +Department of the Interior. That these Indians had some just complaints, +especially in the matter of the reduction of the appropriation for rations +and in the delays attending the enactment of laws to enable the Department +to perform the engagements entered into with them, is probably true; but +the Sioux tribes are naturally warlike and turbulent, and their warriors +were excited by their medicine men and chiefs, who preached the coming of +an Indian messiah who was to give them power to destroy their enemies. In +view of the alarm that prevailed among the white settlers near the +reservation and of the fatal consequences that would have resulted from an +Indian incursion, I placed at the disposal of General Miles, commanding the +Division of the Missouri, all such forces as were thought by him to be +required. He is entitled to the credit of having given thorough protection +to the settlers and of bringing the hostiles into subjection with the least +possible loss of life. + +The appropriation of $2,991,450 for the Choctaws and Chickasaws contained +in the general Indian appropriation bill of March 3, 1891, has not been +expended, for the reason that I have not yet approved a release (to the +Government) of the Indian claim to the lands mentioned. This matter will be +made the subject of a special message, placing before Congress all the +facts which have come to my knowledge. + +The relation of the Five Civilized Tribes now occupying the Indian +Territory to the United States is not, I believe, that best calculated to +promote the highest advancement of these Indians. That there should be +within our borders five independent states having no relations, except +those growing out of treaties, with the Government of the United States, no +representation in the National Legislature, its people not citizens, is a +startling anomaly. + +It seems to me to be inevitable that there shall be before long some +organic changes in the relation of these people to the United States. What +form these changes should take I do not think it desirable now to suggest, +even if they were well defined in my own mind. They should certainly +involve the acceptance of citizenship by the Indians and a representation +in Congress. These Indians should have opportunity to present their claims +and grievances upon the floor rather than, as now, in the lobby. If a +commission could be appointed to visit these tribes to confer with them in +a friendly spirit upon this whole subject, even if no agreement were +presently reached the feeling of the tribes upon this question would be +developed, and discussion would prepare the way for changes which must come +sooner or later. + +The good work of reducing the larger Indian reservations by allotments in +severalty to the Indians and the cession of the remaining lands to the +United States for disposition under the homestead law has been prosecuted +during the year with energy and success. In September last I was enabled to +open to settlement in the Territory of Oklahoma 900,000 acres of land, all +of which was taken up by settlers in a single day. The rush for these lands +was accompanied by a great deal of excitement, but was happily free from +incidents of violence. + +It was a source of great regret that I was not able to open at the same +time the surplus lands of the Cheyenne and Arapahoe Reservation, amounting +to about 3,000,000 acres, by reason of the insufficiency of the +appropriation for making the allotments. Deserving and impatient settlers +are waiting to occupy these lands, and I urgently recommend that a special +deficiency appropriation be promptly made of the small amount needed, so +that the allotments may be completed and the surplus lands opened in time +to permit the settlers to get upon their homesteads in the early spring. + +During the past summer the Cherokee Commission have completed arrangements +with the Wichita, Kickapoo, and Tonkawa tribes whereby, if the agreements +are ratified by Congress, over 800,000 additional acres will be opened to +settlement in Oklahoma. + +The negotiations for the release by the Cherokees of their claim to the +Cherokee Strip have made no substantial progress so far as the Department +is officially advised, but it is still hoped that the cession of this large +and valuable tract may be secured. The price which the commission was +authorized to offer--$1.25 per acre--is, in my judgment, when all the +circumstances as to title and the character of the lands are considered, a +fair and adequate one, and should have been accepted by the Indians. + +Since March 4, 1889, about 23,000,000 acres have been separated from Indian +reservations and added to the public domain for the use of those who +desired to secure free homes under our beneficent laws. It is difficult to +estimate the increase of wealth which will result from the conversion of +these waste lands into farms, but it is more difficult to estimate the +betterment which will result to the families that have found renewed hope +and courage in the ownership of a home and the assurance of a comfortable +subsistence under free and healthful conditions. It is also gratifying to +be able to feel, as we may, that this work has proceeded upon lines of +justice toward the Indian, and that he may now, if he will, secure to +himself the good influences of a settled habitation, the fruits of +industry, and the security of citizenship. + +Early in this Administration a special effort was begun to bring up the +work of the General Land Office. By faithful work the arrearages have been +rapidly reduced. At the end of the last fiscal year only 84,172 final +agricultural entries remained undisposed of, and the Commissioner reports +that with the present force the work can be fully brought up by the end of +the next fiscal year. + +Your attention is called to the difficulty presented by the Secretary of +the Interior as to the administration of the law of March 3, 1891, +establishing a Court of Private Land Claims. The small holdings intended to +be protected by the law are estimated to be more than 15,000 in number. The +claimants are a most deserving class and their titles are supported by the +strongest equities. The difficulty grows out of the fact that the lands +have largely been surveyed according to our methods, while the holdings, +many of which have been in the same family for generations, are laid out in +narrow strips a few rods wide upon a stream and running back to the hills +for pasturage and timber.. Provision should be made for numbering these +tracts as lots and for patenting them by such numbers and without reference +to section lines. + +The administration of the Pension Bureau has been characterized during the +year by great diligence. The total number of pensioners upon the roll on +the 30th day of June, 1891, was 676,160. There were allowed during the +fiscal year ending at that time 250,565 cases. Of this number 102,387 were +allowed under the law of June 27, 1890. The issuing of certificates has +been proceeding at the rate of about 30,000 per month, about 75 per cent of +these being cases under the new law. The Commissioner expresses the opinion +that he will be able to carefully adjudicate and allow 350,000 claims +during the present fiscal year. The appropriation for the payment of +pensions for the fiscal year 1890-91 was $127,685,793.89 and the amount +expended $118,530,649.25, leaving an unexpended surplus of $9,155,144.64. + +The Commissioner is quite confident that there will be no call this year +for a deficiency appropriation, notwithstanding the rapidity with which the +work is being pushed. The mistake which has been made by many in their +exaggerated estimates of the cost of pensions is in not taking account of +the diminished value of first payments under the recent legislation. These +payments under the general law have been for many years very large, as the +pensions when allowed dated from the time of filing the claim, and most of +these claims had been pending for years. The first payments under the law +of June, 1890, are relatively small, and as the per cent of these cases +increases and that of the old cases diminishes the annual aggregate of +first payments is largely reduced. The Commissioner, under date of November +13, furnishes me with the statement that during the last four months +113,175 certificates were issued, 27,893 under the general law and 85,282 +under the act of June 27, 1890. The average first payment during these four +months was $131.85, while the average first payment upon cases allowed +during the year ending June 30, 1891, was $239.33, being a reduction in the +average first payments during these four months of $107.48. + +The estimate for pension expenditures for the fiscal year ending June 30, +1893, is $144,956,000, which, after a careful examination of the subject, +the Commissioner is of the opinion will be sufficient. While these +disbursements to the disabled soldiers of the great Civil War are large, +they do not realize the exaggerated estimates of those who oppose this +beneficent legislation. The Secretary of the Interior shows with great +fullness the care that is taken to exclude fraudulent claims, and also the +gratifying fact that the persons to whom these pensions are going are men +who rendered not slight but substantial war service. + +The report of the Commissioner of Railroads shows that the total debt of +the subsidized railroads to the United States was on December 31, 1890, +$112,512,613.06. A large part of this debt is now fast approaching +maturity, with no adequate provision for its payment. Some policy for +dealing with this debt with a view to its ultimate collection should be at +once adopted. It is very difficult, well-nigh impossible, for so large a +body as the Congress to conduct the necessary negotiations and +investigations. I therefore recommend that provision be made for the +appointment of a commission to agree upon and report a plan for dealing +with this debt. + +The work of the Census Bureau is now far in advance and the great bulk of +the enormous labor involved completed. It will be more strictly a +statistical exhibit and less encumbered by essays than its immediate +predecessors. The methods pursued have been fair, careful, and intelligent, +and have secured the approval of the statisticians who have followed them +with a scientific and nonpartisan interest. The appropriations necessary to +the early completion and publication of the authorized volumes should be +given in time to secure against delays, which increase the cost and at the +same time diminish the value of the work. + +The report of the Secretary exhibits with interesting fullness the +condition of the Territories. They have shared with the States the great +increase in farm products, and are bringing yearly large areas into +cultivation by extending their irrigating canals. This work is being done +by individuals or local corporations and without that system which a full +preliminary survey of the water supply and of the irrigable lands would +enable them to adopt. The future of the Territories of New Mexico, Arizona, +and Utah in their material growth and in the increase, independence, and +happiness of their people is very largely dependent upon wise and timely +legislation, either by Congress or their own legislatures, regulating the +distribution of the water supply furnished by their streams. If this matter +is much longer neglected, private corporations will have unrestricted +control of one of the elements of life and the patentees of the arid lands +will be tenants at will of the water companies. + +The United States should part with its ownership of the water sources and +the sites for reservoirs, whether to the States and Territories or to +individuals or corporations, only upon conditions that will insure to the +settlers their proper water supply upon equal and reasonable terms. In the +Territories this whole subject is under the full control of Congress, and +in the States it is practically so as long as the Government holds the +title to the reservoir sites and water sources and can grant them upon such +conditions as it chooses to impose. The improvident granting of franchises +of enormous value without recompense to the State or municipality from +which they proceed and without proper protection of the public interests is +the most noticeable and flagrant evil of modern legislation. This fault +should not be committed in dealing with a subject that will before many +years affect so vitally thousands of our people. + +The legislation of Congress for the repression of polygamy has, after years +of resistance on the part of the Mormons, at last brought them to the +conclusion that resistance is unprofitable and unavailing. The power of +Congress over this subject should not be surrendered until we have +satisfactory evidence that the people of the State to be created would +exercise the exclusive power of the State over this subject in the same +way. The question is not whether these people now obey the laws of Congress +against polygamy, but rather would they make, enforce, and maintain such +laws themselves if absolutely free to regulate the subject? We can not +afford to experiment with this subject, for when a State is once +constituted the act is final and any mistake irretrievable. No compact in +the enabling act could, in my opinion, be binding or effective. + +I recommend that provision be made for the organization of a simple form of +town government in Alaska, with power to regulate such matters as are +usually in the States under municipal control. These local civil +organizations will give better protection in some matters than the present +skeleton Territorial organization. Proper restrictions as to the power to +levy taxes and to create debt should be imposed. + +If the establishment of the Department of Agriculture was regarded by +anyone as a mere concession to the unenlightened demand of a worthy class +of people, that impression has been most effectually removed by the great +results already attained. Its home influence has been very great in +disseminating agricultural and horticultural information, in stimulating +and directing a further diversification of crops, in detecting and +eradicating diseases of domestic animals, and, more than all, in the close +and informal contact which it has established and maintains with the +farmers and stock raisers of the whole country. Every request for +information has had prompt attention and every suggestion merited +consideration. The scientific corps of the Department is of a high order +and is pushing its investigations with method and enthusiasm. + +The inspection by this Department of cattle and pork products intended for +shipment abroad has been the basis of the success which has attended our +efforts to secure the removal of the restrictions maintained by the +European Governments. + +For ten years protests and petitions upon this subject from the packers and +stock raisers of the United States have been directed against these +restrictions, which so seriously limited our markets and curtailed the +profits of the farm. It is a source of general congratulation that success +has at last been attained, for the effects of an enlarged foreign market +for these meats will be felt not only by the farmer, but in our public +finances and in every branch of trade. It is particularly fortunate that +the increased demand for food products resulting from the removal of the +restrictions upon our meats and from the reciprocal trade arrangements to +which I have referred should have come at a time when the agricultural +surplus is so large. Without the help thus derived lower prices would have +prevailed. The Secretary of Agriculture estimates that the restrictions +upon the importation of our pork products into Europe lost us a market for +$20,000,000 worth of these products annually. + +The grain crop of this year was the largest in our history--50 per cent +greater than that of last year--and yet the new markets that have been +opened and the larger demand resulting from short crops in Europe have +sustained prices to such an extent that the enormous surplus of meats and +breadstuffs will be marketed at good prices, bringing relief and prosperity +to an industry that was much depressed. The value of the grain crop of the +United States is estimated by the Secretary to be this year $500,000,000 +more than last; of meats $150,000,000 more, and of all products of the farm +$700,000,000 more. It is not inappropriate, I think, here to suggest that +our satisfaction in the contemplation of this marvelous addition to the +national wealth is unclouded by any suspicion of the currency by which it +is measured and in which the farmer is paid for the products of his +fields. + +The report of the Civil Service Commission should receive the careful +attention of the opponents as well as the friends of this reform. The +Commission invites a personal inspection by Senators and Representatives of +its records and methods, and every fair critic will feel that such an +examination should precede a judgment of condemnation either of the system +or its administration. It is not claimed that either is perfect, but I +believe that the law is being executed with impartiality and that the +system is incomparably better and fairer than that of appointments upon +favor. I have during the year extended the classified service to include +superintendents, teachers, matrons, and physicians in the Indian service. +This branch of the service is largely related to educational and +philanthropic work and will obviously be the better for the change. + +The heads of the several Executive Departments have been directed to +establish at once an efficiency record as the basis of a comparative rating +of the clerks within the classified service, with a view to placing +promotions therein upon the basis of merit. I am confident that such a +record, fairly kept and open to the inspection of those interested, will +powerfully stimulate the work of the Departments and will be accepted by +all as placing the troublesome matter of promotions upon a just basis. + +I recommend that the appropriation for the Civil Service Commission be made +adequate to the increased work of the next fiscal year. + +I have twice before urgently called the attention of Congress to the +necessity of legislation for the protection of the lives of railroad +employees, but nothing has yet been done. During the year ending June 30, +1890, 369 brakemen were killed and 7,841 maimed while engaged in coupling +cars. The total number of railroad employees killed during the year was +2,451 and the number injured 22,390. This is a cruel and largely needless +sacrifice. The Government is spending nearly $1,000,000 annually to save +the lives of shipwrecked seamen; every steam vessel is rigidly inspected +and required to adopt the most approved safety appliances. All this is +good. But how shall we excuse the lack of interest and effort in behalf of +this army of brave young men who in our land commerce are being sacrificed +every year by the continued use of antiquated and dangerous appliances? A +law requiring of every railroad engaged in interstate commerce the +equipment each year of a given per cent of its freight cars with automatic +couplers and air brakes would compel an agreement between the roads as to +the kind of brakes and couplers to be used, and would very soon and very +greatly reduce the present fearful death rate among railroad employees. + +The method of appointment by the States of electors of President and +Vice-President has recently attracted renewed interest by reason of a +departure by the State of Michigan from the method which had become uniform +in all the States. Prior to 1832 various methods had been used by the +different States, and even by the same State. In some the choice was made +by the legislature; in others electors were chosen by districts, but more +generally by the voters of the whole State upon a general ticket. The +movement toward the adoption of the last-named method had an early +beginning and went steadily forward among the States until in 1832 there +remained but a single State (South Carolina) that had not adopted it. That +State until the Civil War continued to choose its electors by a vote of the +legislature, but after the war changed its method and conformed to the +practice of the other States. For nearly sixty years all the States save +one have appointed their electors by a popular vote upon a general ticket, +and for nearly thirty years this method was universal. + +After a full test of other methods, without important division or dissent +in any State and without any purpose of party advantage, as we must +believe, but solely upon the considerations that uniformity was desirable +and that a general election in territorial divisions not subject to change +was most consistent with the popular character of our institutions, best +preserved the equality of the voters, and perfectly removed the choice of +President from the baneful influence of the "gerrymander," the practice of +all the States was brought into harmony. That this concurrence should now +be broken is, I think, an unfortunate and even a threatening episode, and +one that may well suggest whether the States that still give their approval +to the old and prevailing method ought not to secure by a constitutional +amendment a practice which has had the approval of all. The recent Michigan +legislation provides for choosing what are popularly known as the +Congressional electors for President by Congressional districts and the two +Senatorial electors by districts created for that purpose. This legislation +was, of course, accompanied by a new Congressional apportionment, and the +two statutes bring the electoral vote of the State under the influence of +the "gerrymander." + +These gerrymanders for Congressional purposes are in most cases buttressed +by a gerrymander of the legislative districts, thus making it impossible +for a majority of the legal voters of the State to correct the +apportionment and equalize the Congressional districts. A minority rule is +established that only a political convulsion can overthrow. I have recently +been advised that in one county of a certain State three districts for the +election of members of the legislature are constituted as follows: One has +65,000 population, one 15,000, and one 10,000, while in another county +detached, noncontiguous sections have been united to make a legislative +district. These methods have already found effective application to the +choice of Senators and Representatives in Congress, and now an evil start +has been made in the direction of applying them to the choice by the States +of electors of President and Vice-President. If this is accomplished, we +shall then have the three great departments of the Government in the grasp +of the "gerrymander," the legislative and executive directly and the +judiciary indirectly through the power of appointment. + +An election implies a body of electors having prescribed qualifications, +each one of whom has an equal value and influence in determining the +result. So when the Constitution provides that "each State shall appoint" +(elect), "in such manner as the legislature thereof may direct, a number of +electors," etc., an unrestricted power was not given to the legislatures in +the selection of the methods to be used. "A republican form of government" +is guaranteed by the Constitution to each State, and the power given by the +same instrument to the legislatures of the States to prescribe methods for +the choice by the State of electors must be exercised under that +limitation. The essential features of such a government are the right of +the people to choose their own officers and the nearest practicable +equality of value in the suffrages given in determining that choice. + +It will not be claimed that the power given to the legislature would +support a law providing that the persons receiving the smallest vote should +be the electors or a law that all the electors should be chosen by the +voters of a single Congressional district. The State is to choose, and +finder the pretense of regulating methods the legislature can neither vest +the right of choice elsewhere nor adopt methods not conformable to +republican institutions. It is not my purpose here to discuss the question +whether a choice by the legislature or by the voters of equal single +districts is a choice by the State, but only to recommend such regulation +of this matter by constitutional amendment as will secure uniformity and +prevent that disgraceful partisan jugglery to which such a liberty of +choice, if it exists, offers a temptation. + +Nothing just now is more important than to provide every guaranty for the +absolutely fair and free choice by an equal suffrage within the respective +States of all the officers of the National Government, whether that +suffrage is applied directly, as in the choice of members of the House of +Representatives, or indirectly, as in the choice of Senators and electors +of President. Respect for public officers and obedience to law will not +cease to be the characteristics of our people until our elections cease to +declare the will of majorities fairly ascertained without fraud, +suppression, or gerrymander. If I were called upon to declare wherein our +chief national danger lies, I should say without hesitation in the +overthrow of majority control by the suppression or perversion of the +popular suffrage. That there is a real danger here all must agree; but the +energies of those who see it have been chiefly expended in trying to fix +responsibility upon the opposite party rather than in efforts to make such +practices impossible by either party. + +Is it not possible now to adjourn that interminable and inconclusive debate +while we take by consent one step in the direction of reform by eliminating +the gerrymander, which has been denounced by all parties as an influence in +the selection of electors of President and members of Congress? All the +States have, acting freely and separately, determined that the choice of +electors by a general ticket is the wisest and safest method, and it would +seem there could be no objection to a constitutional amendment making that +method permanent. If a legislature chosen in one year upon purely local +questions should, pending a Presidential contest, meet, rescind the law for +a choice upon a general ticket, and provide for the choice of electors by +the legislature, and this trick should determine the result, it is not too +much to say that the public peace might be seriously and widely +endangered. + +I have alluded to the "gerrymander" as affecting the method of selecting +electors of President by Congressional districts, but the primary intent +and effect of this form of political robbery have relation to the selection +of members of the House of Representatives. The power of Congress is ample +to deal with this threatening and intolerable abuse. The unfailing test of +sincerity in election reform will be found in a willingness to confer as to +remedies and to put into force such measures as will most effectually +preserve the right of the people to free and equal representation. + +An attempt was made in the last Congress to bring to bear the +constitutional powers of the General Government for the correction of fraud +against the suffrage. It is important to know whether the opposition to +such measures is really rested in particular features supposed to be +objectionable or includes any proposition to give to the election laws of +the United States adequacy to the correction of grave and acknowledged +evils. I must yet entertain the hope that it is possible to secure a calm, +patriotic consideration of such constitutional or statutory changes as may +be necessary to secure the choice of the officers of the Government to the +people by fair apportionments and free elections. + +I believe it would be possible to constitute a commission, nonpartisan in +its membership and composed of patriotic, wise, and impartial men, to whom +a consideration of the question of the evils connected with our election +system and methods might be committed with a good prospect of securing +unanimity in some plan for removing or mitigating those evils. The +Constitution would permit the selection of the commission to be vested in +the Supreme Court if that method would give the best guaranty of +impartiality. This commission should be charged with the duty of inquiring +into the whole subject of the law of elections as related to the choice of +officers of the National Government, with a view to securing to every +elector a free and unmolested exercise of the suffrage and as near an +approach to an equality of value in each ballot cast as is attainable. + +While the policies of the General Government upon the tariff, upon the +restoration of our merchant marine, upon river and harbor improvements, and +other such matters of grave and general concern are liable to be turned +this way or that by the results of Congressional elections and +administrative policies, sometimes involving issues that tend to peace or +war, to be turned this way or that by the results of a Presidential +election, there is a rightful interest in all the States and in every +Congressional district that will not be deceived or silenced by the +audacious pretense that the question of the right of any body of legal +voters in any State or in any Congressional district to give their +suffrages freely upon these general questions is a matter only of local +concern or control. The demand that the limitations of suffrage shall be +found in the law, and only there, is a just demand, and no just man should +resent or resist it. My appeal is and must continue to be for a +consultation that shall "proceed with candor, calmness, and patience upon +the lines of justice and humanity, not of prejudice and cruelty." + +To the consideration of these very grave questions I invite not only the +attention of Congress, but that of all patriotic citizens. We must not +entertain the delusion that our people have ceased to regard a free ballot +and equal representation as the price of their allegiance to laws and to +civil magistrates. + +I have been greatly rejoiced to notice many evidences of the increased +unification of our people and of a revived national spirit. The vista that +now opens to us is wider and more glorious than ever before. Gratification +and amazement struggle for supremacy as we contemplate the population, +wealth, and moral strength of our country. A trust momentous in its +influence upon our people and upon the world is for a brief time committed +to us, and we must not be faithless to its first condition--the defense of +the free and equal influence of the people in the choice of public officers +and in the control of public affairs. + +BENJ. HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 6, 1892 + +To the Senate and House of Representatives: + +In submitting my annual message to Congress I have great satisfaction in +being able to say that the general conditions affecting the commercial and +industrial interests of the United States are in the highest degree +favorable. A comparison of the existing conditions with those of the most +favored period in the history of the country will, I believe, show that so +high a degree of prosperity and so general a diffusion of the comforts of +life were never before enjoyed by our people. + +The total wealth of the country in 1860 was $16,159,616,068. In 1890 it +amounted to $62,610,000,000, an increase of 287 per cent. + +The total mileage of railways in the United States in 1860 was 30,626. In +1890 it was 167,741, an increase of 448 per cent; and it is estimated that +there will be about 4,000 miles of track added by the close of the year +1892. + +The official returns of the Eleventh Census and those of the Tenth Census +for seventy-five leading cities furnish the basis for the following +comparisons: + +In 1880 the capital invested in manufacturing was $1,232,839,670. + +In 1890 the capital invested in manufacturing was $2,900,735,884. + +In 1880 the number of employees was 1,301,388. + +In 1890 the number of employees was 2,251,134. + +In 1880 the wages earned were $501,965,778. + +In 1890 the wages earned were $1,221,170,454. + +In 1880 the value of the product was $2,711,579,899. + +In 1890 the value of the product was $4,860,286,837. + +I am informed by the Superintendent of the Census that the omission of +certain industries in 1880 which were included in 1890 accounts in part for +the remarkable increase thus shown, but after making full allowance for +differences of method and deducting the returns for all industries not +included in the census of 1880 there remain in the reports from these +seventy-five cities an increase in the capital employed of $1,522,745,604, +in the value of the product of $2,024,236,166, in wages earned of +$677,943,929, and in the number of wage earners employed of 856,029. The +wage earnings not only show an increased aggregate, but an increase per +capita from $386 in 1880 to $547 in 1890, or 41.71 per cent. + +The new industrial plants established since October 6, 1890, and up to +October 22, 1892, as partially reported in the American Economist, number +345, and the extension of existing plants 108; the new capital invested +amounts to $40,449,050, and the number of additional employees to 37,285. + +The Textile World for July, 1892, states that during the first six months +of the present calendar year 135 new factories were built, of which 40 are +cotton mills, 48 knitting mills, 26 woolen mills, 15 silk mills, 4 plush +mills, and 2 linen mills. Of the 40 cotton mills 21 have been built in the +Southern States. Mr. A. B. Shepperson, of the New York Cotton Exchange, +estimates the number of working spindles in the United States on September +1, 1892, at 15,200,000, an increase of 660,000 over the year 1891. The +consumption of cotton by American mills in 1891 was 2,396,000 bales, and in +1892 2,584,000 bales, an increase of 188,000 bales. From the year 1869 to +1892, inclusive, there has been an increase in the consumption of cotton in +Europe of 92 per cent, while during the same period the increased +consumption in the United States has been about 150 per cent. + +The report of Ira Ayer, special agent of the Treasury Department, shows +that at the date of September 30, 1892, there were 32 companies +manufacturing tin and terne plate in the United States and 14 companies +building new works for such manufacture. The estimated investment in +buildings and plants at the close of the fiscal year June 30, 1893, if +existing conditions were to be continued, was $5,000,000 and the estimated +rate of production 200,000,000 pounds per annum. The actual production for +the quarter ending September 30, 1892, was 10,952,725 pounds. + +The report of Labor Commissioner Peck, of New York, shows that during the +year 1891, in about 6,000 manufacturing establishments in that State +embraced within the special inquiry made by him, and representing 67 +different industries, there was a net increase over the year 1890 of +$30,315,130.68 in the value of the product and of $6,377,925.09 in the +amount of wages paid. The report of the commissioner of labor for the State +of Massachusetts shows that 3,745 industries in that State paid +$129,416,248 in wages during the year 1891, against $126,030,303 in 1890, +an increase of $3,335,945, and that there was an increase of $9,932,490 in +the amount of capital and of 7,346 in the number of persons employed in the +same period. + +During the last six months of the year 1891 and the first six months of +1892 the total production of pig iron was 9,710,819 tons, as against +9,202,703 tons in the year 1890, which was the largest annual production +ever attained. For the same twelve months of 1891-92 the production of +Bessemer ingots was 3,878,581 tons, an increase of 189,710 gross tons over +the previously unprecedented yearly production of 3,688,871 gross tons in +1890. The production of Bessemer steel rails for the first six months of +1892 was 772,436 gross tons, as against 702,080 gross tons during the last +six months of the year 1891. + +The total value of our foreign trade (exports and imports of merchandise) +during the last fiscal year was $1,857,680,610, an increase of $128,283,604 +over the previous fiscal year. The average annual value of our imports and +exports of merchandise for the ten fiscal years prior to 1891 was +$1,457,322,019. It will be observed that our foreign trade for 1892 +exceeded this annual average value by $400,358,591, an increase of 27.47 +per cent. The significance and value of this increase are shown by the fact +that the excess in the trade of 1892 over 1891 was wholly in the value of +exports, for there was a decrease in the value of imports of $17,513,754. + +The value of our exports during the fiscal year 1892 reached the highest +figure in the history of the Government, amounting to $1,030,278,148, +exceeding by $145,797,338 the exports of 1891 and exceeding the value of +the imports by $202,875,686. A comparison of the value of our exports for +1892 with the annual average for the ten years prior to 1891 shows an +excess of $265,142,651, or of 34.65 per cent. The value of our imports of +merchandise for 1892, which was $829,402,462, also exceeded the annual +average value of the ten years prior to 1891 by $135,215,940. During the +fiscal year 1892 the value of imports free of duty amounted to +$457,999,658, the largest aggregate in the history of our commerce. The +value of the imports of merchandise entered free of duty in 1892 was 55.35 +per cent of the total value of imports, as compared with 43.35 per cent in +1891 and 33.66 per cent in 1890. + +In our coastwise trade a most encouraging development is in progress, there +having been in the last four years an increase of 16 per cent. In internal +commerce the statistics show that no such period of prosperity has ever +before existed. The freight carried in the coastwise trade of the Great +Lakes in 1890 aggregated 28,295,959 tons. On the Mississippi, Missouri, and +Ohio rivers and tributaries in the same year the traffic aggregated +29,405,046 tons, and the total vessel tonnage passing through the Detroit +River during that year was 21,684,000 tons. The vessel tonnage entered and +cleared in the foreign trade of London during 1890 amounted to 13,480,767 +tons, and of Liverpool 10,941,800 tons, a total for these two great +shipping ports of 24,422,568 tons, only slightly in excess of the vessel +tonnage passing through the Detroit River. And it should be said that the +season for the Detroit River was but 228 days, while of course in London +and Liverpool the season was for the entire year. The vessel tonnage +passing through the St. Marys Canal for the fiscal year 1892 amounted to +9,828,874 tons, and the freight tonnage of the Detroit River is estimated +for that year at 25,000,000 tons, against 23,209,619 tons in 1891. The +aggregate traffic on our railroads for the year 1891 amounted to +704,398,609 tons of freight, compared with 691,344,437 tons in 1890, an +increase of 13,054,172 tons. + +Another indication of the general prosperity of the country is found in the +fact that the number of depositors in savings banks increased from 693,870 +in 1860 to 4,258,893 in 1890, an increase of 513 per cent, and the amount +of deposits from $149,277,504 in 1860 to $1,524,844,506 in 1890, an +increase of 921 per cent. In 1891 the amount of deposits in savings banks +was $1,623,079,749. It is estimated that 90 per cent of these deposits +represent the savings of wage earners. The bank clearances for nine months +ending September 30, 1891, amounted to $41,049,390,08. For the same months +in 1892 they amounted to $45,189,601,947, an excess for the nine months of +$4,140,211,139. + +There never has been a time in our history when work was so abundant or +when wages were as high, whether measured by the currency in which they are +paid or by their power to supply the necessaries and comforts of life. It +is true that the market prices of cotton and wheat have been low. It is one +of the unfavorable incidents of agriculture that the farmer can not produce +upon orders. He must sow and reap in ignorance of the aggregate production +of the year, and is peculiarly subject to the depreciation which follows +overproduction. But while the fact I have stated is true as to the crops +mentioned, the general average of prices has been such as to give to +agriculture a fair participation in the general prosperity. The value of +our total farm products has increased from $1,363,646,866 in 1860 to +$4,500,000,000 in 1891, as estimated by statisticians, an increase of 230 +per cent. The number of hogs January 1, 1891, was 50,625,106 and their +value $210,193,925; on January 1, 1892, the number was 52,398,019 and the +value $241,031,415. On January 1, 1891, the number of cattle was 36,875,648 +and the value $544,127,908; on January 1 ,1892, the number was 37,651,239 +and the value $570,749,155. + +If any are discontented with their state here, if any believe that wages or +prices, the returns for honest toil, are inadequate, they should not fail +to remember that there is no other country in the world where the +conditions that seem to them hard would not be accepted as highly +prosperous. The English agriculturist would be glad to exchange the returns +of his labor for those of the American farmer and the Manchester workmen +their wages for those of their fellows at Fall River. + +I believe that the protective system, which has now for something more than +thirty years continuously prevailed in our legislation, has been a mighty +instrument for the development of our national wealth and a most powerful +agency in protecting the homes of our workingmen from the invasion of want. +I have felt a most solicitous interest to preserve to our working people +rates of wages that would not only give daily bread but supply a +comfortable margin for those home attractions and family comforts and +enjoyments without which life is neither hopeful nor sweet. They are +American citizens--a part of the great people for whom our Constitution and +Government were framed and instituted--and it can not be a perversion of +that Constitution to so legislate as to preserve in their homes the +comfort, independence, loyalty, and sense of interest in the Government +which are essential to good citizenship in peace, and which will bring this +stalwart throng, as in 1861, to the defense of the flag when it is +assailed. + +It is not my purpose to renew here the argument in favor of a protective +tariff. The result of the recent election must be accepted as having +introduced a new policy. We must assume that the present tariff, +constructed upon the lines of protection, is to be repealed and that there +is to be substituted for it a tariff law constructed solely with reference +to revenue; that no duty is to be higher because the increase will keep +open an American mill or keep up the wages of an American workman, but that +in every case such a rate of duty is to be imposed as will bring to the +Treasury of the United States the largest returns of revenue. The +contention has not been between schedules, but between principles, and it +would be offensive to suggest that the prevailing party will not carry into +legislation the principles advocated by it and the pledges given to the +people. The tariff bills passed by the House of Representatives at the last +session were, as I suppose, even in the opinion of their promoters, +inadequate, and justified only by the fact that the Senate and House of +Representatives were not in accord and that a general revision could not +therefore be undertaken. + +I recommend that the whole subject of tariff revision be left to the +incoming Congress. It is matter of regret that this work must be delayed +for at least three months, for the threat of great tariff changes +introduces so much uncertainty that an amount, not easily estimated, of +business inaction and of diminished production will necessarily result. It +is possible also that this uncertainty may result in decreased revenues +from customs duties, for our merchants will make cautious orders for +foreign goods in view of the prospect of tariff reductions and the +uncertainty as to when they will take effect. Those who have advocated a +protective tariff can well afford to have their disastrous forecasts of a +change of policy disappointed. If a system of customs duties can be framed +that will set the idle wheels and looms of Europe in motion and crowd our +warehouses with foreign-made goods and at the same time keep our own mills +busy; that will give us an increased participation in the "markets of the +world" of greater value than the home market we surrender; that will give +increased work to foreign workmen upon products to be consumed by our +people without diminishing the amount of work to be done here; that will +enable the American manufacturer to pay to his workmen from 50 to 100 per +cent more in wages than is paid in the foreign mill, and yet to compete in +our market and in foreign markets with the foreign producer; that will +further reduce the cost of articles of wear and food without reducing the +wages of those who produce them; that can be celebrated, after its effects +have been realized, as its expectation has been in European as well as in +American cities, the authors and promoters of it will be entitled to the +highest praise. We have had in our history several experiences of the +contrasted effects of a revenue and of a protective tariff, but this +generation has not felt them, and the experience of one generation is not +highly instructive to the next. The friends of the protective system with +undiminished confidence in the principles they have advocated will await +the results of the new experiment. + +The strained and too often disturbed relations existing between the +employees and the employers in our great manufacturing establishments have +not been favorable to a calm consideration by the wage earner of the effect +upon wages of the protective system. The facts that his wages were the +highest paid in like callings in the world and that a maintenance of this +rate of wages in the absence of protective duties upon the product of his +labor was impossible were obscured by the passion evoked by these contests. +He may now be able to review the question in the light of his personal +experience under the operation of a tariff for revenue only. If that +experience shall demonstrate that present rates of wages are thereby +maintained or increased, either absolutely or in their purchasing power, +and that the aggregate volume of work to be done in this country is +increased or even maintained, so that there are more or as many days' work +in a year, at as good or better wages, for the American workmen as has been +the case under the protective system, everyone will rejoice. A general +process of wage reduction can not be contemplated by any patriotic citizen +without the gravest apprehension. It may be, indeed I believe is, possible +for the American manufacturer to compete successfully with his foreign +rival in many branches of production without the defense of protective +duties if the pay rolls are equalized; but the conflict that stands between +the producer and that result and the distress of our working people when it +is attained are not pleasant to contemplate. The Society of the Unemployed, +now holding its frequent and threatening parades in the streets of foreign +cities, should not be allowed to acquire an American domicile. + +The reports of the heads of the several Executive Departments, which are +herewith submitted, have very naturally included a resume of the whole work +of the Administration with the transactions of the last fiscal year. The +attention not only of Congress but of the country is again invited to the +methods of administration which have been pursued and to the results which +have been attained. Public revenues amounting to $1,414,079,292.28 have +been collected and disbursed without loss from misappropriation, without a +single defalcation of such importance as to attract the public attention, +and at a diminished per cent of cost for collection. The public business +has been transacted not only with fidelity, but progressively and with a +view to giving to the people in the fullest possible degree the benefits of +a service established and maintained for their protection and comfort. + +Our relations with other nations are now undisturbed by any serious +controversy. The complicated and threatening differences with Germany and +England relating to Samoan affairs, with England in relation to the seal +fisheries in the Bering Sea, and with Chile growing out of the Baltimore +affair have been adjusted. + +There have been negotiated and concluded, under section 3 of the tariff +law, commercial agreements relating to reciprocal trade with the following +countries: Brazil, Dominican Republic, Spain for Cuba and Puerto Rico, +Guatemala, Salvador, the German Empire, Great Britain for certain West +Indian colonies and British Guiana, Nicaragua, Honduras, and +Austria-Hungary. + +Of these, those with Guatemala, Salvador, the German Empire, Great Britain, +Nicaragua, Honduras, and Austria-Hungary have been concluded since my last +annual message. Under these trade arrangements a free or favored admission +has been secured in every case for an important list of American products. +Especial care has been taken to secure markets for farm products, in order +to relieve that great underlying industry of the depression which the lack +of an adequate foreign market for our surplus often brings. An opening has +also been made for manufactured products that will undoubtedly, if this +policy is maintained, greatly augment our export trade. The full benefits +of these arrangements can not be realized instantly. New lines of trade are +to be opened. The commercial traveler must survey the field. The +manufacturer must adapt his goods to the new markets and facilities for +exchange must be established. This work has been well begun, our merchants +and manufacturers having entered the new fields with courage and +enterprise. In the case of food products, and especially with Cuba, the +trade did not need to wait, and the immediate results have been most +gratifying. If this policy and these trade arrangements can be continued in +force and aided by the establishment of American steamship lines, I do not +doubt that we shall within a short period secure fully one-third of the +total trade of the countries of Central and South America, which now +amounts to about $600,000,000 annually. In 1885 we had only 8 per cent of +this trade. + +The following statistics show the increase in our trade with the countries +with which we have reciprocal trade agreements from the date when such +agreements went into effect up to September 30, 1892, the increase being in +some almost wholly and in others in an important degree the result of these +agreements: + +The domestic exports to Germany and Austria-Hungary have increased in value +from $47,673,756 to $57,993,064, an increase of $10,319,308, or 21.63 per +cent. With American countries the value of our exports has increased from +$44,160,285 to $54,613,598, an increase of $10,453,313, or 23.67 per cent. +The total increase in the value of exports to all the countries with which +we have reciprocity agreements has been $20,772,621. This increase is +chiefly in wheat, flour, meat, and dairy products and in manufactures of +iron and steel and lumber. There has been a large increase in the value of +imports from all these countries since the commercial agreements went into +effect, amounting to $74,294,525, but it has been entirely in imports from +the American countries, consisting mostly of sugar, coffee, india rubber, +and crude drugs. The alarmed attention of our European competitors for the +South American market has been attracted to this new American policy and to +our acquisition and their loss of South American trade. + +A treaty providing for the arbitration of the dispute between Great Britain +and the United States as to the killing of seals in the Bering Sea was +concluded on the 29th of February last. This treaty was accompanied by an +agreement prohibiting pelagic sealing pending the arbitration, and a +vigorous effort was made during this season to drive out all poaching +sealers from the Bering Sea. Six naval vessels, three revenue cutters, and +one vessel from the Fish Commission, all under the command of Commander +Evans, of the Navy, were sent into the sea, which was systematically +patrolled. Some seizures were made, and it is believed that the catch in +the Bering Sea by poachers amounted to less than 500 seals. It is true, +however, that in the North Pacific, while the seal herds were on their way +to the passes between the Aleutian Islands, a very large number, probably +35,000, were taken. The existing statutes of the United States do not +restrain our citizens from taking seals in the Pacific Ocean, and perhaps +should not unless the prohibition can be extended to the citizens of other +nations. I recommend that power be given to the President by proclamation +to prohibit the taking of seals in the North Pacific by American vessels in +case, either as the result of the findings of the Tribunal of Arbitration +or otherwise, the restraints can be applied to the vessels of all +countries. The case of the United States for the Tribunal of Arbitration +has been prepared with great care and industry by the Hon. John W. Foster, +and the counsel who represent this Government express confidence that a +result substantially establishing our claims and preserving this great +industry for the benefit of all nations will be attained. + +During the past year a suggestion was received through the British minister +that the Canadian government would like to confer as to the possibility of +enlarging upon terms of mutual advantage the commercial exchanges of Canada +and of the United States, and a conference was held at Washington, with Mr. +Blaine acting for this Government and the British minister at this capital +and three members of the Dominion cabinet acting as commissioners on the +part of Great Britain. The conference developed the fact that the Canadian +government was only prepared to offer to the United States in exchange for +the concessions asked the admission of natural products. The statement was +frankly made that favored rates could not be given to the United States as +against the mother country. This admission, which was foreseen, necessarily +terminated the conference upon this question. The benefits of an exchange +of natural products would be almost wholly with the people of Canada. Some +other topics of interest were considered in the conference, and have +resulted in the making of a convention for examining the Alaskan boundary +and the waters of Passamaquoddy Bay adjacent to Eastport, Me., and in the +initiation of an arrangement for the protection of fish life in the +coterminous and neighboring waters of our northern border. + +The controversy as to tolls upon the Welland Canal, which was presented to +Congress at the last session by special message, having failed of +adjustment, I felt constrained to exercise the authority conferred by the +act of July 26, 1892, and to proclaim a suspension of the free use of St. +Marys Falls Canal to cargoes in transit to ports in Canada. The Secretary +of the Treasury established such tolls as were thought to be equivalent to +the exactions unjustly levied upon our commerce in the Canadian canals. + +If, as we must suppose, the political relations of Canada and the +disposition of the Canadian government are to remain unchanged, a somewhat +radical revision of our trade relations should, I think, be made. Our +relations must continue to be intimate, and they should be friendly. I +regret to say, however, that in many of the controversies, notably those as +to the fisheries on the Atlantic, the sealing interests on the Pacific, and +the canal tolls, our negotiations with Great Britain have continuously been +thwarted or retarded by unreasonable and unfriendly objections and protests +from Canada in the matter of the canal tolls our treaty rights were +flagrantly disregarded. It is hardly too much to say that the Canadian +Pacific and other railway lines which parallel our northern boundary are +sustained by commerce having either its origin or terminus, or both, in the +United States. Canadian railroads compete with those of the United States +for our traffic, and without the restraints of our interstate-commerce act. +Their cars pass almost without detention into and out of our territory. + +The Canadian Pacific Railway brought into the United States from China and +Japan via British Columbia during the year ended June 30, 1892, 23,239,689 +pounds of freight, and it carried from the United States, to be shipped to +China and Japan via British Columbia, 24,068,346 pounds of freight. There +were also shipped from the United States over this road from Eastern ports +of the United States to our Pacific ports during the same year 13,912,073 +pounds of freight, and there were received over this road at the United +States Eastern ports from ports on the Pacific Coast 13,293,315 pounds of +freight. Mr. Joseph Nimmo, Jr., former chief of the Bureau of Statistics, +when before the Senate Select Committee on Relations with Canada, April 26, +1890, said that "the value of goods thus transported between different +points in the United States across Canadian territory probably amounts to +$100,000,000 a year." + +There is no disposition on the part of the people or Government of the +United States to interfere in the smallest degree with the political +relations of Canada. That question is wholly with her own people. It is +time for us, however, to consider whether, if the present state of things +and trend of things is to continue, our interchanges upon lines of land +transportation should not be put upon a different basis and our entire +independence of Canadian canals and of the St. Lawrence as an outlet to the +sea secured by the construction of an American canal around the Falls of +Niagara and the opening of ship communication between the Great Lakes and +one of our own seaports. We should not hesitate to avail ourselves of our +great natural trade advantages. We should withdraw the support which is +given to the railroads and steamship lines of Canada by a traffic that +properly belongs to us and no longer furnish the earnings which lighten the +otherwise crushing weight of the enormous public subsidies that have been +given to them. The subject of the power of the Treasury to deal with this +matter without further legislation has been under consideration, but +circumstances have postponed a conclusion. It is probable that a +consideration of the propriety of a modification or abrogation of the +article of the treaty of Washington relating to the transit of goods in +bond is involved in any complete solution of the question. + +Congress at the last session was kept advised of the progress of the +serious and for a time threatening difference between the United States and +Chile. It gives me now great gratification to report that the Chilean +Government in a most friendly and honorable spirit has tendered and paid as +an indemnity to the families of the sailors of the Baltimore who were +killed and to those who were injured in the outbreak in the city of +Valparaiso the sum of $75,000. This has been accepted not only as an +indemnity for a wrong done, but as a most gratifying evidence that the +Government of Chile rightly appreciates the disposition of this Government +to act in a spirit of the most absolute fairness and friendliness in our +intercourse with that brave people. A further and conclusive evidence of +the mutual respect and confidence now existing is furnished by the fact +that a convention submitting to arbitration the mutual claims of the +citizens of the respective Governments has been agreed upon. Some of these +claims have been pending for many years and have been the occasion of much +unsatisfactory diplomatic correspondence. + +I have endeavored in every way to assure our sister Republics of Central +and South America that the United States Government and its people have +only the most friendly disposition toward them all. We do not covet their +territory. We have no disposition to be oppressive or exacting in our +dealings with any of them, even the weakest. Our interests and our hopes +for them all lie in the direction of stable governments by their people and +of the largest development of their great commercial resources. The mutual +benefits of enlarged commercial exchanges and of a more familiar and +friendly intercourse between our peoples we do desire, and in this have +sought their friendly cooperation. + +I have believed, however, while holding these sentiments in the greatest +sincerity, that we must insist upon a just responsibility for any injuries +inflicted upon our official representatives or upon our citizens. This +insistence, kindly and justly but firmly made, will, I believe, promote +peace and mutual respect. + +Our relations with Hawaii have been such as to attract an increased +interest, and must continue to do so. I deem it of great importance that +the projected submarine cable, a survey for which has been made, should be +promoted. Both for naval and commercial uses we should have quick +communication with Honolulu. We should before this have availed ourselves +of the concession made many years ago to this Government for a harbor and +naval station at Pearl River. Many evidences of the friendliness of the +Hawaiian Government have been given in the past, and it is gratifying to +believe that the advantage and necessity of a continuance of very close +relations is appreciated. + +The friendly act of this Government in expressing to the Government of +Italy its reprobation and abhorrence of the lynching of Italian subjects in +New Orleans by the payment of 125,000 francs, or $24,330.90, was accepted +by the King of Italy with every manifestation of gracious appreciation, and +the incident has been highly promotive of mutual respect and good will. + +In consequence of the action of the French Government in proclaiming a +protectorate over certain tribal districts of the west coast of Africa +eastward of the San Pedro River, which has long been regarded as the +southeastern boundary of Liberia, I have felt constrained to make protest +against this encroachment upon the territory of a Republic which was +rounded by citizens of the United States and toward which this country has +for many years held the intimate relation of a friendly counselor. + +The recent disturbances of the public peace by lawless foreign marauders on +the Mexican frontier have afforded this Government an opportunity to +testify its good will for Mexico and its earnest purpose to fulfill the +obligations of international friendship by pursuing and dispersing the evil +doers. The work of relocating the boundary of the treaty of Guadalupe +Hidalgo westward from El Paso is progressing favorably. + +Our intercourse with Spain continues on a friendly footing. I regret, +however, not to be able to report as yet the adjustment of the claims of +the American missionaries arising from the disorders at Ponape, in the +Caroline Islands, but I anticipate a satisfactory adjustment in view of +renewed and urgent representations to the Government at Madrid. + +The treatment of the religious and educational establishments of American +citizens in Turkey has of late called for a more than usual share of +attention. A tendency to curtail the toleration which has so beneficially +prevailed is discernible and has called forth the earnest remonstrance of +this Government. Harassing regulations in regard to schools and churches +have been attempted in certain localities, but not without due protest and +the assertion of the inherent and conventional rights of our countrymen. +Violations of domicile and search of the persons and effects of citizens of +the United States by apparently irresponsible officials in the Asiatic +vilayets have from time to time been reported. An aggravated instance of +injury to the property of an American missionary at Bourdour, in the +province of Konia, called forth an urgent claim for reparation, which I am +pleased to say was promptly heeded by the Government of the Porte. +Interference with the trading ventures of our citizens in Asia Minor is +also reported, and the lack of consular representation in that region is a +serious drawback to instant and effective protection. I can not believe +that these incidents represent a settled policy, and shall not cease to +urge the adoption of proper remedies. + +International copyright has been extended to Italy by proclamation in +conformity with the act of March 3, 1891, upon assurance being given that +Italian law permits to citizens of the United States the benefit of +copyright on substantially the same basis as to subjects of Italy. By a +special convention proclaimed January 15, 1892, reciprocal provisions of +copyright have been applied between the United States and Germany. +Negotiations are in progress with other countries to the same end. + +I repeat with great earnestness the recommendation which I have made in +several previous messages that prompt and adequate support be given to the +American company engaged in the construction of the Nicaragua ship canal. +It is impossible to overstate the value from every standpoint of this great +enterprise, and I hope that there may be time, even in this Congress, to +give to it an impetus that will insure the early completion of the canal +and secure to the United States its proper relation to it when completed. + +The Congress has been already advised that the invitations of this +Government for the assembling of an international monetary conference to +consider the question of an enlarged use of silver were accepted by the +nations to which they were addressed. The conference assembled at Brussels +on the 22d of November, and has entered upon the consideration of this +great question. I have not doubted, and have taken occasion to express that +belief as well in the invitations issued for this conference as in my +public messages, that the free coinage of silver upon an agreed +international ratio would greatly promote the interests of our people and +equally those of other nations. It is too early to predict what results may +be accomplished by the conference. If any temporary check or delay +intervenes, I believe that very soon commercial conditions will compel the +now reluctant governments to unite with us in this movement to secure the +enlargement of the volume of coined money needed for the transaction of the +business of the world. + +The report of the Secretary of the Treasury will attract especial interest +in view of the many misleading statements that have been made as to the +state of the public revenues. Three preliminary facts should not only be +stated but emphasized before looking into details: First, that the public +debt has been reduced since March 4, 1889, $259,074,200, and the annual +interest charge $11,684,469; second, that there have been paid out for +pensions during this Administration up to November 1, 1892, +$432,564,178.70, an excess of $114,466,386.09 over the sum expended during +the period from March 1, 1885, to March 1, 1889; and, third, that under the +existing tariff up to December 1 about $93,000,000 of revenue which would +have been collected upon imported sugars if the duty had been maintained +has gone into the pockets of the people, and not into the public Treasury, +as before. If there are any who still think that the surplus should have +been kept out of circulation by hoarding it in the Treasury, or deposited +in favored banks without interest while the Government continued to pay to +these very banks interest upon the bonds deposited as security for the +deposits, or who think that the extended pension legislation was a public +robbery, or that the duties upon sugar should have been maintained, I am +content to leave the argument where it now rests while we wait to see +whether these criticisms will take the form of legislation. + +The revenues for the fiscal year ending June 30, 1892, from all sources +were $425,868,260.22, and the expenditures for all purposes were +$415,953,806.56, leaving a balance of $9,914,453.66. There were paid during +the year upon the public debt $40,570,467.98. The surplus in the Treasury +and the bank redemption fund passed by the act of July 14, 1890, to the +general fund furnished in large part the cash available and used for the +payments made upon the public debt. Compared with the year 1891, our +receipts from customs duties fell off $42,069,241.08, while our receipts +from internal revenue increased $8,284,823.13, leaving the net loss of +revenue from these principal sources $33,784,417.95. The net loss of +revenue from all sources was $32,675,972.81. + +The revenues, estimated and actual, for the fiscal year ending June 30, +1893, are placed by the Secretary at $463,336,350.44, and the expenditures +at $461,336,350.44, showing a surplus of receipts over expenditures of +$2,000,000. The cash balance in the Treasury at the end of the fiscal year +it is estimated will be $20,992,377.03. So far as these figures are based +upon estimates of receipts and expenditures for the remaining months of the +current fiscal year, there are not only the usual elements of uncertainty, +but some added elements. New revenue legislation, or even the expectation +of it, may seriously reduce the public revenues during the period of +uncertainty and during the process of business adjustment to the new +conditions when they become known. But the Secretary has very wisely +refrained from guessing as to the effect of possible changes in our revenue +laws, since the scope of those changes and the time of their taking effect +can not in any degree be forecast or foretold by him. His estimates must be +based upon existing laws and upon a continuance of existing business +conditions, except so far as these conditions may be affected by causes +other than new legislation. + +The estimated receipts for the fiscal year ending June 30, 1894, are +$490,121,365.38, and the estimated appropriations $457,261,335.33, leaving +an estimated surplus of receipts over expenditures of $32,860,030.05. This +does not include any payment to the sinking fund. In the recommendation of +the Secretary that the sinking-fund law be repealed I concur. The +redemption of bonds since the passage of the law to June 30, 1892, has +already exceeded the requirements by the sum of $990,510,681.49. The +retirement of bonds in the future before maturity should be a matter of +convenience, not of compulsion. We should not collect revenue for that +purpose, but only use any casual surplus. To the balance of $32,860,030.05 +of receipts over expenditures for the year 1894 should be added the +estimated surplus at the beginning of the year, $20,992,377.03, and from +this aggregate there must be deducted, as stated by the Secretary, about +$44,000,000 of estimated unexpended appropriations. + +The public confidence in the purpose and ability of the Government to +maintain the parity of all of our money issues, whether coin or paper, must +remain unshaken. The demand for gold in Europe and the consequent calls +upon us are in a considerable degree the result of the efforts of some of +the European Governments to increase their gold reserves, and these efforts +should be met by appropriate legislation on our part. The conditions that +have created this drain of the Treasury gold are in an important degree +political, and not commercial. In view of the fact that a general revision +of our revenue laws in the near future seems to be probable, it would be +better that any changes should be a part of that revision rather than of a +temporary nature. + +During the last fiscal year the Secretary purchased under the act of July +14, 1890, 54,355,748 ounces of silver and issued in payment therefor +$51,106,608 in notes. The total purchases since the passage of the act have +been 120,479,981 ounces and the aggregate of notes issued $116,783,590. The +average price paid for silver during the year was 94 cents per ounce, the +highest price being $1.02 3/4 July 1, 1891, and the lowest 83 cents March +21, 1892. In view of the fact that the monetary conference is now sitting +and that no conclusion has yet been reached, I withhold any recommendation +as to legislation upon this subject. + +The report of the Secretary of War brings again to the attention of +Congress some important suggestions as to the reorganization of the +infantry and artillery arms of the service, which his predecessors have +before urgently presented. Our Army is small, but its organization should +all the more be put upon the most approved modern basis. The conditions +upon what we have called the "frontier" have heretofore required the +maintenance of many small posts, but now the policy of concentration is +obviously the right one. The new posts should have the proper strategic +relations to the only "frontiers" we now have--those of the seacoast and of +our northern and part of our southern boundary. I do not think that any +question of advantage to localities or to States should determine the +location of the new posts. The reorganization and enlargement of the Bureau +of Military Information which the Secretary has effected is a work the +usefulness of which will become every year more apparent. The work of +building heavy guns and the construction of coast defenses has been well +begun and should be carried on without check. + +The report of the Attorney-General is by law submitted directly to +Congress, but I can not refrain from saying that he has conducted the +increasing work of the Department of Justice with great professional skill. +He has in several directions secured from the courts decisions giving +increased protection to the officers of the United States and bringing some +classes of crime that escaped local cognizance and punishment into the +tribunals of the United States, where they could be tried with +impartiality. + +The numerous applications for Executive clemency presented in behalf of +persons convicted in United States courts and given penitentiary sentences +have called my attention to a fact referred to by the Attorney-General in +his report, namely, that a time allowance for good behavior for such +prisoners is prescribed by the Federal statutes only where the State in +which the penitentiary is located has made no such provision. Prisoners are +given the benefit of the provisions of the State law regulating the +penitentiary to which they may be sent. These are various, some perhaps too +liberal and some perhaps too illiberal. The result is that a sentence for +five years means one thing if the prisoner is sent to one State for +confinement and quite a different thing if he is sent to another. I +recommend that a uniform credit for good behavior be prescribed by +Congress. + +I have before expressed my concurrence in the recommendation of the +Attorney-General that degrees of murder should be recognized in the Federal +statutes, as they are, I believe, in all the States. These grades are +rounded on correct distinctions in crime. The recognition of them would +enable the courts to exercise some discretion in apportioning punishment +and would greatly relieve the Executive of what is coming to be a very +heavy burden--the examination of these cases on application for +commutation. + +The aggregate of claims pending against the Government in the Court of +Claims is enormous. Claims to the amount of nearly $400,000,000 for the +taking of or injury to the property of persons claiming to be loyal during +the war are now before that court for examination. When to these are added +the Indian depredation claims and the French spoliation claims, an +aggregate is reached that is indeed startling. In the defense of all these +cases the Government is at great disadvantage. The claimants have preserved +their evidence, whereas the agents of the Government are sent into the +field to rummage for what they can find. This difficulty is peculiarly +great where the fact to be established is the disloyalty of the claimant +during the war. If this great threat against our revenues is to have no +other check, certainly Congress should supply the Department of Justice +with appropriations sufficiently liberal to secure the best legal talent in +the defense of these claims and to pursue its vague search for evidence +effectively. + +The report of the Postmaster-General shows a most gratifying increase and a +most efficient and progressive management of the great business of that +Department. The remarkable increase in revenues, in the number of +post-offices, and in the miles of mail carriage furnishes further evidence +of the high state of prosperity which our people are enjoying. New offices +mean new hamlets and towns, new routes mean the extension of our border +settlements, and increased revenues mean an active commerce. The +Postmaster-General reviews the whole period of his administration of the +office and brings some of his statistics down to the month of November +last. The postal revenues have increased during the last year nearly +$5,000,000. The deficit for the year ending June 30, 1892, is $848,341 less +than the deficiency of the preceding year. The deficiency of the present +fiscal year it is estimated will be reduced to $1,552,423, which will not +only be extinguished during the next fiscal year but a surplus of nearly +$1,000,000 should then be shown. In these calculations the payments to be +made under the contracts for ocean mail service have not been included. +There have been added 1,590 new mail routes during the year, with a mileage +of 8,563 miles, and the total number of new miles of mail trips added +during the year is nearly 17,000,000. The number of miles of mail journeys +added during the last four years is about 76,000,000, this addition being +21,000,000 miles more than were in operation in the whole country in 1861. + +The number of post-offices has been increased by 2,790 during the year, and +during the past four years, and up to October 29 last, the total increase +in the number of offices has been nearly 9,000. The number of free-delivery +offices has been nearly doubled in the last four years, and the number of +money-order offices more than doubled within that time. + +For the three years ending June 30, 1892, the postal revenue amounted to +$197,744,359, which was an increase of $52,263,150 over the revenue for the +three years ending June 30, 1888, the increase during the last three years +being more than three and a half times as great as the increase during the +three years ending June 30, 1888. No such increase as that shown for these +three years has ever previously appeared in the revenues of the Department. +The Postmaster-General has extended to the post-offices in the larger +cities the merit system of promotion introduced by my direction into the +Departments here, and it has resulted there, as in the Departments, in a +larger volume of work and that better done. + +Ever since our merchant marine was driven from the sea by the rebel +cruisers during the War of the Rebellion the United States has been paying +an enormous annual tribute to foreign countries in the shape of freight and +passage moneys. Our grain and meats have been taken at our own docks and +our large imports there laid down by foreign shipmasters. An increasing +torrent of American travel to Europe has contributed a vast sum annually to +the dividends of foreign shipowners. The balance of trade shown by the +books of our custom-houses has been very largely reduced and in many years +altogether extinguished by this constant drain. In the year 1892 only 12.3 +per cent of our imports were brought in American vessels. These great +foreign steamships maintained by our traffic are many of them under +contracts with their respective Governments by which in time of war they +will become a part of their armed naval establishments. Profiting by our +commerce in peace, they will become the most formidable destroyers of our +commerce in time of war. I have felt, and have before expressed the +feeling, that this condition of things was both intolerable and +disgraceful. A wholesome change of policy, and one having in it much +promise, as it seems to me, was begun by the law of March 3, 1891. Under +this law contracts have been made by the Postmaster-General for eleven mail +routes. The expenditure involved by these contracts for the next fiscal +year approximates $954,123.33. As one of the results already reached +sixteen American steamships, of an aggregate tonnage of 57,400 tons, +costing $7,400,000, have been built or contracted to be built in American +shipyards. + +The estimated tonnage of all steamships required under existing contracts +is 165,802, and when the full service required by these contracts is +established there will be forty-one mail steamers under the American flag, +with the probability of further necessary additions in the Brazilian and +Argentine service. The contracts recently let for transatlantic service +will result in the construction of five ships of 10,000 tons each, costing +$9,000,000 to $10,000,000, and will add, with the City of New York and City +of Paris, to which the Treasury Department was authorized by legislation at +the last session to give American registry, seven of the swiftest vessels +upon the sea to our naval reserve. The contracts made with the lines +sailing to Central and South American ports have increased the frequency +and shortened the time of the trips, added new ports of call, and sustained +some lines that otherwise would almost certainly have been withdrawn. The +service to Buenos Ayres is the first to the Argentine Republic under the +American flag. The service to Southampton, Boulogne, and Antwerp is also +new, and is to be begun with the steamships City of New York and City of +Paris in February next. + +I earnestly urge the continuance of the policy inaugurated by this +legislation, and that the appropriations required to meet the obligations +of the Government under the contracts may be made promptly, so that the +lines that have entered into these engagements may not be embarrassed. We +have had, by reason of connections with the transcontinental railway lines +constructed through our own territory, some advantages in the ocean trade +of the Pacific that we did not possess on the Atlantic. The construction of +the Canadian Pacific Railway and the establishment under large subventions +from Canada and England of fast steamship service from Vancouver with Japan +and China seriously threaten our shipping interests in the Pacific. This +line of English steamers receives, as is stated by the Commissioner of +Navigation, a direct subsidy of $400,000 annually, or $30,767 per trip for +thirteen voyages, in addition to some further aid from the Admiralty in +connection with contracts under which the vessels may be used for naval +purposes. The competing American Pacific mail line under the act of March +3, 1891, receives only $6,389 per round trip. + +Efforts have been making within the last year, as I am informed, to +establish under similar conditions a line between Vancouver and some +Australian port, with a view of seizing there a trade in which we have had +a large interest. The Commissioner of Navigation states that a very large +per cent of our imports from Asia are now brought to us by English +steamships and their connecting railways in Canada. With a view of +promoting this trade, especially in tea, Canada has imposed a +discriminating duty of 10 per cent upon tea and coffee brought into the +Dominion from the United States. If this unequal contest between American +lines without subsidy, or with diminished subsidies, and the English +Canadian line to which I have referred is to continue, I think we should at +least see that the facilities for customs entry and transportation across +our territory are not such as to make the Canadian route a favored one, and +that the discrimination as to duties to which I have referred is met by a +like discrimination as to the importation of these articles from Canada. + +No subject, I think, more nearly touches the pride, the power, and the +prosperity of our country than this of the development of our merchant +marine upon the sea. If we could enter into conference with other +competitors and all would agree to withhold government aid, we could +perhaps take our chances with the rest; but our great competitors have +established and maintained their lines by government subsidies until they +now have practically excluded us from participation. In my opinion no +choice is left to us but to pursue, moderately at least, the same lines. + +The report of the Secretary of the Navy exhibits great progress in the +construction of our new Navy. When the present Secretary entered upon his +duties, only 3 modern steel vessels were in commission. The vessels since +put in commission and to be put in commission during the winter will make a +total of 19 during his administration of the Department. During the current +year 10 war vessels and 3 navy tugs have been launched, and during the four +years 25 vessels will have been launched. Two other large ships and a +torpedo boat are under contract and the work upon them well advanced, and +the 4 monitors are awaiting only the arrival of their armor, which has been +unexpectedly delayed, or they would have been before this in commission. + +Contracts have been let during this Administration, under the +appropriations for the increase of the Navy, including new vessels and +their appurtenances, to the amount of $35,000,000, and there has been +expended during the same period for labor at navy-yards upon similar work +$8,000,000 without the smallest scandal or charge of fraud or partiality. +The enthusiasm and interest of our naval officers, both of the staff and +line, have been greatly kindled. They have responded magnificently to the +confidence of Congress and have demonstrated to the world an unexcelled +capacity in construction, in ordnance, and in everything involved in the +building, equipping, and sailing of great war ships. + +At the beginning of Secretary Tracy's administration several difficult +problems remained to be grappled with and solved before the efficiency in +action of our ships could be secured. It is believed that as the result of +new processes in the construction of armor plate our later ships will be +clothed with defensive plates of higher resisting power than are found on +any war vessels afloat. We were without torpedoes. Tests have been made to +ascertain the relative efficiency of different constructions, a torpedo has +been adopted, and the work of construction is now being carried on +successfully. We were without armor-piercing shells and without a shop +instructed and equipped for the construction of them. We are now making +what is believed to be a projectile superior to any before in use. A +smokeless powder has been developed and a slow-burning powder for guns of +large caliber. A high explosive capable of use in shells fired from service +guns has been found, and the manufacture of gun cotton has been developed +so that the question of supply is no longer in doubt. + +The development of a naval militia, which has been organized in eight +States and brought into cordial and cooperative relations with the Navy, is +another important achievement. There are now enlisted in these +organizations 1,800 men, and they are likely to be greatly extended. I +recommend such legislation and appropriations as will encourage and develop +this movement. The recommendations of the Secretary will, I do not doubt, +receive the friendly consideration of Congress, for he has enjoyed, as he +has deserved, the confidence of all those interested in the development of +our Navy, without any division upon partisan lines. I earnestly express the +hope that a work which has made such noble progress may not now be stayed. +The wholesome influence for peace and the increased sense of security which +our citizens domiciled in other lands feel when these magnificent ships +under the American flag appear is already most gratefully apparent. The +ships from our Navy which will appear in the great naval parade next April +in the harbor of New York will be a convincing demonstration to the world +that the United States is again a naval power. + +The work of the Interior Department, always very burdensome, has been +larger than ever before during the administration of Secretary Noble. The +disability-pension law, the taking of the Eleventh Census, the opening of +vast areas of Indian lands to settlement, the organization of Oklahoma, and +the negotiations for the cession of Indian lands furnish some of the +particulars of the increased work, and the results achieved testify to the +ability, fidelity, and industry of the head of the Department and his +efficient assistants. + +Several important agreements for the cession of Indian lands negotiated by +the commission appointed under the act of March 2, 1889, are awaiting the +action of Congress. Perhaps the most important of these is that for the +cession of the Cherokee Strip. This region has been the source of great +vexation to the executive department and of great friction and unrest +between the settlers who desire to occupy it and the Indians who assert +title. The agreement which has been made by the commission is perhaps the +most satisfactory that could have been reached. It will be noticed that it +is conditioned upon its ratification by Congress before March 4, 1893. The +Secretary of the Interior, who has given the subject very careful thought, +recommends the ratification of the agreement, and I am inclined to follow +his recommendation. Certain it is that some action by which this +controversy shall be brought to an end and these lands opened to settlement +is urgent. + +The form of government provided by Congress on May 17, 1884, for Alaska was +in its frame and purpose temporary. The increase of population and the +development of some important mining and commercial interests make it +imperative that the law should be revised and better provision made for the +arrest and punishment of criminals. + +The report of the Secretary shows a very gratifying state of facts as to +the condition of the General Land Office. The work of issuing agricultural +patents, which seemed to be hopelessly in arrear when the present Secretary +undertook the duties of his office, has been so expedited that the bureau +is now upon current business. The relief thus afforded to honest and worthy +settlers upon the public lands by giving to them an assured title to their +entries has been of incalculable benefit in developing the new States and +the Territories. + +The Court of Private Land Claims, established by Congress for the promotion +of this policy of speedily settling contested land titles, is making +satisfactory progress in its work, and when the work is completed a great +impetus will be given to the development of those regions where unsettled +claims under Mexican grants have so long exercised their repressive +influence. When to these results are added the enormous cessions of Indian +lands which have been opened to settlement, aggregating during this +Administration nearly 26,000,000 acres, and the agreements negotiated and +now pending in Congress for ratification by which about 10,000,000 +additional acres will be opened to settlement, it will be seen how much has +been accomplished. + +The work in the Indian Bureau in the execution of the policy of recent +legislation has been largely directed to two chief purposes: First, the +allotment of lands in severalty to the Indians and the cession to the +United States of the surplus lands, and, secondly, to the work of educating +the Indian for his own protection in his closer contact with the white man +and for the intelligent exercise of his new citizenship. Allotments have +been made and patents issued to 5,900 Indians under the present Secretary +and Commissioner, and 7,600 additional allotments have been made for which +patents are now in process of preparation. The school attendance of Indian +children has been increased during that time over 13 per cent, the +enrollment for 1892 being nearly 20,000. A uniform system of school +text-books and of study has been adopted and the work in these national +schools brought as near as may be to the basis of the free common schools +of the States. These schools can be transferred and merged into the +common-school systems of the States when the Indian has fully assumed his +new relation to the organized civil community in which he resides and the +new States are able to assume the burden. I have several times been called +upon to remove Indian agents appointed by me, and have done so promptly +upon every sustained complaint of unfitness or misconduct. I believe, +however, that the Indian service at the agencies has been improved and is +now administered on the whole with a good degree of efficiency. If any +legislation is possible by which the selection of Indian agents can be +wholly removed from all partisan suggestions or considerations, I am sure +it would be a great relief to the Executive and a great benefit to the +service. The appropriation for the subsistence of the Cheyenne and Arapahoe +Indians made at the last session of Congress was inadequate. This smaller +appropriation was estimated for by the Commissioner upon the theory that +the large fund belonging to the tribe in the public Treasury could be and +ought to be used for their support. In view, however, of the pending +depredation claims against this fund and other considerations, the +Secretary of the Interior on the 12th of April last submitted a +supplemental estimate for $50,000. This appropriation was not made, as it +should have been, and the oversight ought to be remedied at the earliest +possible date. + +In a special message to this Congress at the last session, I stated the +reasons why I had not approved the deed for the release to the United +States by the Choctaws and Chickasaws of the lands formerly embraced in the +Cheyenne and Arapahoe Reservation and remaining after allotments to that +tribe. A resolution of the Senate expressing the opinion of that body that +notwithstanding the facts stated in my special message the deed should be +approved and the money, $2,991,450, paid over was presented to me May 10, +1892. My special message was intended to call the attention of Congress to +the subject, and in view of the fact that it is conceded that the +appropriation proceeded upon a false basis as to the amount of lands to be +paid for and is by $50,000 in excess of the amount they are entitled to +(even if their claim to the land is given full recognition at the rate +agreed upon), I have not felt willing to approve the deed, and shall not do +so, at least until both Houses of Congress have acted upon the subject. It +has been informally proposed by the claimants to release this sum of +$50,000, but I have no power to demand or accept such a release, and such +an agreement would be without consideration and void. + +I desire further to call the attention of Congress to the fact that the +recent agreement concluded with the Kiowas and Comanches relates to lands +which were a part of the "leased district," and to which the claim of the +Choctaws and Chickasaws is precisely that recognized by Congress in the +legislation I have referred to. The surplus lands to which this claim would +attach in the Kiowa and Comanche Reservation is 2,500,000 acres, and at the +same rate the Government will be called upon to pay to the Choctaws and +Chickasaws for these lands $3,125,000. This sum will be further augmented, +especially if the title of the Indians to the tract now Greet County, Tex., +is established. The duty devolved upon me in this connection was simply to +pass upon the form of the deed; but as in my opinion the facts mentioned in +my special message were not adequately brought to the attention of Congress +in connection with the legislation, I have felt that I would not be +justified in acting without some new expression of the legislative will. + +The report of the Commissioner of Pensions, to which extended notice is +given by the Secretary of the Interior in his report, will attract great +attention. Judged by the aggregate amount of work done, the last year has +been the greatest in the history of the office. I believe that the +organization of the office is efficient and that the work has been done +with fidelity. The passage of what is known as the disability bill has, as +was foreseen, very largely increased the annual disbursements to the +disabled veterans of the Civil War. The estimate for this fiscal year was +$144,956,000, and that amount was appropriated. A deficiency amounting to +$10,508,621 must be provided for at this session. The estimate for pensions +for the fiscal year ending June 30, 1894, is $165,000,000. The Commissioner +of Pensions believes that if the present legislation and methods are +maintained and further additions to the pension laws are not made the +maximum expenditure for pensions will be reached June 30, 1894, and will be +at the highest point $188,000,000 per annum. + +I adhere to the views expressed in previous messages that the care of the +disabled soldiers of the War of the Rebellion is a matter of national +concern and duty. Perhaps no emotion cools sooner than that of gratitude, +but I can not believe that this process has yet reached a point with our +people that would sustain the policy of remitting the care of these +disabled veterans to the inadequate agencies provided by local laws. The +parade on the 20th of September last upon the streets of this capital of +60,000 of the surviving Union veterans of the War of the Rebellion was a +most touching and thrilling episode, and the rich and gracious welcome +extended to them by the District of Columbia and the applause that greeted +their progress from tens of thousands of people from all the States did +much to revive the glorious recollections of the Grand Review when these +men and many thousand others now in their graves were welcomed with +grateful joy as victors in a struggle in which the national unity, honor, +and wealth were all at issue. + +In my last annual message I called attention to the fact that some +legislative action was necessary in order to protect the interests of the +Government in its relations with the Union Pacific Railway. The +Commissioner of Railroads has submitted a very full report, giving exact +information as to the debt, the liens upon the company's property, and its +resources. We must deal with the question as we find it and take that +course which will under existing conditions best secure the interests of +the United States. I recommended in my last annual message that a +commission be appointed to deal with this question, and I renew that +recommendation and suggest that the commission be given full power. + +The report of the Secretary of Agriculture contains not only a most +interesting statement of the progressive and valuable work done under the +administration of Secretary Rusk, but many suggestions for the enlarged +usefulness of this important Department. In the successful efforts to break +down the restrictions to the free introduction of our meat products in the +countries of Europe the Secretary has been untiring from the first, +stimulating and aiding all other Government officers at home and abroad +whose official duties enabled them to participate in the work. The total +trade in hog products with Europe in May, 1892, amounted to 82,000,000 +pounds, against 46,900,000 in the same month of 1891; in June, 1892, the +export aggregated 85,700,000 pounds, against 46,500,000 pounds in the same +month of the previous year; in July there was an increase of 41 per cent +and in August of 55 per cent over the corresponding months of 1891. Over +40,000,000 pounds of inspected pork have been exported since the law was +put into operation, and a comparison of the four months of May, June, July, +and August, 1892, with the same months of 1891 shows an increase in the +number of pounds of our export of pork products of 62 per cent and an +increase in value of 66 1/2 per cent. The exports of dressed beef increased +from 137,900,000 pounds in 1889 to 220,500,000 pounds in 1892 or about 60 +per cent. During the past year there have been exported 394,607 head of +live cattle, as against 205,786 exported in 1889. This increased +exportation has been largely promoted by the inspection authorized by law +and the faithful efforts of the Secretary and his efficient subordinates to +make that inspection thorough and to carefully exclude from all cargoes +diseased or suspected cattle. The requirement of the English regulations +that live cattle arriving from the United States must be slaughtered at the +docks had its origin in the claim that pleuro-pneumonia existed among +American cattle and that the existence of the disease could only certainly +be determined by a post mortem inspection. + +The Department of Agriculture has labored with great energy and +faithfulness to extirpate this disease, and on the 26th day of September +last a public announcement was made by the Secretary that the disease no +longer existed anywhere within the United States. He is entirely satisfied +after the most searching inquiry that this statement was justified, and +that by a continuance of the inspection and quarantine now required of +cattle brought into this country the disease can be prevented from again +getting any foothold. The value to the cattle industry of the United States +of this achievement can hardly be estimated. We can not, perhaps, at once +insist that this evidence shall be accepted as satisfactory by other +countries; but if the present exemption from the disease is maintained and +the inspection of our cattle arriving at foreign ports, in which our own +veterinarians participate, confirms it, we may justly expect that the +requirement that our cattle shall be slaughtered at the docks will be +revoked, as the sanitary restrictions upon our pork products have been. If +our cattle can be taken alive to the interior, the trade will be enormously +increased. + +Agricultural products constituted 78.1 per cent of our unprecedented +exports for the fiscal year which closed June 30, 1892, the total exports +being $1,030,278,030 and the value of the agricultural products +$793,717,676, which exceeds by more than $150,000,000 the shipment of +agricultural products in any previous year. + +An interesting and a promising work for the benefit of the American farmer +has been begun through agents of the Agricultural Department in Europe, and +consists in efforts to introduce the various products of Indian corn as +articles of human food. The high price of rye offered a favorable +opportunity for the experiment in Germany of combining corn meal with rye +to produce a cheaper bread. A fair degree of success has been attained, and +some mills for grinding corn for food have been introduced. The Secretary +is of the opinion that this new use of the products of corn has already +stimulated exportations, and that if diligently prosecuted large and +important markets can presently be opened for this great American product. + +The suggestions of the Secretary for an enlargement of the work of the +Department are commended to your favorable consideration. It may, I think, +be said without challenge that in no corresponding period has so much been +done as during the last four years for the benefit of American +agriculture. + +The subject of quarantine regulations, inspection, and control was brought +suddenly to my attention by the arrival at our ports in August last of +vessels infected with cholera. Quarantine regulations should be uniform at +all our ports. Under the Constitution they are plainly within the exclusive +Federal jurisdiction when and so far as Congress shall legislate. In my +opinion the whole subject should be taken into national control and +adequate power given to the Executive to protect our people against plague +invasions. On the 1st of September last I approved regulations establishing +a twenty-day quarantine for all vessels bringing immigrants from foreign +ports. This order will be continued in force. Some loss and suffering have +resulted to passengers, but a due care for the homes of our people +justifies in such cases the utmost precaution. There is danger that with +the coming of spring cholera will again appear, and a liberal appropriation +should be made at this session to enable our quarantine and port officers +to exclude the deadly plague. + +But the most careful and stringent quarantine regulations may not be +sufficient absolutely to exclude the disease. The progress of medical and +sanitary science has been such, however, that if approved precautions are +taken at once to put all of our cities and towns in the best sanitary +condition, and provision is made for isolating any sporadic cases and for a +thorough disinfection, an epidemic can, I am sure, be avoided. This work +appertains to the local authorities, and the responsibility and the penalty +will be appalling if it is neglected or unduly delayed. + +We are peculiarly subject in our great ports to the spread of infectious +diseases by reason of the fact that unrestricted immigration brings to us +out of European cities, in the overcrowded steerages of great steamships, a +large number of persons whose surroundings make them the easy victims of +the plague. This consideration, as well as those affecting the political, +moral, and industrial interests of our country, leads me to renew the +suggestion that admission to our country and to the high privileges of its +citizenship should be more restricted and more careful. We have, I think, a +right and owe a duty to our own people, and especially to our working +people, not only to keep out the vicious, the ignorant, the civil +disturber, the pauper, and the contract laborer, but to check the too great +flow of immigration now coming by further limitations. + +The report of the World's Columbian Exposition has not yet been submitted. +That of the board of management of the Government exhibit has been received +and is herewith transmitted. The work of construction and of preparation +for the opening of the exposition in May next has progressed most +satisfactorily and upon a scale of liberality and magnificence that will +worthily sustain the honor of the United States. + +The District of Columbia is left by a decision of the supreme court of the +District without any law regulating the liquor traffic. An old statute of +the legislature of the District relating to the licensing of various +vocations has hitherto been treated by the Commissioners as giving them +power to grant or refuse licenses to sell intoxicating liquors and as +subjecting those who sold without licenses to penalties; but in May last +the supreme court of the District held against this view of the powers of +the Commissioners. It is of urgent importance, therefore, that Congress +should supply, either by direct enactment or by conferring discretionary +powers upon the Commissioners, proper limitations and restraints upon the +liquor traffic in the District. The District has suffered in its reputation +by many crimes of violence, a large per cent of them resulting from +drunkenness and the liquor traffic. The capital of the nation should be +freed from this reproach by the enactment of stringent restrictions and +limitations upon the traffic. + +In renewing the recommendation which I have made in three preceding annual +messages that Congress should legislate for the protection of railroad +employees against the dangers incident to the old and inadequate methods of +braking and coupling which are still in use upon freight trains, I do so +with the hope that this Congress may take action upon the subject. +Statistics furnished by the Interstate Commerce Commission show that during +the year ending June 30, 1891, there were forty-seven different styles of +car couplers reported to be in use, and that during the same period there +were 2,660 employees killed and 26,140 injured. Nearly 16 per cent of the +deaths occurred in the coupling and uncoupling of cars and over 36 per cent +of the injuries had the same origin. + +The Civil Service Commission ask for an increased appropriation for needed +clerical assistance, which I think should be given. I extended the +classified service March 1, 1892, to include physicians, superintendents, +assistant superintendents, school-teachers, and matrons in the Indian +service, and have had under consideration the subject of some further +extensions, but have not as yet fully determined the lines upon which +extensions can most properly and usefully be made. + +I have in each of the three annual messages which it has been my duty to +submit to Congress called attention to the evils and dangers connected with +our election methods and practices as they are related to the choice of +officers of the National Government. In my last annual message I endeavored +to invoke serious attention to the evils of unfair apportionments for +Congress. I can not close this message without again calling attention to +these grave and threatening evils. I had hoped that it was possible to +secure a nonpartisan inquiry by means of a commission into evils the +existence of which is known to all, and that out of this might grow +legislation from which all thought of partisan advantage should be +eliminated and only the higher thought appear of maintaining the freedom +and purity of the ballot and the equality of the elector, without the +guaranty of which the Government could never have been formed and without +the continuance of which it can not continue to exist in peace and +prosperity. + +It is time that mutual charges of unfairness and fraud between the great +parties should cease and that the sincerity of those who profess a desire +for pure and honest elections should be brought to the test of their +willingness to free our legislation and our election methods from +everything that tends to impair the public confidence in the announced +result. The necessity for an inquiry and for legislation by Congress upon +this subject is emphasized by the fact that the tendency of the legislation +in some States in recent years has in some important particulars been away +from and not toward free and fair elections and equal apportionments. Is it +not time that we should come together upon the high plane of patriotism +while we devise methods that shall secure the right of every man qualified +by law to cast a free ballot and give to every such ballot an equal value +in choosing our public officers and in directing the policy of the +Government? + +Lawlessness is not less such, but more, where it usurps the functions of +the peace officer and of the courts. The frequent lynching of colored +people accused of crime is without the excuse, which has sometimes been +urged by mobs for a failure to pursue the appointed methods for the +punishment of crime, that the accused have an undue influence over courts +and juries. Such acts are a reproach to the community where they occur, and +so far as they can be made the subject of Federal jurisdiction the +strongest repressive legislation is demanded. A public sentiment that will +sustain the officers of the law in resisting mobs and in protecting accused +persons in their custody should be promoted by every possible means. The +officer who gives his life in the brave discharge of this duty is worthy of +special honor. No lesson needs to be so urgently impressed upon our people +as this, that no worthy end or cause can be promoted by lawlessness. + +This exhibit of the work of the Executive Departments is submitted to +Congress and to the public in the hope that there will be found in it a due +sense of responsibility and an earnest purpose to maintain the national +honor and to promote the happiness and prosperity of all our people, and +this brief exhibit of the growth and prosperity of the country will give us +a level from which to note the increase or decadence that new legislative +policies may bring to us. There is no reason why the national influence, +power, and prosperity should not observe the same rates of increase that +have characterized the past thirty years. We carry the great impulse and +increase of these years into the future. There is no reason why in many +lines of production we should not surpass all other nations, as we have +already done in some. There are no near frontiers to our possible +development. Retrogression would be a crime. + +BENJ. HARRISON + + + + + + + + + + +End of the Project Gutenberg EBook of State of the Union Addresses of +Benjamin Harrison, by Benjamin Harrison + +*** END OF THIS PROJECT GUTENBERG EBOOK STATE OF THE UNION ADDRESSES *** + +***** This file should be named 5030.txt or 5030.zip ***** +This and all associated files of various formats will be found in: + http://www.gutenberg.org/5/0/3/5030/ + +Produced by James Linden. HTML version by Al Haines. +Updated editions will replace the previous one--the old editions will +be renamed. + +Creating the works from print editions not protected by U.S. copyright +law means that no one owns a United States copyright in these works, +so the Foundation (and you!) can copy and distribute it in the United +States without permission and without paying copyright +royalties. 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Do not change or edit the +header without written permission. + +Please read the "legal small print," and other information about the +eBook and Project Gutenberg at the bottom of this file. Included is +important information about your specific rights and restrictions in +how the file may be used. You can also find out about how to make a +donation to Project Gutenberg, and how to get involved. + + +**Welcome To The World of Free Plain Vanilla Electronic Texts** + +**eBooks Readable By Both Humans and By Computers, Since 1971** + +*****These eBooks Were Prepared By Thousands of Volunteers!***** + + +Title: State of the Union Addresses of Benjamin Harrison + +Author: Benjamin Harrison + +Release Date: February, 2004 [EBook #5030] +[Yes, we are more than one year ahead of schedule] +[This file was first posted on April 11, 2002] + +Edition: 10 + +Language: English + +Character set encoding: ASCII + +*** START OF THE PROJECT GUTENBERG EBOOK OF ADDRESSES BY BENJAMIN HARRISON *** + + + + +This eBook was produced by James Linden. + +The addresses are separated by three asterisks: *** + +Dates of addresses by Benjamin Harrison in this eBook: + December 3, 1889 + December 1, 1890 + December 9, 1891 + December 6, 1892 + + + +*** + +State of the Union Address +Benjamin Harrison +December 3, 1889 + +To the Senate and House of Representatives: + +There are few transactions in the administration of the Government that are +even temporarily held in the confidence of those charged with the conduct +of the public business. Every step taken is under the observation of an +intelligent and watchful people. The state of the Union is known from day +to day, and suggestions as to needed legislation find an earlier voice than +that which speaks in these annual communications of the President to +Congress. + +Good will and cordiality have characterized our relations and +correspondence with other governments, and the year just closed leaves few +international questions of importance remaining unadjusted. No obstacle is +believed to exist that can long postpone the consideration and adjustment +of the still pending questions upon satisfactory and honorable terms. The +dealings of this Government with other states have been and should always +be marked by frankness and sincerity, our purposes avowed, and our methods +free from intrigue. This course has borne rich fruit in the past, and it is +our duty as a nation to preserve the heritage of good repute which a +century of right dealing with foreign governments has secured to us. + +It is a matter of high significance and no less of congratulation that the +first year of the second century of our constitutional existence finds as +honored guests within our borders the representatives of all the +independent States of North and South America met together in earnest +conference touching the best methods of perpetuating and expanding the +relations of mutual interest and friendliness existing among them. That the +opportunity thus afforded for promoting closer international relations and +the increased prosperity of the States represented will be used for the +mutual good of all I can not permit myself to doubt. Our people will await +with interest and confidence the results to flow from so auspicious a +meeting of allied and in large part identical interests. + +The recommendations of this international conference of enlightened +statesmen will doubtless have the considerate attention of Congress and its +cooperation in the removal of unnecessary barriers to beneficial +intercourse between the nations of America. But while the commercial +results which it is hoped will follow this conference are worthy of pursuit +and of the great interests they have excited, it is believed that the +crowning benefit will be found in the better securities which may be +devised for the maintenance of peace among all American nations and the +settlement of all contentions by methods that a Christian civilization can +approve. While viewing with interest our national resources and products, +the delegates will, I am sure, find a higher satisfaction in the evidences +of unselfish friendship which everywhere attend their intercourse with our +people. + +Another international conference having great possibilities for good has +lately assembled and is now in session in this capital. An invitation was +extended by the Government, under the act of Congress of July 9, 1888, to +all maritime nations to send delegates to confer touching the revision and +amendment of the rules and regulations governing vessels at sea and to +adopt a uniform system of marine signals. The response to this invitation +has been very general and very cordial. Delegates from twenty-six nations +are present in the conference, and they have entered upon their useful work +with great zeal and with an evident appreciation of its importance. So far +as the agreement to be reached may require legislation to give it effect, +the cooperation of Congress is confidently relied upon. + +It is an interesting, if not, indeed, an unprecedented, fact that the two +international conferences have brought together here the accredited +representatives of thirty-three nations. + +Bolivia, Ecuador, and Honduras are now represented by resident envoys of +the plenipotentiary grade. All the States of the American system now +maintain diplomatic representation at this capital. + +In this connection it may be noted that all the nations of the Western +Hemisphere, with one exception, send to Washington envoys extraordinary and +ministers plenipotentiary, being the highest grade accredited to this +Government. The United States, on the contrary, sends envoys of lower +grades to some of our sister Republics. Our representative in Paraguay and +Uruguay is a minister resident, while to Bolivia we send a minister +resident and consul-general. In view of the importance of our relations +with the States of the American system, our diplomatic agents in those +countries should be of the uniform rank of envoy extraordinary and minister +plenipotentiary. Certain missions were so elevated by the last Congress +with happy effect, and I recommend the completion of the reform thus begun, +with the inclusion also of Hawaii and Hayti, in view of their relations to +the American system of states. + +I also recommend that timely provision be made for extending to Hawaii an +invitation to be represented in the international conference now sitting at +this capital. + +Our relations with China have the attentive consideration which their +magnitude and interest demand. The failure of the treaty negotiated under +the Administration of my predecessor for the further and more complete +restriction of Chinese labor immigration, and with it the legislation of +the last session of Congress dependent thereon, leaves some questions open +which Congress should now approach in that wise and just spirit which +should characterize the relations of two great and friendly powers. While +our supreme interests demand the exclusion of a laboring element which +experience has shown to be incompatible with our social life, all steps to +compass this imperative need should be accompanied with a recognition of +the claim of those strangers now lawfully among us to humane and just +treatment. + +The accession of the young Emperor of China marks, we may hope, an era of +progress and prosperity for the great country over which he is called to +rule. + +The present state of affairs in respect to the Samoan Islands is +encouraging. The conference which was held in this city in the summer of +1887 between the representatives of the United States, Germany, and Great +Britain having been adjourned because of the persistent divergence of views +which was developed in its deliberations, the subsequent course of events +in the islands gave rise to questions of a serious character. On the 4th of +February last the German minister at this capital, in behalf of his +Government, proposed a resumption of the conference at Berlin. This +proposition was accepted, as Congress in February last was informed. + +Pursuant to the understanding thus reached, commissioners were appointed by +me, by and with the advice and consent of the Senate, who proceeded to +Berlin, where the conference was renewed. The deliberations extended +through several weeks, and resulted in the conclusion of a treaty which +will be submitted to the Senate for its approval. I trust that the efforts +which have been made to effect an adjustment of this question will be +productive of the permanent establishment of law and order in Samoa upon +the basis of the maintenance of the rights and interests of the natives as +well as of the treaty powers. + +The questions which have arisen during the past few years between Great +Britain and the United States are in abeyance or in course of amicable +adjustment. + +On the part of the government of the Dominion of Canada an effort has been +apparent during the season just ended to administer the laws and +regulations applicable to the fisheries with as little occasion for +friction as was possible, and the temperate representations of this +Government in respect of cases of undue hardship or of harsh +interpretations have been in most cases met with measures of transitory +relief. It is trusted that the attainment of our just rights under existing +treaties and in virtue of the concurrent legislation of the two contiguous +countries will not be long deferred and that all existing causes of +difference may be equitably adjusted. + +I recommend that provision be made by an international agreement for +visibly marking the water boundary between the United States and Canada in +the narrow channels that join the Great Lakes. The conventional line +therein traced by the northwestern boundary survey years ago is not in all +cases readily ascertainable for the settlement of jurisdictional +questions. + +A just and acceptable enlargement of the list of offenses for which +extradition may be claimed and granted is most desirable between this +country and Great Britain. The territory of neither should become a secure +harbor for the evil doers of the other through any avoidable shortcoming in +this regard. A new treaty on this subject between the two powers has been +recently negotiated and will soon be laid before the Senate. + +The importance of the commerce of Cuba and Puerto Rico with the United +States, their nearest and principal market, justifies the expectation that +the existing relations may be beneficially expanded. The impediments +resulting from varying dues on navigation and from the vexatious treatment +of our vessels on merely technical grounds of complaint in West India ports +should be removed. + +The progress toward an adjustment of pending claims between the United +States and Spain is not as rapid as could be desired. + +Questions affecting American interests in connection with railways +constructed and operated by our citizens in Peru have claimed the attention +of this Government. It is urged that other governments in pressing Peru to +the payment of their claims have disregarded the property rights of +American citizens. The matter will be carefully investigated with a view to +securing a proper and equitable adjustment. + +A similar issue is now pending with Portugal. The Delagoa Bay Railway, in +Africa, was constructed under a concession by Portugal to an American +citizen. When nearly completed the road was seized by the agents of the +Portuguese Government. Formal protest has been made through our minister at +Lisbon against this act, and no proper effort will be spared to secure +proper relief. + +In pursuance of the charter granted by Congress and under the terms of its +contract with the Government of Nicaragua the Interoceanic Canal Company +has begun the construction of the important waterway between the two oceans +which its organization contemplates. Grave complications for a time seemed +imminent, in view of a supposed conflict of jurisdiction between Nicaragua +and Costa Rica in regard to the accessory privileges to be conceded by the +latter Republic toward the construction of works on the San Juan River, of +which the right bank is Costa Rican territory. I am happy to learn that a +friendly arrangement has been effected between the two nations. This +Government has held itself ready to promote in every proper way the +adjustment of all questions that might present obstacles to the completion +of a work of such transcendent importance to the commerce of this country, +and, indeed, to the commercial interests of the world. + +The traditional good feeling between this country and the French Republic +has received additional testimony in the participation of our Government +and people in the international exposition held at Paris during the past +summer. The success of our exhibitors has been gratifying. The report of +the commission will be laid before Congress in due season. + +This Government has accepted, under proper reserve as to its policy in +foreign territories, the invitation of the Government of Belgium to take +part in an international congress, which opened at Brussels on the 16th of +November, for the purpose of devising measures to promote the abolition of +the slave trade in Africa and to prevent the shipment of slaves by sea. Our +interest in the extinction of this crime against humanity in the regions +where it yet survives has been increased by the results of emancipation +within our own borders. + +With Germany the most cordial relations continue. The questions arising +from the return to the Empire of Germans naturalized in this country are +considered and disposed of in a temperate spirit to the entire satisfaction +of both Governments. + +It is a source of great satisfaction that the internal disturbances of the +Republic of Hayti are at last happily ended, and that an apparently stable +government has been constituted. It has been duly recognized by the United +States. + +A mixed commission is now in session in this capital for the settlement of +long-standing claims against the Republic of Venezuela, and it is hoped +that a satisfactory conclusion will be speedily reached. This Government +has not hesitated to express its earnest desire that the boundary dispute +now pending between Great Britain and Venezuela may be adjusted amicably +and in strict accordance with the historic title of the parties. + +The advancement of the Empire of Japan has been evidenced by the recent +promulgation of a new constitution, containing valuable guaranties of +liberty and providing for a responsible ministry to conduct the +Government. + +It is earnestly recommended that our judicial rights and processes in Korea +be established on a firm basis by providing the machinery necessary to +carry out treaty stipulations in that regard. + +The friendliness of the Persian Government continues to be shown by its +generous treatment of Americans engaged in missionary labors and by the +cordial disposition of the Shah to encourage the enterprise of our citizens +in the development of Persian resources. + +A discussion is in progress touching the jurisdictional treaty rights of +the United States in Turkey. An earnest effort will be made to define those +rights to the satisfaction of both Governments. + +Questions continue to arise in our relations with several countries in +respect to the rights of naturalized citizens. Especially is this the case +with France, Italy, Russia, and Turkey, and to a less extent with +Switzerland. From time to time earnest efforts have been made to regulate +this subject by conventions with those countries. An improper use of +naturalization should not be permitted, but it is most important that those +who have been duly naturalized should everywhere be accorded recognition of +the rights pertaining to the citizenship of the country of their adoption. +The appropriateness of special conventions for that purpose is recognized +in treaties which this Government has concluded with a number of European +States, and it is advisable that the difficulties which now arise in our +relations with other countries on the same subject should be similarly +adjusted. + +The recent revolution in Brazil in favor of the establishment of a +republican form of government is an event of great interest to the United +States. Our minister at Rio de Janeiro was at once instructed to maintain +friendly diplomatic relations with the Provisional Government, and the +Brazilian representatives at this capital were instructed by the +Provisional Government to continue their functions. Our friendly +intercourse with Brazil has therefore suffered no interruption. + +Our minister has been further instructed to extend on the part of this +Government a formal and cordial recognition of the new Republic so soon as +the majority of the people of Brazil shall have signified their assent to +its establishment and maintenance. + +Within our own borders a general condition of prosperity prevails. The +harvests of the last summer were exceptionally abundant, and the trade +conditions now prevailing seem to promise a successful season to the +merchant and the manufacturer and general employment to our working +people. + +The report of the Secretary of the Treasury for the fiscal year ending June +30, 1889, has been prepared and will be presented to Congress. It presents +with clearness the fiscal operations of the Government, and I avail myself +of it to obtain some facts for use here. + +The aggregate receipts from all sources for the year were $387,050,058.84, +derived as follows: + +From customs - $223, 832, 741.69 + +From internal revenue - 130,881,513.92 + +From miscellaneous sources - 32,335,803.23 + +The ordinary expenditures for the same period were $281,996,615.60, and the +total expenditures, including the sinking fund, were $329,579,929.25. The +excess of receipts over expenditures was, after providing for the sinking +fund, $57,470,129.59. + +For the current fiscal year the total revenues, actual and estimated are +$385,000,000, and the ordinary expenditures, actual and estimated, are +$293,000,000, making with the sinking fund a total expenditure of +$341,321,116.99, leaving an estimated surplus of $43,678,883.01. + +During the fiscal year there was applied to the purchase of bonds, in +addition to those for the sinking fund, $90,456,172.35, and during the +first quarter of the current year the sum of $37,838,937.77, all of which +were credited to the sinking fund. The revenues for the fiscal year ending +June 30, 1891, are estimated by the Treasury Department at $385,000,000, +and the expenditures for the same period, including the sinking fund, at +$341,430,477.70. This shows an estimated surplus for that year of +$43,569,522.30, which is more likely to be increased than reduced when the +actual transactions are written up. + +The existence of so large an actual and anticipated surplus should have the +immediate attention of Congress, with a view to reducing the receipts of +the Treasury to the needs of the Government as closely as may be. The +collection of moneys not needed for public uses imposes an unnecessary +burden upon our people, and the presence of so large a surplus in the +public vaults is a disturbing element in the conduct of private business. +It has called into use expedients for putting it into circulation of very +questionable propriety. We should not collect revenue for the purpose of +anticipating our bonds beyond the requirements of the sinking fund, but any +unappropriated surplus in the Treasury should be so used, as there is no +other lawful way of returning the money to circulation, and the profit +realized by the Government offers a substantial advantage. + +The loaning of public funds to the banks without interest Upon the security +of Government bonds I regard as an unauthorized and dangerous expedient. It +results in a temporary and unnatural increase of the banking capital of +favored localities and compels a cautious and gradual recall of the +deposits to avoid injury to the commercial interests. It is not to be +expected that the banks having these deposits will sell their bonds to the +Treasury so long as the present highly beneficial arrangement is continued. +They now practically get interest both upon the bonds and their proceeds. +No further use should be made of this method of getting the surplus into +circulation, and the deposits now outstanding should be gradually withdrawn +and applied to the purchase of bonds. It is fortunate that such a use can +be made of the existing surplus, and for some time to come of any casual +surplus that may exist after Congress has taken the necessary steps for a +reduction of the revenue. Such legislation should be promptly but very +considerately enacted. + +I recommend a revision of our tariff law both in its administrative +features and in the schedules. The need of the former is generally +conceded, and an agreement upon the evils and inconveniences to be remedied +and the best methods for their correction will probably not be difficult. +Uniformity of valuation at all our ports is essential, and effective +measures should be taken to secure it. It is equally desirable that +questions affecting rates and classifications should be promptly decided. + +The preparation of a new schedule of customs duties is a matter of great +delicacy because of its direct effect upon the business of the country, and +of great difficulty by reason of the wide divergence of opinion as to the +objects that may properly be promoted by such legislation. Some disturbance +of business may perhaps result from the consideration of this subject by +Congress, but this temporary ill effect will be reduced to the minimum by +prompt action and by the assurance which the country already enjoys that +any necessary changes will be so made as not to impair the just and +reasonable protection of our home industries. The inequalities of the law +should be adjusted, but the protective principle should be maintained and +fairly applied to the products of our farms as well as of our shops. These +duties necessarily have relation to other things besides the public +revenues. We can not limit their effects by fixing our eyes on the public +Treasury alone. They have a direct relation to home production, to work, to +wages, and to the commercial independence of our country, and the wise and +patriotic legislator should enlarge the field of his vision to include all +of these. The necessary reduction in our public revenues can, I am sure, be +made without making the smaller burden more onerous than the larger by +reason of the disabilities and limitations which the process of reduction +puts upon both capital and labor. The free list can very safely be extended +by placing thereon articles that do not offer injurious competition to such +domestic products as our home labor can supply. The removal of the internal +tax upon tobacco would relieve an important agricultural product from a +burden which was imposed only because our revenue from customs duties was +insufficient for the public needs. If safe provision against fraud can be +devised, the removal of the tax upon spirits used in the arts and in +manufactures would also offer an unobjectionable method of reducing the +surplus. + +A table presented by the Secretary of the Treasury showing the amount of +money of all kinds in circulation each year from 1878 to the present time +is of interest. It appears that the amount of national-bank notes in +circulation has decreased during that period $114,109,729, of which +$37,799,229 is chargeable to the last year. The withdrawal of bank +circulation will necessarily continue under existing conditions. It is +probable that the adoption of the suggestions made by the Comptroller of +the Currency, namely, that the minimum deposit of bonds for the +establishment of banks be reduced and that an issue of notes to the par +value of the bonds be allowed, would help to maintain the bank circulation. +But while this withdrawal of bank notes has been going on there has been a +large increase in the amount of gold and silver coin in circulation and in +the issues of gold and silver certificates. + +The total amount of money of all kinds in circulation on March 1, 1878, was +$805,793,807, while on October 1, 1889, the total was $1,405,018,000. There +was an increase of $293,417,552 in gold coin, of $57,554,100 in standard +silver dollars, of $72,311,249 in gold certificates, of $276,619,715 in +silver certificates, and of $14,073,787 in United States notes, making a +total of $713,976,403. There was during the same period a decrease of +$114,109,729 in bank circulation and of $642,481 in subsidiary silver. The +net increase was $599,224,193. The circulation per capita has increased +about $5 during the time covered by the table referred to. + +The total coinage of silver dollars was on November 1, 1889, $343,638,001, +of which $283,539,521 were in the Treasury vaults and $60,098,480 were in +circulation. Of the amount in the vaults $277,319,944 were represented by +outstanding silver certificates, leaving $6,219,577 not in circulation and +not represented by certificates. + +The law requiring the purchase by the Treasury of $2,000,000 worth of +silver bullion each month, to be coined into silver dollars of 412 1/2 +grains, has been observed by the Department, but neither the present +Secretary nor any of his predecessors has deemed it safe to exercise the +discretion given by law to increase the monthly purchases to $4,000,000. +When the law was enacted (February 28, 1878) the price of silver in the +market was $1.204 per ounce, making the bullion value of the dollar 93 +cents. Since that time the price has fallen as low as 91.2 cents per ounce, +reducing the bullion value of the dollar to 70.6 cents. Within the last few +months the market price has somewhat advanced, and on the 1st day of +November last the bullion value of the silver dollar was 72 cents. + +The evil anticipations which have accompanied the coinage and use of the +silver dollar have not been realized. As a coin it has not had general use, +and the public Treasury has been compelled to store it. But this is +manifestly owing to the fact that its paper representative is more +convenient. The general acceptance and the use of the silver certificate +show that silver has not been otherwise discredited. Some favorable +conditions have contributed to maintain this practical equality in their +commercial use between the gold and silver dollars; but some of these are +trade conditions that statutory enactments do not control and of the +continuance of which we can not be certain. + +I think it is clear that if we should make the coinage of silver at the +present ratio free we must expect that the difference in the bullion values +of the gold and silver dollars will be taken account of in commercial +transactions; and I fear the same result would follow any considerable +increase of the present rate of coinage. Such a result would be +discreditable to our financial management and disastrous to all business +interests. We should not tread the dangerous edge of such a peril. And, +indeed, nothing more harmful could happen to the silver interests. Any safe +legislation upon this subject must secure the equality of the two coins in +their commercial uses. + +I have always been an advocate of the use of silver in our currency. We are +large producers of that metal, and should not discredit it. To the plan +which will be presented by the Secretary of the Treasury for the issuance +of notes or certificates upon the deposit of silver bullion at its market +value I have been able to give only a hasty examination, owing to the press +of other matters and to the fact that it has been so recently formulated. +The details of such a law require careful consideration, but the general +plan suggested by him seems to satisfy the purpose--to continue the use of +silver in connection with our currency and at the same time to obviate the +danger of which I have spoken. At a later day I may communicate further +with Congress upon this subject. + +The enforcement of the Chinese exclusion act has been found to be very +difficult on the northwestern frontier. Chinamen landing at Victoria find +it easy to pass our border, owing to the impossibility with the force at +the command of the customs officers of guarding so long an inland line. The +Secretary of the Treasury has authorized the employment of additional +officers, who will be assigned to this duty, and every effort will be made +to enforce the law. The Dominion exacts a head tax of $50 for each Chinaman +landed, and when these persons, in fraud of our law, cross into our +territory and are apprehended our officers do not know what to do with +them, as the Dominion authorities will not suffer them to be sent back +without a second payment of the tax. An effort will be made to reach an +understanding that will remove this difficulty. + +The proclamation required by section 3 of the act of March 2, 1889, +relating to the killing of seals and other fur-bearing animals, was issued +by me on the 21st day of March, and a revenue vessel was dispatched to +enforce the laws and protect the interests of the United States. The +establishment of a refuge station at Point Barrow, as directed by Congress, +was successfully accomplished. + +Judged by modern standards, we are practically without coast defenses. Many +of the structures we have would enhance rather than diminish the perils of +their garrisons if subjected to the fire of improved guns, and very few are +so located as to give full effect to the greater range of such guns as we +are now making for coast-defense uses. This general subject has had +consideration in Congress for some years, and the appropriation for the +construction of large rifled guns made one year ago was, I am sure, the +expression of a purpose to provide suitable works in which these guns might +be mounted. An appropriation now made for that purpose would not advance +the completion of the works beyond our ability to supply them with fairly +effective guns. + +The security of our coast cities against foreign attacks should not rest +altogether in the friendly disposition of other nations. There should be a +second line wholly in our own keeping. I very urgently recommend an +appropriation at this session for the construction of such works in our +most exposed harbors. + +I approve the suggestion of the Secretary of War that provision be made for +encamping companies of the National Guard in our coast works for a +specified time each year and for their training in the use of heavy guns. +His suggestion that an increase of the artillery force of the Army is +desirable is also, in this connection, commended to the consideration of +Congress. + +The improvement of our important rivers and harbors should be promoted by +the necessary appropriations. Care should be taken that the Government is +not committed to the prosecution of works not of public and general +advantage and that the relative usefulness of works of that class is not +overlooked. So far as this work can ever be said to be completed, I do not +doubt that the end would be sooner and more economically reached if fewer +separate works were undertaken at the same time, and those selected for +their greater general interest were more rapidly pushed to completion. A +work once considerably begun should not be subjected to the risks and +deterioration which interrupted or insufficient appropriations necessarily +occasion. + +The assault made by David S. Terry upon the person of Justice Field, of the +Supreme Court of the United States, at Lathtop, Cal., in August last, and +the killing of the assailant by a deputy United States marshal who had been +deputed to accompany Justice Field and to protect him from anticipated +violence at the hands of Terry, in connection with the legal proceedings +which have followed, suggest questions which, in my judgment, are worthy of +the attention of Congress. + +I recommend that more definite provision be made by law not only for the +protection of Federal officers, but for a full trial of such cases in the +United States courts. In recommending such legislation I do not at all +impeach either the general adequacy of the provision made by the State laws +for the protection of all citizens or the general good disposition of those +charged with the execution of such laws to give protection to the officers +of the United States. The duty of protecting its officers, as such, and of +punishing those who assault them on account of their official acts should +not be devolved expressly or by acquiescence upon the local authorities. + +Events which have been brought to my attention happening in other parts of +the country have also suggested the propriety of extending by legislation +fuller protection to those who may be called as witnesses in the courts of +the United States. The law compels those who are supposed to have knowledge +of public offenses to attend upon our courts and grand juries and to give +evidence. There is a manifest resulting duty that these witnesses shall be +protected from injury on account of their testimony. The investigations of +criminal offenses are often rendered futile and the punishment of crime +impossible by the intimidation of witnesses. + +The necessity of providing some more speedy method for disposing of the +cases which now come for final adjudication to the Supreme Court becomes +every year more apparent and urgent. The plan of providing some +intermediate courts having final appellate jurisdiction of certain classes +of questions and cases has, I think, received a more general approval from +the bench and bar of the country than any other. Without attempting to +discuss details, I recommend that provision be made for the establishment +of such courts. + +The salaries of the judges of the district courts in many of the districts +are, in my judgment, inadequate. I recommend that all such salaries now +below $5,000 per annum be increased to that amount. It is quite true that +the amount of labor performed by these judges is very unequal, but as they +can not properly engage in other pursuits to supplement their incomes the +salary should be such in all cases as to provide an independent and +comfortable support. + +Earnest attention should be given by Congress to a consideration of the +question how far the restraint of those combinations of capital commonly +called "trusts" is matter of Federal jurisdiction. When organized, as they +often are, to crush out all healthy competition and to monopolize the +production or sale of an article of commerce and general necessity, they +are dangerous conspiracies against the public good, and should be made the +subject of prohibitory and even penal legislation. + +The subject of an international copyright has been frequently commended to +the attention of Congress by my predecessors. The enactment of such a law +would be eminently wise and just. + +Our naturalization laws should be so revised as to make the inquiry into +the moral character and good disposition toward our Government of the +persons applying for citizenship more thorough. This can only be done by +taking fuller control of the examination, by fixing the times for hearing +such applications, and by requiring the presence of some one who shall +represent the Government in the inquiry. Those who are the avowed enemies +of social order or who come to our shores to swell the injurious influence +and to extend the evil practices of any association that defies our laws +should not only be denied citizenship, but a domicile. + +The enactment of a national bankrupt law of a character to be a permanent +part of our general legislation is desirable. It should be simple in its +methods and inexpensive in its administration. + +The report of the Postmaster-General not only exhibits the operations of +the Department for the last fiscal year, but contains many valuable +suggestions for the improvement and extension of the service, which are +commended to your attention. No other branch of the Government has so close +a contact with the daily life of the people. Almost everyone uses the +service it offers, and every hour gained in the transmission of the great +commercial mails has an actual and possible value that only those engaged +in trade can understand. + +The saving of one day in the transmission of the mails between New York and +San Francisco, which has recently been accomplished, is an incident worthy +of mention. + +The plan suggested of a supervision of the post-offices in separate +districts that shall involve instruction and suggestion and a rating of the +efficiency of the postmasters would, I have no doubt, greatly improve the +service. + +A pressing necessity exists for the erection of a building for the joint +use of the Department and of the city post-office. The Department was +partially relieved by renting .outside quarters for a part of its force, +but it is again overcrowded. The building used by the city office never was +fit for the purpose, and is now inadequate and unwholesome. + +The unsatisfactory condition of the law relating to the transmission +through the mails of lottery advertisements and remittances is clearly +stated by the Postmaster-General, and his suggestion as to amendments +should have your favorable consideration. + +The report of the Secretary of the Navy shows a reorganization of the +bureaus of the Department that will, I do not doubt, promote the efficiency +of each. + +In general, satisfactory progress has been made in the construction of the +new ships of war authorized by Congress. The first vessel of the new Navy, +the Dolphin, was subjected to very severe trial tests and to very much +adverse criticism; but it is gratifying to be able to state that a cruise +around the world, from which she has recently returned, has demonstrated +that she is a first-class vessel of her rate. + +The report of the Secretary shows that while the effective force of the +Navy is rapidly increasing by reason of the improved build and armament of +the new ships, the number of our ships fit for sea duty grows very slowly. +We had on the 4th of March last 37 serviceable ships, and though 4 have +since been added to the list, the total has not been increased, because in +the meantime 4 have been lost or condemned. Twenty-six additional vessels +have been authorized and appropriated for; but it is probable that when +they are completed our list will only be increased to 42--a gain of 5. The +old wooden ships are disappearing almost as fast as the new vessels are +added. These facts carry their own argument. One of the new ships may in +fighting strength be equal to two of the old, but it can not do the +cruising duty of two. It is important, therefore, that we should have a +more rapid increase in the number of serviceable ships. I concur in the +recommendation of the Secretary that the construction of 8 armored ships, 3 +gunboats, and 5 torpedo boats be authorized. + +An appalling calamity befell three of our naval vessels on duty at the +Samoan Islands, in the harbor of Apia, in March last, involving the loss of +4 officers and 47 seamen, of two vessels, the Trenton and the Vandalia, and +the disabling of a third, the Nipsic. Three vessels of the German navy, +also in the harbor, shared with our ships the force of the hurricane and +suffered even more heavily. While mourning the brave officers and men who +died facing with high resolve perils greater than those of battle, it is +most gratifying to state that the credit of the American Navy for +seamanship, courage, and generosity was magnificently sustained in the +storm-beaten harbor of Apia. + +The report of the Secretary of the Interior exhibits the transactions of +the Government with the Indian tribes. Substantial progress has been made +in the education of the children of school age and in the allotment of +lands to adult Indians. It is to be regretted that the policy of breaking +up the tribal relation and of dealing with the Indian as an individual did +not appear earlier in our legislation. Large reservations held in common +and the maintenance of the authority of the chiefs and headmen have +deprived the individual of every incentive to the exercise of thrift, and +the annuity has contributed an affirmative impulse toward a state of +confirmed pauperism. + +Our treaty stipulations should be observed with fidelity and our +legislation should be highly considerate of the best interests of an +ignorant and helpless people. The reservations are now generally surrounded +by white settlements. We can no longer push the Indian back into the +wilderness, and it remains only by every suitable agency to push him upward +into the estate of a self-supporting and responsible citizen. For the adult +the first step is to locate him upon a farm, and for the child to place him +in a school. + +School attendance should be promoted by every moral agency, and those +failing should be compelled. The national schools for Indians have been +very successful and should be multiplied, and as far as possible should be +so organized and conducted as to facilitate the transfer of the schools to +the States or Territories in which they are located when the Indians in a +neighborhood have accepted citizenship and have become otherwise fitted for +such a transfer. This condition of things will be attained slowly, but it +will be hastened by keeping it in mind; and in the meantime that +cooperation between the Government and the mission schools which has +wrought much good should be cordially and impartially maintained. + +The last Congress enacted two distinct laws relating to negotiations with +the Sioux Indians of Dakota for a relinquishment of a portion of their +lands to the United States and for dividing the remainder into separate +reservations. Both were approved on the same day--March 2. The one +submitted to the Indians a specific proposition; the other (section 3 of +the Indian appropriation act) authorized the President to appoint three +commissioners to negotiate with these Indians for the accomplishment of the +same general purpose, and required that any agreements made should be +submitted to Congress for ratification. + +On the 16th day of April last I appointed Hon. Charles Foster, of Ohio, +Hon. William Warner, of Missouri, and Major-General George Crook, of the +United States Army, commissioners under the last-named law. They were, +however, authorized and directed first to submit to the Indians the +definite proposition made to them by the act first mentioned, and only in +the event of a failure to secure the assent of the requisite number to that +proposition to open negotiations for modified terms under the other act. +The work of the commission was prolonged and arduous, but the assent of the +requisite number was, it is understood, finally obtained to the proposition +made by Congress, though the report of the commission has not yet been +submitted. In view of these facts, I shall not, as at present advised, deem +it necessary to submit the agreement to Congress for ratification, but it +will in due course be submitted for information. This agreement releases to +the United States about 9,000,000 acres of land. + +The commission provided for by section 14 of the Indian appropriation bill +to negotiate with the Cherokee Indians and all other Indians owning or +claiming lands lying west of the ninety-sixth degree of longitude for the +cession to the United States of all such lands was constituted by the +appointment of Hon. Lucius Fairchild, of Wisconsin, Hon. John F. Hartranft, +of Pennsylvania, and Hon. Alfred M. Wilson, of Arkansas, and organized on +June 29 last. Their first conference with the representatives of the +Cherokees was held at Tahlequah July 29, with no definite results. General +John F. Hartranft, of Pennsylvania, was prevented by ill health from taking +part in the conference. His death, which occurred recently, is justly and +generally lamented by a people he had served with conspicuous gallantry in +war and with great fidelity in peace. The vacancy thus created was filled +by the appointment of Hon. Warren G. Sayre, of Indiana. + +A second conference between the commission and the Cherokees was begun +November 6, but no results have yet been obtained, nor is it believed that +a conclusion can be immediately expected. The cattle syndicate now +occupying the lands for grazing purposes is clearly one of the agencies +responsible for the obstruction of our negotiations with the Cherokees. The +large body of agricultural lands constituting what is known as the +"Cherokee Outlet" ought not to be, and, indeed, can not long be, held for +grazing and for the advantage of a few against the public interests and the +best advantage of the Indians themselves. The United States has now under +the treaties certain rights in these lands. These will not be used +oppressively, but it can not be allowed that those who by sufferance occupy +these lands shall interpose to defeat the wise and beneficent purposes of +the Government. I can not but believe that the advantageous character of +the offer made by the United States to the Cherokee Nation for a full +release of these lands as compared with other suggestions now made to them +will yet obtain for it a favorable consideration. + +Under the agreement made between the United States and the Muscogee (or +Creek) Nation of Indians on the 19th day of January, 1889, an absolute +title was secured by the United States to about 3,500,000 acres of land. +Section 12 of the general Indian appropriation act approved March 2, 1889, +made provision for the purchase by the United States from the Seminole +tribe of a certain portion of their lands. The delegates of the Seminole +Nation, having first duly evidenced to me their power to act in that +behalf, delivered a proper release or conveyance to the United States of +all the lands mentioned in the act, which was accepted by me and certified +to be in compliance with the statute. + +By the terms of both the acts referred to all the lands so purchased were +declared to be a part of the public domain and open to settlement under the +homestead law. But of the lands embraced in these purchases, being in. the +aggregate about 5,500,000 acres, 3,500,000 acres had already, under the +terms of the treaty of 1866, been acquired by the United States for the +purpose of settling other Indian tribes thereon and had been appropriated +to that purpose. The land remaining and available for settlement consisted +of 1,887,796 acres, surrounded on all sides by lands in the occupancy of +Indian tribes. Congress had provided no civil government for the people who +were to be invited by my proclamation to settle upon these lands, except as +the new court which had been established at Muscogee or the United States +courts in some of the adjoining States had power to enforce the general +laws of the United States. + +In this condition of things I was quite reluctant to open the lands to +settlement; but in view of the fact that several thousand persons, many of +them with their families, had gathered upon the borders of the Indian +Territory with a view to securing homesteads on the ceded lands, and that +delay would involve them in much loss and suffering, I did on the 23d day +of March last issue a proclamation declaring that the lands therein +described would be open to settlement under the provisions of the law on +the 22d day of April following at 12 o'clock noon. Two land districts had +been established and the offices were opened for the transaction of +business when the appointed time arrived. + +It is much to the credit of the settlers that they very generally observed +the limitation as to the time when they might enter the Territory. Care +will be taken that those who entered in violation of the law do not secure +the advantage they unfairly sought. There was a good deal of apprehension +that the strife for locations would result in much violence and bloodshed, +but happily these anticipations were not realized. It is estimated that +there are now in the Territory about 60,000 people, and several +considerable towns have sprung up, for which temporary municipal +governments have been organized. Guthrie is said to have now a population +of almost 8,000. Eleven schools and nine churches have been established, +and three daily and five weekly newspapers are published in this city, +whose charter and ordinances have only the sanction of the voluntary +acquiescence of the people from day to day. + +Oklahoma City has a population of about 5,000, and is proportionately as +well provided as Guthrie with churches, schools, and newspapers. Other +towns and villages having populations of from 100 to 1,000 are scattered +over the Territory. + +In order to secure the peace of this new community in the absence of civil +government, I directed General Merritt, commanding the Department of the +Missouri, to act in conjunction with the marshals of the United States to +preserve the peace, and upon their requisition to use the troops to aid +them in executing warrants and in quieting any riots or breaches of the +peace that might occur. He was further directed to use his influence to +promote good order and to avoid any conflicts between or with the settlers. +Believing that the introduction and sale of liquors where no legal +restraints or regulations existed would endanger the public peace, and in +view of the fact that such liquors must first be introduced into the Indian +reservations before reaching the white settlements, I further directed the +general commanding to enforce the laws relating to the introduction of +ardent spirits into the Indian country. + +The presence of the troops has given a sense of security to the +well-disposed citizens and has tended to restrain the lawless. In one +instance the officer in immediate command of the troops went further than I +deemed justifiable in supporting the de facto municipal government of +Guthrie, and he was so informed, and directed to limit the interference of +the military to the support of the marshals on the lines indicated in the +original order. I very urgently recommend that Congress at once provide a +Territorial government for these people. Serious questions, which may at +any time lead to violent outbreaks, are awaiting the institution of courts +for their peaceful adjustment. The American genius for self-government has +been well illustrated in Oklahoma; but it is neither safe nor wise to leave +these people longer to the expedients which have temporarily served them. + +Provision should be made for the acquisition of title to town lots in the +towns now established in Alaska, for locating town sites, and for the +establishment of municipal governments. Only the mining laws have been +extended to that Territory, and no other form of title to lands can now be +obtained. The general land laws were framed with reference to the +disposition of agricultural lands, and it is doubtful if their operation in +Alaska would be beneficial. + +We have fortunately not extended to Alaska the mistaken policy of +establishing reservations for the Indian tribes, and can deal with them +from the beginning as individuals with, I am sure, better results; but any +disposition of the public lands and any regulations relating to timber and +to the fisheries should have a kindly regard to their interests. Having no +power to levy taxes, the people of Alaska are wholly dependent upon the +General Government, to whose revenues the seal fisheries make a large +annual contribution. An appropriation for education should neither be +overlooked nor stinted. + +The smallness of the population and the great distances between the +settlements offer serious obstacles to the establishment of the usual +Territorial form of government. Perhaps the organization of several +sub-districts with a small municipal council of limited powers for each +would be safe and useful. + +Attention is called in this connection to the suggestions of the Secretary +of the Treasury relating to the establishment of another port of entry in +Alaska and of other needed customs facilities and regulations. + +In the administration of the land laws the policy of facilitating in every +proper way the adjustment of the honest claims of individual settlers upon +the public lands has been pursued. The number of pending cases had during +the preceding Administration been greatly increased under the operation of +orders for a time suspending final action in a large part of the cases +originating in the West and Northwest, and by the subsequent use of unusual +methods of examination. Only those who are familiar with the conditions +under which our agricultural lands have been settled can appreciate the +serious and often fatal consequences to the settler of a policy that puts +his title under suspicion or delays the issuance of his patent. While care +is taken to prevent and to expose fraud, it should not be imputed without +reason. + +The manifest purpose of the homestead and preemption laws was to promote +the settlement of the public domain by persons having a bona fide intent to +make a home upon the selected lands. Where this intent is well established +and the requirements of the law have been substantially complied with, the +claimant is entitled to a prompt and friendly consideration of his case; +but where there is reason to believe that the claimant is the mere agent of +another who is seeking to evade a law intended to promote small holdings +and to secure by fraudulent methods large tracts of timber and other lands, +both principal and agent should not only be thwarted in their fraudulent +purpose, but should be made to feel the full penalties of our criminal +statutes. The laws should be so administered as not to confound these two +classes and to visit penalties only upon the latter. + +The unsettled state of the titles to large bodies of lands in the +Territories of New Mexico and Arizona has greatly retarded the development +of those Territories. Provision should be made by law for the prompt trial +and final adjustment before a judicial tribunal or commission of all claims +based upon Mexican grants. It is not just to an intelligent and +enterprising people that their peace should be disturbed and their +prosperity retarded by these old contentions. I express the hope that +differences of opinion as to methods may yield to the urgency of the case. + +The law now provides a pension for every soldier and sailor who was +mustered into the service of the United States during the Civil War and is +now suffering from wounds or disease having an origin in the service and in +the line of duty. Two of the three necessary facts, viz, muster and +disability, are usually susceptible of easy proof; but the third, origin in +the service, is often difficult and in many deserving cases impossible to +establish. That very many of those who endured the hardships of our most +bloody and arduous campaigns are now disabled from diseases that had a real +but not traceable origin in the service I do not doubt. Besides these there +is another class composed of men many of whom served an enlistment of three +full years and of reenlisted veterans who added a fourth year of service, +who escaped the casualties of battle and the assaults of disease, who were +always ready for any detail, who were in every battle line of their +command, and were mustered out in sound health, and have since the close of +the war, while fighting with the same indomitable and independent spirit +the contests of civil life, been overcome by disease or casualty. + +I am not unaware that the pension roll already involves a very large annual +expenditure; neither am I deterred by that fact from recommending that +Congress grant a pension to such honorably discharged soldiers and sailors +of the Civil War as, having rendered substantial service during the war, +are now dependent upon their own labor for a maintenance and by disease or +casualty are incapacitated from earning it. Many of the men who would be +included in this form of relief are now dependent upon public aid, and it +does not, in my judgment, consist with the national honor that they shall +continue to subsist upon the local relief given indiscriminately to paupers +instead of upon the special and generous provision of the nation they +served so gallantly and unselfishly. Our people will, I am sure, very +generally approve such legislation. And I am equally sure that the +survivors of the Union Army and Navy will feel a grateful sense of relief +when this worthy and suffering class of their comrades is fairly cared +for. + +There are some manifest inequalities in the existing law that should be +remedied. To some of these the Secretary of the Interior has called +attention. + +It is gratifying to be able to state that by the adoption of new and better +methods in the War Department the calls of the Pension Office for +information as to the military and hospital records of pension claimants +are now promptly answered and the injurious and vexatious delays that have +heretofore occurred are entirely avoided. This will greatly facilitate the +adjustment of all pending claims. + +The advent of four new States--South Dakota, North Dakota, Montana, and +Washington--into the Union under the Constitution in the same month, and +the admission of their duly chosen representatives to our National Congress +at the same session, is an event as unexampled as it is interesting. + +The certification of the votes cast and of the constitutions adopted in +each of the States was filed with me, as required by the eighth section of +the act of February 22, 1889, by the governors of said Territories, +respectively. Having after a careful examination found that the several +constitutions and governments were republican in form and not repugnant to +the Constitution of the United States, that all the provisions of the act +of Congress had been complied with, and that a majority of the votes cast +in each of said proposed States was in favor of the adoption of the +constitution submitted therein, I did so declare by a separate proclamation +as to each--as to North Dakota and South Dakota on Saturday, November 2; as +to Montana on Friday, November 8, and as to Washington on Monday, November +11. + +Each of these States has within it resources the development of which will +employ the energies of and yield a comfortable subsistence to a great +population. The smallest of these new States, Washington, stands twelfth, +and the largest, Montana, third, among the forty-two in area. The people of +these States are already well-trained, intelligent, and patriotic American +citizens, having common interests and sympathies with those of the older +States and a common purpose to defend the integrity and uphold the honor of +the nation. + +The attention of the Interstate Commerce Commission has been called to the +urgent need of Congressional legislation for the better protection of the +lives and limbs of those engaged in operating the great interstate freight +lines of the country, and especially of the yardmen and brakemen. A +petition signed by nearly 10,000 railway brakemen was presented to the +Commission asking that steps might be taken to bring about the use of +automatic brakes and couplers on freight cars. + +At a meeting of State railroad commissioners and their accredited +representatives held at Washington in March last upon the invitation of the +Interstate Commerce Commission a resolution was unanimously adopted urging +the Commission" to consider what can be done to prevent the loss of life +and limb in coupling and uncoupling freight cars and in handling the brakes +of such cars." During the year ending June 30, 1888, over 2,000 railroad +employees were killed in service and more than 20,000 injured. It is +competent, I think, for Congress to require uniformity in the construction +of cars used in interstate commerce and the use of improved safety +appliances upon such trains. Time will be necessary to make the needed +changes, but an earnest and intelligent beginning should be made at once. +It is a reproach to our civilization that any class of American workmen +should in the pursuit of a necessary and useful vocation be subjected to a +peril of life and limb as great as that of a soldier in time of war. + +The creation of an Executive Department to be known as the Department of +Agriculture by the act of February 9 last was a wise and timely response to +a request which had long been respectfully urged by the farmers of the +country; but much remains to be done to perfect the organization of the +Department so that it may fairly realize the expectations which its +creation excited. In this connection attention is called to the suggestions +contained in the report of the Secretary, which is herewith submitted. The +need of a law officer for the Department such as is provided for the other +Executive Departments is manifest. The failure of the last Congress to make +the usual provision for the publication of the annual report should be +promptly remedied. The public interest in the report and its value to the +farming community, I am sure, will not be diminished under the new +organization of the Department. + +I recommend that the weather service be separated from the War Department +and established as a bureau in the Department of Agriculture. This will +involve an entire reorganization both of the Weather Bureau and of the +Signal Corps, making of the first a purely civil organization and of the +other a purely military staff corps. The report of the Chief Signal Officer +shows that the work of the corps on its military side has been +deteriorating. + +The interests of the people of the District of Columbia should not be lost +sight of in the pressure for consideration of measures affecting the whole +country. Having no legislature of its own, either municipal or general, its +people must look to Congress for the regulation of all those concerns that +in the States are the subject of local control. Our whole people have an +interest that the national capital should be made attractive and beautiful, +and, above all, that its repute for social order should be well maintained. +The laws regulating the sale of intoxicating drinks in the District should +be revised with a view to bringing the traffic under stringent limitations +and control. + +In execution of the power conferred upon me by the act making +appropriations for the expenses of the District of Columbia for the year +ending June 30, 1890, I did on the 17th day of August last appoint Rudolph +Hering, of New York, Samuel M. Gray, of Rhode Island, and Frederick P. +Stearns, of Massachusetts, three eminent sanitary engineers, to examine and +report upon the system of sewerage existing in the District of Columbia. +Their report, which is not yet completed, will be in due course submitted +to Congress. + +The report of the Commissioners of the District is herewith transmitted, +and the attention of Congress is called to the suggestions contained +therein. + +The proposition to observe the four hundredth anniversary of the discovery +of America by the opening of a world's fair or exposition in some one of +our great cities will be presented for the consideration of Congress. The +value and interest of such an exposition may well claim the promotion of +the General Government. + +On the 4th of March last the Civil Service Commission had but a single +member. The vacancies were filled on the 7th day of May, and since then the +Commissioners have been industriously, though with an inadequate force, +engaged in executing the law. They were assured by me that a cordial +support would be given them in the faithful and impartial enforcement of +the statute and of the rules and regulations adopted in aid of it. + +Heretofore the book of eligibles has been closed to everyone, except as +certifications were made upon the requisition of the appointing officers. +This secrecy was the source of much suspicion and of many charges of +favoritism in the administration of the law. What is secret is always +suspected; what is open can be judged. The Commission, with the full +approval of all its members, has now opened the list of eligibles to the +public. The eligible lists for the classified post-offices and +custom-houses are now publicly posted in the respective offices, as are +also the certifications for appointments. The purpose of the civil-service +law was absolutely to exclude any other consideration in connection with +appointments under it than that of merit as tested by the examinations. The +business proceeds upon the theory that both the examining boards and the +appointing officers are absolutely ignorant as to the political views and +associations of all persons on the civil-service lists. It is not too much +to say, however, that some recent Congressional investigations have +somewhat shaken public confidence in the impartiality of the selections for +appointment. + +The reform of the civil service will make no safe or satisfactory advance +until the present law and its equal administration are well established in +the confidence of the people. It will be my pleasure, as it is my duty, to +see that the law is executed with firmness and impartiality. If some of its +provisions have been fraudulently evaded by appointing officers, our +resentment should not suggest the repeal of the law, but reform in its +administration. We should have one view of the matter, and hold it with a +sincerity that is not affected by the consideration that the party to which +we belong is for the time in power. + +My predecessor, on the 4th day of January, 1889, by an Executive order to +take effect March 15, brought the Railway Mail Service under the operation +of the civil-service law. Provision was made that the order should take +effect sooner in any State where an eligible list was sooner obtained. On +the 11th day of March Mr. Lyman, then the only member of the Commission, +reported to me in writing that it would not be possible to have the list of +eligibles ready before May 1, and requested that the taking effect of the +order be postponed until that time, which was done, subject to the same +provision contained in the original order as to States in which an eligible +list was sooner obtained. + +As a result of the revision of the rules, of the new classification, and of +the inclusion of the Railway Mail Service, the work of the Commission has +been greatly increased, and the present clerical force is found to be +inadequate. I recommend that the additional clerks asked by the Commission +be appropriated for. + +The duty of appointment is devolved by the Constitution or by the law, and +the appointing officers are properly held to a high responsibility in its +exercise. The growth of the country and the consequent increase of the +civil list have magnified this function of the Executive disproportionally. +It can not be denied, however, that the labor connected with this necessary +work is increased, often to the point of actual distress, by the sudden and +excessive demands that are made upon an incoming Administration for +removals and appointments. But, on the other hand, it is not true that +incumbency is a conclusive argument for continuance in office. +Impartiality, moderation, fidelity to public duty, and a good attainment in +the discharge of it must be added before the argument is complete. When +those holding administrative offices so conduct themselves as to convince +just political opponents that no party consideration or bias affects in any +way the discharge of their public duties, we can more easily stay the +demand for removals. + +I am satisfied that both in and out of the classified service great benefit +would accrue from the adoption of some system by which the officer would +receive the distinction and benefit that in all private employments comes +from exceptional faithfulness and efficiency in the performance of duty. + +I have suggested to the heads of the Executive Departments that they +consider whether a record might not be kept in each bureau of all those +elements that are covered by the terms "faithfulness" and "efficiency," and +a rating made showing the relative merits of the clerks of each class, this +rating to be regarded as a test of merit in making promotions. + +I have also suggested to the Postmaster-General that he adopt some plan by +which he can, upon the basis of the reports to the Department and of +frequent inspections, indicate the relative merit of postmasters of each +class. They will be appropriately indicated in the Official Register and in +the report of the Department. That a great stimulus would thus be given to +the whole service I do not doubt, and such a record would be the best +defense against inconsiderate removals from office. + +The interest of the General Government in the education of the people found +an early expression, not only in the thoughtful and sometimes warning +utterances of our ablest statesmen, but in liberal appropriations from the +common resources for the support of education in the new States. No one +will deny that it is of the gravest national concern that those who hold +the ultimate control of all public affairs should have the necessary +intelligence wisely to direct and determine them. National aid to education +has heretofore taken the form of land grants, and in that form the +constitutional power of Congress to promote the education of the people is +not seriously questioned. I do not think it can be successfully questioned +when the form is changed to that of a direct grant of money from the public +Treasury. + +Such aid should be, as it always has been, suggested by some exceptional +conditions. The sudden emancipation of the slaves of the South, the +bestowal of the suffrage which soon followed, and the impairment of the +ability of the States where these new citizens were chiefly found to +adequately provide educational facilities presented not only exceptional +but unexampled conditions. That the situation has been much ameliorated +there is no doubt. The ability and interest of the States have happily +increased. + +But a great work remains to be done, and I think the General Government +should lend its aid. As the suggestion of a national grant in aid of +education grows chiefly out of the condition and needs of the emancipated +slave and his descendants, the relief should as far as possible, while +necessarily proceeding upon some general lines, be applied to the need that +suggested it. It is essential, if much good is to be accomplished, that the +sympathy and active interest of the people of the States should be +enlisted, and that the methods adopted should be such as to stimulate and +not to supplant local taxation for school purposes. + +As one Congress can not bind a succeeding one in such a case and as the +effort must in some degree be experimental, I recommend that any +appropriation made for this purpose be so limited in annual amount and as +to the time over which it is to extend as will on the one hand give the +local school authorities opportunity to make the best use of the first +year's allowance, and on the other deliver them from the temptation to +unduly postpone the assumption of the whole burden themselves. + +The colored people did not intrude themselves upon us. They were brought +here in chains and held in the communities where they are now chiefly found +by a cruel slave code. Happily for both races, they are now free. They have +from a standpoint of ignorance and poverty--which was our shame, not +theirs--made remarkable advances in education and in the acquisition of +property. They have as a people shown themselves to be friendly and +faithful toward the white race under temptations of tremendous strength. +They have their representatives in the national cemeteries, where a +grateful Government has gathered the ashes of those who died in its +defense. They have furnished to our Regular Army regiments that have won +high praise from their commanding officers for courage and soldierly +qualities and for fidelity to the enlistment oath. In civil life they are +now the toilers of their communities, making their full contribution to the +widening streams of prosperity which these communities are receiving. Their +sudden withdrawal would stop production and bring disorder into the +household as well as the shop. Generally they do not desire to quit their +homes, and their employers resent the interference of the emigration agents +who seek to stimulate such a desire. + +But notwithstanding all this, in many parts of our country where the +colored population is large the people of that race are by various devices +deprived of any effective exercise of their political rights and of many of +their civil rights. The wrong does not expend itself upon those whose votes +are suppressed. Every constituency in the Union is wronged. + +It has been the hope of every patriot that a sense of justice and of +respect for the law would work a gradual cure of these flagrant evils. +Surely no one supposes that the present can be accepted as a permanent +condition. If it is said that these communities must work out this problem +for themselves, we have a right to ask whether they are at work upon it. Do +they suggest any solution? When and under what conditions is the black man +to have a free ballot? When is he in fact to have those full civil rights +which have so long been his in law? When is that equality of influence +which our form of government was intended to secure to the electors to be +restored? This generation should courageously face these grave questions, +and not leave them as a heritage of woe to the next. The consultation +should proceed with candor, calmness, and great patience, upon the lines of +justice and humanity, not of prejudice and cruelty. No question in our +country can be at rest except upon the firm base of justice and of the +law. + +I earnestly invoke the attention of Congress to the consideration of such +measures within its well-defined constitutional powers as will secure to +all our people a free exercise of the right of suffrage and every other +civil right under the Constitution and laws of the United States. No evil, +however deplorable, can justify the assumption either on the part of the +Executive or of Congress of powers not granted, but both will be highly +blamable if all the powers granted are not wisely but firmly used to +correct these evils. The power to take the whole direction and control of +the election of members of the House of Representatives is clearly given to +the General Government. A partial and qualified supervision of these +elections is now provided for by law, and in my opinion this law may be so +strengthened and extended as to secure on the whole better results than can +be attained by a law taking all the processes of such election into Federal +control. The colored man should be protected in all of his relations to the +Federal Government, whether as litigant, juror, or witness in our courts, +as an elector for members of Congress, or as a peaceful traveler upon our +interstate railways. + +There is nothing more justly humiliating to the national pride and nothing +more hurtful to the national prosperity than the inferiority of our +merchant marine compared with that of other nations whose general +resources, wealth, and seacoast lines do not suggest any reason for their +supremacy on the sea. It was not always so, and our people are agreed, I +think, that it shall not continue to be so. It is not possible in this +communication to discuss the causes of the decay of our shipping interests +or the differing methods by which it is proposed to restore them. The +statement of a few well-authenticated facts and some general suggestions as +to legislation is all that is practicable. That the great steamship lines +sailing under the flags of England, France, Germany, Spain, and Italy, and +engaged in foreign commerce, were .promoted and have since been and now are +liberally aided by grants of public money in one form or another is +generally known. That the American lines of steamships have been abandoned +by us to an unequal contest with the aided lines of other nations until +they have been withdrawn, or in the few cases where they are still +maintained are subject to serious disadvantages, is matter of common +knowledge. + +The present situation is such that travelers and merchandise find Liverpool +often a necessary intermediate port between New York and some of the South +American capitals. The fact that some of the delegates from South American +States to the conference of American nations now in session at Washington +reached our shores by reversing that line of travel is very conclusive of +the need of such a conference and very suggestive as to the first and most +necessary step in the direction of fuller and more beneficial intercourse +with nations that are now our neighbors upon the lines of latitude, but not +upon the lines of established commercial intercourse. + +I recommend that such appropriations be made for ocean mail service in +American steamships between our ports and those of Central and South +America, China, Japan, and the important islands in both of the great +oceans as will be liberally remunerative for the service rendered and as +will encourage the establishment and in some fair degree equalize the +chances of American steamship lines in the competitions which they must +meet. That the American States lying south of us will cordially cooperate +in establishing and maintaining such lines of steamships to their principal +ports I do not doubt. + +We should also make provision for a naval reserve to consist of such +merchant ships of American construction and of a specified tonnage and +speed as the owners will consent to place at the use of the Government in +case of need as armed cruisers. England has adopted this policy, and as a +result can now upon necessity at once place upon her naval list some of the +fastest steamships in the world. A proper supervision of the construction +of such vessels would make their conversion into effective ships of war +very easy. + +I am an advocate of economy in our national expenditures, but it is a +misuse of terms to make this word describe a policy that withholds an +expenditure for the purpose of extending our foreign commerce. The +enlargement and improvement of our merchant marine, the development of a +sufficient body of trained American seamen, the promotion of rapid and +regular mail communication between the ports of other countries and our +own, and the adaptation of large and swift American merchant steamships to +naval uses in time of war are public purposes of the highest concern. The +enlarged participation of our people in the carrying trade, the new and +increased markets that will be opened for the products of our farms and +factories, and the fuller and better employment of our mechanics which will +result from a liberal promotion of our foreign commerce insure the widest +possible diffusion of benefit to all the States and to all our people. +Everything is most propitious for the present inauguration of a liberal and +progressive policy upon this subject, and we should enter upon it with +promptness and decision. + +The legislation which I have suggested, it is sincerely believed, will +promote the peace and honor of our country and the prosperity and security +of the people. I invoke the diligent and serious attention of Congress to +the consideration of these and such other measures as may be presented +having the same great end in view. BENJ. HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 1, 1890 + +To the Senate and House of Representatives: + +The reports of the several Executive Departments, which will be laid before +Congress in the usual course, will exhibit in detail the operations of the +Government for the last fiscal year. Only the more important incidents and +results, and chiefly such as may be the foundation of the recommendations I +shall submit, will be referred to in this annual message. + +The vast and increasing business of the Government has been transacted by +the several Departments during the year with faithfulness, energy, and +success. + +The revenues, amounting to above $450,000,000, have been collected and +disbursed without revealing, so far as I can ascertain, a single case of +defalcation or embezzlement. An earnest effort has been made to stimulate a +sense of responsibility and public duty in all officers and employees of +every grade, and the work done by them has almost wholly escaped +unfavorable criticism. I speak of these matters with freedom because the +credit of this good work is not mine, but is shared by the heads of the +several Departments with the great body of faithful officers and employees +who serve under them. The closest scrutiny of Congress is invited to all +the methods of administration and to every item of expenditure. + +The friendly relations of our country with the nations of Europe and of the +East have been undisturbed, while the ties of good will and common interest +that bind us to the States of the Western Hemisphere have been notably +strengthened by the conference held in this capital to consider measures +for the general welfare. Pursuant to the invitation authorized by Congress, +the representatives of every independent State of the American continent +and of Hayti met in conference in this capital in October, 1889, and +continued in session until the 19th of last April. This important +convocation marks a most interesting and influential epoch in the history +of the Western Hemisphere. It is noteworthy that Brazil, invited while +under an imperial form of government, shared as a republic in the +deliberations and results of the conference. The recommendations of this +conference were all transmitted to Congress at the last session. + +The International Marine Conference, which sat at Washington last winter, +reached a very gratifying result. The regulations suggested have been +brought to the attention of all the Governments represented, and their +general adoption is confidently expected. The legislation of Congress at +the last session is in conformity with the propositions of the conference, +and the proclamation therein provided for will be issued when the other +powers have given notice of their adhesion. + +The Conference of Brussels, to devise means for suppressing the slave trade +in Africa, afforded an opportunity for a new expression of the interest the +American people feel in that great work. It soon became evident that the +measure proposed would tax the resources of the Kongo Basin beyond the +revenues available under the general act of Berlin of 1884. The United +States, not being a party to that act, could not share in its revision, but +by a separate act the Independent State of the Kongo was freed from the +restrictions upon a customs revenue. The demoralizing and destructive +traffic in ardent spirits among the tribes also claimed the earnest +attention of the conference, and the delegates of the United States were +foremost in advocating measures for its repression. An accord was reached +the influence of which will be very helpful and extend over a wide region. +As soon as these measures shall receive the sanction of the Netherlands, +for a time withheld, the general acts will be submitted for ratification by +the Senate. Meanwhile negotiations have been opened for a new and completed +treaty of friendship, commerce, and navigation between the United States +and the Independent State of the Kongo. + +Toward the end of the past year the only independent monarchical government +on the Western Continent, that of Brazil, ceased to exist, and was +succeeded by a republic. Diplomatic relations were at once established with +the new Government, but it was not completely recognized until an +opportunity had been afforded to ascertain that it had popular approval and +support. When the course of events had yielded assurance of this fact, no +time was lost in extending to the new Government a full and cordial welcome +into the family of American Commonwealths. It is confidently believed that +the good relations of the two countries will be preserved and that the +future will witness an increased intimacy of intercourse and an expansion +of their mutual commerce. + +The peace of Central America has again been disturbed through a +revolutionary change in Salvador, which was not recognized by other States, +and hostilities broke out between Salvador and Guatemala, threatening to +involve all Central America in conflict and to undo the progress which had +been made toward a union of their interests. The efforts of this Government +were promptly and zealously exerted to compose their differences, and +through the active efforts of the representative of the United States a +provisional treaty of peace was signed August 26, whereby the right of the +Republic of Salvador to choose its own rulers was recognized. General +Ezeta, the chief of the Provisional Government, has since been confirmed in +the Presidency by the Assembly, and diplomatic recognition duly followed. + +The killing of General Barrundia on board the Pacific mail steamer +Acapulco, while anchored in transit in the port of San Jose de Guatemala, +demanded careful inquiry. Having failed in a revolutionary attempt to +invade Guatemala from Mexican territory, General Barrundia took passage at +Acapulco for Panama. The consent of the representatives of the United +States was sought to effect his seizure, first at Champerico, where the +steamer touched, and afterwards at San Jose. The captain of the steamer +refused to give up his passenger without a written order from the United +States minister. The latter furnished the desired letter, stipulating as +the condition of his action that General Barrundia's life should be spared +and that he should be tried only for offenses growing out of his +insurrectionary movements. This letter was produced to the captain of the +Acapulco by the military commander at San Jose as his warrant to take the +passenger from the steamer. General Barrundia resisted capture and was +killed. It being evident that the minister, Mr. Mizner, had exceeded the +bounds of his authority in intervening, in compliance with the demands of +the Guatemalan authorities, to authorize and effect, in violation of +precedent, the seizure on a vessel of the United States of a passenger in +transit charged with political offenses, in order that he might be tried +for such offenses under what was described as martial law, I was +constrained to disavow Mr. Mizner's act and recall him from his post. + +The Nicaragua Canal project, under the control of our citizens, is making +most encouraging progress, all the preliminary conditions and initial +operations having been accomplished within the prescribed time. + +During the past year negotiations have been renewed for the settlement of +the claims of American citizens against the Government of Chile, +principally growing out of the late war with Peru. The reports from our +minister at Santiago warrant the expectation of an early and satisfactory +adjustment. + +Our relations with China, which have for several years occupied so +important a place in our diplomatic history, have called for careful +consideration and have been the subject of much correspondence. + +The communications of the Chinese minister have brought into view the whole +subject of our conventional relations with his country, and at the same +time this Government, through its legation at Peking, has sought to arrange +various matters and complaints touching the interests and protection of our +citizens in China. + +In pursuance of the concurrent resolution of October 1, 1890, I have +proposed to the Governments of Mexico and Great Britain to consider a +conventional regulation of the passage of Chinese laborers across our +southern and northern frontiers. + +On the 22d day of August last Sir Edmund Monson, the arbitrator selected +under the treaty of December 6, 1888, rendered an award to the effect that +no compensation was due from the Danish Government to the United States on +account of what is commonly known as the Carlos Butterfield claim. + +Our relations with the French Republic continue to be cordial. Our +representative at that court has very diligently urged the removal of the +restrictions imposed upon our meat products, and it is believed that +substantial progress has been made toward a just settlement. + +The Samoan treaty, signed last year at Berlin by the representatives of the +United States, Germany, and Great Britain, after due ratification and +exchange, has begun to produce salutary effects. The formation of the +government agreed upon will soon replace the disorder of the past by a +stable administration alike just to the natives and equitable to the three +powers most concerned in trade and intercourse with the Samoan Islands. The +chief justice has been chosen by the King of Sweden and Norway on the +invitation of the three powers, and will soon be installed. The land +commission and the municipal council are in process of organization. A +rational and evenly distributed scheme of taxation, both municipal and upon +imports, is in operation. Malietoa is respected as King. + +The new treaty of extradition with Great Britain, after due ratification, +was proclaimed on the 25th of last March. Its beneficial working is already +apparent. + +The difference between the two Governments touching the fur-seal question +in the Bering Sea is not yet adjusted, as will be seen by the +correspondence which will soon be laid before the Congress. The offer to +submit the question to arbitration, as proposed by Her Majesty's +Government, has not been accepted, for the reason that the form of +submission proposed is not thought to be calculated to assure a conclusion +satisfactory to either party. It is sincerely hoped that before the opening +of another sealing season some arrangement may be effected which will +assure to the United States a property right derived from Russia, which was +not disregarded by any nation for more than eighty years preceding the +outbreak of the existing trouble. + +In the tariff act a wrong was done to the Kingdom of Hawaii which I am +bound to presume was wholly unintentional. Duties were levied on certain +commodities which are included in the reciprocity treaty now existing +between the United States and the Kingdom of Hawaii, without indicating the +necessary exception in favor of that Kingdom. I hope Congress will repair +what might otherwise seem to be a breach of faith on the part of this +Government. + +An award in favor of the United States in the matter of the claim of Mr. +Van Bokkelen against Hayti was rendered on the 4th of December, 1888, but +owing to disorders then and afterwards prevailing in Hayti the terms of +payment were not observed. A new agreement as to the time of payment has +been approved and is now in force. Other just claims of citizens of the +United States for redress of wrongs suffered during the late political +conflict in Hayti will, it is hoped, speedily yield to friendly treatment. + +Propositions for the amendment of the treaty of extradition between the +United States and Italy are now under consideration. + +You will be asked to provide the means of accepting the invitation of the +Italian Government to take part in an approaching conference to consider +the adoption of a universal prime meridian from which to reckon longitude +and time. As this proposal follows in the track of the reform sought to be +initiated by the Meridian Conference of Washington, held on the invitation +of this Government, the United States should manifest a friendly interest +in the Italian proposal. + +In this connection I may refer with approval to the suggestion of my +predecessors that standing provision be made for accepting, whenever deemed +advisable, the frequent invitations of foreign governments to share in +conferences looking to the advancement of international reforms in regard +to science, sanitation, commercial laws and procedure, and other matters +affecting the intercourse and progress of modern communities. + +In the summer of 1889 an incident occurred which for some time threatened +to interrupt the cordiality of our relations with the Government of +Portugal. That Government seized the Delagoa Bay Railway, which was +constructed under a concession granted to an American citizen, and at the +same time annulled the charter. The concessionary, who had embarked his +fortune in the enterprise, having exhausted other means of redress, was +compelled to invoke the protection of his Government. Our representations, +made coincidently with those of the British Government, whose subjects were +also largely interested, happily resulted in the recognition by Portugal of +the propriety of submitting the claim for indemnity growing out of its +action to arbitration. This plan of settlement having been agreed upon, the +interested powers readily concurred in the proposal to submit the ease to +the judgment of three eminent jurists, to be designated by the President of +the Swiss Republic, who, upon the joint invitation of the Governments of +the United States, Great Britain, and Portugal, has selected persons well +qualified for the task before them. + +The revision of our treaty relations with the Empire of Japan has continued +to be the subject of consideration and of correspondence. The questions +involved are both grave and delicate; and while it will be my duty to see +that the interests of the United States are not by any changes exposed to +undue discrimination, I sincerely hope that such revision as will satisfy +the legitimate expectations of the Japanese Government and maintain the +present and long-existing friendly relations between Japan and the United +States will be effected. + +The friendship between our country and Mexico, born of close neighborhood +and strengthened by many considerations of intimate intercourse and +reciprocal interest, has never been more conspicuous than now nor more +hopeful of increased benefit to both nations. The intercourse of the two +countries by rail, already great, is making constant growth. The +established lines and those recently projected add to the intimacy of +traffic and open new channels of access to fresh areas of demand and +supply. The importance of the Mexican railway system will be further +enhanced to a degree almost impossible to forecast if it should become a +link in the projected intercontinental railway. I recommend that our +mission in the City of Mexico be raised to the first class. + +The cordial character of our relations with Spain warrants the hope that by +the continuance of methods of friendly negotiation much may be accomplished +in the direction of an adjustment of pending questions and of the increase +of our trade. The extent and development of our trade with the island of +Cuba invest the commercial relations of the United States and Spain with a +peculiar importance. It is not doubted that a special arrangement in regard +to commerce, based upon the reciprocity provision of the recent tariff act, +would operate most beneficially for both Governments. This subject is now +receiving attention. + +The restoration of the remains of John Ericsson to Sweden afforded a +gratifying occasion to honor the memory of the great inventor, to whose +genius our country owes so much, and to bear witness to the unbroken +friendship which has existed between the land which bore him and our own, +which claimed him as a citizen. + +On the 2d of September last the commission appointed to revise the +proceedings of the commission under the claims convention between the +United States and Venezuela of 1866 brought its labors to a close within +the period fixed for that purpose. The proceedings of the late commission +were characterized by a spirit of impartiality and a high sense of justice, +and an incident which was for many years the subject of discussion between +the two Governments has been disposed of in a manner alike honorable and +satisfactory to both parties. For the settlement of the claim of the +Venezuela Steam Transportation Company, which was the subject of a joint +resolution adopted at the last session of Congress, negotiations are still +in progress, and their early conclusion is anticipated. + +The legislation of the past few years has evinced on the part of Congress a +growing realization of the importance of the consular service in fostering +our commercial relations abroad and in protecting the domestic revenues. As +the scope of operations expands increased provision must be made to keep up +the essential standard of efficiency. The necessity of some adequate +measure of supervision and inspection has been so often presented that I +need only commend the subject to your attention. + +The revenues of the Government from all sources for the fiscal year ending +June 30, 1890, were $463,963,080.55 and the total expenditures for the same +period were $358,618,584.52. The postal receipts have not heretofore been +included in the statement of these aggregates, and for the purpose of +comparison the sum of $60,882,097.92 should be deducted from both sides of +the account. The surplus for the year, including the amount applied to the +sinking fund, was $105,344,496.03. The receipts for 1890 were +$16,030,923.79 and the expenditures $15,739,871 in excess of those of 1889. +The customs receipts increased $5,835,842.88 and the receipts from internal +revenue $11,725,191.89, while on the side of expenditures that for pensions +was $19,312,075.96 in excess of the preceding year. + +The Treasury statement for the current fiscal year, partly actual and +partly estimated, is as follows: Receipts from all sources, $406,000,000; +total expenditures, $354,000,000, leaving a surplus of $52,000,000, not +taking the postal receipts into the account on either side. The loss of +revenue from customs for the last quarter is estimated at $25,000,000, but +from this is deducted a gain of about $16,000,000 realized during the first +four months of the year. + +For the year 1892 the total estimated receipts are $373,000,000 and the +estimated expenditures $357,852,209.42, leaving an estimated surplus of +$15,247,790.58, which, with a cash balance of $52,000,000 at the beginning +of the year, will give $67,247,790.58 as the sum available for the +redemption of outstanding bonds or other uses. The estimates of receipts +and expenditures for the Post-Office Department, being equal, are not +included in this statement on either side. + +The act "directing the purchase of silver bullion and the issue of Treasury +notes thereon," approved July 14, 1890, has been administered by the +Secretary of the Treasury with an earnest purpose to get into circulation +at the earliest possible dates the full monthly amounts of Treasury notes +contemplated by its provisions and at the same time to give to the market +for the silver bullion such support as the law contemplates. The recent +depreciation in the price of silver has been observed with regret. The +rapid rise in price which anticipated and followed the passage of the act +was influenced in some degree by speculation, and the recent reaction is in +part the result of the same cause and in part of the recent monetary +disturbances. Some months of further trial will be necessary to determine +the permanent effect of the recent legislation upon silver values, but it +is gratifying to know that the increased circulation secured by the act has +exerted, and will continue to exert, a most beneficial influence upon +business and upon general values. + +While it has not been thought best to renew formally the suggestion of an +international conference looking to an agreement touching the full use of +silver for coinage at a uniform ratio, care has been taken to observe +closely any change in the situation abroad, and no favorable opportunity +will be lost to promote a result which it is confidently believed would +confer very large benefits upon the commerce of the world. + +The recent monetary disturbances in England are not unlikely to suggest a +reexamination of opinions upon this subject. Our very large supply of gold +will, if not lost by impulsive legislation in the supposed interest of +silver, give us a position of advantage in promoting a permanent and safe +international agreement for the free use of silver as a coin metal. + +The efforts of the Secretary to increase the volume of money in circulation +by keeping down the Treasury surplus to the lowest practicable limit have +been unremitting and in a very high degree successful. The tables presented +by him showing the increase of money in circulation during the last two +decades, and especially the table showing the increase during the nineteen +months he has administered the affairs of the Department, are interesting +and instructive. The increase of money in circulation during the nineteen +months has been in the aggregate $93,866,813, or about $1.50 per capita, +and of this increase only $7,100,000 was due to the recent silver +legislation. That this substantial and needed aid given to commerce +resulted in an enormous reduction of the public debt and of the annual +interest charge is matter of increased satisfaction. There have been +purchased and redeemed since March 4, 1889, 4 and 4 1\2 per cent bonds to +the amount of $211,832,450, at a cost of $246,620,741, resulting in the +reduction of the annual interest charge of $8,967,609 and a total saving of +interest of $51,576,706. + +I notice with great pleasure the statement of the Secretary that the +receipts from internal revenue have increased during the last fiscal year +nearly $12,000,000, and that the cost of collecting this larger revenue was +less by $90,617 than for the same purpose in the preceding year. The +percentage of cost of collecting the customs revenue was less for the last +fiscal year than ever before. + +The Customs Administration Board, provided for by the act of June 10, 1890, +was selected with great care, and is composed in part of men whose previous +experience in the administration of the old customs regulations had made +them familiar with the evils to be remedied, and in part of men whose legal +and judicial acquirements and experience seemed to fit them for the work of +interpreting and applying the new statute. The chief aim of the law is to +secure honest valuations of all dutiable merchandise and to make these +valuations uniform at all our ports of entry. It had been made manifest by +a Congressional investigation that a system of undervaluation had been long +in use by certain classes of importers, resulting not only in a great loss +of revenue, but in a most intolerable discrimination against honesty. It is +not seen how this legislation, when it is understood, can be regarded by +the citizens of any country having commercial dealings with us as +unfriendly. If any duty is supposed to be excessive, let the complaint be +lodged there. It will surely not be claimed by any well-disposed people +that a remedy may be sought and allowed in a system of quasi smuggling. + +The report of the Secretary of War exhibits several gratifying results +attained during the year by wise and unostentatious methods. The percentage +of desertions from the Army (an evil for which both Congress and the +Department have long been seeking a remedy) has been reduced during the +past year 24 per cent, and for the months of August and September, during +which time the favorable effects of the act of June 16 were felt, 33 per +cent, as compared with the same months of 1889. + +The results attained by a reorganization and consolidation of the divisions +having charge of the hospital and service records of the volunteer soldiers +are very remarkable. This change was effected in July, 1889, and at that +time there were 40,654 cases awaiting attention, more than half of these +being calls from the Pension Office for information necessary to the +adjudication of pension claims. On the 30th day of June last, though over +300,000 new calls had come in, there was not a single case that had not +been examined and answered. + +I concur in the recommendations of the Secretary that adequate and regular +appropriations be continued for coast-defense works and ordnance. Plans +have been practically agreed upon, and there can be no good reason for +delaying the execution of them, while the defenseless state of our great +seaports furnishes an urgent reason for wise expedition. + +The encouragement that has been extended to the militia of the States, +generally and most appropriately designated the "National Guard," should be +continued and enlarged. These military organizations constitute in a large +sense the Army of the United States, while about five-sixths of the annual +cost of their maintenance is defrayed by the States. + +The report of the Attorney-General is under the law submitted directly to +Congress, but as the Department of Justice is one of the Executive +Departments some reference to the work done is appropriate here. + +A vigorous and in the main an effective effort has been made to bring to +trial and punishment all violators of the law, but at the same time care +has been taken that frivolous and technical offenses should not be used to +swell the fees of officers or to harass well-disposed citizens. Especial +attention is called to the facts connected with the prosecution of +violations of the election laws and of offenses against United States +officers. The number of convictions secured, very many of them upon pleas +of guilty, will, it is hoped, have a salutary restraining influence. There +have been several cases where postmasters appointed by me have been +subjected to violent interference in the discharge of their official duties +and to persecutions and personal violence of the most extreme character. +Some of these cases have been dealt with through the Department of Justice, +and in some cases the post-offices have been abolished or suspended. I have +directed the Postmaster-General to pursue this course in all cases where +other efforts failed to secure for any postmaster not himself in fault an +opportunity peacefully to exercise the duties of his office. But such +action will not supplant the efforts of the Department of Justice to bring +the particular offenders to punishment. + +The vacation by judicial decrees of fraudulent certificates of +naturalization, upon bills in equity filed by the Attorney-General in the +circuit court of the United States, is a new application of a familiar +equity jurisdiction. Nearly one hundred such decrees have been taken during +the year, the evidence disclosing that a very large number of fraudulent +certificates of naturalization have been issued. And in this connection I +beg to renew my recommendation that the laws be so amended as to require a +more full and searching inquiry into all the facts necessary to +naturalization before any certificates are granted. it certainly is not too +much to require that an application for American citizenship shall be heard +with as much care and recorded with as much formality as are given to cases +involving the pettiest property right. + +At the last session I returned without my approval a bill entitled "An act +to prohibit bookmaking and pool selling in the District of Columbia," and +stated my objection to be that it did not prohibit but in fact licensed +what it purported to prohibit. An effort will be made under existing laws +to suppress this evil, though it is not certain that they will be found +adequate. + +The report of the Postmaster-General shows the most gratifying progress in +the important work committed to his direction. The business methods have +been greatly improved. A large economy in expenditures and an increase of +four and three-quarters millions in receipts have been realized. The +deficiency this year is $5,786,300, as against $6,350,183 last year, +notwithstanding the great enlargement of the service. Mail routes have been +extended and quickened and greater accuracy and dispatch in distribution +and delivery have been attained. The report will be found to be full of +interest and suggestion, not only to Congress, but to those thoughtful +citizens who may be interested to know what business methods can do for +that department of public administration which most nearly touches all our +people. + +The passage of the act to amend certain sections of the Revised Statutes +relating to lotteries, approved September 19, 1890, has been received with +great and deserved popular favor. The Post-Office Department and the +Department of Justice at once entered upon the enforcement of the law with +sympathetic vigor, and already the public mails have been largely freed +from the fraudulent and demoralizing appeals and literature emanating from +the lottery companies. + +The construction and equipment of the new ships for the Navy have made very +satisfactory progress. Since March 4, 1889, nine new vessels have been put +in commission, and during this winter four more, including one monitor, +will be added. The construction of the other vessels authorized is being +pushed both in the Government and private yards with energy and watched +with the most scrupulous care. + +The experiments conducted during the year to test the relative resisting +power of armor plates have been so valuable as to attract great attention +in Europe. The only part of the work upon the new ships that is threatened +by unusual delay is the armor plating, and every effort is being made to +reduce that to the minimum. It is a source of congratulation that the +anticipated influence of these modern vessels upon the esprit de corps of +the officers and seamen has been fully realized. Confidence and pride in +the ship among the crew are equivalent to a secondary battery. Your +favorable consideration is invited to the recommendations of the +Secretary. + +The report of the Secretary of the Interior exhibits with great fullness +and clearness the vast work of that Department and the satisfactory results +attained. The suggestions made by him are earnestly commended to the +consideration of Congress, though they can not all be given particular +mention here. + +The several acts of Congress looking to the reduction of the larger Indian +reservations, to the more rapid settlement of the Indians upon individual +allotments, and the restoration to the public domain of lands in excess of +their needs have been largely carried into effect so far as the work was +confided to the Executive. Agreements have been concluded since March 4, +1889, involving the cession to the United States of about 14,726,000 acres +of land. These contracts have, as required by law, been submitted to +Congress for ratification and for the appropriations necessary to carry +them into effect. Those with the Sisseton and Wahpeton, Sac and Fox, Iowa, +Pottawatomies and Absentee Shawnees, and Coeur d'Alene tribes have not yet +received the sanction of Congress. Attention is also called to the fact +that the appropriations made in the case of the Sioux Indians have not +covered all the stipulated payments. This should be promptly corrected. If +an agreement is confirmed, all of its terms should be complied with without +delay and full appropriations should be made. + +The policy outlined in my last annual message in relation to the patenting +of lands to settlers upon the public domain has been carried out in the +administration of the Land Office. No general suspicion or imputation of +fraud has been allowed to delay the hearing and adjudication of individual +cases upon their merits. The purpose has been to perfect the title of +honest settlers with such promptness that the value of the entry might not +be swallowed up by the expense and extortions to which delay subjected the +claimant. The average monthly issue of agricultural patents has been +increased about 6,000. + +The disability-pension act, which was approved on the 27th of June last, +has been put into operation as rapidly as was practicable. The increased +clerical force provided was selected and assigned to work, and a +considerable part of the force engaged in examinations in the field was +recalled and added to the working force of the office. The examination and +adjudication of claims have by reason of improved methods been more rapid +than ever before. There is no economy to the Government in delay, while +there is much hardship and injustice to the soldier. The anticipated +expenditure, while very large, will not, it is believed, be in excess of +the estimates made before the enactment of the law. This liberal +enlargement of the general law should suggest a more careful scrutiny of +bills for special relief, both as to the cases where relief is granted and +as to the amount allowed. + +The increasing numbers and influence of the non-Mormon population of Utah +are observed with satisfaction. The recent letter of Wilford Woodruff, +president of the Mormon Church, in which he advised his people "to refrain +from contracting any marriage forbidden by the laws of the land," has +attracted wide attention, and it is hoped that its influence will be highly +beneficial in restraining infractions of the laws of the United States. But +the fact should not be overlooked that the doctrine or belief of the church +that polygamous marriages are rightful and supported by divine revelation +remains unchanged. President Woodruff does not renounce the doctrine, but +refrains from teaching it, and advises against the practice of it because +the law is against it. Now, it is quite true that the law should not +attempt to deal with the faith or belief of anyone; but it is quite another +thing, and the only safe thing, so to deal with the Territory of Utah as +that those who believe polygamy to be rightful shall not have the power to +make it lawful. + +The admission of the States of Wyoming and Idaho to the Union are events +full of interest and congratulation, not only to the people of those States +now happily endowed with a full participation in our privileges and +responsibilities, but to all our people. Another belt of States stretches +from the Atlantic to the Pacific. + +The work of the Patent Office has won from all sources very high +commendation. The amount accomplished has been very largely increased, and +all the results have been such as to secure confidence and consideration +for the suggestions of the Commissioner. + +The enumeration of the people of the United States under the provisions of +the act of March 1, 1889, has been completed, and the result will be at +once officially communicated to Congress. The completion of this decennial +enumeration devolves upon Congress the duty of making a new apportionment +of Representatives "among the several States according to their respective +numbers." + +At the last session I had occasion to return with my objections several +bills making provisions for the erection of public buildings for the reason +that the expenditures contemplated were, in my opinion, greatly in excess +of any public need. No class of legislation is more liable to abuse or to +degenerate into an unseemly scramble about the public Treasury than this. +There should be exercised in this matter a wise economy, based upon some +responsible and impartial examination and report as to each case, under a +general law. + +The report of the Secretary of Agriculture deserves especial attention in +view of the fact that the year has been marked in a very unusual degree by +agitation and organization among the farmers looking to an increase in the +profits of their business. It will be found that the efforts of the +Department have been intelligently and zealously devoted to the promotion +of the interests intrusted to its care. + +A very substantial improvement in the market prices of the leading farm +products during the year is noticed. The price of wheat advanced from 81 +cents in October, 1889, to $1.00 3/4 in October, 1890; corn from 31 cents +to 50 1/4 cents; oats from 19 1/4 cents to 43 cents, and barley from 63 +cents to 78 cents. Meats showed a substantial but not so large an increase. +The export trade in live animals and fowls shows a very large increase. The +total value of such exports for the year ending June 30, 1890, was +$33,000,000, and the increase over the preceding year was over $15,000,000. +Nearly 200,000 more cattle and over 45,000 more hogs were exported than in +the preceding year. The export trade in beef and pork products and in dairy +products was very largely increased, the increase in the article of butter +alone being from 15,504,978 pounds to 29,748,042 pounds, and the total +increase in the value of meat and dairy products exported being +$34,000,000. This trade, so directly helpful to the farmer, it is believed, +will be yet further and very largely increased when the system of +inspection and sanitary supervision now provided by law is brought fully +into operation. + +The efforts of the Secretary to establish the healthfulness of our meats +against the disparaging imputations that have been put upon them abroad +have resulted in substantial progress. Veterinary surgeons sent out by the +Department are now allowed to participate in the inspection of the live +cattle from this country landed at the English docks, and during the +several months they have been on duty no case of contagious +pleuro-pneumonia has been reported. This inspection abroad and the domestic +inspection of live animals and pork products provided for by the act of +August 30, 1890, will afford as perfect a guaranty for the wholesomeness of +our meats offered for foreign consumption as is anywhere given to any food +product, and its nonacceptance will quite clearly reveal the real motive of +any continued restriction of their use, and that having been made clear the +duty of the Executive will be very plain. + +The information given by the Secretary of the progress and prospects of the +beet-sugar industry is full of interest. It has already passed the +experimental stage and is a commercial success. The area over which the +sugar beet can be successfully cultivated is very large, and another field +crop of great value is offered to the choice of the farmer. + +The Secretary of the Treasury concurs in the recommendation of the +Secretary of Agriculture that the official supervision provided by the +tariff law for sugar of domestic production shall be transferred to the +Department of Agriculture. + +The law relating to the civil service has, so far as I can learn, been +executed by those having the power of appointment in the classified service +with fidelity and impartiality, and the service has been increasingly +satisfactory. The report of the Commission shows a large amount of good +work done during the year with very limited appropriations. + +I congratulate the Congress and the country upon the passage at the first +session of the Fifty-first Congress of an unusual number of laws of very +high importance. That the results of this legislation will be the +quickening and enlargement of our manufacturing industries, larger and +better markets for our breadstuffs and provisions both at home and abroad, +more constant employment and better wages for our working people, and an +increased supply of a safe currency for the transaction of business, I do +not doubt. Some of these measures were enacted at so late a period that the +beneficial effects upon commerce which were in the contemplation of +Congress have as yet but partially manifested themselves. + +The general trade and industrial conditions throughout the country during +the year have shown a marked improvement. For many years prior to 1888 the +merchandise balances of foreign trade had been largely in our favor, but +during that year and the year following they turned against us. It is very +gratifying to know that the last fiscal year again shows a balance in our +favor of over $68,000,000. The bank clearings, which furnish a good test of +the volume of business transacted, for the first ten months of the year +1890 show as compared with the same months of 1889 an increase for the +whole country of about 8.4 per cent, while the increase outside of the city +of New York was over 13 per cent. During the month of October the clearings +of the whole country showed an increase of 3.1 per cent over October, 1889, +while outside of New York the increase was 11.5 per cent. These figures +show that the increase in the volume of business was very general +throughout the country. That this larger business was being conducted upon +a safe and profitable basis is shown by the fact that there were 300 less +failures reported in October, 1890, than in the same month of the preceding +year, with liabilities diminished by about $5,000,000. + +The value of our exports of domestic merchandise during the last year was +over $115,000,000 greater than the preceding year, and was only exceeded +once in our history. About $100,000,000 of this excess was in agricultural +products. The production of pig iron, always a good gauge of general +prosperity, is shown by a recent census bulletin to have been 153 per cent +greater in 1890 than in 1880, and the production of steel 290 per cent +greater. Mining in coal has had no limitation except that resulting from +deficient transportation. The general testimony is that labor is everywhere +fully employed, and the reports for the last year show a smaller number of +employees affected by strikes and lockouts than in any year since 1884. The +depression in the prices of agricultural products had been greatly relieved +and a buoyant and hopeful tone was beginning to be felt by all our people. + +These promising influences have been in some degree checked by the +surprising and very unfavorable monetary events which have recently taken +place in England. It is gratifying to know that these did not grow in any +degree out of the financial relations of London with our people or out of +any discredit attached to our securities held in that market. The return of +our bonds and stocks was caused by a money stringency in England, not by +any loss of value or credit in the securities themselves. We could not, +however, wholly escape the ill effects of a foreign monetary agitation +accompanied by such extraordinary incidents as characterized this. It is +not believed, however, that these evil incidents, which have for the time +unfavorably affected values in this country, can long withstand the strong, +safe, and wholesome influences which are operating to give to our people +profitable returns in all branches of legitimate trade and industry. The +apprehension that our tariff may again and at once be subjected to +important general changes would undoubtedly add a depressing influence of +the most serious character. + +The general tariff act has only partially gone into operation, some of its +important provisions being limited to take effect at dates yet in the +future. The general provisions of the law have been in force less than +sixty days. Its permanent effects upon trade and prices still largely stand +in conjecture. It is curious to note that the advance in the prices of +articles wholly unaffected by the tariff act was by many hastily ascribed +to that act. Notice was not taken of the fact that the general tendency of +the markets was upward, from influences wholly apart from the recent tariff +legislation. The enlargement of our currency by the silver bill undoubtedly +gave an upward tendency to trade and had a marked effect on prices; but +this natural and desired effect of the silver legislation was by many +erroneously attributed to the tariff act. + +There is neither wisdom nor justice in the suggestion that the subject of +tariff revision shall be again opened before this law has had a fair trial. +It is quite true that every tariff schedule is subject to objections. No +bill was ever framed, I suppose, that in all of its rates and +classifications had the full approval even of a party caucus. Such +legislation is always and necessarily the product of compromise as to +details, and the present law is no exception. But in its general scope and +effect I think it will justify the support of those who believe that +American legislation should conserve and defend American trade and the +wages of American workmen. + +The misinformation as to the terms of the act which has been so widely +disseminated at home and abroad will be corrected by experience, and the +evil auguries as to its results confounded by the market reports, the +savings banks, international trade balances. and the general prosperity of +our people. Already we begin to hear from abroad and from our customhouses +that the prohibitory effect upon importations imputed to the act is not +justified. The imports at the port of New York for the first three weeks of +November were nearly 8 per cent greater than for the same period in 1889 +and 29 per cent greater than in the same period of 1888. And so far from +being an act to limit exports, I confidently believe that under it we shall +secure a larger and more profitable participation in foreign trade than we +have ever enjoyed, and that we shall recover a proportionate participation +in the ocean carrying trade of the world. + +The criticisms of the bill that have come to us from foreign sources may +well be rejected for repugnancy. If these critics really believe that the +adoption by us of a free-trade policy, or of tariff rates having reference +solely to revenue, would diminish the participation of their own countries +in the commerce of the world, their advocacy and promotion, by speech and +other forms of organized effort, of this movement among our people is a +rare exhibition of unselfishness in trade. And, on the other hand, if they +sincerely believe that the adoption of a protective-tariff policy by this +country inures to their profit and our hurt, it is noticeably strange that +they should lead the outcry against the authors of a policy so helpful to +their countrymen and crown with their favor those who would snatch from +them a substantial share of a trade with other lands already inadequate to +their necessities. + +There is no disposition among any of our people to promote prohibitory or +retaliatory legislation. Our policies are adopted not to the hurt of +others, but to secure for ourselves those advantages that fairly grow out +of our favored position as a nation. Our form of government, with its +incident of universal suffrage, makes it imperative that we shall save our +working people from the agitations and distresses which scant work and +wages that have no margin for comfort always beget. But after all this is +done it will be found that our markets are open to friendly commercial +exchanges of enormous value to the other great powers. + +From the time of my induction into office the duty of using every power and +influence given by law to the executive department for the development of +larger markets for our products, especially our farm products, has been +kept constantly in mind, and no effort has been or will be spared to +promote that end. We are under no disadvantage in any foreign market, +except that we pay our workmen and workwomen better wages than are paid +elsewhere--better abstractly, better relatively to the cost of the +necessaries of life. I do not doubt that a very largely increased foreign +trade is accessible to us without bartering for it either our home market +for such products of the farm and shop as our own people can supply or the +wages of our working people. + +In many of the products of wood and iron and in meats and breadstuffs we +have advantages that only need better facilities of intercourse and +transportation to secure for them large foreign markets. The reciprocity +clause of the tariff act wisely and effectively opens the way to secure a +large reciprocal trade in exchange for the free admission to our ports of +certain products. The right of independent nations to make special +reciprocal trade concessions is well established, and does not impair +either the comity due to other powers or what is known as the +"favored-nation clause," so generally found in commercial treaties. What is +given to one for an adequate agreed consideration can not be claimed by +another freely. The state of the revenues was such that we could dispense +with any import duties upon coffee, tea, hides, and the lower grades of +sugar and molasses. That the large advantage resulting to the countries +producing and exporting these articles by placing them on the free list +entitled us to expect a fair return in the way of customs concessions upon +articles exported by us to them was so obvious that to have gratuitously +abandoned this opportunity to enlarge our trade would have been an +unpardonable error. + +There were but two methods of maintaining control of this question open to +Congress--to place all of these articles upon the dutiable list, subject to +such treaty agreements as could be secured, or to place them all presently +upon the free list, but subject to the reimposition of specified duties if +the countries from which we received them should refuse to give to us +suitable reciprocal benefits. This latter method, I think, possesses great +advantages. It expresses in advance the consent of Congress to reciprocity +arrangements affecting these products, which must otherwise have been +delayed and unascertained until each treaty was ratified by the Senate and +the necessary legislation enacted by Congress. Experience has shown that +some treaties looking to reciprocal trade have failed to secure a +two-thirds vote in the Senate for ratification, and others having passed +that stage have for years awaited the concurrence of the House and Senate +in such modifications of our revenue laws as were necessary to give effect +to their provisions. We now have the concurrence of both Houses in advance +in a distinct and definite offer of free entry to our ports of specific +articles. The Executive is not required to deal in conjecture as to what +Congress will accept. Indeed, this reciprocity provision is more than an +offer. Our part of the bargain is complete; delivery has been made; and +when the countries from which we receive sugar, coffee, tea, and hides have +placed on their free lists such of our products as shall be agreed upon as +an equivalent for our concession, a proclamation of that fact completes the +transaction; and in the meantime our own people have free sugar, tea, +coffee, and hides. + +The indications thus far given are very hopeful of early and favorable +action by the countries from which we receive our large imports of coffee +and sugar, and it is confidently believed that if steam communication with +these countries can be promptly improved and enlarged the next year will +show a most gratifying increase in our exports of breadstuffs and +provisions, as well as of some important lines of manufactured goods. + +In addition to the important bills that became laws before the adjournment +of the last session, some other bills of the highest importance were well +advanced toward a final vote and now stand upon the calendars of the two +Houses in favored positions. The present session has a fixed limit, and if +these measures are not now brought to a final vote all the work that has +been done upon them by this Congress is lost. The proper consideration of +these, of an apportionment bill, and of the annual appropriation bills will +require not only that no working day of the session shall be lost, but that +measures of minor and local interest shall not be allowed to interrupt or +retard the progress of those that are of universal interest. In view of +these conditions, I refrain from bringing before you at this time some +suggestions that would otherwise be made, and most earnestly invoke your +attention to the duty of perfecting the important legislation now well +advanced. To some of these measures, which seem to me most important, I now +briefly call your attention. + +I desire to repeat with added urgency the recommendations contained in my +last annual message in relation to the development of American steamship +lines. The reciprocity clause of the tariff bill will be largely limited +and its benefits retarded and diminished if provision is not +contemporaneously made to encourage the establishment of first-class steam +communication between our ports and the ports of such nations as may meet +our overtures for enlarged commercial exchanges. The steamship, carrying +the mails statedly and frequently and offering to passengers a comfortable, +safe, and speedy transit, is the first condition of foreign trade. It +carries the order or the buyer, but not all that is ordered or bought. It +gives to the sailing vessels such cargoes as are not urgent or perishable, +and, indirectly at least, promotes that important adjunct of commerce. +There is now both in this country and in the nations of Central and South +America a state of expectation and confidence as to increased trade that +will give a double value to your prompt action upon this question. + +The present situation of our mail communication with Australia illustrates +the importance of early action by Congress. The Oceanic Steamship Company +maintains a line of steamers between San Francisco, Sydney, and Auckland +consisting of three vessels, two of which are of United States registry and +one of foreign registry. For the service done by this line in carrying the +mails we pay annually the sum of $46,000, being, as estimated, the full sea +and United States inland postage, which is the limit fixed by law. The +colonies of New South Wales and New Zealand have been paying annually to +these lines lbs. 37,000 for carrying the mails from Sydney and Auckland to +San Francisco. The contract under which this payment has been made is now +about to expire, and those colonies have refused to renew the contract +unless the United States shall pay a more equitable proportion of the whole +sum necessary to maintain the service. + +I am advised by the Postmaster-General that the United States receives for +carrying the Australian mails, brought to San Francisco in these steamers, +by rail to Vancouver, an estimated annual income of $75,000, while, as I +have stated, we are paying out for the support of the steamship line that +brings this mail to us only $46,000, leaving an annual surplus resulting +from this service of $29,000. The trade of the United States with +Australia, which is in a considerable part carried by these steamers, and +the whole of which is practically dependent upon the mail communication +which they maintain, is largely in our favor. Our total exports of +merchandise to Australasian ports during the fiscal year ending June 30, +1890, were $11,266,484, while the total imports of merchandise from these +ports were only $4,277,676. If we are not willing to see this important +steamship line withdrawn, or continued with Vancouver substituted for San +Francisco as the American terminal, Congress should put it in the power of +the Postmaster-General to make a liberal increase in the amount now paid +for the transportation of this important mail. + +The South Atlantic and Gulf ports occupy a very favored position toward the +new and important commerce which the reciprocity clause of the tariff act +and the postal shipping bill are designed to promote. Steamship lines from +these ports to some northern port of South America will almost certainly +effect a connection between the railroad systems of the continents long +before any continuous line of railroads can be put into operation. The very +large appropriation made at the last session for the harbor of Galveston +was justified, as it seemed to me, by these considerations. The great +Northwest will feel the advantage of trunk lines to the South as well as to +the East and of the new markets opened for their surplus food products and +for many of their manufactured products. + +I had occasion in May last to transmit to Congress a report adopted by the +International American Conference upon the subject of the incorporation of +an international American bank, with a view to facilitating money exchanges +between the States represented in that conference. Such an institution +would greatly promote the trade we are seeking to develop. I renew the +recommendation that a careful and well-guarded charter be granted. I do not +think the powers granted should include those ordinarily exercised by +trust, guaranty, and safe-deposit companies, or that more branches in the +United States should be authorized than are strictly necessary to +accomplish the object primarily in view, namely, convenient foreign +exchanges. It is quite important that prompt action should be taken in this +matter, in order that any appropriations for better communication with +these countries and any agreements that may be made for reciprocal trade +may not be hindered by the inconvenience of making exchanges through +European money centers or burdened by the tribute which is an incident of +that method of business. + +The bill for the relief of the Supreme Court has after many years of +discussion reached a position where final action is easily attainable, and +it is hoped that any differences of opinion may be so harmonized as to save +the essential features of this very important measure. In this connection I +earnestly renew my recommendation that the salaries of the judges of the +United States district courts be so readjusted that none of them shall +receive less than $5,000 per annum. + +The subject of the unadjusted Spanish and Mexican land grants and the +urgent necessity for providing some commission or tribunal for the trial of +questions of title growing out of them were twice brought by me to the +attention of Congress at the last session. Bills have been reported from +the proper committees in both Houses upon the subject, and I very earnestly +hope that this Congress will put an end to the delay which has attended the +settlement of the disputes as to the title between the settlers and the +claimants under these grants. These disputes retard the prosperity and +disturb the peace of large and important communities. The governor of New +Mexico in his last report to the Secretary of the Interior suggests some +modifications of the provisions of the pending bills relating to the small +holdings of farm lands. I commend to your attention the suggestions of the +Secretary of the Interior upon this subject. + +The enactment of a national bankrupt law I still regard as very desirable. +The Constitution having given to Congress jurisdiction of this subject, it +should be exercised and uniform rules provided for the administration of +the affairs of insolvent debtors. The inconveniences resulting from the +occasional and temporary exercise of this power by Congress and from the +conflicting State codes of insolvency which come into force intermediately +should be removed by the enactment of a simple, inexpensive, and permanent +national bankrupt law. + +I also renew my recommendation in favor of legislation affording just +copyright protection to foreign authors on a footing of reciprocal +advantage for our authors abroad. + +It may still be possible for this Congress to inaugurate by suitable +legislation a movement looking to uniformity and increased safety in the +use of couplers and brakes upon freight trains engaged in interstate +commerce. The chief difficulty in the way is to secure agreement as to the +best appliances, simplicity, effectiveness, and cost being considered. This +difficulty will only yield to legislation, which should be based upon full +inquiry and impartial tests. The purpose should be to secure the +cooperation of all well-disposed managers and owners; but the fearful fact +that every year's delay involves the sacrifice of 2,000 lives and the +maiming of 20,000 young men should plead both with Congress and the +managers against any needless delay. + +The subject of the conservation and equal distribution of the water supply +of the arid regions has had much attention from Congress, but has not as +yet been put upon a permanent and satisfactory basis. The urgency of the +subject does not grow out of any large present demand for the use of these +lands for agriculture, but out of the danger that the water supply and the +sites for the necessary catch basins may fall into the hands of individuals +or private corporations and be used to render subservient the large areas +dependent upon such supply. The owner of the water is the owner of the +lands, however the titles may run. All unappropriated natural water sources +and all necessary reservoir sites should be held by the Government for the +equal use at fair rates of the homestead settlers who will eventually take +up these lands. The United States should not, in my opinion, undertake the +construction of dams or canals, but should limit its work to such surveys +and observations as will determine the water supply, both surface and +subterranean, the areas capable of irrigation, and the location and storage +capacity of reservoirs. This done, the use of the water and of the +reservoir sites might be granted to the respective States or Territories or +to individuals or associations upon the condition that the necessary works +should be constructed and the water furnished at fair rates without +discrimination, the rates to be subject to supervision by the legislatures +or by boards of water commissioners duly constituted. The essential thing +to be secured is the common and equal use at fair rates of the accumulated +water supply. It were almost better that these lands should remain arid +than that those who occupy them should become the slaves of unrestrained +monopolies controlling the one essential element of land values and crop +results. + +The use of the telegraph by the Post-Office Department as a means for the +rapid transmission of written communications is, I believe, upon proper +terms, quite desirable. The Government does not own or operate the +railroads, and it should not, I think, own or operate the telegraph lines. +It does, however, seem to be quite practicable for the Government to +contract with the telegraph companies, as it does with railroad companies, +to carry at specified rates such communications as the senders may +designate for this method of transmission. I recommend that such +legislation be enacted as will enable the Post-Office Department fairly to +test by experiment the advantages of such a use of the telegraph. + +If any intelligent and loyal company of American citizens were required to +catalogue the essential human conditions of national life, I do not doubt +that with absolute unanimity they would begin with "free and honest +elections." And it is gratifying to know that generally there is a growing +and nonpartisan demand for better election laws; but against this sign of +hope and progress must be set the depressing and undeniable fact that +election laws and methods are sometimes cunningly contrived to secure +minority control, while violence completes the shortcomings of fraud. + +In my last annual message I suggested that the development of the existing +law providing a Federal supervision of Congressional elections offered an +effective method of reforming these abuses. The need of such a law has +manifested itself in many parts of the country, and its wholesome +restraints and penalties will be useful in all. The constitutionality of +such legislation has been affirmed by the Supreme Court. Its probable +effectiveness is evidenced by the character of the opposition that is made +to it. It has been denounced as if it were a new exercise of Federal power +and an invasion of the rights of States. Nothing could be further from the +truth. Congress has already fixed the time for the election of members of +Congress. It has declared that votes for members of Congress must be by +written or printed ballot; it has provided for the appointment by the +circuit courts in certain cases, and upon the petition of a certain number +of citizens, of election supervisors, and made it their duty to supervise +the registration of voters conducted by the State officers; to challenge +persons offering to register; to personally inspect and scrutinize the +registry lists, and to affix their names to the lists for the purpose of +identification and the prevention of frauds; to attend at elections and +remain with the boxes till they are all cast and counted; to attach to the +registry lists and election returns any statement touching the accuracy and +fairness of the registry and election, and to take and transmit to the +Clerk of the House of Representatives any evidence of fraudulent practices +which may be presented to them. The same law provides for the appointment +of deputy United States marshals to attend at the polls, support the +supervisors in the discharge of their duties, and to arrest persons +violating the election laws. The provisions of this familiar title of the +Revised Statutes have been put into exercise by both the great political +parties, and in the North as well as in the South, by the filing with the +court of the petitions required by the law. + +It is not, therefore, a question whether we shall have a Federal election +law, for we now have one and have had for nearly twenty years, but whether +we shall have an effective law. The present law stops just short of +effectiveness, for it surrenders to the local authorities all control over +the certification which establishes the prima facie right to a seat in the +House of Representatives. This defect should be cured. Equality of +representation and the parity of the electors must be maintained or +everything that is valuable in our system of government is lost. The +qualifications of an elector must be sought in the law, net in the +opinions, prejudices, or fears of any class, however powerful. The path of +the elector to the ballot box must be free from the ambush of fear and the +enticements of fraud; the count so true and open that none shall gainsay +it. Such a law should be absolutely nonpartisan and impartial. It should +give the advantage to honesty and the control to majorities. Surely there +is nothing sectional about this creed, and if it shall happen that the +penalties of laws intended to enforce these rights fall here and not there +it is not because the law is sectional, but because, happily, crime is +local and not universal. Nor should it be forgotten that every law, whether +relating to elections or to any other subject, whether enacted by the State +or by the nation, has force behind it; the courts, the marshal or +constable, the posse comitatus, the prison, are all and always behind the +law. + +One can not be justly charged with unfriendliness to any section or class +who seeks only to restrain violations of law and of personal right. No +community will find lawlessness profitable. No community can afford to have +it known that the officers who are charged with the preservation of the +public peace and the restraint of the criminal classes are themselves the +product of fraud or violence. The magistrate is then without respect and +the law without sanction. The floods of lawlessness can not be leveed and +made to run in one channel. The killing of a United States marshal carrying +a writ of arrest for an election offense is full of prompting and +suggestion to men who are pursued by a city marshal for a crime against +life or property. + +But it is said that this legislation will revive race animosities, and some +have even suggested that when the peaceful methods of fraud are made +impossible they may be supplanted by intimidation and violence. If the +proposed law gives to any qualified elector by a hair's weight more than +his equal influence or detracts by so much from any other qualified +elector, it is fatally impeached. But if the law is equal and the +animosities it is to evoke grow out of the fact that some electors have +been accustomed to exercise the franchise for others as well as for +themselves, then these animosities ought not to be confessed without shame, +and can not be given any weight in the discussion without dishonor No +choice is left to me but to enforce with vigor all laws intended to secure +to the citizen his constitutional rights and to recommend that the +inadequacies of such laws be promptly remedied. If to promote with zeal and +ready interest every project for the development of its material interests, +its rivers, harbors, mines, and factories, and the intelligence, peace, and +security under the law of its communities and its homes is not accepted as +sufficient evidence of friendliness to any State or section, I can not add +connivance at election practices that not only disturb local results, but +rob the electors of other States and sections of their most priceless +political rights. + +The preparation of the general appropriation bills should be conducted with +the greatest care and the closest scrutiny of expenditures. Appropriations +should be adequate to the needs of the public service, but they should be +absolutely free from prodigality. + +I venture again to remind you that the brief time remaining for the +consideration of the important legislation now awaiting your attention +offers no margin for waste. If the present duty is discharged with +diligence, fidelity, and courage, the work of the Fifty-first Congress may +be confidently submitted to the considerate judgment of the people. BENJ. +HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 9, 1891 + +To the Senate and House of Representatives: + +The reports of the heads of the several Executive Departments required by +law to be submitted to me, which are herewith transmitted, and the reports +of the Secretary of the Treasury and the Attorney-General, made directly to +Congress, furnish a comprehensive view of the administrative work of the +last fiscal year relating to internal affair. It would be of great +advantage if these reports could have an alternative perusal by every +member of Congress and by all who take an interest in public affairs. Such +a perusal could not fail to excite a higher appreciation of the vast labor +and conscientious effort which are given to the conduct of our civil +administration. + +The reports will, I believe, show that every question has been approached, +considered, and decided from the standpoint of public duty upon +considerations affecting the public interests alone. Again I invite to +every branch of the service the attention and scrutiny of Congress. + +The work of the State Department during the last year has been +characterized by an unusual number of important negotiations and by +diplomatic results of a notable and highly beneficial character. Among +these are the reciprocal trade arrangements which have been concluded, in +the exercise of the powers conferred by section 3 of the tariff law, with +the Republic of Brazil, with Spain for its West India possessions, and with +Santo Domingo. Like negotiations with other countries have been much +advanced, and it is hoped that before the close of the year further +definitive trade arrangements of great value will be concluded. + +In view of the reports which had been received as to the diminution of the +seal herds in the Bering Sea, I deemed it wise to propose to Her Majesty's +Government in February last that an agreement for a closed season should be +made pending the negotiations for arbitration, which then seemed to be +approaching a favorable conclusion. After much correspondence and delays, +for which this Government was not responsible, an agreement was reached and +signed on the 15th of June, by which Great Britain undertook from that date +and until May 1, 1892, to prohibit the killing by her subjects of seals in +the Bering Sea, and the Government of the United States during the same +period to enforce its existing prohibition against pelagic sealing and to +limit the catch by the fur-seal company upon the islands to 7,500 skins. If +this agreement could have been reached earlier in response to the strenuous +endeavors of this Government, it would have been more effective; but coming +even as late as it did it unquestionably resulted in greatly diminishing +the destruction of the seals by the Canadian sealers. + +In my last annual message I stated that the basis of arbitration proposed +by Her Majesty's Government for the adjustment of the long-pending +controversy as to the seal fisheries was not acceptable. I am glad now to +be able to announce that terms satisfactory to this Government have been +agreed upon and that an agreement as to the arbitrators is all that is +necessary to the completion of the convention. In view of the advanced +position which this Government has taken upon the subject of international +arbitration, this renewed expression of our adherence to this method for +the settlement of disputes such as have arisen in the Bering Sea will, I +doubt not, meet with the concurrence of Congress. + +Provision should be made for a joint demarcation of the frontier line +between Canada and the United States wherever required by the increasing +border settlements, and especially for the exact location of the water +boundary in the straits and rivers. + +I should have been glad to announce some favorable disposition of the +boundary dispute between Great Britain and Venezuela touching the western +frontier of British Guiana, but the friendly efforts of the United States +in that direction have thus far been unavailing. This Government will +continue to express its concern at any appearance of foreign encroachment +on territories long under the administrative control of American States. +The determination of a disputed boundary is easily attainable by amicable +arbitration where the rights of the respective parties rest, as here, on +historic facts readily ascertainable. + +The law of the last Congress providing a system of inspection for our meats +intended for export, and clothing the President with power to exclude +foreign products from our market in case the country sending them should +perpetuate unjust discriminations against any product of the United States, +placed this Government in a position to effectively urge the removal of +such discriminations against our meats. It is gratifying to be able to +state that Germany, Denmark, Italy, Austria, and France, in the order +named, have opened their ports to inspected American pork products. The +removal of these restrictions in every instance was asked for and given +solely upon the ground that we have now provided a meat inspection that +should be accepted as adequate to the complete removal of the dangers, real +or fancied, which had been previously urged. The State Department, our +ministers abroad, and the Secretary of Agriculture have cooperated with +unflagging and intelligent zeal for the accomplishment of this great +result. The outlines of an agreement have been reached with Germany looking +to equitable trade concessions in consideration of the continued free +importation of her sugars, but the time has not yet arrived when this +correspondence can be submitted to Congress. + +The recent political disturbances in the Republic of Brazil have excited +regret and solicitude. The information we possessed was too meager to +enable us to form a satisfactory judgment of the causes leading to the +temporary assumption of supreme power by President Fonseca; but this +Government did not fail to express to him its anxious solicitude for the +peace of Brazil and for the maintenance of the free political institutions +which had recently been established there, nor to offer our advice that +great moderation should be observed in the clash of parties and the contest +for leadership. These counsels were received in the most friendly spirit, +and the latest information is that constitutional government has been +reestablished without bloodshed. + +The lynching at New Orleans in March last of eleven men of Italian nativity +by a mob of citizens was a most deplorable and discreditable incident. It +did not, however, have its origin in any general animosity to the Italian +people, nor in any disrespect to the Government of Italy, with which our +relations were of the most friendly character. The fury of the mob was +directed against these men as the supposed participants or accessories in +the murder of a city officer. I do not allude to this as mitigating in any +degree this offense against law and humanity, but only as affecting the +international questions which grew out of it. It was at once represented by +the Italian minister that several of those whose lives had been taken by +the mob were Italian subjects, and a demand was made for the punishment of +the participants and for an indemnity to the families of those who were +killed. It is to be regretted that the manner in which these claims were +presented was not such as to promote a calm discussion of the questions +involved; but this may well be attributed to the excitement and indignation +which the crime naturally evoked. The views of this Government as to its +obligations to foreigners domiciled here were fully stated in the +correspondence, as well as its purpose to make an investigation of the +affair with a view to determine whether there were present any +circumstances that could under such rules of duty as we had indicated +create an obligation upon the United States. The temporary absence of a +minister plenipotentiary of Italy at this capital has retarded the further +correspondence, but it is not doubted that a friendly conclusion is +attainable. + +Some suggestions growing out of this unhappy incident are worthy the +attention of Congress. It would, I believe, be entirely competent for +Congress to make offenses against the treaty rights of foreigners domiciled +in the United States cognizable in the Federal courts. This has not, +however, been done, and the Federal officers and courts have no power in +such cases to intervene, either for the protection of a foreign citizen or +for the punishment of his slayers. It seems to me to follow, in this state +of the law, that the officers of the State charged with police and judicial +powers in such cases must in the consideration of international questions +growing out of such incidents be regarded in such sense as Federal agents +as to make this Government answerable for their acts in cases where it +would be answerable if the United States had used its constitutional power +to define and punish crime against treaty rights. + +The civil war in Chile, which began in January last, was continued, but +fortunately with infrequent and not important armed collisions, until +August 28, when the Congressional forces landed near Valparaiso and after a +bloody engagement captured that city. President Balmaceda at once +recognized that his cause was lost, and a Provisional Government was +speedily established by the victorious party. Our minister was promptly +directed to recognize and put himself in communication with this Government +so soon as it should have established its de facto character, which was +done. During the pendency of this civil contest frequent indirect appeals +were made to this Government to extend belligerent rights to the insurgents +and to give audience to their representatives. This was declined, and that +policy was pursued throughout which this Government when wrenched by civil +war so strenuously insisted upon on the part of European nations. The +Itata, an armed vessel commanded by a naval officer of the insurgent fleet, +manned by its sailors and with soldiers on board, was seized under process +of the United States court at San Diego, Cal., for a violation of our +neutrality laws. While in the custody of an officer of the court the vessel +was forcibly wrested from his control and put to sea. It would have been +inconsistent with the dignity and self-respect of this Government not to +have insisted that the Itala should be returned to San Diego to abide the +judgment of the court. This was so clear to the junta of the Congressional +party, established at Iquique, that before the arrival of the Itata at that +port the secretary of foreign relations of the Provisional Government +addressed to Rear-Admiral Brown, commanding the United States naval forces, +a communication, from which the following is an extract: The Provisional +Government has learned by the cablegrams of the Associated Press that the +transport Itata, detained in San Diego by order of the United States for +taking on board munitions of war, and in possession of the marshal, left +the port, carrying on board this official, who was landed at a point near +the coast, and then continued her voyage. If this news be correct this +Government would deplore the conduct of the Itata, and as an evidence that +it is not disposed to support or agree to the infraction of the laws of the +United States the undersigned takes advantage of the personal relations you +have been good enough to maintain with him since your arrival in this port +to declare to you that as soon as she is within reach of our orders his +Government will put the Itata, with the arms and munitions she took on +board in Sail Diego, at the disposition of the United States. A trial in +the district court of the United States for the southern district of +California has recently resulted in a decision holding, among other things, +that inasmuch as the Congressional party had not been recognized as a +belligerent the acts done in its interest could not be a violation of our +neutrality laws. From this judgment the United States has appealed, not +that the condemnation of the vessel is a matter of importance, but that we +may know what the present state of our law is; for if this construction of +the statute is correct there is obvious necessity for revision and +amendment. + +During the progress of the war in Chile this Government tendered its good +offices to bring about a peaceful adjustment, and it was at one time hoped +that a good result might be reached; but in this we were disappointed. + +The instructions to our naval officers and to our minister at Santiago from +the first to the last of this struggle enjoined upon them the most +impartial treatment and absolute noninterference. I am satisfied that these +instructions were observed and that our representatives were always +watchful to use their influence impartially in the interest of humanity, +and on more than one occasion did so effectively. We could not forget, +however, that this Government was in diplomatic relations with the then +established Government of Chile, as it is now in such relations with the +successor of that Government. I am quite sure that President Montt, who +has, under circumstances of promise for the peace of Chile, been installed +as President of that Republic, will not desire that in the unfortunate +event of any revolt against his authority the policy of this Government +should be other than that which we have recently observed. No official +complaint of the conduct of our minister or of our naval officers during +the struggle has been presented to this Government, and it is a matter of +regret that so many of our own people should have given ear to unofficial +charges and complaints that manifestly had their origin in rival interests +and in a wish to pervert the relations of the United States with Chile. + +The collapse of the Government of Balmaceda brought about a condition which +is unfortunately too familiar in the history of the Central and South +American States. With the overthrow of the Balmaceda Government he and many +of his councilors and officers became at once fugitives for their lives and +appealed to the commanding officers of the foreign naval vessels in the +harbor of Valparaiso and to the resident foreign ministers at Santiago for +asylum. This asylum was freely given, according to my information, by the +naval vessels of several foreign powers and by several of the legations at +Santiago. The American minister as well as his colleagues, acting upon the +impulse of humanity, extended asylum to political refugees whose lives were +in peril. I have not been willing to direct the surrender of such of these +persons as are still in the American legation without suitable conditions. + +It is believed that the Government of Chile is not in a position, in view +of the precedents with which it has been connected, to broadly deny the +right of asylum, and the correspondence has not thus far presented any such +denial. The treatment of our minister for a time was such as to call for a +decided protest, and it was very gratifying to observe that unfriendly +measures, which were undoubtedly the result of the prevailing excitement, +were at once rescinded or suitably relaxed. + +On the 16th of October an event occurred in Valparaiso so serious and +tragic in its circumstances and results as to very justly excite the +indignation of our people and to call for prompt and decided action on the +part of this Government. A considerable number of the sailors of the United +States steamship Baltimore, then in the harbor at Valparaiso, being upon +shore leave and unarmed, were assaulted by armed men nearly simultaneously +in different localities in the city. One petty officer was killed outright +and seven or eight seamen were seriously wounded, one of whom has since +died. So savage and brutal was the assault that several of our sailors +received more than two and one as many as eighteen stab wounds. An +investigation of the affair was promptly made by a board of officers of the +Baltimore, and their report shows that these assaults were unprovoked, that +our men were conducting themselves in a peaceable and orderly manner, and +that some of the police of the city took part in the assault and used their +weapons with fatal effect, while a few others, with some well-disposed +citizens, endeavored to protect our men. Thirty-six of our sailors were +arrested, and some of them while being taken to prison were cruelly beaten +and maltreated. The fact that they were all discharged, no criminal charge +being lodged against any one of them, shows very clearly that they were +innocent of any breach of the peace. + +So far as I have yet been able to learn no other explanation of this bloody +work has been suggested than that it had its origin in hostility to those +men as sailors of the United States, wearing the uniform of their +Government, and not in any individual act or personal animosity. The +attention of the Chilean Government was at once called to this affair, and +a statement of the facts obtained by the investigation we had conducted was +submitted, accompanied by a request to be advised of any other or +qualifying facts in the possession of the Chilean Government that might +tend to relieve this affair of the appearance of an insult to this +Government. The Chilean Government was also advised that if such qualifying +facts did not exist this Government would confidently expect full and +prompt reparation. + +It is to be regretted that the reply of the secretary for foreign affairs +of the Provisional Government was couched in an offensive tone. To this no +response has been made. This Government is now awaiting the result of an +investigation which has been conducted by the criminal court at Valparaiso. +It is reported unofficially that the investigation is about completed, and +it is expected that the result will soon be communicated to this +Government, together with some adequate and satisfactory response to the +note by which the attention of Chile was called to this incident. If these +just expectations should be disappointed or further needless delay +intervene, I will by a special message bring this matter again to the +attention of Congress for such action as may be necessary. The entire +correspondence with the Government of Chile will at an early day be +submitted to Congress. + +I renew the recommendation of my special message dated January 16, 1890, +for the adoption of the necessary legislation to enable this Government to +apply in the case of Sweden and Norway the same rule in respect to the +levying of tonnage dues as was claimed and secured to the shipping of the +United States in 1828 under Article VIII of the treaty of 1827. + +The adjournment of the Senate without action on the pending acts for the +suppression of the slave traffic in Africa and for the reform of the +revenue tariff of the Independent State of the Kongo left this Government +unable to exchange those acts on the date fixed, July 2, 1891. A modus +vivendi has been concluded by which the power of the Kongo State to levy +duties on imports is left unimpaired, and by agreement of all the +signatories to the general slave-trade act the time for the exchange of +ratifications on the part of the United States has been extended to +February 2, 1892. + +The late outbreak against foreigners in various parts of the Chinese Empire +has been a cause of deep concern in view of the numerous establishments of +our citizens in the interior of that country. This Government can do no +less than insist upon a continuance of the protective and punitory measures +which the Chinese Government has heretofore applied. No effort will be +omitted to protect our citizens peaceably sojourning in China, but recent +unofficial information indicates that what was at first regarded as an +outbreak of mob violence against foreigners has assumed the larger form of +an insurrection against public order. + +The Chinese Government has declined to receive Mr. Blair as the minister of +the United States on the ground that as a participant while a Senator in +the enactment of the existing legislation against the introduction of +Chinese laborers he has become unfriendly and objectionable to China. I +have felt constrained to point out to the Chinese Government the +untenableness of this position, which seems to rest as much on the +unacceptability of our legislation as on that of the person chosen, and +which if admitted would practically debar the selection of any +representative so long as the existing laws remain in force. + +You will be called upon to consider the expediency of making special +provision by law for the temporary admission of some Chinese artisans and +laborers in connection with the exhibit of Chinese industries at the +approaching Columbian Exposition. I regard it as desirable that the Chinese +exhibit be facilitated in every proper way. + +A question has arisen with the Government of Spain touching the rights of +American citizens in the Caroline Islands. Our citizens there long prior to +the confirmation of Spain's claim to the islands had secured by settlement +and purchase certain rights to the recognition and maintenance of which the +faith of Spain was pledged. I have had reason within the past year very +strongly to protest against the failure to carry out this pledge on the +part of His Majesty's ministers, which has resulted in great injustice and +injury to the American residents. + +The Government and people of Spain propose to celebrate the four hundredth +anniversary of the discovery of America by holding an exposition at Madrid, +which will open on the 12th of September and continue until the 31st of +December, 1892. A cordial invitation has been extended to the United States +to take part in this commemoration, and as Spain was one of the first +nations to express the intention to participate in the World's Columbian +Exposition at Chicago, it would be very appropriate for this Government to +give this invitation its friendly promotion. + +Surveys for the connecting links of the projected intercontinental railway +are in progress, not only in Mexico, but at various points along the course +mapped out. Three surveying parties are now in the field under the +direction of the commission. Nearly 1,000 miles of the proposed road have +been surveyed, including the most difficult part, that through Ecuador and +the southern part of Colombia. The reports of the engineers are very +satisfactory, and show that no insurmountable obstacles have been met +with. + +On November 12, 1884, a treaty was concluded with Mexico reaffirming the +boundary between the two countries as described in the treaties of February +2, 1848, and December 30, 1853. March 1, 1889, a further treaty was +negotiated to facilitate the carrying out of the principles of the treaty +of 1884 and to avoid the difficulties occasioned by reason of the changes +and alterations that take place from natural causes in the Rio Grande and +Colorado rivers in the portions thereof constituting the boundary line +between the two Republics. The International Boundary Commission provided +for by the treaty of 1889 to have exclusive jurisdiction of any question +that may arise has been named by the Mexican Government. An appropriation +is necessary to enable the United States to fulfill its treaty obligations +in this respect. + +The death of King Kalakaua in the United States afforded occasion to +testify our friendship for Hawaii by conveying the King's body to his own +land in a naval vessel with all due honors. The Government of his +successor, Queen Liliuokolani is seeking to promote closer commercial +relations with the United States. Surveys for the much-needed submarine +cable from our Pacific coast to Honolulu are in progress, and this +enterprise should have the suitable promotion of the two Governments. I +strongly recommend that provision be made for improving the harbor of Pearl +River and equipping it as a naval station. + +The arbitration treaty formulated by the International American Conference +lapsed by reason of the failure to exchange ratifications fully within the +limit of time provided; but several of the Governments concerned have +expressed a desire to save this important result of the conference by an +extension of the period. It is, in my judgment, incumbent upon the United +States to conserve the influential initiative it has taken in this measure +by ratifying the instrument and by advocating the proposed extension of the +time for exchange. These views have been made known to the other +signatories. + +This Government has found occasion to express in a friendly spirit, but +with much earnestness, to the Government of the Czar its serious concern +because of the harsh measures now being enforced against the Hebrews in +Russia. By the revival of antisemitic laws, long in abeyance, great numbers +of those unfortunate people have been constrained to abandon their homes +and leave the Empire by reason of the impossibility of finding subsistence +within the pale to which it is sought to confine them. The immigration of +these people to the United States--many other countries being closed to +them--is largely increasing and is likely to assume proportions which may +make it difficult to find homes and employment for them here and to +seriously affect the labor market. is estimated that over 1,000,000 will be +forced from Russia within a few years. The Hebrew is never a beggar; he has +always kept the law--life by toil--often under severe and oppressive civil +restrictions. It is also true that no race, sect, or class has more fully +cared for its own than the Hebrew race. But the sudden transfer of such a +multitude under conditions that tend to strip them of their small +accumulations and to depress their energies and courage is neither good for +them nor for us. + +The banishment, whether by direct decree or by not less certain indirect +methods, of so large a number of men and women is not a local question. A +decree to leave one country is in the nature of things an order to enter +another--some other. This consideration, as well as the suggestion of +humanity, furnishes ample ground for the remonstrances which we have +presented to Russia, while our historic friendship for that Government can +not fail to give the assurance that our representations are those of a +sincere wellwisher. + +The annual report of the Maritime Canal Company of Nicaragua shows that +much costly and necessary preparatory work has been done during the year in +the construction of shops, railroad tracks, and harbor piers and +breakwaters, and that the work of canal construction has made some +progress. + +I deem it to be a matter of the highest concern to the United States that +this canal, connecting the waters of the Atlantic and Pacific oceans and +giving to us a short water communication between our ports upon those two +great seas, should be speedily constructed and at the smallest practicable +limit of cost. The gain in freights to the people and the direct saving to +the Government of the United States in the use of its naval vessels would +pay the entire cost of this work within a short series of years. The report +of the Secretary of the Navy shows the saving in our naval expenditures +which would result. + +The Senator from Alabama (Mr. Morgan) in his argument upon this subject +before the Senate at the last session did not overestimate the importance +of this work when he said that "the canal is the most important subject now +connected with the commercial growth and progress of the United States." + +If this work is to be promoted by the usual financial methods and without +the aid of this Government, the expenditures in its interest-bearing +securities and stock will probably be twice the actual cost. This will +necessitate higher tolls and constitute a heavy and altogether needless +burden upon our commerce and that of the world. Every dollar of the bonds +and stock of the company should represent a dollar expended in the +legitimate and economical prosecution of the work. This is only possible by +giving to the bonds the guaranty of the United States Government. Such a +guaranty would secure the ready sale at par of a 3 per cent bond from time +to time as the money was needed. I do not doubt that built upon these +business methods the canal would when fully inaugurated earn its fixed +charges and operating expenses. But if its bonds are to be marketed at +heavy discounts and every bond sold is to be accompanied by a gift of +stock, as has come to be expected by investors in such enterprises, the +traffic will be seriously burdened to pay interest and dividends. I am +quite willing to recommend Government promotion in the prosecution of a +work which, if no other means offered for securing its completion, is of +such transcendent interest that the Government should, in my opinion, +secure it by direct appropriations from its Treasury. + +A guaranty of the bonds of the canal company to an amount necessary to the +completion of the canal could, I think, be so given as not to involve any +serious risk of ultimate loss. The things to be carefully guarded are the +completion of the work within the limits of the guaranty, the subrogation +of the United States to the rights of the first-mortgage bondholders for +any amounts it may have to pay, and in the meantime a control of the stock +of the company as a security against mismanagement and loss. I most +sincerely hope that neither party nor sectional lines will be drawn upon +this great American project, so full of interest to the people of all our +States and so influential in its effects upon the prestige and prosperity +of our common country. + +The island of Navassa, in the West Indian group, has, under the provisions +of Title VII of the Revised Statutes, been recognized by the President as +appertaining to the United States. It contains guano deposits, is owned by +the Navassa Phosphate Company, and is occupied solely its employees. In +September, 1889, a revolt took place among these laborers, resulting in the +killing of some of the agents of the company, caused, as the laborers +claimed, by cruel treatment. These men were arrested and tried in the +United States court at Baltimore, under section 5576 of the statute +referred to, as if the offenses had been committed on board a merchant +vessel of the United States on the high seas. There appeared on the trial +and otherwise came to me such evidences of the bad treatment of the men +that in consideration of this and of the fact that the men had no access to +any public officer or tribunal for protection or the redress of their +wrongs I commuted the death sentences that had been passed by the court +upon three of them. In April last my attention was again called to this +island and to the unregulated condition of things there by a letter from a +colored laborer, who complained that he was wrongfully detained upon the +island by the phosphate company after the expiration of his contract of +service. A naval vessel was sent to examine into the case of this man and +generally into the condition of things on the island. It was found that the +laborer referred to had been detained beyond the contract limit and that a +condition of revolt again existed among the laborers. A board of naval +officers reported, among other things, as follows: We would desire to state +further that the discipline maintained on the island seems to be that of a +convict establishment without its comforts and cleanliness, and that until +more attention is paid to the shipping of laborers by placing it under +Government supervision to prevent misunderstanding and misrepresentation, +and until some amelioration is shown in the treatment of the laborers, +these disorders will be of constant occurrence. I recommend legislation +that shall place labor contracts upon this and other islands having the +relation that Navassa has to the United States under the supervision of a +court commissioner, and that shall provide at the expense of the owners an +officer to reside upon the island, with power to judge and adjust disputes +and to enforce a just and humane treatment of the employees. It is +inexcusable that American laborers should be left within our own +jurisdiction without access to any Government officer or tribunal for their +protection and the redress of their wrongs. + +International copyright has been secured, in accordance with the conditions +of the act of March 3, 1891, with Belgium, France, Great Britain and the +British possessions, and Switzerland, the laws of those countries +permitting to our citizens the benefit of copyright on substantially the +same basis as to their own citizens or subjects. + +With Germany a special convention has been negotiated upon this subject +which will bring that country within the reciprocal benefits of our +legislation. + +The general interest in the operations of the Treasury Department has been +much augmented during the last year by reason of the conflicting +predictions, which accompanied and followed the tariff and other +legislation of the last Congress affecting the revenues, as to the results +of this legislation upon the Treasury and upon the country. On the one hand +it was contended that imports would so fall off as to leave the Treasury +bankrupt and that the prices of articles entering into the living of the +people would be so enhanced as to disastrously affect their comfort and +happiness, while on the other it was argued that the loss to the revenue, +largely the result of placing sugar on the free list, would be a direct +gain to the people; that the prices of the necessaries of life, including +those most highly protected, would not be enhanced; that labor would have a +larger market and the products of the farm advanced prices, while the +Treasury surplus and receipts would be adequate to meet the appropriations, +including the large exceptional expenditures for the refunding to the +States of the direct tax and the redemption of the 4 1/2 per cent bonds. + +It is not my purpose to enter at any length into a discussion of the +effects of the legislation to which I have referred; but a brief +examination of the statistics of the Treasury and a general glance at the +state of business throughout the country will, I think, satisfy any +impartial inquirer that its results have disappointed the evil prophecies +of its opponents and in a large measure realized the hopeful predictions of +its friends. Rarely, if ever before, in the history of the country has +there been a time when the proceeds of one day' s labor or the product of +one farmed acre would purchase so large an amount of those things that +enter into the living of the masses of the people. I believe that a full +test will develop the fact that the tariff act of the Fifty-first Congress +is very favorable in its average effect upon the prices of articles +entering into common use. + +During the twelve months from October 1, 1890, to September 30, 1891, the +total value of our foreign commerce (imports and exports combined) was +$1,747,806,406, which was the largest of any year in the history of the +United States. The largest in any previous year was in 1890, when our +commerce amounted to $1,647,139,093, and the last year exceeds this +enormous aggregate by over one hundred millions. It is interesting, and to +some will be surprising, to know that during the year ending September 30, +1891, our imports of merchandise amounted to $824,715,270, which was an +increase of more than $11,000,000 over the value of the imports of the +corresponding months of the preceding year, when the imports of merchandise +were unusually large in anticipation of the tariff legislation then +pending. The average annual value of the imports of merchandise for the ten +years from 1881 to 1890 was $692,186,522, and during the year ending +September 30, 1891, this annual average was exceeded by $132,528,469. + +The value of free imports during the twelve months ending September 30, +1891, was $118,092,387 more than the value of free imports during the +corresponding twelve months of the preceding year, and there was during the +same period a decrease of $106,846,508 in the value of imports of dutiable +merchandise. The percentage of merchandise admitted free of duty during the +year to which I have referred, the first under the new tariff, was 48.18, +while during the preceding twelve months, under the old tariff, the +percentage was 34.27, an increase of 13.91 per cent. If we take the six +months ending September 30 last, which covers the time during which sugars +have been admitted free of duty, the per cent of value of merchandise +imported free of duty is found to be 55.37, which is a larger percentage of +free imports than during any prior fiscal year in the history of the +Government. + +If we turn to exports of merchandise, the statistics are full of +gratification. The value of such exports of merchandise for the twelve +months ending September 30, 1891, was $923,091,136, while for the +corresponding previous twelve months it was $860,177,115, an increase of +$62,914,021, which is nearly three times the average annual increase of +exports of merchandise for the preceding twenty years. This exceeds in +amount and value the exports of merchandise during any year in the history +of the Government. The increase in the value of exports of agricultural +products during the year referred to over the corresponding twelve months +of the prior year was $45,846,197, while the increase in the value of +exports of manufactured products was $16,838,240. + +There is certainly nothing in the condition of trade, foreign or domestic, +there is certainly nothing in the condition of our people of any class, to +suggest that the existing tariff and revenue legislation bears oppressively +upon the people or retards the commercial development of the nation. It may +be argued that our condition would be better if tariff legislation were +upon a free-trade basis; but it can not be denied that all the conditions +of prosperity and of general contentment are present in a larger degree +than ever before in our history, and that, too, just when it was prophesied +they would be in the worst state. Agitation for radical changes in tariff +and financial legislation can not help but may seriously impede business, +to the prosperity of which some degree of stability in legislation is +essential. + +I think there are conclusive evidences that the new tariff has created +several great industries, which will within a few years give employment to +several hundred thousand American working men and women. In view of the +somewhat overcrowded condition of the labor market of the United States, +every patriotic citizen should rejoice at such a result. + +The report of the Secretary of the Treasury shows that the total receipts +of the Government from all sources for the fiscal year ending June 30, +1891, were $458,544,233.03, while the expenditures for the same period were +$421,304,470.46, leaving a surplus of $37,239,762.57. + +The receipts of the fiscal year ending June 30, 1892, actual and estimated, +are $433,000,000 and the expenditures $409,000,000. For the fiscal year +ending June 30, 1893, the estimated receipts are $455,336,350 and the +expenditures $441,300,093. + +Under the law of July 14, 1890, the Secretary of the Treasury has purchased +(since August 13) during the fiscal year 48,393,113 ounces of silver +bullion at an average cost of $1.045 per ounce. The highest price paid +during the year was $1.2025 and the lowest $0.9636. In exchange for this +silver bullion there have been issued $50,577,498 of the Treasury notes +authorized by the act. The lowest price of silver reached during the fiscal +year was $0.9636 on April 22, 1891; but on November 1 the market price was +only $0.96, which would give to the silver dollar a bullion value of 74 1/4 +cents. + +Before the influence of the prospective silver legislation was felt in the +market silver was worth in New York about $0.955 per ounce. The ablest +advocates of free coinage in the last Congress were most confident in their +predictions that the purchases by the Government required by the law would +at once bring the price of silver to $1.2929 per ounce, which would make +the bullion value of a dollar 100 cents and hold it there. The prophecies +of the antisilver men of disasters to result from the coinage of $2,000,000 +per month were not wider of the mark. The friends of free silver are not +agreed, I think, as to the causes that brought their hopeful predictions to +naught. Some facts are known. The exports of silver from London to India +during the first nine months of this calendar year fell off over 50 per +cent, or $17,202,730, compared with the same months of the preceding year. +The exports of domestic silver bullion from this country, which had +averaged for the last ten years over $17,000,000, fell in the last fiscal +year to $13,797,391, while for the first time in recent years the imports +of silver into this country exceeded the exports by the sum of $2,745,365. +In the previous year the net exports of silver from the United States +amounted to $8,545,455. The production of the United States increased from +50,000,000 ounces in 1889 to 54,500,000 in 1890. The Government is now +buying and putting aside annually 54,000,000 ounces, which, allowing for +7,140,000 ounces of new bullion used in the arts, is 6,640,000 more than +our domestic products available for coinage. + +I hope the depression in the price of silver is temporary and that a +further trial of this legislation will more favorably affect it. That the +increased volume of currency thus supplied for the use of the people was +needed and that beneficial results upon trade and prices have followed this +legislation I think must be very clear to everyone. Nor should it be +forgotten that for every dollar of these notes issued a full dollar's worth +of silver bullion is at the time deposited in the Treasury as a security +for its redemption. Upon this subject, as upon the tariff, my +recommendation is that the existing laws be given a full trial and that our +business interests be spared the distressing influence which threats of +radical changes always impart. Under existing legislation it is in the +power of the Treasury Department to maintain that essential condition of +national finance as well as of commercial prosperity--the parity in use of +the coined dollars and their paper representatives. The assurance that +these powers would be freely and unhesitatingly used has done much to +produce and sustain the present favorable business conditions. + +I am still of the opinion that the free coinage of silver under existing +conditions would disastrously affect our business interests at home and +abroad. We could not hope to maintain an equality in the purchasing power +of the gold and silver dollar in our own markets, and in foreign trade the +stamp gives no added value to the bullion contained in coins. The producers +of the country, its farmers and laborers, have the highest interest that +every dollar, paper or coin, issued by the Government shall be as good as +any other. If there is one less valuable than another, its sure and +constant errand will be to pay them for their toil and for their crops. The +money lender will protect himself by stipulating for payment in gold, but +the laborer has never been able to do that. To place business upon a silver +basis would mean a sudden and severe contraction of the currency by the +withdrawal of gold and gold notes and such an unsettling of all values as +would produce a commercial panic. I can not believe that a people so strong +and prosperous as ours will promote such a policy. + +The producers of silver are entitled to just consideration, but they should +not forget that the Government is now buying and putting out of the market +what is the equivalent of the entire product of our silver mines. This is +more than they themselves thought of asking two years ago. I believe it is +the earnest desire of a great majority of the people, as it is mine, that a +full coin use shall be made of silver just as soon as the cooperation of +other nations can be secured and a ratio fixed that will give circulation +equally to gold and silver. The business of the world requires the use of +both metals; but I do not see any prospect of gain, but much of loss, by +giving up the present system, in which a full use is made of gold and a +large use of silver, for one in which silver alone will circulate. Such an +event would be at once fatal to the further progress of the silver +movement. Bimetallism is the desired end, and the true friends of silver +will be careful not to overrun the goal and bring in silver monometallism +with its necessary attendants--the loss of our gold to Europe and the +relief of the pressure there for a larger currency. I have endeavored by +the use of official and unofficial agencies to keep a close observation of +the state of public sentiment in Europe upon this question and have not +found it to be such as to justify me in proposing an international +conference. There is, however, I am sure, a growing sentiment in Europe in +favor of a larger use of silver, and I know of no more effectual way of +promoting this sentiment than by accumulating gold here. A scarcity of gold +in the European reserves will be the most persuasive argument for the use +of silver. + +The exports of gold to Europe, which began in February last and continued +until the close of July, aggregated over $70,000,000. The net loss of gold +during the fiscal year was nearly $68,000,000. That no serious monetary +disturbance resulted was most gratifying and gave to Europe fresh evidence +of the strength and stability of our financial institutions. With the +movement of crops the outflow of gold was speedily stopped and a return set +in. Up to December 1 we had recovered of our gold lost at the port of New +York $27,854,000, and it is confidently believed that during the winter and +spring this aggregate will be steadily and largely increased. + +The presence of a large cash surplus in the Treasury has for many years +been the subject of much unfavorable criticism, and has furnished an +argument to those who have desired to place the tariff upon a purely +revenue basis. It was agreed by all that the withdrawal from circulation of +so large an amount of money was an embarrassment to the business of the +country and made necessary the intervention of the Department at frequent +intervals to relieve threatened monetary panics. The surplus on March 1, +1889, was $183,827,190.29. The policy of applying this surplus to the +redemption of the interest-bearing securities of the United States was +thought to be preferable to that of depositing it without interest in +selected national banks. There have been redeemed since the date last +mentioned of interest-bearing securities $259,079,350, resulting in a +reduction of the annual interest charge of $11,684,675. The money which had +been deposited in banks without interest has been gradually withdrawn and +used in the redemption of bonds. + +The result of this policy, of the silver legislation, and of the refunding +of the 4 1/2 per cent bonds has been a large increase of the money in +circulation. At the date last named the circulation was $1,404,205,896, or +$23.03 per capita, while on the 1st day of December, 1891, it had increased +to $1,577,262,070, or $24.38 per capita. The offer of the Secretary of the +Treasury to the holders of the 4 1/2 per cent bonds to extend the time of +redemption, at the option of the Government, at an interest of 2 per cent, +was accepted by the holders of about one-half the amount, and the +unextended bonds are being redeemed on presentation. + +The report of the Secretary of War exhibits the results of an intelligent, +progressive, and businesslike administration of a Department which has been +too much regarded as one of mere routine. The separation of Secretary +Proctor from the Department by reason of his appointment as a Senator from +the State of Vermont is a source of great regret to me and to his +colleagues in the Cabinet, as I am sure it will be to all those who have +had business with the Department while under his charge. + +In the administration of army affairs some especially good work has been +accomplished. The efforts of the Secretary to reduce the percentage of +desertions by removing the causes that promoted it have been so successful +as to enable him to report for the last year a lower percentage of +desertion than has been before reached in the history of the Army. The +resulting money saving is considerable, but the improvement in the morale +of the enlisted men is the most valuable incident of the reforms which have +brought about this result. + +The work of securing sites for shore batteries for harbor defense and the +manufacture of mortars and guns of high power to equip them have made good +progress during the year. The preliminary work of tests and plans which so +long delayed a start is now out of the way. Some guns have been completed, +and with an enlarged shop and a more complete equipment at Watervliet the +Army will soon be abreast of the Navy in gun construction. Whatever +unavoidable causes of delay may arise, there should be none from delayed or +insufficient appropriations. We shall be greatly embarrassed in the proper +distribution and use of naval vessels until adequate shore defenses are +provided for our harbors. + +I concur in the recommendation of the Secretary that the three-battalion +organization be adopted for the infantry. The adoption of a smokeless +powder and of a modern rifle equal in range, precision, and rapidity of +fire to the best now in use will, I hope, not be longer delayed. + +The project of enlisting Indians and organizing them into separate +companies upon the same basis as other soldiers was made the subject of +very careful study by the Secretary and received my approval. Seven +companies have been completely organized and seven more are in process of +organization. The results of six months' training have more than realized +the highest anticipations. The men are readily brought under discipline, +acquire the drill with facility, and show great pride in the right +discharge of their duty and perfect loyalty to their officers, who declare +that they would take them into action with confidence. The discipline, +order, and cleanliness of the military posts will have a wholesome and +elevating influence upon the men enlisted, and through them upon their +tribes, while a friendly feeling for the whites and a greater respect for +the Government will certainly be promoted. + +The great work done in the Record and Pension Division of the War +Department by Major Ainsworth, of the Medical Corps, and the clerks under +him is entitled to honorable mention. Taking up the work with nearly 41,000 +cases behind, he closed the last fiscal year without a single case left +over, though the new cases had increased 52 per cent in number over the +previous year by reason of the pension legislation of the last Congress. + +I concur in the recommendation of the Attorney-General that the right in +felony cases to a review by the Supreme court be limited. It would seem +that personal liberty would have a safe guaranty if the right of review in +cases involving only fine and imprisonment were limited to the circuit +court of appeals, unless a constitutional question should in some way be +involved. + +The judges of the Court of Private Land Claims, provided for by the act of +March 3, 1891, have been appointed and the court organized. It is now +possible to give early relief to communities long repressed in their +development by unsettled land titles and to establish the possession and +right of settlers whose lands have been rendered valueless by adverse and +unfounded claims. + +The act of July 9, 1888, provided for the incorporation and management of a +reform school for girls in the District of Columbia; but it has remained +inoperative for the reason that no appropriation has been made for +construction or maintenance. The need of such an institution is very +urgent. Many girls could be saved from depraved lives by the wholesome +influences and restraints of such a school. I recommend that the necessary +appropriation be made for a site and for construction. + +The enforcement by the Treasury Department of the law prohibiting the +coming of Chinese to the United States has been effective as to such as +seek to land from vessels entering our ports. The result has been to divert +the travel to vessels entering the ports of British Columbia, whence +passage into the United States at obscure points along the Dominion +boundary is easy. A very considerable number of Chinese laborers have +during the past year entered the United States from Canada and Mexico. + +The officers of the Treasury Department and of the Department of Justice +have used every means at their command to intercept this immigration; but +the impossibility of perfectly guarding our extended frontier is apparent. +The Dominion government collects a head tax of $50 from every Chinaman +entering Canada, and thus derives a considerable revenue from those who +only use its ports to reach a position of advantage to evade our exclusion +laws. There seems to be satisfactory evidence that the business of passing +Chinamen through Canada to the United States is organized and quite active. +The Department of Justice has construed the laws to require the return of +any Chinaman found to be unlawfully in this country to China as the country +from which he came, notwithstanding the fact that he came by way of Canada; +but several of the district courts have in cases brought before them +overruled this view of the law and decided that such persons must be +returned to Canada. This construction robs the law of all effectiveness, +even if the decrees could be executed, for the men returned can the next +day recross our border. But the only appropriation made is for sending them +back to China, and the Canadian officials refuse to allow them to reenter +Canada without the payment of the fifty-dollar head tax. I recommend such +legislation as will remedy these defects in the law. + +In previous messages I have called the attention of Congress to the +necessity of so extending the jurisdiction of the United States courts as +to make triable therein any felony committed while in the act of violating +a law of the United States. These courts can not have that independence and +effectiveness which the Constitution contemplates so long as the felonious +killing of court officers, jurors, and witnesses in the discharge of their +duties or by reason of their acts as such is only cognizable in the State +courts. The work done by the Attorney-General and the officers of his +Department, even under the present inadequate legislation, has produced +some notable results in the interest of law and order. + +The Attorney-General and also the Commissioners of the District of Columbia +call attention to the defectiveness and inadequacy of the laws relating to +crimes against chastity in the District of Columbia. A stringent code upon +this subject has been provided by Congress for Utah, and it is a matter of +surprise that the needs of this District should have been so long +overlooked. + +In the report of the Postmaster-General some very gratifying results are +exhibited and many betterments of the service suggested. A perusal of the +report gives abundant evidence that the supervision and direction of the +postal system have been characterized by an intelligent and conscientious +desire to improve the service. The revenues of the Department show an +increase of over $5,000,000, with a deficiency for the year 1892 of less +than $4,000,000, while the estimate for the year 1893 shows a surplus of +receipts over expenditures. + +Ocean mail post-offices have been established upon the steamers of the +North German Lloyd and Hamburg lines, saving by the distribution on +shipboard from two to fourteen hours' time in the delivery of mail at the +port of entry and often much more than this in the delivery at interior +places. So thoroughly has this system, initiated by Germany and the United +States, evidenced its usefulness that it can not be long before it is +installed upon all the great ocean mail-carrying steamships. + +Eight thousand miles of new postal service has been established upon +railroads, the car distribution to substations in the great cities has been +increased about 12 per cent, while the percentage of errors in distribution +has during the past year been reduced over one-half. An appropriation was +given by the last Congress for the purpose of making some experiments in +free delivery in the smaller cities and towns. The results of these +experiments have been so satisfactory that the Postmaster-General +recommends, and I concur in the recommendation, that the free-delivery +system be at once extended to towns of 5,000 population. His discussion of +the inadequate facilities extended under our present system to rural +communities and his suggestions with a view to give these communities a +fuller participation in the benefits of the postal service are worthy of +your careful consideration. It is not just that the farmer, who receives +his mail at a neighboring town, should not only be compelled to send to the +post-office for it, but to pay a considerable rent for a box in which to +place it or to wait his turn at a general-delivery window, while the city +resident has his mail brought to his door. It is stated that over 54,000 +neighborhoods are under the present system receiving mail at post-offices +where money orders and postal notes are not issued. The extension of this +system to these communities is especially desirable, as the patrons of such +offices are not possessed of the other facilities offered in more populous +communities for the transmission of small sums of money. + +I have in a message to the preceding Congress expressed my views as to a +modified use of the telegraph in connection with the postal service. In +pursuance of the ocean mail law of March 3, 1891, and after a most careful +study of the whole subject and frequent conferences with ship-owners, +boards of trade, and others, advertisements were issued by the +postmaster-General for 53 lines of ocean mail service--10 to Great Britain +and the Continent, 27 to South America, 3 to China and Japan, 4 to +Australia and the Pacific islands, 7 to the West Indies, and 2 to Mexico. +It was not, of course, expected that bids for all these lines would be +received or that service upon them all would be contracted for. It was +intended, in furtherance of the act, to secure as many new lines as +possible, while including in the list most or all of the foreign lines now +occupied by American ships. It was hoped that a line to England and perhaps +one to the Continent would be secured; but the outlay required to equip +such lines wholly with new ships of the first class and the difficulty of +establishing new lines in competition with those already established +deterred bidders whose interest had been enlisted. It is hoped that a way +may yet be found of overcoming these difficulties. + +The Brazil Steamship Company, by reason of a miscalculation as to the speed +of its vessels, was not able to bid under the terms of the advertisement. +The policy of the Department was to secure from the established lines an +improved service as a condition of giving to them the benefits of the law. +This in all instances has been attained. The Postmaster-General estimates +that an expenditure in American shipyards of about $10,000,000 will be +necessary to enable the bidders to construct the ships called for by the +service which they have accepted. I do not think there is any reason for +discouragement or for any turning back from the policy of this legislation. +Indeed, a good beginning has been made, and as the subject is further +considered and understood by capitalists and shipping people new lines will +be ready to meet future proposals, and we may date from the passage of this +law the revival of American shipping interests and the recovery of a fair +share of the carrying trade of the world. We were receiving for foreign +postage nearly $2,000,000 under the old system, and the outlay for ocean +mail service did not exceed $600,000 per annum. It is estimated by the +Postmaster-General that if all the contracts proposed are completed it will +require $247,354 for this year in addition to the appropriation for sea and +inland postage already in the estimates, and that for the next fiscal year, +ending June 30, 1893, there would probably be needed about $560,000. + +The report of the Secretary of the Navy shows a gratifying increase of new +naval vessels in commission. The Newark, Concord, Bennington, and +Miantonomoh have been added during the year, with an aggregate of something +more than 11,000 tons. Twenty-four warships of all classes are now under +construction in the navy-yards and private shops; but while the work upon +them is going forward satisfactorily, the completion of the more important +vessels will yet require about a year' s time. Some of the vessels now +under construction, it is believed, will be triumphs of naval engineering. +When it is recollected that the work of building a modern navy was only +initiated in the year 1883, that our naval constructors and shipbuilders +were practically without experience in the construction of large iron or +steel ships, that our engine shops were unfamiliar with great marine +engines, and that the manufacture of steel forgings for guns and plates was +almost wholly a foreign industry, the progress that has been made is not +only highly satisfactory, but furnishes the assurance that the United +States will before long attain in the construction of such vessels, with +their engines and armaments, the same preeminence which it attained when +the best instrument of ocean commerce was the clipper ship and the most +impressive exhibit of naval power the old wooden three-decker man-of-war. +The officers of the Navy and the proprietors and engineers of our great +private shops have responded with wonderful intelligence and professional +zeal to the confidence expressed by Congress in its liberal legislation. We +have now at Washington a gun shop, organized and conducted by naval +officers, that in its system, economy, and product is unexcelled. +Experiments with armor plate have been conducted during the year with most +important results. It is now believed that a plate of higher resisting +power than any in use has been found and that the tests have demonstrated +that cheaper methods of manufacture than those heretofore thought necessary +can be used. + +I commend to your favorable consideration the recommendations of the +Secretary, who has, I am sure, given to them the most conscientious study. +There should be no hesitation in promptly completing a navy of the best +modern type large enough to enable this country to display its flag in all +seas for the protection of its citizens and of its extending commerce. The +world needs no assurance of the peaceful purposes of the United States, but +we shall probably be in the future more largely a competitor in the +commerce of the world, and it is essential to the dignity of this nation +and to that peaceful influence which it should exercise on this hemisphere +that its Navy should be adequate both upon the shores of the Atlantic and +of the Pacific. + +The report of the Secretary of the Interior shows that a very gratifying +progress has been made in all of the bureaus which make up that complex and +difficult Department. + +The work in the Bureau of Indian Affairs was perhaps never so large as now, +by reason of the numerous negotiations which have been proceeding with the +tribes for a reduction of the reservations, with the incident labor of +making allotments, and was never more carefully conducted. The provision of +adequate school facilities for Indian children and the locating of adult +Indians upon farms involve the solution of the "Indian question." +Everything else--rations, annuities, and tribal negotiations, with the +agents, inspectors, and commissioners who distribute and conduct them--must +pass away when the Indian has become a citizen, secure in the individual +ownership of a farm from which he derives his subsistence by his own labor, +protected by and subordinate to the laws which govern the white man, and +provided by the General Government or by the local communities in which he +lives with the means of educating his children. When an Indian becomes a +citizen in an organized State or Territory, his relation to the General +Government ceases in great measure to be that of a ward; but the General +Government ought not at once to put upon the State or Territory the burden +of the education of his children. + +It has been my thought that the Government schools and school buildings +upon the reservations would be absorbed by the school systems of the States +and Territories; but as it has been found necessary to protect the Indian +against the compulsory alienation of his land by exempting him from +taxation for a period of twenty-five years, it would seem to be right that +the General Government, certainly where there are tribal funds in its +possession, should pay to the school fund of the State what would be +equivalent to the local school tax upon the property of the Indian. It will +be noticed from the report of the Commissioner of Indian Affairs that +already some contracts have been made with district schools for the +education of Indian children. There is great advantage, I think, in +bringing the Indian children into mixed schools. This process will be +gradual, and in the meantime the present educational provisions and +arrangements, the result of the best experience of those who have been +charged with this work, should be continued. This will enable those +religious bodies that have undertaken the work of Indian education with so +much zeal and with results so restraining and beneficent to place their +institutions in new and useful relations to the Indian and to his white +neighbors. + +The outbreak among the Sioux which occurred in December last is as to its +causes and incidents fully reported upon by the War Department and the +Department of the Interior. That these Indians had some just complaints, +especially in the matter of the reduction of the appropriation for rations +and in the delays attending the enactment of laws to enable the Department +to perform the engagements entered into with them, is probably true; but +the Sioux tribes are naturally warlike and turbulent, and their warriors +were excited by their medicine men and chiefs, who preached the coming of +an Indian messiah who was to give them power to destroy their enemies. In +view of the alarm that prevailed among the white settlers near the +reservation and of the fatal consequences that would have resulted from an +Indian incursion, I placed at the disposal of General Miles, commanding the +Division of the Missouri, all such forces as were thought by him to be +required. He is entitled to the credit of having given thorough protection +to the settlers and of bringing the hostiles into subjection with the least +possible loss of life. + +The appropriation of $2,991,450 for the Choctaws and Chickasaws contained +in the general Indian appropriation bill of March 3, 1891, has not been +expended, for the reason that I have not yet approved a release (to the +Government) of the Indian claim to the lands mentioned. This matter will be +made the subject of a special message, placing before Congress all the +facts which have come to my knowledge. + +The relation of the Five Civilized Tribes now occupying the Indian +Territory to the United States is not, I believe, that best calculated to +promote the highest advancement of these Indians. That there should be +within our borders five independent states having no relations, except +those growing out of treaties, with the Government of the United States, no +representation in the National Legislature, its people not citizens, is a +startling anomaly. + +It seems to me to be inevitable that there shall be before long some +organic changes in the relation of these people to the United States. What +form these changes should take I do not think it desirable now to suggest, +even if they were well defined in my own mind. They should certainly +involve the acceptance of citizenship by the Indians and a representation +in Congress. These Indians should have opportunity to present their claims +and grievances upon the floor rather than, as now, in the lobby. If a +commission could be appointed to visit these tribes to confer with them in +a friendly spirit upon this whole subject, even if no agreement were +presently reached the feeling of the tribes upon this question would be +developed, and discussion would prepare the way for changes which must come +sooner or later. + +The good work of reducing the larger Indian reservations by allotments in +severalty to the Indians and the cession of the remaining lands to the +United States for disposition under the homestead law has been prosecuted +during the year with energy and success. In September last I was enabled to +open to settlement in the Territory of Oklahoma 900,000 acres of land, all +of which was taken up by settlers in a single day. The rush for these lands +was accompanied by a great deal of excitement, but was happily free from +incidents of violence. + +It was a source of great regret that I was not able to open at the same +time the surplus lands of the Cheyenne and Arapahoe Reservation, amounting +to about 3,000,000 acres, by reason of the insufficiency of the +appropriation for making the allotments. Deserving and impatient settlers +are waiting to occupy these lands, and I urgently recommend that a special +deficiency appropriation be promptly made of the small amount needed, so +that the allotments may be completed and the surplus lands opened in time +to permit the settlers to get upon their homesteads in the early spring. + +During the past summer the Cherokee Commission have completed arrangements +with the Wichita, Kickapoo, and Tonkawa tribes whereby, if the agreements +are ratified by Congress, over 800,000 additional acres will be opened to +settlement in Oklahoma. + +The negotiations for the release by the Cherokees of their claim to the +Cherokee Strip have made no substantial progress so far as the Department +is officially advised, but it is still hoped that the cession of this large +and valuable tract may be secured. The price which the commission was +authorized to offer--$1.25 per acre--is, in my judgment, when all the +circumstances as to title and the character of the lands are considered, a +fair and adequate one, and should have been accepted by the Indians. + +Since March 4, 1889, about 23,000,000 acres have been separated from Indian +reservations and added to the public domain for the use of those who +desired to secure free homes under our beneficent laws. It is difficult to +estimate the increase of wealth which will result from the conversion of +these waste lands into farms, but it is more difficult to estimate the +betterment which will result to the families that have found renewed hope +and courage in the ownership of a home and the assurance of a comfortable +subsistence under free and healthful conditions. It is also gratifying to +be able to feel, as we may, that this work has proceeded upon lines of +justice toward the Indian, and that he may now, if he will, secure to +himself the good influences of a settled habitation, the fruits of +industry, and the security of citizenship. + +Early in this Administration a special effort was begun to bring up the +work of the General Land Office. By faithful work the arrearages have been +rapidly reduced. At the end of the last fiscal year only 84,172 final +agricultural entries remained undisposed of, and the Commissioner reports +that with the present force the work can be fully brought up by the end of +the next fiscal year. + +Your attention is called to the difficulty presented by the Secretary of +the Interior as to the administration of the law of March 3, 1891, +establishing a Court of Private Land Claims. The small holdings intended to +be protected by the law are estimated to be more than 15,000 in number. The +claimants are a most deserving class and their titles are supported by the +strongest equities. The difficulty grows out of the fact that the lands +have largely been surveyed according to our methods, while the holdings, +many of which have been in the same family for generations, are laid out in +narrow strips a few rods wide upon a stream and running back to the hills +for pasturage and timber.. Provision should be made for numbering these +tracts as lots and for patenting them by such numbers and without reference +to section lines. + +The administration of the Pension Bureau has been characterized during the +year by great diligence. The total number of pensioners upon the roll on +the 30th day of June, 1891, was 676,160. There were allowed during the +fiscal year ending at that time 250,565 cases. Of this number 102,387 were +allowed under the law of June 27, 1890. The issuing of certificates has +been proceeding at the rate of about 30,000 per month, about 75 per cent of +these being cases under the new law. The Commissioner expresses the opinion +that he will be able to carefully adjudicate and allow 350,000 claims +during the present fiscal year. The appropriation for the payment of +pensions for the fiscal year 1890-91 was $127,685,793.89 and the amount +expended $118,530,649.25, leaving an unexpended surplus of $9,155,144.64. + +The Commissioner is quite confident that there will be no call this year +for a deficiency appropriation, notwithstanding the rapidity with which the +work is being pushed. The mistake which has been made by many in their +exaggerated estimates of the cost of pensions is in not taking account of +the diminished value of first payments under the recent legislation. These +payments under the general law have been for many years very large, as the +pensions when allowed dated from the time of filing the claim, and most of +these claims had been pending for years. The first payments under the law +of June, 1890, are relatively small, and as the per cent of these cases +increases and that of the old cases diminishes the annual aggregate of +first payments is largely reduced. The Commissioner, under date of November +13, furnishes me with the statement that during the last four months +113,175 certificates were issued, 27,893 under the general law and 85,282 +under the act of June 27, 1890. The average first payment during these four +months was $131.85, while the average first payment upon cases allowed +during the year ending June 30, 1891, was $239.33, being a reduction in the +average first payments during these four months of $107.48. + +The estimate for pension expenditures for the fiscal year ending June 30, +1893, is $144,956,000, which, after a careful examination of the subject, +the Commissioner is of the opinion will be sufficient. While these +disbursements to the disabled soldiers of the great Civil War are large, +they do not realize the exaggerated estimates of those who oppose this +beneficent legislation. The Secretary of the Interior shows with great +fullness the care that is taken to exclude fraudulent claims, and also the +gratifying fact that the persons to whom these pensions are going are men +who rendered not slight but substantial war service. + +The report of the Commissioner of Railroads shows that the total debt of +the subsidized railroads to the United States was on December 31, 1890, +$112,512,613.06. A large part of this debt is now fast approaching +maturity, with no adequate provision for its payment. Some policy for +dealing with this debt with a view to its ultimate collection should be at +once adopted. It is very difficult, well-nigh impossible, for so large a +body as the Congress to conduct the necessary negotiations and +investigations. I therefore recommend that provision be made for the +appointment of a commission to agree upon and report a plan for dealing +with this debt. + +The work of the Census Bureau is now far in advance and the great bulk of +the enormous labor involved completed. It will be more strictly a +statistical exhibit and less encumbered by essays than its immediate +predecessors. The methods pursued have been fair, careful, and intelligent, +and have secured the approval of the statisticians who have followed them +with a scientific and nonpartisan interest. The appropriations necessary to +the early completion and publication of the authorized volumes should be +given in time to secure against delays, which increase the cost and at the +same time diminish the value of the work. + +The report of the Secretary exhibits with interesting fullness the +condition of the Territories. They have shared with the States the great +increase in farm products, and are bringing yearly large areas into +cultivation by extending their irrigating canals. This work is being done +by individuals or local corporations and without that system which a full +preliminary survey of the water supply and of the irrigable lands would +enable them to adopt. The future of the Territories of New Mexico, Arizona, +and Utah in their material growth and in the increase, independence, and +happiness of their people is very largely dependent upon wise and timely +legislation, either by Congress or their own legislatures, regulating the +distribution of the water supply furnished by their streams. If this matter +is much longer neglected, private corporations will have unrestricted +control of one of the elements of life and the patentees of the arid lands +will be tenants at will of the water companies. + +The United States should part with its ownership of the water sources and +the sites for reservoirs, whether to the States and Territories or to +individuals or corporations, only upon conditions that will insure to the +settlers their proper water supply upon equal and reasonable terms. In the +Territories this whole subject is under the full control of Congress, and +in the States it is practically so as long as the Government holds the +title to the reservoir sites and water sources and can grant them upon such +conditions as it chooses to impose. The improvident granting of franchises +of enormous value without recompense to the State or municipality from +which they proceed and without proper protection of the public interests is +the most noticeable and flagrant evil of modern legislation. This fault +should not be committed in dealing with a subject that will before many +years affect so vitally thousands of our people. + +The legislation of Congress for the repression of polygamy has, after years +of resistance on the part of the Mormons, at last brought them to the +conclusion that resistance is unprofitable and unavailing. The power of +Congress over this subject should not be surrendered until we have +satisfactory evidence that the people of the State to be created would +exercise the exclusive power of the State over this subject in the same +way. The question is not whether these people now obey the laws of Congress +against polygamy, but rather would they make, enforce, and maintain such +laws themselves if absolutely free to regulate the subject? We can not +afford to experiment with this subject, for when a State is once +constituted the act is final and any mistake irretrievable. No compact in +the enabling act could, in my opinion, be binding or effective. + +I recommend that provision be made for the organization of a simple form of +town government in Alaska, with power to regulate such matters as are +usually in the States under municipal control. These local civil +organizations will give better protection in some matters than the present +skeleton Territorial organization. Proper restrictions as to the power to +levy taxes and to create debt should be imposed. + +If the establishment of the Department of Agriculture was regarded by +anyone as a mere concession to the unenlightened demand of a worthy class +of people, that impression has been most effectually removed by the great +results already attained. Its home influence has been very great in +disseminating agricultural and horticultural information, in stimulating +and directing a further diversification of crops, in detecting and +eradicating diseases of domestic animals, and, more than all, in the close +and informal contact which it has established and maintains with the +farmers and stock raisers of the whole country. Every request for +information has had prompt attention and every suggestion merited +consideration. The scientific corps of the Department is of a high order +and is pushing its investigations with method and enthusiasm. + +The inspection by this Department of cattle and pork products intended for +shipment abroad has been the basis of the success which has attended our +efforts to secure the removal of the restrictions maintained by the +European Governments. + +For ten years protests and petitions upon this subject from the packers and +stock raisers of the United States have been directed against these +restrictions, which so seriously limited our markets and curtailed the +profits of the farm. It is a source of general congratulation that success +has at last been attained, for the effects of an enlarged foreign market +for these meats will be felt not only by the farmer, but in our public +finances and in every branch of trade. It is particularly fortunate that +the increased demand for food products resulting from the removal of the +restrictions upon our meats and from the reciprocal trade arrangements to +which I have referred should have come at a time when the agricultural +surplus is so large. Without the help thus derived lower prices would have +prevailed. The Secretary of Agriculture estimates that the restrictions +upon the importation of our pork products into Europe lost us a market for +$20,000,000 worth of these products annually. + +The grain crop of this year was the largest in our history--50 per cent +greater than that of last year--and yet the new markets that have been +opened and the larger demand resulting from short crops in Europe have +sustained prices to such an extent that the enormous surplus of meats and +breadstuffs will be marketed at good prices, bringing relief and prosperity +to an industry that was much depressed. The value of the grain crop of the +United States is estimated by the Secretary to be this year $500,000,000 +more than last; of meats $150,000,000 more, and of all products of the farm +$700,000,000 more. It is not inappropriate, I think, here to suggest that +our satisfaction in the contemplation of this marvelous addition to the +national wealth is unclouded by any suspicion of the currency by which it +is measured and in which the farmer is paid for the products of his +fields. + +The report of the Civil Service Commission should receive the careful +attention of the opponents as well as the friends of this reform. The +Commission invites a personal inspection by Senators and Representatives of +its records and methods, and every fair critic will feel that such an +examination should precede a judgment of condemnation either of the system +or its administration. It is not claimed that either is perfect, but I +believe that the law is being executed with impartiality and that the +system is incomparably better and fairer than that of appointments upon +favor. I have during the year extended the classified service to include +superintendents, teachers, matrons, and physicians in the Indian service. +This branch of the service is largely related to educational and +philanthropic work and will obviously be the better for the change. + +The heads of the several Executive Departments have been directed to +establish at once an efficiency record as the basis of a comparative rating +of the clerks within the classified service, with a view to placing +promotions therein upon the basis of merit. I am confident that such a +record, fairly kept and open to the inspection of those interested, will +powerfully stimulate the work of the Departments and will be accepted by +all as placing the troublesome matter of promotions upon a just basis. + +I recommend that the appropriation for the Civil Service Commission be made +adequate to the increased work of the next fiscal year. + +I have twice before urgently called the attention of Congress to the +necessity of legislation for the protection of the lives of railroad +employees, but nothing has yet been done. During the year ending June 30, +1890, 369 brakemen were killed and 7,841 maimed while engaged in coupling +cars. The total number of railroad employees killed during the year was +2,451 and the number injured 22,390. This is a cruel and largely needless +sacrifice. The Government is spending nearly $1,000,000 annually to save +the lives of shipwrecked seamen; every steam vessel is rigidly inspected +and required to adopt the most approved safety appliances. All this is +good. But how shall we excuse the lack of interest and effort in behalf of +this army of brave young men who in our land commerce are being sacrificed +every year by the continued use of antiquated and dangerous appliances? A +law requiring of every railroad engaged in interstate commerce the +equipment each year of a given per cent of its freight cars with automatic +couplers and air brakes would compel an agreement between the roads as to +the kind of brakes and couplers to be used, and would very soon and very +greatly reduce the present fearful death rate among railroad employees. + +The method of appointment by the States of electors of President and +Vice-President has recently attracted renewed interest by reason of a +departure by the State of Michigan from the method which had become uniform +in all the States. Prior to 1832 various methods had been used by the +different States, and even by the same State. In some the choice was made +by the legislature; in others electors were chosen by districts, but more +generally by the voters of the whole State upon a general ticket. The +movement toward the adoption of the last-named method had an early +beginning and went steadily forward among the States until in 1832 there +remained but a single State (South Carolina) that had not adopted it. That +State until the Civil War continued to choose its electors by a vote of the +legislature, but after the war changed its method and conformed to the +practice of the other States. For nearly sixty years all the States save +one have appointed their electors by a popular vote upon a general ticket, +and for nearly thirty years this method was universal. + +After a full test of other methods, without important division or dissent +in any State and without any purpose of party advantage, as we must +believe, but solely upon the considerations that uniformity was desirable +and that a general election in territorial divisions not subject to change +was most consistent with the popular character of our institutions, best +preserved the equality of the voters, and perfectly removed the choice of +President from the baneful influence of the "gerrymander," the practice of +all the States was brought into harmony. That this concurrence should now +be broken is, I think, an unfortunate and even a threatening episode, and +one that may well suggest whether the States that still give their approval +to the old and prevailing method ought not to secure by a constitutional +amendment a practice which has had the approval of all. The recent Michigan +legislation provides for choosing what are popularly known as the +Congressional electors for President by Congressional districts and the two +Senatorial electors by districts created for that purpose. This legislation +was, of course, accompanied by a new Congressional apportionment, and the +two statutes bring the electoral vote of the State under the influence of +the "gerrymander." + +These gerrymanders for Congressional purposes are in most cases buttressed +by a gerrymander of the legislative districts, thus making it impossible +for a majority of the legal voters of the State to correct the +apportionment and equalize the Congressional districts. A minority rule is +established that only a political convulsion can overthrow. I have recently +been advised that in one county of a certain State three districts for the +election of members of the legislature are constituted as follows: One has +65,000 population, one 15,000, and one 10,000, while in another county +detached, noncontiguous sections have been united to make a legislative +district. These methods have already found effective application to the +choice of Senators and Representatives in Congress, and now an evil start +has been made in the direction of applying them to the choice by the States +of electors of President and Vice-President. If this is accomplished, we +shall then have the three great departments of the Government in the grasp +of the "gerrymander," the legislative and executive directly and the +judiciary indirectly through the power of appointment. + +An election implies a body of electors having prescribed qualifications, +each one of whom has an equal value and influence in determining the +result. So when the Constitution provides that "each State shall appoint" +(elect), "in such manner as the legislature thereof may direct, a number of +electors," etc., an unrestricted power was not given to the legislatures in +the selection of the methods to be used. "A republican form of government" +is guaranteed by the Constitution to each State, and the power given by the +same instrument to the legislatures of the States to prescribe methods for +the choice by the State of electors must be exercised under that +limitation. The essential features of such a government are the right of +the people to choose their own officers and the nearest practicable +equality of value in the suffrages given in determining that choice. + +It will not be claimed that the power given to the legislature would +support a law providing that the persons receiving the smallest vote should +be the electors or a law that all the electors should be chosen by the +voters of a single Congressional district. The State is to choose, and +finder the pretense of regulating methods the legislature can neither vest +the right of choice elsewhere nor adopt methods not conformable to +republican institutions. It is not my purpose here to discuss the question +whether a choice by the legislature or by the voters of equal single +districts is a choice by the State, but only to recommend such regulation +of this matter by constitutional amendment as will secure uniformity and +prevent that disgraceful partisan jugglery to which such a liberty of +choice, if it exists, offers a temptation. + +Nothing just now is more important than to provide every guaranty for the +absolutely fair and free choice by an equal suffrage within the respective +States of all the officers of the National Government, whether that +suffrage is applied directly, as in the choice of members of the House of +Representatives, or indirectly, as in the choice of Senators and electors +of President. Respect for public officers and obedience to law will not +cease to be the characteristics of our people until our elections cease to +declare the will of majorities fairly ascertained without fraud, +suppression, or gerrymander. If I were called upon to declare wherein our +chief national danger lies, I should say without hesitation in the +overthrow of majority control by the suppression or perversion of the +popular suffrage. That there is a real danger here all must agree; but the +energies of those who see it have been chiefly expended in trying to fix +responsibility upon the opposite party rather than in efforts to make such +practices impossible by either party. + +Is it not possible now to adjourn that interminable and inconclusive debate +while we take by consent one step in the direction of reform by eliminating +the gerrymander, which has been denounced by all parties as an influence in +the selection of electors of President and members of Congress? All the +States have, acting freely and separately, determined that the choice of +electors by a general ticket is the wisest and safest method, and it would +seem there could be no objection to a constitutional amendment making that +method permanent. If a legislature chosen in one year upon purely local +questions should, pending a Presidential contest, meet, rescind the law for +a choice upon a general ticket, and provide for the choice of electors by +the legislature, and this trick should determine the result, it is not too +much to say that the public peace might be seriously and widely +endangered. + +I have alluded to the "gerrymander" as affecting the method of selecting +electors of President by Congressional districts, but the primary intent +and effect of this form of political robbery have relation to the selection +of members of the House of Representatives. The power of Congress is ample +to deal with this threatening and intolerable abuse. The unfailing test of +sincerity in election reform will be found in a willingness to confer as to +remedies and to put into force such measures as will most effectually +preserve the right of the people to free and equal representation. + +An attempt was made in the last Congress to bring to bear the +constitutional powers of the General Government for the correction of fraud +against the suffrage. It is important to know whether the opposition to +such measures is really rested in particular features supposed to be +objectionable or includes any proposition to give to the election laws of +the United States adequacy to the correction of grave and acknowledged +evils. I must yet entertain the hope that it is possible to secure a calm, +patriotic consideration of such constitutional or statutory changes as may +be necessary to secure the choice of the officers of the Government to the +people by fair apportionments and free elections. + +I believe it would be possible to constitute a commission, nonpartisan in +its membership and composed of patriotic, wise, and impartial men, to whom +a consideration of the question of the evils connected with our election +system and methods might be committed with a good prospect of securing +unanimity in some plan for removing or mitigating those evils. The +Constitution would permit the selection of the commission to be vested in +the Supreme Court if that method would give the best guaranty of +impartiality. This commission should be charged with the duty of inquiring +into the whole subject of the law of elections as related to the choice of +officers of the National Government, with a view to securing to every +elector a free and unmolested exercise of the suffrage and as near an +approach to an equality of value in each ballot cast as is attainable. + +While the policies of the General Government upon the tariff, upon the +restoration of our merchant marine, upon river and harbor improvements, and +other such matters of grave and general concern are liable to be turned +this way or that by the results of Congressional elections and +administrative policies, sometimes involving issues that tend to peace or +war, to be turned this way or that by the results of a Presidential +election, there is a rightful interest in all the States and in every +Congressional district that will not be deceived or silenced by the +audacious pretense that the question of the right of any body of legal +voters in any State or in any Congressional district to give their +suffrages freely upon these general questions is a matter only of local +concern or control. The demand that the limitations of suffrage shall be +found in the law, and only there, is a just demand, and no just man should +resent or resist it. My appeal is and must continue to be for a +consultation that shall "proceed with candor, calmness, and patience upon +the lines of justice and humanity, not of prejudice and cruelty." + +To the consideration of these very grave questions I invite not only the +attention of Congress, but that of all patriotic citizens. We must not +entertain the delusion that our people have ceased to regard a free ballot +and equal representation as the price of their allegiance to laws and to +civil magistrates. + +I have been greatly rejoiced to notice many evidences of the increased +unification of our people and of a revived national spirit. The vista that +now opens to us is wider and more glorious than ever before. Gratification +and amazement struggle for supremacy as we contemplate the population, +wealth, and moral strength of our country. A trust momentous in its +influence upon our people and upon the world is for a brief time committed +to us, and we must not be faithless to its first condition--the defense of +the free and equal influence of the people in the choice of public officers +and in the control of public affairs. BENJ. HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 6, 1892 + +To the Senate and House of Representatives: + +In submitting my annual message to Congress I have great satisfaction in +being able to say that the general conditions affecting the commercial and +industrial interests of the United States are in the highest degree +favorable. A comparison of the existing conditions with those of the most +favored period in the history of the country will, I believe, show that so +high a degree of prosperity and so general a diffusion of the comforts of +life were never before enjoyed by our people. + +The total wealth of the country in 1860 was $16,159,616,068. In 1890 it +amounted to $62,610,000,000, an increase of 287 per cent. + +The total mileage of railways in the United States in 1860 was 30,626. In +1890 it was 167,741, an increase of 448 per cent; and it is estimated that +there will be about 4,000 miles of track added by the close of the year +1892. + +The official returns of the Eleventh Census and those of the Tenth Census +for seventy-five leading cities furnish the basis for the following +comparisons: + +In 1880 the capital invested in manufacturing was $1,232,839,670. + +In 1890 the capital invested in manufacturing was $2,900,735,884. + +In 1880 the number of employees was 1,301,388. + +In 1890 the number of employees was 2,251,134. + +In 1880 the wages earned were $501,965,778. + +In 1890 the wages earned were $1,221,170,454. + +In 1880 the value of the product was $2,711,579,899. + +In 1890 the value of the product was $4,860,286,837. + +I am informed by the Superintendent of the Census that the omission of +certain industries in 1880 which were included in 1890 accounts in part for +the remarkable increase thus shown, but after making full allowance for +differences of method and deducting the returns for all industries not +included in the census of 1880 there remain in the reports from these +seventy-five cities an increase in the capital employed of $1,522,745,604, +in the value of the product of $2,024,236,166, in wages earned of +$677,943,929, and in the number of wage earners employed of 856,029. The +wage earnings not only show an increased aggregate, but an increase per +capita from $386 in 1880 to $547 in 1890, or 41.71 per cent. + +The new industrial plants established since October 6, 1890, and up to +October 22, 1892, as partially reported in the American Economist, number +345, and the extension of existing plants 108; the new capital invested +amounts to $40,449,050, and the number of additional employees to 37,285. + +The Textile World for July, 1892, states that during the first six months +of the present calendar year 135 new factories were built, of which 40 are +cotton mills, 48 knitting mills, 26 woolen mills, 15 silk mills, 4 plush +mills, and 2 linen mills. Of the 40 cotton mills 21 have been built in the +Southern States. Mr. A. B. Shepperson, of the New York Cotton Exchange, +estimates the number of working spindles in the United States on September +1, 1892, at 15,200,000, an increase of 660,000 over the year 1891. The +consumption of cotton by American mills in 1891 was 2,396,000 bales, and in +1892 2,584,000 bales, an increase of 188,000 bales. From the year 1869 to +1892, inclusive, there has been an increase in the consumption of cotton in +Europe of 92 per cent, while during the same period the increased +consumption in the United States has been about 150 per cent. + +The report of Ira Ayer, special agent of the Treasury Department, shows +that at the date of September 30, 1892, there were 32 companies +manufacturing tin and terne plate in the United States and 14 companies +building new works for such manufacture. The estimated investment in +buildings and plants at the close of the fiscal year June 30, 1893, if +existing conditions were to be continued, was $5,000,000 and the estimated +rate of production 200,000,000 pounds per annum. The actual production for +the quarter ending September 30, 1892, was 10,952,725 pounds. + +The report of Labor Commissioner Peck, of New York, shows that during the +year 1891, in about 6,000 manufacturing establishments in that State +embraced within the special inquiry made by him, and representing 67 +different industries, there was a net increase over the year 1890 of +$30,315,130.68 in the value of the product and of $6,377,925.09 in the +amount of wages paid. The report of the commissioner of labor for the State +of Massachusetts shows that 3,745 industries in that State paid +$129,416,248 in wages during the year 1891, against $126,030,303 in 1890, +an increase of $3,335,945, and that there was an increase of $9,932,490 in +the amount of capital and of 7,346 in the number of persons employed in the +same period. + +During the last six months of the year 1891 and the first six months of +1892 the total production of pig iron was 9,710,819 tons, as against +9,202,703 tons in the year 1890, which was the largest annual production +ever attained. For the same twelve months of 1891-92 the production of +Bessemer ingots was 3,878,581 tons, an increase of 189,710 gross tons over +the previously unprecedented yearly production of 3,688,871 gross tons in +1890. The production of Bessemer steel rails for the first six months of +1892 was 772,436 gross tons, as against 702,080 gross tons during the last +six months of the year 1891. + +The total value of our foreign trade (exports and imports of merchandise) +during the last fiscal year was $1,857,680,610, an increase of $128,283,604 +over the previous fiscal year. The average annual value of our imports and +exports of merchandise for the ten fiscal years prior to 1891 was +$1,457,322,019. It will be observed that our foreign trade for 1892 +exceeded this annual average value by $400,358,591, an increase of 27.47 +per cent. The significance and value of this increase are shown by the fact +that the excess in the trade of 1892 over 1891 was wholly in the value of +exports, for there was a decrease in the value of imports of $17,513,754. + +The value of our exports during the fiscal year 1892 reached the highest +figure in the history of the Government, amounting to $1,030,278,148, +exceeding by $145,797,338 the exports of 1891 and exceeding the value of +the imports by $202,875,686. A comparison of the value of our exports for +1892 with the annual average for the ten years prior to 1891 shows an +excess of $265,142,651, or of 34.65 per cent. The value of our imports of +merchandise for 1892, which was $829,402,462, also exceeded the annual +average value of the ten years prior to 1891 by $135,215,940. During the +fiscal year 1892 the value of imports free of duty amounted to +$457,999,658, the largest aggregate in the history of our commerce. The +value of the imports of merchandise entered free of duty in 1892 was 55.35 +per cent of the total value of imports, as compared with 43.35 per cent in +1891 and 33.66 per cent in 1890. + +In our coastwise trade a most encouraging development is in progress, there +having been in the last four years an increase of 16 per cent. In internal +commerce the statistics show that no such period of prosperity has ever +before existed. The freight carried in the coastwise trade of the Great +Lakes in 1890 aggregated 28,295,959 tons. On the Mississippi, Missouri, and +Ohio rivers and tributaries in the same year the traffic aggregated +29,405,046 tons, and the total vessel tonnage passing through the Detroit +River during that year was 21,684,000 tons. The vessel tonnage entered and +cleared in the foreign trade of London during 1890 amounted to 13,480,767 +tons, and of Liverpool 10,941,800 tons, a total for these two great +shipping ports of 24,422,568 tons, only slightly in excess of the vessel +tonnage passing through the Detroit River. And it should be said that the +season for the Detroit River was but 228 days, while of course in London +and Liverpool the season was for the entire year. The vessel tonnage +passing through the St. Marys Canal for the fiscal year 1892 amounted to +9,828,874 tons, and the freight tonnage of the Detroit River is estimated +for that year at 25,000,000 tons, against 23,209,619 tons in 1891. The +aggregate traffic on our railroads for the year 1891 amounted to +704,398,609 tons of freight, compared with 691,344,437 tons in 1890, an +increase of 13,054,172 tons. + +Another indication of the general prosperity of the country is found in the +fact that the number of depositors in savings banks increased from 693,870 +in 1860 to 4,258,893 in 1890, an increase of 513 per cent, and the amount +of deposits from $149,277,504 in 1860 to $1,524,844,506 in 1890, an +increase of 921 per cent. In 1891 the amount of deposits in savings banks +was $1,623,079,749. It is estimated that 90 per cent of these deposits +represent the savings of wage earners. The bank clearances for nine months +ending September 30, 1891, amounted to $41,049,390,08. For the same months +in 1892 they amounted to $45,189,601,947, an excess for the nine months of +$4,140,211,139. + +There never has been a time in our history when work was so abundant or +when wages were as high, whether measured by the currency in which they are +paid or by their power to supply the necessaries and comforts of life. It +is true that the market prices of cotton and wheat have been low. It is one +of the unfavorable incidents of agriculture that the farmer can not produce +upon orders. He must sow and reap in ignorance of the aggregate production +of the year, and is peculiarly subject to the depreciation which follows +overproduction. But while the fact I have stated is true as to the crops +mentioned, the general average of prices has been such as to give to +agriculture a fair participation in the general prosperity. The value of +our total farm products has increased from $1,363,646,866 in 1860 to +$4,500,000,000 in 1891, as estimated by statisticians, an increase of 230 +per cent. The number of hogs January 1, 1891, was 50,625,106 and their +value $210,193,925; on January 1, 1892, the number was 52,398,019 and the +value $241,031,415. On January 1, 1891, the number of cattle was 36,875,648 +and the value $544,127,908; on January 1 ,1892, the number was 37,651,239 +and the value $570,749,155. + +If any are discontented with their state here, if any believe that wages or +prices, the returns for honest toil, are inadequate, they should not fail +to remember that there is no other country in the world where the +conditions that seem to them hard would not be accepted as highly +prosperous. The English agriculturist would be glad to exchange the returns +of his labor for those of the American farmer and the Manchester workmen +their wages for those of their fellows at Fall River. + +I believe that the protective system, which has now for something more than +thirty years continuously prevailed in our legislation, has been a mighty +instrument for the development of our national wealth and a most powerful +agency in protecting the homes of our workingmen from the invasion of want. +I have felt a most solicitous interest to preserve to our working people +rates of wages that would not only give daily bread but supply a +comfortable margin for those home attractions and family comforts and +enjoyments without which life is neither hopeful nor sweet. They are +American citizens--a part of the great people for whom our Constitution and +Government were framed and instituted--and it can not be a perversion of +that Constitution to so legislate as to preserve in their homes the +comfort, independence, loyalty, and sense of interest in the Government +which are essential to good citizenship in peace, and which will bring this +stalwart throng, as in 1861, to the defense of the flag when it is +assailed. + +It is not my purpose to renew here the argument in favor of a protective +tariff. The result of the recent election must be accepted as having +introduced a new policy. We must assume that the present tariff, +constructed upon the lines of protection, is to be repealed and that there +is to be substituted for it a tariff law constructed solely with reference +to revenue; that no duty is to be higher because the increase will keep +open an American mill or keep up the wages of an American workman, but that +in every case such a rate of duty is to be imposed as will bring to the +Treasury of the United States the largest returns of revenue. The +contention has not been between schedules, but between principles, and it +would be offensive to suggest that the prevailing party will not carry into +legislation the principles advocated by it and the pledges given to the +people. The tariff bills passed by the House of Representatives at the last +session were, as I suppose, even in the opinion of their promoters, +inadequate, and justified only by the fact that the Senate and House of +Representatives were not in accord and that a general revision could not +therefore be undertaken. + +I recommend that the whole subject of tariff revision be left to the +incoming Congress. It is matter of regret that this work must be delayed +for at least three months, for the threat of great tariff changes +introduces so much uncertainty that an amount, not easily estimated, of +business inaction and of diminished production will necessarily result. It +is possible also that this uncertainty may result in decreased revenues +from customs duties, for our merchants will make cautious orders for +foreign goods in view of the prospect of tariff reductions and the +uncertainty as to when they will take effect. Those who have advocated a +protective tariff can well afford to have their disastrous forecasts of a +change of policy disappointed. If a system of customs duties can be framed +that will set the idle wheels and looms of Europe in motion and crowd our +warehouses with foreign-made goods and at the same time keep our own mills +busy; that will give us an increased participation in the "markets of the +world" of greater value than the home market we surrender; that will give +increased work to foreign workmen upon products to be consumed by our +people without diminishing the amount of work to be done here; that will +enable the American manufacturer to pay to his workmen from 50 to 100 per +cent more in wages than is paid in the foreign mill, and yet to compete in +our market and in foreign markets with the foreign producer; that will +further reduce the cost of articles of wear and food without reducing the +wages of those who produce them; that can be celebrated, after its effects +have been realized, as its expectation has been in European as well as in +American cities, the authors and promoters of it will be entitled to the +highest praise. We have had in our history several experiences of the +contrasted effects of a revenue and of a protective tariff, but this +generation has not felt them, and the experience of one generation is not +highly instructive to the next. The friends of the protective system with +undiminished confidence in the principles they have advocated will await +the results of the new experiment. + +The strained and too often disturbed relations existing between the +employees and the employers in our great manufacturing establishments have +not been favorable to a calm consideration by the wage earner of the effect +upon wages of the protective system. The facts that his wages were the +highest paid in like callings in the world and that a maintenance of this +rate of wages in the absence of protective duties upon the product of his +labor was impossible were obscured by the passion evoked by these contests. +He may now be able to review the question in the light of his personal +experience under the operation of a tariff for revenue only. If that +experience shall demonstrate that present rates of wages are thereby +maintained or increased, either absolutely or in their purchasing power, +and that the aggregate volume of work to be done in this country is +increased or even maintained, so that there are more or as many days' work +in a year, at as good or better wages, for the American workmen as has been +the case under the protective system, everyone will rejoice. A general +process of wage reduction can not be contemplated by any patriotic citizen +without the gravest apprehension. It may be, indeed I believe is, possible +for the American manufacturer to compete successfully with his foreign +rival in many branches of production without the defense of protective +duties if the pay rolls are equalized; but the conflict that stands between +the producer and that result and the distress of our working people when it +is attained are not pleasant to contemplate. The Society of the Unemployed, +now holding its frequent and threatening parades in the streets of foreign +cities, should not be allowed to acquire an American domicile. + +The reports of the heads of the several Executive Departments, which are +herewith submitted, have very naturally included a resume of the whole work +of the Administration with the transactions of the last fiscal year. The +attention not only of Congress but of the country is again invited to the +methods of administration which have been pursued and to the results which +have been attained. Public revenues amounting to $1,414,079,292.28 have +been collected and disbursed without loss from misappropriation, without a +single defalcation of such importance as to attract the public attention, +and at a diminished per cent of cost for collection. The public business +has been transacted not only with fidelity, but progressively and with a +view to giving to the people in the fullest possible degree the benefits of +a service established and maintained for their protection and comfort. + +Our relations with other nations are now undisturbed by any serious +controversy. The complicated and threatening differences with Germany and +England relating to Samoan affairs, with England in relation to the seal +fisheries in the Bering Sea, and with Chile growing out of the Baltimore +affair have been adjusted. + +There have been negotiated and concluded, under section 3 of the tariff +law, commercial agreements relating to reciprocal trade with the following +countries: Brazil, Dominican Republic, Spain for Cuba and Puerto Rico, +Guatemala, Salvador, the German Empire, Great Britain for certain West +Indian colonies and British Guiana, Nicaragua, Honduras, and +Austria-Hungary. + +Of these, those with Guatemala, Salvador, the German Empire, Great Britain, +Nicaragua, Honduras, and Austria-Hungary have been concluded since my last +annual message. Under these trade arrangements a free or favored admission +has been secured in every case for an important list of American products. +Especial care has been taken to secure markets for farm products, in order +to relieve that great underlying industry of the depression which the lack +of an adequate foreign market for our surplus often brings. An opening has +also been made for manufactured products that will undoubtedly, if this +policy is maintained, greatly augment our export trade. The full benefits +of these arrangements can not be realized instantly. New lines of trade are +to be opened. The commercial traveler must survey the field. The +manufacturer must adapt his goods to the new markets and facilities for +exchange must be established. This work has been well begun, our merchants +and manufacturers having entered the new fields with courage and +enterprise. In the case of food products, and especially with Cuba, the +trade did not need to wait, and the immediate results have been most +gratifying. If this policy and these trade arrangements can be continued in +force and aided by the establishment of American steamship lines, I do not +doubt that we shall within a short period secure fully one-third of the +total trade of the countries of Central and South America, which now +amounts to about $600,000,000 annually. In 1885 we had only 8 per cent of +this trade. + +The following statistics show the increase in our trade with the countries +with which we have reciprocal trade agreements from the date when such +agreements went into effect up to September 30, 1892, the increase being in +some almost wholly and in others in an important degree the result of these +agreements: + +The domestic exports to Germany and Austria-Hungary have increased in value +from $47,673,756 to $57,993,064, an increase of $10,319,308, or 21.63 per +cent. With American countries the value of our exports has increased from +$44,160,285 to $54,613,598, an increase of $10,453,313, or 23.67 per cent. +The total increase in the value of exports to all the countries with which +we have reciprocity agreements has been $20,772,621. This increase is +chiefly in wheat, flour, meat, and dairy products and in manufactures of +iron and steel and lumber. There has been a large increase in the value of +imports from all these countries since the commercial agreements went into +effect, amounting to $74,294,525, but it has been entirely in imports from +the American countries, consisting mostly of sugar, coffee, india rubber, +and crude drugs. The alarmed attention of our European competitors for the +South American market has been attracted to this new American policy and to +our acquisition and their loss of South American trade. + +A treaty providing for the arbitration of the dispute between Great Britain +and the United States as to the killing of seals in the Bering Sea was +concluded on the 29th of February last. This treaty was accompanied by an +agreement prohibiting pelagic sealing pending the arbitration, and a +vigorous effort was made during this season to drive out all poaching +sealers from the Bering Sea. Six naval vessels, three revenue cutters, and +one vessel from the Fish Commission, all under the command of Commander +Evans, of the Navy, were sent into the sea, which was systematically +patrolled. Some seizures were made, and it is believed that the catch in +the Bering Sea by poachers amounted to less than 500 seals. It is true, +however, that in the North Pacific, while the seal herds were on their way +to the passes between the Aleutian Islands, a very large number, probably +35,000, were taken. The existing statutes of the United States do not +restrain our citizens from taking seals in the Pacific Ocean, and perhaps +should not unless the prohibition can be extended to the citizens of other +nations. I recommend that power be given to the President by proclamation +to prohibit the taking of seals in the North Pacific by American vessels in +case, either as the result of the findings of the Tribunal of Arbitration +or otherwise, the restraints can be applied to the vessels of all +countries. The case of the United States for the Tribunal of Arbitration +has been prepared with great care and industry by the Hon. John W. Foster, +and the counsel who represent this Government express confidence that a +result substantially establishing our claims and preserving this great +industry for the benefit of all nations will be attained. + +During the past year a suggestion was received through the British minister +that the Canadian government would like to confer as to the possibility of +enlarging upon terms of mutual advantage the commercial exchanges of Canada +and of the United States, and a conference was held at Washington, with Mr. +Blaine acting for this Government and the British minister at this capital +and three members of the Dominion cabinet acting as commissioners on the +part of Great Britain. The conference developed the fact that the Canadian +government was only prepared to offer to the United States in exchange for +the concessions asked the admission of natural products. The statement was +frankly made that favored rates could not be given to the United States as +against the mother country. This admission, which was foreseen, necessarily +terminated the conference upon this question. The benefits of an exchange +of natural products would be almost wholly with the people of Canada. Some +other topics of interest were considered in the conference, and have +resulted in the making of a convention for examining the Alaskan boundary +and the waters of Passamaquoddy Bay adjacent to Eastport, Me., and in the +initiation of an arrangement for the protection of fish life in the +coterminous and neighboring waters of our northern border. + +The controversy as to tolls upon the Welland Canal, which was presented to +Congress at the last session by special message, having failed of +adjustment, I felt constrained to exercise the authority conferred by the +act of July 26, 1892, and to proclaim a suspension of the free use of St. +Marys Falls Canal to cargoes in transit to ports in Canada. The Secretary +of the Treasury established such tolls as were thought to be equivalent to +the exactions unjustly levied upon our commerce in the Canadian canals. + +If, as we must suppose, the political relations of Canada and the +disposition of the Canadian government are to remain unchanged, a somewhat +radical revision of our trade relations should, I think, be made. Our +relations must continue to be intimate, and they should be friendly. I +regret to say, however, that in many of the controversies, notably those as +to the fisheries on the Atlantic, the sealing interests on the Pacific, and +the canal tolls, our negotiations with Great Britain have continuously been +thwarted or retarded by unreasonable and unfriendly objections and protests +from Canada in the matter of the canal tolls our treaty rights were +flagrantly disregarded. It is hardly too much to say that the Canadian +Pacific and other railway lines which parallel our northern boundary are +sustained by commerce having either its origin or terminus, or both, in the +United States. Canadian railroads compete with those of the United States +for our traffic, and without the restraints of our interstate-commerce act. +Their cars pass almost without detention into and out of our territory. + +The Canadian Pacific Railway brought into the United States from China and +Japan via British Columbia during the year ended June 30, 1892, 23,239,689 +pounds of freight, and it carried from the United States, to be shipped to +China and Japan via British Columbia, 24,068,346 pounds of freight. There +were also shipped from the United States over this road from Eastern ports +of the United States to our Pacific ports during the same year 13,912,073 +pounds of freight, and there were received over this road at the United +States Eastern ports from ports on the Pacific Coast 13,293,315 pounds of +freight. Mr. Joseph Nimmo, jr., former chief of the Bureau of Statistics, +when before the Senate Select Committee on Relations with Canada, April 26, +1890, said that "the value of goods thus transported between different +points in the United States across Canadian territory probably amounts to +$100,000,000 a year." + +There is no disposition on the part of the people or Government of the +United States to interfere in the smallest degree with the political +relations of Canada. That question is wholly with her own people. It is +time for us, however, to consider whether, if the present state of things +and trend of things is to continue, our interchanges upon lines of land +transportation should not be put upon a different basis and our entire +independence of Canadian canals and of the St. Lawrence as an outlet to the +sea secured by the construction of an American canal around the Falls of +Niagara and the opening of ship communication between the Great Lakes and +one of our own seaports. We should not hesitate to avail ourselves of our +great natural trade advantages. We should withdraw the support which is +given to the railroads and steamship lines of Canada by a traffic that +properly belongs to us and no longer furnish the earnings which lighten the +otherwise crushing weight of the enormous public subsidies that have been +given to them. The subject of the power of the Treasury to deal with this +matter without further legislation has been under consideration, but +circumstances have postponed a conclusion. It is probable that a +consideration of the propriety of a modification or abrogation of the +article of the treaty of Washington relating to the transit of goods in +bond is involved in any complete solution of the question. + +Congress at the last session was kept advised of the progress of the +serious and for a time threatening difference between the United States and +Chile. It gives me now great gratification to report that the Chilean +Government in a most friendly and honorable spirit has tendered and paid as +an indemnity to the families of the sailors of the Baltimore who were +killed and to those who were injured in the outbreak in the city of +Valparaiso the sum of $75,000. This has been accepted not only as an +indemnity for a wrong done, but as a most gratifying evidence that the +Government of Chile rightly appreciates the disposition of this Government +to act in a spirit of the most absolute fairness and friendliness in our +intercourse with that brave people. A further and conclusive evidence of +the mutual respect and confidence now existing is furnished by the fact +that a convention submitting to arbitration the mutual claims of the +citizens of the respective Governments has been agreed upon. Some of these +claims have been pending for many years and have been the occasion of much +unsatisfactory diplomatic correspondence. + +I have endeavored in every way to assure our sister Republics of Central +and South America that the United States Government and its people have +only the most friendly disposition toward them all. We do not covet their +territory. We have no disposition to be oppressive or exacting in our +dealings with any of them, even the weakest. Our interests and our hopes +for them all lie in the direction of stable governments by their people and +of the largest development of their great commercial resources. The mutual +benefits of enlarged commercial exchanges and of a more familiar and +friendly intercourse between our peoples we do desire, and in this have +sought their friendly cooperation. + +I have believed, however, while holding these sentiments in the greatest +sincerity, that we must insist upon a just responsibility for any injuries +inflicted upon our official representatives or upon our citizens. This +insistence, kindly and justly but firmly made, will, I believe, promote +peace and mutual respect. + +Our relations with Hawaii have been such as to attract an increased +interest, and must continue to do so. I deem it of great importance that +the projected submarine cable, a survey for which has been made, should be +promoted. Both for naval and commercial uses we should have quick +communication with Honolulu. We should before this have availed ourselves +of the concession made many years ago to this Government for a harbor and +naval station at Pearl River. Many evidences of the friendliness of the +Hawaiian Government have been given in the past, and it is gratifying to +believe that the advantage and necessity of a continuance of very close +relations is appreciated. + +The friendly act of this Government in expressing to the Government of +Italy its reprobation and abhorrence of the lynching of Italian subjects in +New Orleans by the payment of 125,000 francs, or $24,330.90, was accepted +by the King of Italy with every manifestation of gracious appreciation, and +the incident has been highly promotive of mutual respect and good will. + +In consequence of the action of the French Government in proclaiming a +protectorate over certain tribal districts of the west coast of Africa +eastward of the San Pedro River, which has long been regarded as the +southeastern boundary of Liberia, I have felt constrained to make protest +against this encroachment upon the territory of a Republic which was +rounded by citizens of the United States and toward which this country has +for many years held the intimate relation of a friendly counselor. + +The recent disturbances of the public peace by lawless foreign marauders on +the Mexican frontier have afforded this Government an opportunity to +testify its good will for Mexico and its earnest purpose to fulfill the +obligations of international friendship by pursuing and dispersing the evil +doers. The work of relocating the boundary of the treaty of Guadalupe +Hidalgo westward from El Paso is progressing favorably. + +Our intercourse with Spain continues on a friendly footing. I regret, +however, not to be able to report as yet the adjustment of the claims of +the American missionaries arising from the disorders at Ponape, in the +Caroline Islands, but I anticipate a satisfactory adjustment in view of +renewed and urgent representations to the Government at Madrid. + +The treatment of the religious and educational establishments of American +citizens in Turkey has of late called for a more than usual share of +attention. A tendency to curtail the toleration which has so beneficially +prevailed is discernible and has called forth the earnest remonstrance of +this Government. Harassing regulations in regard to schools and churches +have been attempted in certain localities, but not without due protest and +the assertion of the inherent and conventional rights of our countrymen. +Violations of domicile and search of the persons and effects of citizens of +the United States by apparently irresponsible officials in the Asiatic +vilayets have from time to time been reported. An aggravated instance of +injury to the property of an American missionary at Bourdour, in the +province of Konia, cal1ed forth an urgent claim for reparation, which I am +pleased to say was promptly heeded by the Government of the Porte. +Interference with the trading ventures of our citizens in Asia Minor is +also reported, and the lack of consular representation in that region is a +serious drawback to instant and effective protection. I can not believe +that these incidents represent a settled policy, and shall not cease to +urge the adoption of proper remedies. + +International copyright has been extended to Italy by proclamation in +conformity with the act of March 3, 1891, upon assurance being given that +Italian law permits to citizens of the United States the benefit of +copyright on substantially the same basis as to subjects of Italy. By a +special convention proclaimed January 15, 1892, reciprocal provisions of +copyright have been applied between the United States and Germany. +Negotiations are in progress with other countries to the same end. + +I repeat with great earnestness the recommendation which I have made in +several previous messages that prompt and adequate support be given to the +American company engaged in the construction of the Nicaragua ship canal. +It is impossible to overstate the value from every standpoint of this great +enterprise, and I hope that there may be time, even in this Congress, to +give to it an impetus that will insure the early completion of the canal +and secure to the United States its proper relation to it when completed. + +The Congress has been already advised that the invitations of this +Government for the assembling of an international monetary conference to +consider the question of an enlarged use of silver were accepted by the +nations to which they were addressed. The conference assembled at Brussels +on the 22d of November, and has entered upon the consideration of this +great question. I have not doubted, and have taken occasion to express that +belief as well in the invitations issued for this conference as in my +public messages, that the free coinage of silver upon an agreed +international ratio would greatly promote the interests of our people and +equally those of other nations. It is too early to predict what results may +be accomplished by the conference. If any temporary check or delay +intervenes, I believe that very soon commercial conditions will compel the +now reluctant governments to unite with us in this movement to secure the +enlargement of the volume of coined money needed for the transaction of the +business of the world. + +The report of the Secretary of the Treasury will attract especial interest +in view of the many misleading statements that have been made as to the +state of the public revenues. Three preliminary facts should not only be +stated but emphasized before looking into details: First, that the public +debt has been reduced since March 4, 1889, $259,074,200, and the annual +interest charge $11,684,469; second, that there have been paid out for +pensions during this Administration up to November 1, 1892, +$432,564,178.70, an excess of $114,466,386.09 over the sum expended during +the period from March 1, 1885, to March 1, 1889; and, third, that under the +existing tariff up to December 1 about $93,000,000 of revenue which would +have been collected upon imported sugars if the duty had been maintained +has gone into the pockets of the people, and not into the public Treasury, +as before. If there are any who still think that the surplus should have +been kept out of circulation by hoarding it in the Treasury, or deposited +in favored banks without interest while the Government continued to pay to +these very banks interest upon the bonds deposited as security for the +deposits, or who think that the extended pension legislation was a public +robbery, or that the duties upon sugar should have been maintained, I am +content to leave the argument where it now rests while we wait to see +whether these criticisms will take the form of legislation. + +The revenues for the fiscal year ending June 30, 1892, from all sources +were $425,868,260.22, and the expenditures for all purposes were +$415,953,806.56, leaving a balance of $9,914,453.66. There were paid during +the year upon the public debt $40,570,467.98. The surplus in the Treasury +and the bank redemption fund passed by the act of July 14, 1890, to the +general fund furnished in large part the cash available and used for the +payments made upon the public debt. Compared with the year 1891, our +receipts from customs duties fell off $42,069,241.08, while our receipts +from internal revenue increased $8,284,823.13, leaving the net loss of +revenue from these principal sources $33,784,417.95. The net loss of +revenue from all sources was $32,675,972.81. + +The revenues, estimated and actual, for the fiscal year ending June 30, +1893, are placed by the Secretary at $463,336,350.44, and the expenditures +at $461,336,350.44, showing a surplus of receipts over expenditures of +$2,000,000. The cash balance in the Treasury at the end of the fiscal year +it is estimated will be $20,992,377.03. So far as these figures are based +upon estimates of receipts and expenditures for the remaining months of the +current fiscal year, there are not only the usual elements of uncertainty, +but some added elements. New revenue legislation, or even the expectation +of it, may seriously reduce the public revenues during the period of +uncertainty and during the process of business adjustment to the new +conditions when they become known. But the Secretary has very wisely +refrained from guessing as to the effect of possible changes in our revenue +laws, since the scope of those changes and the time of their taking effect +can not in any degree be forecast or foretold by him. His estimates must be +based upon existing laws and upon a continuance of existing business +conditions, except so far as these conditions may be affected by causes +other than new legislation. + +The estimated receipts for the fiscal year ending June 30, 1894, are +$490,121,365.38, and the estimated appropriations $457,261,335.33, leaving +an estimated surplus of receipts over expenditures of $32,860,030.05. This +does not include any payment to the sinking fund. In the recommendation of +the Secretary that the sinking-fund law be repealed I concur. The +redemption of bonds since the passage of the law to June 30, 1892, has +already exceeded the requirements by the sum of $990,510,681.49. The +retirement of bonds in the future before maturity should be a matter of +convenience, not of compulsion. We should not collect revenue for that +purpose, but only use any casual surplus. To the balance of $32,860,030.05 +of receipts over expenditures for the year 1894 should be added the +estimated surplus at the beginning of the year, $20,992,377.03, and from +this aggregate there must be deducted, as stated by the Secretary, about +$44,000,000 of estimated unexpended appropriations. + +The public confidence in the purpose and ability of the Government to +maintain the parity of all of our money issues, whether coin or paper, must +remain unshaken. The demand for gold in Europe and the consequent calls +upon us are in a considerable degree the result of the efforts of some of +the European Governments to increase their gold reserves, and these efforts +should be met by appropriate legislation on our part. The conditions that +have created this drain of the Treasury gold are in an important degree +political, and not commercial. In view of the fact that a general revision +of our revenue laws in the near future seems to be probable, it would be +better that any changes should be a part of that revision rather than of a +temporary nature. + +During the last fiscal year the Secretary purchased under the act of July +14, 1890, 54,355,748 ounces of silver and issued in payment therefor +$51,106,608 in notes. The total purchases since the passage of the act have +been 120,479,981 ounces and the aggregate of notes issued $116,783,590. The +average price paid for silver during the year was 94 cents per ounce, the +highest price being $1.02 3/4 July 1, 1891, and the lowest 83 cents March +21, 1892. In view of the fact that the monetary conference is now sitting +and that no conclusion has yet been reached, I withhold any recommendation +as to legislation upon this subject. + +The report of the Secretary of War brings again to the attention of +Congress some important suggestions as to the reorganization of the +infantry and artillery arms of the service, which his predecessors have +before urgently presented. Our Army is small, but its organization should +all the more be put upon the most approved modern basis. The conditions +upon what we have called the "frontier" have heretofore required the +maintenance of many small posts, but now the policy of concentration is +obviously the right one. The new posts should have the proper strategic +relations to the only "frontiers" we now have--those of the seacoast and of +our northern and part of our southern boundary. I do not think that any +question of advantage to localities or to States should determine the +location of the new posts. The reorganization and enlargement of the Bureau +of Military Information which the Secretary has effected is a work the +usefulness of which will become every year more apparent. The work of +building heavy guns and the construction of coast defenses has been well +begun and should be carried on without check. + +The report of the Attorney-General is by law submitted directly to +Congress, but I can not refrain from saying that he has conducted the +increasing work of the Department of Justice with great professional skill. +He has in several directions secured from the courts decisions giving +increased protection to the officers of the United States and bringing some +classes of crime that escaped local cognizance and punishment into the +tribunals of the United States, where they could be tried with +impartiality. + +The numerous applications for Executive clemency presented in behalf of +persons convicted in United States courts and given penitentiary sentences +have called my attention to a fact referred to by the Attorney-General in +his report, namely, that a time allowance for good behavior for such +prisoners is prescribed by the Federal statutes only where the State in +which the penitentiary is located has made no such provision. Prisoners are +given the benefit of the provisions of the State law regulating the +penitentiary to which they may be sent. These are various, some perhaps too +liberal and some perhaps too illiberal. The result is that a sentence for +five years means one thing if the prisoner is sent to one State for +confinement and quite a different thing if he is sent to another. I +recommend that a uniform credit for good behavior be prescribed by +Congress. + +I have before expressed my concurrence in the recommendation of the +Attorney-General that degrees of murder should be recognized in the Federal +statutes, as they are, I believe, in all the States. These grades are +rounded on correct distinctions in crime. The recognition of them would +enable the courts to exercise some discretion in apportioning punishment +and would greatly relieve the Executive of what is coming to be a very +heavy burden--the examination of these cases on application for +commutation. + +The aggregate of claims pending against the Government in the Court of +Claims is enormous. Claims to the amount of nearly $400,000,000 for the +taking of or injury to the property of persons claiming to be loyal during +the war are now before that court for examination. When to these are added +the Indian depredation claims and the French spoliation claims, an +aggregate is reached that is indeed startling. In the defense of all these +cases the Government is at great disadvantage. The claimants have preserved +their evidence, whereas the agents of the Government are sent into the +field to rummage for what they can find. This difficulty is peculiarly +great where the fact to be established is the disloyalty of the claimant +during the war. If this great threat against our revenues is to have no +other check, certainly Congress should supply the Department of Justice +with appropriations sufficiently liberal to secure the best legal talent in +the defense of these claims and to pursue its vague search for evidence +effectively. + +The report of the Postmaster-General shows a most gratifying increase and a +most efficient and progressive management of the great business of that +Department. The remarkable increase in revenues, in the number of +post-offices, and in the miles of mail carriage furnishes further evidence +of the high state of prosperity which our people are enjoying. New offices +mean new hamlets and towns, new routes mean the extension of our border +settlements, and increased revenues mean an active commerce. The +Postmaster-General reviews the whole period of his administration of the +office and brings some of his statistics down to the month of November +last. The postal revenues have increased during the last year nearly +$5,000,000. The deficit for the year ending June 30, 1892, is $848,341 less +than the deficiency of the preceding year. The deficiency of the present +fiscal year it is estimated will be reduced to $1,552,423, which will not +only be extinguished during the next fiscal year but a surplus of nearly +$1,000,000 should then be shown. In these calculations the payments to be +made under the contracts for ocean mail service have not been included. +There have been added 1,590 new mail routes during the year, with a mileage +of 8,563 miles, and the total number of new miles of mail trips added +during the year is nearly 17,000,000. The number of miles of mail journeys +added during the last four years is about 76,000,000, this addition being +21,000,000 miles more than were in operation in the whole country in 1861. + +The number of post-offices has been increased by 2,790 during the year, and +during the past four years, and up to October 29 last, the total increase +in the number of offices has been nearly 9,000. The number of free-delivery +offices has been nearly doubled in the last four years, and the number of +money-order offices more than doubled within that time. + +For the three years ending June 30, 1892, the postal revenue amounted to +$197,744,359, which was an increase of $52,263,150 over the revenue for the +three years ending June 30, 1888, the increase during the last three years +being more than three and a half times as great as the increase during the +three years ending June 30, 1888. No such increase as that shown for these +three years has ever previously appeared in the revenues of the Department. +The Postmaster-General has extended to the post-offices in the larger +cities the merit system of promotion introduced by my direction into the +Departments here, and it has resulted there, as in the Departments, in a +larger volume of work and that better done. + +Ever since our merchant marine was driven from the sea by the rebel +cruisers during the War of the Rebellion the United States has been paying +an enormous annual tribute to foreign countries in the shape of freight and +passage moneys. Our grain and meats have been taken at our own docks and +our large imports there laid down by foreign shipmasters. An increasing +torrent of American travel to Europe has contributed a vast sum annually to +the dividends of foreign shipowners. The balance of trade shown by the +books of our custom-houses has been very largely reduced and in many years +altogether extinguished by this constant drain. In the year 1892 only 12.3 +per cent of our imports were brought in American vessels. These great +foreign steamships maintained by our traffic are many of them under +contracts with their respective Governments by which in time of war they +will become a part of their armed naval establishments. Profiting by our +commerce in peace, they will become the most formidable destroyers of our +commerce in time of war. I have felt, and have before expressed the +feeling, that this condition of things was both intolerable and +disgraceful. A wholesome change of policy, and one having in it much +promise, as it seems to me, was begun by the law of March 3, 1891. Under +this law contracts have been made by the Postmaster-General for eleven mail +routes. The expenditure involved by these contracts for the next fiscal +year approximates $954,123.33. As one of the results already reached +sixteen American steamships, of an aggregate tonnage of 57,400 tons, +costing $7,400,000, have been built or contracted to be built in American +shipyards. + +The estimated tonnage of all steamships required under existing contracts +is 165,802, and when the full service required by these contracts is +established there will be forty-one mail steamers under the American flag, +with the probability of further necessary additions in the Brazilian and +Argentine service. The contracts recently let for transatlantic service +will result in the construction of five ships of 10,000 tons each, costing +$9,000,000 to $10,000,000, and will add, with the City of New York and City +of Paris, to which the Treasury Department was authorized by legislation at +the last session to give American registry, seven of the swiftest vessels +upon the sea to our naval reserve. The contracts made with the lines +sailing to Central and South American ports have increased the frequency +and shortened the time of the trips, added new ports of call, and sustained +some lines that otherwise would almost certainly have been withdrawn. The +service to Buenos Ayres is the first to the Argentine Republic under the +American flag. The service to Southampton, Boulogne, and Antwerp is also +new, and is to be begun with the steamships City of New York and City of +Paris in February next. + +I earnestly urge the continuance of the policy inaugurated by this +legislation, and that the appropriations required to meet the obligations +of the Government under the contracts may be made promptly, so that the +lines that have entered into these engagements may not be embarrassed. We +have had, by reason of connections with the transcontinental railway lines +constructed through our own territory, some advantages in the ocean trade +of the Pacific that we did not possess on the Atlantic. The construction of +the Canadian Pacific Railway and the establishment under large subventions +from Canada and England of fast steamship service from Vancouver with Japan +and China seriously threaten our shipping interests in the Pacific. This +line of English steamers receives, as is stated by the Commissioner of +Navigation, a direct subsidy of $400,000 annually, or $30,767 per trip for +thirteen voyages, in addition to some further aid from the Admiralty in +connection with contracts under which the vessels may be used for naval +purposes. The competing American Pacific mail line under the act of March +3, 1891, receives only $6,389 per round trip. + +Efforts have been making within the last year, as I am informed, to +establish under similar conditions a line between Vancouver and some +Australian port, with a view of seizing there a trade in which we have had +a large interest. The Commissioner of Navigation states that a very large +per cent of our imports from Asia are now brought to us by English +steamships and their connecting railways in Canada. With a view of +promoting this trade, especially in tea, Canada has imposed a +discriminating duty of 10 per cent upon tea and coffee brought into the +Dominion from the United States. If this unequal contest between American +lines without subsidy, or with diminished subsidies, and the English +Canadian line to which I have referred is to continue, I think we should at +least see that the facilities for customs entry and transportation across +our territory are not such as to make the Canadian route a favored one, and +that the discrimination as to duties to which I have referred is met by a +like discrimination as to the importation of these articles from Canada. + +No subject, I think, more nearly touches the pride, the power, and the +prosperity of our country than this of the development of our merchant +marine upon the sea. If we could enter into conference with other +competitors and all would agree to withhold government aid, we could +perhaps take our chances with the rest; but our great competitors have +established and maintained their lines by government subsidies until they +now have practically excluded us from participation. In my opinion no +choice is left to us but to pursue, moderately at least, the same lines. + +The report of the Secretary of the Navy exhibits great progress in the +construction of our new Navy. When the present Secretary entered upon his +duties, only 3 modern steel vessels were in commission. The vessels since +put in commission and to be put in commission during the winter will make a +total of 19 during his administration of the Department. During the current +year 10 war vessels and 3 navy tugs have been launched, and during the four +years 25 vessels will have been launched. Two other large ships and a +torpedo boat are under contract and the work upon them well advanced, and +the 4 monitors are awaiting only the arrival of their armor, which has been +unexpectedly delayed, or they would have been before this in commission. + +Contracts have been let during this Administration, under the +appropriations for the increase of the Navy, including new vessels and +their appurtenances, to the amount of $35,000,000, and there has been +expended during the same period for labor at navy-yards upon similar work +$8,000,000 without the smallest scandal or charge of fraud or partiality. +The enthusiasm and interest of our naval officers, both of the staff and +line, have been greatly kindled. They have responded magnificently to the +confidence of Congress and have demonstrated to the world an unexcelled +capacity in construction, in ordnance, and in everything involved in the +building, equipping, and sailing of great war ships. + +At the beginning of Secretary Tracy's administration several difficult +problems remained to be grappled with and solved before the efficiency in +action of our ships could be secured. It is believed that as the result of +new processes in the construction of armor plate our later ships will be +clothed with defensive plates of higher resisting power than are found on +any war vessels afloat. We were without torpedoes. Tests have been made to +ascertain the relative efficiency of different constructions, a torpedo has +been adopted, and the work of construction is now being carried on +successfully. We were without armor-piercing shells and without a shop +instructed and equipped for the construction of them. We are now making +what is believed to be a projectile superior to any before in use. A +smokeless powder has been developed and a slow-burning powder for guns of +large caliber. A high explosive capable of use in shells fired from service +guns has been found, and the manufacture of gun cotton has been developed +so that the question of supply is no longer in doubt. + +The development of a naval militia, which has been organized in eight +States and brought into cordial and cooperative relations with the Navy, is +another important achievement. There are now enlisted in these +organizations 1,800 men, and they are likely to be greatly extended. I +recommend such legislation and appropriations as will encourage and develop +this movement. The recommendations of the Secretary will, I do not doubt, +receive the friendly consideration of Congress, for he has enjoyed, as he +has deserved, the confidence of all those interested in the development of +our Navy, without any division upon partisan lines. I earnestly express the +hope that a work which has made such noble progress may not now be stayed. +The wholesome influence for peace and the increased sense of security which +our citizens domiciled in other lands feel when these magnificent ships +under the American flag appear is already most gratefully apparent. The +ships from our Navy which will appear in the great naval parade next April +in the harbor of New York will be a convincing demonstration to the world +that the United States is again a naval power. + +The work of the Interior Department, always very burdensome, has been +larger than ever before during the administration of Secretary Noble. The +disability-pension law, the taking of the Eleventh Census, the opening of +vast areas of Indian lands to settlement, the organization of Oklahoma, and +the negotiations for the cession of Indian lands furnish some of the +particulars of the increased work, and the results achieved testify to the +ability, fidelity, and industry of the head of the Department and his +efficient assistants. + +Several important agreements for the cession of Indian lands negotiated by +the commission appointed under the act of March 2, 1889, are awaiting the +action of Congress. Perhaps the most important of these is that for the +cession of the Cherokee Strip. This region has been the source of great +vexation to the executive department and of great friction and unrest +between the settlers who desire to occupy it and the Indians who assert +title. The agreement which has been made by the commission is perhaps the +most satisfactory that could have been reached. It will be noticed that it +is conditioned upon its ratification by Congress before March 4, 1893. The +Secretary of the Interior, who has given the subject very careful thought, +recommends the ratification of the agreement, and I am inclined to follow +his recommendation. Certain it is that some action by which this +controversy shall be brought to an end and these lands opened to settlement +is urgent. + +The form of government provided by Congress on May 17, 1884, for Alaska was +in its frame and purpose temporary. The increase of population and the +development of some important mining and commercial interests make it +imperative that the law should be revised and better provision made for the +arrest and punishment of criminals. + +The report of the Secretary shows a very gratifying state of facts as to +the condition of the General Land Office. The work of issuing agricultural +patents, which seemed to be hopelessly in arrear when the present Secretary +undertook the duties of his office, has been so expedited that the bureau +is now upon current business. The relief thus afforded to honest and worthy +settlers upon the public lands by giving to them an assured title to their +entries has been of incalculable benefit in developing the new States and +the Territories. + +The Court of Private Land Claims, established by Congress for the promotion +of this policy of speedily settling contested land titles, is making +satisfactory progress in its work, and when the work is completed a great +impetus will be given to the development of those regions where unsettled +claims under Mexican grants have so long exercised their repressive +influence. When to these results are added the enormous cessions of Indian +lands which have been opened to settlement, aggregating during this +Administration nearly 26,000,000 acres, and the agreements negotiated and +now pending in Congress for ratification by which about 10,000,000 +additional acres will be opened to settlement, it will be seen how much has +been accomplished. + +The work in the Indian Bureau in the execution of the policy of recent +legislation has been largely directed to two chief purposes: First, the +allotment of lands in severalty to the Indians and the cession to the +United States of the surplus lands, and, secondly, to the work of educating +the Indian for his own protection in his closer contact with the white man +and for the intelligent exercise of his new citizenship. Allotments have +been made and patents issued to 5,900 Indians under the present Secretary +and Commissioner, and 7,600 additional allotments have been made for which +patents are now in process of preparation. The school attendance of Indian +children has been increased during that time over 13 per cent, the +enrollment for 1892 being nearly 20,000. A uniform system of school +text-books and of study has been adopted and the work in these national +schools brought as near as may be to the basis of the free common schools +of the States. These schools can be transferred and merged into the +common-school systems of the States when the Indian has fully assumed his +new relation to the organized civil community in which he resides and the +new States are able to assume the burden. I have several times been called +upon to remove Indian agents appointed by me, and have done so promptly +upon every sustained complaint of unfitness or misconduct. I believe, +however, that the Indian service at the agencies has been improved and is +now administered on the whole with a good degree of efficiency. If any +legislation is possible by which the selection of Indian agents can be +wholly removed from all partisan suggestions or considerations, I am sure +it would be a great relief to the Executive and a great benefit to the +service. The appropriation for the subsistence of the Cheyenne and Arapahoe +Indians made at the last session of Congress was inadequate. This smaller +appropriation was estimated for by the Commissioner upon the theory that +the large fund belonging to the tribe in the public Treasury could be and +ought to be used for their support. In view, however, of the pending +depredation claims against this fund and other considerations, the +Secretary of the Interior on the 12th of April last submitted a +supplemental estimate for $50,000. This appropriation was not made, as it +should have been, and the oversight ought to be remedied at the earliest +possible date. + +In a special message to this Congress at the last session, I stated the +reasons why I had not approved the deed for the release to the United +States by the Choctaws and Chickasaws of the lands formerly embraced in the +Cheyenne and Arapahoe Reservation and remaining after allotments to that +tribe. A resolution of the Senate expressing the opinion of that body that +notwithstanding the facts stated in my special message the deed should be +approved and the money, $2,991,450, paid over was presented to me May 10, +1892. My special message was intended to call the attention of Congress to +the subject, and in view of the fact that it is conceded that the +appropriation proceeded upon a false basis as to the amount of lands to be +paid for and is by $50,000 in excess of the amount they are entitled to +(even if their claim to the land is given full recognition at the rate +agreed upon), I have not felt willing to approve the deed, and shall not do +so, at least until both Houses of Congress have acted upon the subject. It +has been informally proposed by the claimants to release this sum of +$50,000, but I have no power to demand or accept such a release, and such +an agreement would be without consideration and void. + +I desire further to call the attention of Congress to the fact that the +recent agreement concluded with the Kiowas and Comanches relates to lands +which were a part of the "leased district," and to which the claim of the +Choctaws and Chickasaws is precisely that recognized by Congress in the +legislation I have referred to. The surplus lands to which this claim would +attach in the Kiowa and Comanche Reservation is 2,500,000 acres, and at the +same rate the Government will be called upon to pay to the Choctaws and +Chickasaws for these lands $3,125,000. This sum will be further augmented, +especially if the title of the Indians to the tract now Greet County, Tex., +is established. The duty devolved upon me in this connection was simply to +pass upon the form of the deed; but as in my opinion the facts mentioned in +my special message were not adequately brought to the attention of Congress +in connection with the legislation, I have felt that I would not be +justified in acting without some new expression of the legislative will. + +The report of the Commissioner of Pensions, to which extended notice is +given by the Secretary of the Interior in his report, will attract great +attention. Judged by the aggregate amount of work done, the last year has +been the greatest in the history of the office. I believe that the +organization of the office is efficient and that the work has been done +with fidelity. The passage of what is known as the disability bill has, as +was foreseen, very largely increased the annual disbursements to the +disabled veterans of the Civil War. The estimate for this fiscal year was +$144,956,000, and that amount was appropriated. A deficiency amounting to +$10,508,621 must be provided for at this session. The estimate for pensions +for the fiscal year ending June 30, 1894, is $165,000,000. The Commissioner +of Pensions believes that if the present legislation and methods are +maintained and further additions to the pension laws are not made the +maximum expenditure for pensions will be reached June 30, 1894, and will be +at the highest point $188,000,000 per annum. + +I adhere to the views expressed in previous messages that the care of the +disabled soldiers of the War of the Rebellion is a matter of national +concern and duty. Perhaps no emotion cools sooner than that of gratitude, +but I can not believe that this process has yet reached a point with our +people that would sustain the policy of remitting the care of these +disabled veterans to the inadequate agencies provided by local laws. The +parade on the 20th of September last upon the streets of this capital of +60,000 of the surviving Union veterans of the War of the Rebellion was a +most touching and thrilling episode, and the rich and gracious welcome +extended to them by the District of Columbia and the applause that greeted +their progress from tens of thousands of people from all the States did +much to revive the glorious recollections of the Grand Review when these +men and many thousand others now in their graves were welcomed with +grateful joy as victors in a struggle in which the national unity, honor, +and wealth were all at issue. + +In my last annual message I called attention to the fact that some +legislative action was necessary in order to protect the interests of the +Government in its relations with the Union Pacific Railway. The +Commissioner of Railroads has submitted a very full report, giving exact +information as to the debt, the liens upon the company's property, and its +resources. We must deal with the question as we find it and take that +course which will under existing conditions best secure the interests of +the United States. I recommended in my last annual message that a +commission be appointed to deal with this question, and I renew that +recommendation and suggest that the commission be given full power. + +The report of the Secretary of Agriculture contains not only a most +interesting statement of the progressive and valuable work done under the +administration of Secretary Rusk, but many suggestions for the enlarged +usefulness of this important Department. In the successful efforts to break +down the restrictions to the free introduction of our meat products in the +countries of Europe the Secretary has been untiring from the first, +stimulating and aiding all other Government officers at home and abroad +whose official duties enabled them to participate in the work. The total +trade in hog products with Europe in May, 1892, amounted to 82,000,000 +pounds, against 46,900,000 in the same month of 1891; in June, 1892, the +export aggregated 85,700,000 pounds, against 46,500,000 pounds in the same +month of the previous year; in July there was an increase of 41 per cent +and in August of 55 per cent over the corresponding months of 1891. Over +40,000,000 pounds of inspected pork have been exported since the law was +put into operation, and a comparison of the four months of May, June, July, +and August, 1892, with the same months of 1891 shows an increase in the +number of pounds of our export of pork products of 62 per cent and an +increase in value of 66 1/2 per cent. The exports of dressed beef increased +from 137,900,000 pounds in 1889 to 220,500,000 pounds in 1892 or about 60 +per cent. During the past year there have been exported 394,607 head of +live cattle, as against 205,786 exported in 1889. This increased +exportation has been largely promoted by the inspection authorized by law +and the faithful efforts of the Secretary and his efficient subordinates to +make that inspection thorough and to carefully exclude from all cargoes +diseased or suspected cattle. The requirement of the English regulations +that live cattle arriving from the United States must be slaughtered at the +docks had its origin in the claim that pleuro-pneumonia existed among +American cattle and that the existence of the disease could only certainly +be determined by a post mortem inspection. + +The Department of Agriculture has labored with great energy and +faithfulness to extirpate this disease, and on the 26th day of September +last a public announcement was made by the Secretary that the disease no +longer existed anywhere within the United States. He is entirely satisfied +after the most searching inquiry that this statement was justified, and +that by a continuance of the inspection and quarantine now required of +cattle brought into this country the disease can be prevented from again +getting any foothold. The value to the cattle industry of the United States +of this achievement can hardly be estimated. We can not, perhaps, at once +insist that this evidence shall be accepted as satisfactory by other +countries; but if the present exemption from the disease is maintained and +the inspection of our cattle arriving at foreign ports, in which our own +veterinarians participate, confirms it, we may justly expect that the +requirement that our cattle shall be slaughtered at the docks will be +revoked, as the sanitary restrictions upon our pork products have been. If +our cattle can be taken alive to the interior, the trade will be enormously +increased. + +Agricultural products constituted 78.1 per cent of our unprecedented +exports for the fiscal year which closed June 30, 1892, the total exports +being $1,030,278,030 and the value of the agricultural products +$793,717,676, which exceeds by more than $150,000,000 the shipment of +agricultural products in any previous year. + +An interesting and a promising work for the benefit of the American farmer +has been begun through agents of the Agricultural Department in Europe, and +consists in efforts to introduce the various products of Indian corn as +articles of human food. The high price of rye offered a favorable +opportunity for the experiment in Germany of combining corn meal with rye +to produce a cheaper bread. A fair degree of success has been attained, and +some mills for grinding corn for food have been introduced. The Secretary +is of the opinion that this new use of the products of corn has already +stimulated exportations, and that if diligently prosecuted large and +important markets can presently be opened for this great American product. + +The suggestions of the Secretary for an enlargement of the work of the +Department are commended to your favorable consideration. It may, I think, +be said without challenge that in no corresponding period has so much been +done as during the last four years for the benefit of American +agriculture. + +The subject of quarantine regulations, inspection, and control was brought +suddenly to my attention by the arrival at our ports in August last of +vessels infected with cholera. Quarantine regulations should be uniform at +all our ports. Under the Constitution they are plainly within the exclusive +Federal jurisdiction when and so far as Congress shall legislate. In my +opinion the whole subject should be taken into national control and +adequate power given to the Executive to protect our people against plague +invasions. On the 1st of September last I approved regulations establishing +a twenty-day quarantine for all vessels bringing immigrants from foreign +ports. This order will be continued in force. Some loss and suffering have +resulted to passengers, but a due care for the homes of our people +justifies in such cases the utmost precaution. There is danger that with +the coming of spring cholera will again appear, and a liberal appropriation +should be made at this session to enable our quarantine and port officers +to exclude the deadly plague. + +But the most careful and stringent quarantine regulations may not be +sufficient absolutely to exclude the disease. The progress of medical and +sanitary science has been such, however, that if approved precautions are +taken at once to put all of our cities and towns in the best sanitary +condition, and provision is made for isolating any sporadic cases and for a +thorough disinfection, an epidemic can, I am sure, be avoided. This work +appertains to the local authorities, and the responsibility and the penalty +will be appalling if it is neglected or unduly delayed. + +We are peculiarly subject in our great ports to the spread of infectious +diseases by reason of the fact that unrestricted immigration brings to us +out of European cities, in the overcrowded steerages of great steamships, a +large number of persons whose surroundings make them the easy victims of +the plague. This consideration, as well as those affecting the political, +moral, and industrial interests of our country, leads me to renew the +suggestion that admission to our country and to the high privileges of its +citizenship should be more restricted and more careful. We have, I think, a +right and owe a duty to our own people, and especially to our working +people, not only to keep out the vicious, the ignorant, the civil +disturber, the pauper, and the contract laborer, but to check the too great +flow of immigration now coming by further limitations. + +The report of the World's Columbian Exposition has not yet been submitted. +That of the board of management of the Government exhibit has been received +and is herewith transmitted. The work of construction and of preparation +for the opening of the exposition in May next has progressed most +satisfactorily and upon a scale of liberality and magnificence that will +worthily sustain the honor of the United States. + +The District of Columbia is left by a decision of the supreme court of the +District without any law regulating the liquor traffic. An old statute of +the legislature of the District relating to the licensing of various +vocations has hitherto been treated by the Commissioners as giving them +power to grant or refuse licenses to sell intoxicating liquors and as +subjecting those who sold without licenses to penalties; but in May last +the supreme court of the District held against this view of the powers of +the Commissioners. It is of urgent importance, therefore, that Congress +should supply, either by direct enactment or by conferring discretionary +powers upon the Commissioners, proper limitations and restraints upon the +liquor traffic in the District. The District has suffered in its reputation +by many crimes of violence, a large per cent of them resulting from +drunkenness and the liquor traffic. The capital of the nation should be +freed from this reproach by the enactment of stringent restrictions and +limitations upon the traffic. + +In renewing the recommendation which I have made in three preceding annual +messages that Congress should legislate for the protection of railroad +employees against the dangers incident to the old and inadequate methods of +braking and coupling which are still in use upon freight trains, I do so +with the hope that this Congress may take action upon the subject. +Statistics furnished by the Interstate Commerce Commission show that during +the year ending June 30, 1891, there were forty-seven different styles of +car couplers reported to be in use, and that during the same period there +were 2,660 employees killed and 26,140 injured. Nearly 16 per cent of the +deaths occurred in the coupling and uncoupling of cars and over 36 per cent +of the injuries had the same origin. + +The Civil Service Commission ask for an increased appropriation for needed +clerical assistance, which I think should be given. I extended the +classified service March 1, 1892, to include physicians, superintendents, +assistant superintendents, school-teachers, and matrons in the Indian +service, and have had under consideration the subject of some further +extensions, but have not as yet fully determined the lines upon which +extensions can most properly and usefully be made. + +I have in each of the three annual messages which it has been my duty to +submit to Congress called attention to the evils and dangers connected with +our election methods and practices as they are related to the choice of +officers of the National Government. In my last annual message I endeavored +to invoke serious attention to the evils of unfair apportionments for +Congress. I can not close this message without again calling attention to +these grave and threatening evils. I had hoped that it was possible to +secure a nonpartisan inquiry by means of a commission into evils the +existence of which is known to all, and that out of this might grow +legislation from which all thought of partisan advantage should be +eliminated and only the higher thought appear of maintaining the freedom +and purity of the ballot and the equality of the elector, without the +guaranty of which the Government could never have been formed and without +the continuance of which it can not continue to exist in peace and +prosperity. + +It is time that mutual charges of unfairness and fraud between the great +parties should cease and that the sincerity of those who profess a desire +for pure and honest elections should be brought to the test of their +willingness to free our legislation and our election methods from +everything that tends to impair the public confidence in the announced +result. The necessity for an inquiry and for legislation by Congress upon +this subject is emphasized by the fact that the tendency of the legislation +in some States in recent years has in some important particulars been away +from and not toward free and fair elections and equal apportionments. Is it +not time that we should come together upon the high plane of patriotism +while we devise methods that shall secure the right of every man qualified +by law to cast a free ballot and give to every such ballot an equal value +in choosing our public officers and in directing the policy of the +Government? + +Lawlessness is not less such, but more, where it usurps the functions of +the peace officer and of the courts. The frequent lynching of colored +people accused of crime is without the excuse, which has sometimes been +urged by mobs for a failure to pursue the appointed methods for the +punishment of crime, that the accused have an undue influence over courts +and juries. Such acts are a reproach to the community where they occur, and +so far as they can be made the subject of Federal jurisdiction the +strongest repressive legislation is demanded. A public sentiment that will +sustain the officers of the law in resisting mobs and in protecting accused +persons in their custody should be promoted by every possible means. The +officer who gives his life in the brave discharge of this duty is worthy of +special honor. No lesson needs to be so urgently impressed upon our people +as this, that no worthy end or cause can be promoted by lawlessness. + +This exhibit of the work of the Executive Departments is submitted to +Congress and to the public in the hope that there will be found in it a due +sense of responsibility and an earnest purpose to maintain the national +honor and to promote the happiness and prosperity of all our people, and +this brief exhibit of the growth and prosperity of the country will give us +a level from which to note the increase or decadence that new legislative +policies may bring to us. There is no reason why the national influence, +power, and prosperity should not observe the same rates of increase that +have characterized the past thirty years. We carry the great impulse and +increase of these years into the future. There is no reason why in many +lines of production we should not surpass all other nations, as we have +already done in some. There are no near frontiers to our possible +development. Retrogression would be a crime. BENJ. HARRISON + + + +*** END OF THE PROJECT GUTENBERG EBOOK OF ADDRESSES BY BENJAMIN HARRISON *** + +This file should be named suhar10.txt or suhar10.zip +Corrected EDITIONS of our eBooks get a new NUMBER, suhar11.txt +VERSIONS based on separate sources get new LETTER, suhar10a.txt + +Project Gutenberg eBooks are often created from several printed +editions, all of which are confirmed as Public Domain in the US +unless a copyright notice is included. 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You can also find out about how to make a +donation to Project Gutenberg, and how to get involved. + + +**Welcome To The World of Free Plain Vanilla Electronic Texts** + +**eBooks Readable By Both Humans and By Computers, Since 1971** + +*****These eBooks Were Prepared By Thousands of Volunteers!***** + + +Title: State of the Union Addresses of Benjamin Harrison + +Author: Benjamin Harrison + +Release Date: February, 2004 [EBook #5030] +[Yes, we are more than one year ahead of schedule] +[This file was first posted on April 11, 2002] +[Date last updated: December 16, 2004] + +Edition: 11 + +Language: English + +Character set encoding: ASCII + +*** START OF THE PROJECT GUTENBERG EBOOK OF ADDRESSES BY BENJAMIN HARRISON *** + + + + +This eBook was produced by James Linden. + +The addresses are separated by three asterisks: *** + +Dates of addresses by Benjamin Harrison in this eBook: + December 3, 1889 + December 1, 1890 + December 9, 1891 + December 6, 1892 + + + +*** + +State of the Union Address +Benjamin Harrison +December 3, 1889 + +To the Senate and House of Representatives: + +There are few transactions in the administration of the Government that are +even temporarily held in the confidence of those charged with the conduct +of the public business. Every step taken is under the observation of an +intelligent and watchful people. The state of the Union is known from day +to day, and suggestions as to needed legislation find an earlier voice than +that which speaks in these annual communications of the President to +Congress. + +Good will and cordiality have characterized our relations and +correspondence with other governments, and the year just closed leaves few +international questions of importance remaining unadjusted. No obstacle is +believed to exist that can long postpone the consideration and adjustment +of the still pending questions upon satisfactory and honorable terms. The +dealings of this Government with other states have been and should always +be marked by frankness and sincerity, our purposes avowed, and our methods +free from intrigue. This course has borne rich fruit in the past, and it is +our duty as a nation to preserve the heritage of good repute which a +century of right dealing with foreign governments has secured to us. + +It is a matter of high significance and no less of congratulation that the +first year of the second century of our constitutional existence finds as +honored guests within our borders the representatives of all the +independent States of North and South America met together in earnest +conference touching the best methods of perpetuating and expanding the +relations of mutual interest and friendliness existing among them. That the +opportunity thus afforded for promoting closer international relations and +the increased prosperity of the States represented will be used for the +mutual good of all I can not permit myself to doubt. Our people will await +with interest and confidence the results to flow from so auspicious a +meeting of allied and in large part identical interests. + +The recommendations of this international conference of enlightened +statesmen will doubtless have the considerate attention of Congress and its +cooperation in the removal of unnecessary barriers to beneficial +intercourse between the nations of America. But while the commercial +results which it is hoped will follow this conference are worthy of pursuit +and of the great interests they have excited, it is believed that the +crowning benefit will be found in the better securities which may be +devised for the maintenance of peace among all American nations and the +settlement of all contentions by methods that a Christian civilization can +approve. While viewing with interest our national resources and products, +the delegates will, I am sure, find a higher satisfaction in the evidences +of unselfish friendship which everywhere attend their intercourse with our +people. + +Another international conference having great possibilities for good has +lately assembled and is now in session in this capital. An invitation was +extended by the Government, under the act of Congress of July 9, 1888, to +all maritime nations to send delegates to confer touching the revision and +amendment of the rules and regulations governing vessels at sea and to +adopt a uniform system of marine signals. The response to this invitation +has been very general and very cordial. Delegates from twenty-six nations +are present in the conference, and they have entered upon their useful work +with great zeal and with an evident appreciation of its importance. So far +as the agreement to be reached may require legislation to give it effect, +the cooperation of Congress is confidently relied upon. + +It is an interesting, if not, indeed, an unprecedented, fact that the two +international conferences have brought together here the accredited +representatives of thirty-three nations. + +Bolivia, Ecuador, and Honduras are now represented by resident envoys of +the plenipotentiary grade. All the States of the American system now +maintain diplomatic representation at this capital. + +In this connection it may be noted that all the nations of the Western +Hemisphere, with one exception, send to Washington envoys extraordinary and +ministers plenipotentiary, being the highest grade accredited to this +Government. The United States, on the contrary, sends envoys of lower +grades to some of our sister Republics. Our representative in Paraguay and +Uruguay is a minister resident, while to Bolivia we send a minister +resident and consul-general. In view of the importance of our relations +with the States of the American system, our diplomatic agents in those +countries should be of the uniform rank of envoy extraordinary and minister +plenipotentiary. Certain missions were so elevated by the last Congress +with happy effect, and I recommend the completion of the reform thus begun, +with the inclusion also of Hawaii and Hayti, in view of their relations to +the American system of states. + +I also recommend that timely provision be made for extending to Hawaii an +invitation to be represented in the international conference now sitting at +this capital. + +Our relations with China have the attentive consideration which their +magnitude and interest demand. The failure of the treaty negotiated under +the Administration of my predecessor for the further and more complete +restriction of Chinese labor immigration, and with it the legislation of +the last session of Congress dependent thereon, leaves some questions open +which Congress should now approach in that wise and just spirit which +should characterize the relations of two great and friendly powers. While +our supreme interests demand the exclusion of a laboring element which +experience has shown to be incompatible with our social life, all steps to +compass this imperative need should be accompanied with a recognition of +the claim of those strangers now lawfully among us to humane and just +treatment. + +The accession of the young Emperor of China marks, we may hope, an era of +progress and prosperity for the great country over which he is called to +rule. + +The present state of affairs in respect to the Samoan Islands is +encouraging. The conference which was held in this city in the summer of +1887 between the representatives of the United States, Germany, and Great +Britain having been adjourned because of the persistent divergence of views +which was developed in its deliberations, the subsequent course of events +in the islands gave rise to questions of a serious character. On the 4th of +February last the German minister at this capital, in behalf of his +Government, proposed a resumption of the conference at Berlin. This +proposition was accepted, as Congress in February last was informed. + +Pursuant to the understanding thus reached, commissioners were appointed by +me, by and with the advice and consent of the Senate, who proceeded to +Berlin, where the conference was renewed. The deliberations extended +through several weeks, and resulted in the conclusion of a treaty which +will be submitted to the Senate for its approval. I trust that the efforts +which have been made to effect an adjustment of this question will be +productive of the permanent establishment of law and order in Samoa upon +the basis of the maintenance of the rights and interests of the natives as +well as of the treaty powers. + +The questions which have arisen during the past few years between Great +Britain and the United States are in abeyance or in course of amicable +adjustment. + +On the part of the government of the Dominion of Canada an effort has been +apparent during the season just ended to administer the laws and +regulations applicable to the fisheries with as little occasion for +friction as was possible, and the temperate representations of this +Government in respect of cases of undue hardship or of harsh +interpretations have been in most cases met with measures of transitory +relief. It is trusted that the attainment of our just rights under existing +treaties and in virtue of the concurrent legislation of the two contiguous +countries will not be long deferred and that all existing causes of +difference may be equitably adjusted. + +I recommend that provision be made by an international agreement for +visibly marking the water boundary between the United States and Canada in +the narrow channels that join the Great Lakes. The conventional line +therein traced by the northwestern boundary survey years ago is not in all +cases readily ascertainable for the settlement of jurisdictional +questions. + +A just and acceptable enlargement of the list of offenses for which +extradition may be claimed and granted is most desirable between this +country and Great Britain. The territory of neither should become a secure +harbor for the evil doers of the other through any avoidable shortcoming in +this regard. A new treaty on this subject between the two powers has been +recently negotiated and will soon be laid before the Senate. + +The importance of the commerce of Cuba and Puerto Rico with the United +States, their nearest and principal market, justifies the expectation that +the existing relations may be beneficially expanded. The impediments +resulting from varying dues on navigation and from the vexatious treatment +of our vessels on merely technical grounds of complaint in West India ports +should be removed. + +The progress toward an adjustment of pending claims between the United +States and Spain is not as rapid as could be desired. + +Questions affecting American interests in connection with railways +constructed and operated by our citizens in Peru have claimed the attention +of this Government. It is urged that other governments in pressing Peru to +the payment of their claims have disregarded the property rights of +American citizens. The matter will be carefully investigated with a view to +securing a proper and equitable adjustment. + +A similar issue is now pending with Portugal. The Delagoa Bay Railway, in +Africa, was constructed under a concession by Portugal to an American +citizen. When nearly completed the road was seized by the agents of the +Portuguese Government. Formal protest has been made through our minister at +Lisbon against this act, and no proper effort will be spared to secure +proper relief. + +In pursuance of the charter granted by Congress and under the terms of its +contract with the Government of Nicaragua the Interoceanic Canal Company +has begun the construction of the important waterway between the two oceans +which its organization contemplates. Grave complications for a time seemed +imminent, in view of a supposed conflict of jurisdiction between Nicaragua +and Costa Rica in regard to the accessory privileges to be conceded by the +latter Republic toward the construction of works on the San Juan River, of +which the right bank is Costa Rican territory. I am happy to learn that a +friendly arrangement has been effected between the two nations. This +Government has held itself ready to promote in every proper way the +adjustment of all questions that might present obstacles to the completion +of a work of such transcendent importance to the commerce of this country, +and, indeed, to the commercial interests of the world. + +The traditional good feeling between this country and the French Republic +has received additional testimony in the participation of our Government +and people in the international exposition held at Paris during the past +summer. The success of our exhibitors has been gratifying. The report of +the commission will be laid before Congress in due season. + +This Government has accepted, under proper reserve as to its policy in +foreign territories, the invitation of the Government of Belgium to take +part in an international congress, which opened at Brussels on the 16th of +November, for the purpose of devising measures to promote the abolition of +the slave trade in Africa and to prevent the shipment of slaves by sea. Our +interest in the extinction of this crime against humanity in the regions +where it yet survives has been increased by the results of emancipation +within our own borders. + +With Germany the most cordial relations continue. The questions arising +from the return to the Empire of Germans naturalized in this country are +considered and disposed of in a temperate spirit to the entire satisfaction +of both Governments. + +It is a source of great satisfaction that the internal disturbances of the +Republic of Hayti are at last happily ended, and that an apparently stable +government has been constituted. It has been duly recognized by the United +States. + +A mixed commission is now in session in this capital for the settlement of +long-standing claims against the Republic of Venezuela, and it is hoped +that a satisfactory conclusion will be speedily reached. This Government +has not hesitated to express its earnest desire that the boundary dispute +now pending between Great Britain and Venezuela may be adjusted amicably +and in strict accordance with the historic title of the parties. + +The advancement of the Empire of Japan has been evidenced by the recent +promulgation of a new constitution, containing valuable guaranties of +liberty and providing for a responsible ministry to conduct the +Government. + +It is earnestly recommended that our judicial rights and processes in Korea +be established on a firm basis by providing the machinery necessary to +carry out treaty stipulations in that regard. + +The friendliness of the Persian Government continues to be shown by its +generous treatment of Americans engaged in missionary labors and by the +cordial disposition of the Shah to encourage the enterprise of our citizens +in the development of Persian resources. + +A discussion is in progress touching the jurisdictional treaty rights of +the United States in Turkey. An earnest effort will be made to define those +rights to the satisfaction of both Governments. + +Questions continue to arise in our relations with several countries in +respect to the rights of naturalized citizens. Especially is this the case +with France, Italy, Russia, and Turkey, and to a less extent with +Switzerland. From time to time earnest efforts have been made to regulate +this subject by conventions with those countries. An improper use of +naturalization should not be permitted, but it is most important that those +who have been duly naturalized should everywhere be accorded recognition of +the rights pertaining to the citizenship of the country of their adoption. +The appropriateness of special conventions for that purpose is recognized +in treaties which this Government has concluded with a number of European +States, and it is advisable that the difficulties which now arise in our +relations with other countries on the same subject should be similarly +adjusted. + +The recent revolution in Brazil in favor of the establishment of a +republican form of government is an event of great interest to the United +States. Our minister at Rio de Janeiro was at once instructed to maintain +friendly diplomatic relations with the Provisional Government, and the +Brazilian representatives at this capital were instructed by the +Provisional Government to continue their functions. Our friendly +intercourse with Brazil has therefore suffered no interruption. + +Our minister has been further instructed to extend on the part of this +Government a formal and cordial recognition of the new Republic so soon as +the majority of the people of Brazil shall have signified their assent to +its establishment and maintenance. + +Within our own borders a general condition of prosperity prevails. The +harvests of the last summer were exceptionally abundant, and the trade +conditions now prevailing seem to promise a successful season to the +merchant and the manufacturer and general employment to our working +people. + +The report of the Secretary of the Treasury for the fiscal year ending June +30, 1889, has been prepared and will be presented to Congress. It presents +with clearness the fiscal operations of the Government, and I avail myself +of it to obtain some facts for use here. + +The aggregate receipts from all sources for the year were $387,050,058.84, +derived as follows: + +From customs - $223, 832, 741.69 + +From internal revenue - 130,881,513.92 + +From miscellaneous sources - 32,335,803.23 + +The ordinary expenditures for the same period were $281,996,615.60, and the +total expenditures, including the sinking fund, were $329,579,929.25. The +excess of receipts over expenditures was, after providing for the sinking +fund, $57,470,129.59. + +For the current fiscal year the total revenues, actual and estimated are +$385,000,000, and the ordinary expenditures, actual and estimated, are +$293,000,000, making with the sinking fund a total expenditure of +$341,321,116.99, leaving an estimated surplus of $43,678,883.01. + +During the fiscal year there was applied to the purchase of bonds, in +addition to those for the sinking fund, $90,456,172.35, and during the +first quarter of the current year the sum of $37,838,937.77, all of which +were credited to the sinking fund. The revenues for the fiscal year ending +June 30, 1891, are estimated by the Treasury Department at $385,000,000, +and the expenditures for the same period, including the sinking fund, at +$341,430,477.70. This shows an estimated surplus for that year of +$43,569,522.30, which is more likely to be increased than reduced when the +actual transactions are written up. + +The existence of so large an actual and anticipated surplus should have the +immediate attention of Congress, with a view to reducing the receipts of +the Treasury to the needs of the Government as closely as may be. The +collection of moneys not needed for public uses imposes an unnecessary +burden upon our people, and the presence of so large a surplus in the +public vaults is a disturbing element in the conduct of private business. +It has called into use expedients for putting it into circulation of very +questionable propriety. We should not collect revenue for the purpose of +anticipating our bonds beyond the requirements of the sinking fund, but any +unappropriated surplus in the Treasury should be so used, as there is no +other lawful way of returning the money to circulation, and the profit +realized by the Government offers a substantial advantage. + +The loaning of public funds to the banks without interest Upon the security +of Government bonds I regard as an unauthorized and dangerous expedient. It +results in a temporary and unnatural increase of the banking capital of +favored localities and compels a cautious and gradual recall of the +deposits to avoid injury to the commercial interests. It is not to be +expected that the banks having these deposits will sell their bonds to the +Treasury so long as the present highly beneficial arrangement is continued. +They now practically get interest both upon the bonds and their proceeds. +No further use should be made of this method of getting the surplus into +circulation, and the deposits now outstanding should be gradually withdrawn +and applied to the purchase of bonds. It is fortunate that such a use can +be made of the existing surplus, and for some time to come of any casual +surplus that may exist after Congress has taken the necessary steps for a +reduction of the revenue. Such legislation should be promptly but very +considerately enacted. + +I recommend a revision of our tariff law both in its administrative +features and in the schedules. The need of the former is generally +conceded, and an agreement upon the evils and inconveniences to be remedied +and the best methods for their correction will probably not be difficult. +Uniformity of valuation at all our ports is essential, and effective +measures should be taken to secure it. It is equally desirable that +questions affecting rates and classifications should be promptly decided. + +The preparation of a new schedule of customs duties is a matter of great +delicacy because of its direct effect upon the business of the country, and +of great difficulty by reason of the wide divergence of opinion as to the +objects that may properly be promoted by such legislation. Some disturbance +of business may perhaps result from the consideration of this subject by +Congress, but this temporary ill effect will be reduced to the minimum by +prompt action and by the assurance which the country already enjoys that +any necessary changes will be so made as not to impair the just and +reasonable protection of our home industries. The inequalities of the law +should be adjusted, but the protective principle should be maintained and +fairly applied to the products of our farms as well as of our shops. These +duties necessarily have relation to other things besides the public +revenues. We can not limit their effects by fixing our eyes on the public +Treasury alone. They have a direct relation to home production, to work, to +wages, and to the commercial independence of our country, and the wise and +patriotic legislator should enlarge the field of his vision to include all +of these. The necessary reduction in our public revenues can, I am sure, be +made without making the smaller burden more onerous than the larger by +reason of the disabilities and limitations which the process of reduction +puts upon both capital and labor. The free list can very safely be extended +by placing thereon articles that do not offer injurious competition to such +domestic products as our home labor can supply. The removal of the internal +tax upon tobacco would relieve an important agricultural product from a +burden which was imposed only because our revenue from customs duties was +insufficient for the public needs. If safe provision against fraud can be +devised, the removal of the tax upon spirits used in the arts and in +manufactures would also offer an unobjectionable method of reducing the +surplus. + +A table presented by the Secretary of the Treasury showing the amount of +money of all kinds in circulation each year from 1878 to the present time +is of interest. It appears that the amount of national-bank notes in +circulation has decreased during that period $114,109,729, of which +$37,799,229 is chargeable to the last year. The withdrawal of bank +circulation will necessarily continue under existing conditions. It is +probable that the adoption of the suggestions made by the Comptroller of +the Currency, namely, that the minimum deposit of bonds for the +establishment of banks be reduced and that an issue of notes to the par +value of the bonds be allowed, would help to maintain the bank circulation. +But while this withdrawal of bank notes has been going on there has been a +large increase in the amount of gold and silver coin in circulation and in +the issues of gold and silver certificates. + +The total amount of money of all kinds in circulation on March 1, 1878, was +$805,793,807, while on October 1, 1889, the total was $1,405,018,000. There +was an increase of $293,417,552 in gold coin, of $57,554,100 in standard +silver dollars, of $72,311,249 in gold certificates, of $276,619,715 in +silver certificates, and of $14,073,787 in United States notes, making a +total of $713,976,403. There was during the same period a decrease of +$114,109,729 in bank circulation and of $642,481 in subsidiary silver. The +net increase was $599,224,193. The circulation per capita has increased +about $5 during the time covered by the table referred to. + +The total coinage of silver dollars was on November 1, 1889, $343,638,001, +of which $283,539,521 were in the Treasury vaults and $60,098,480 were in +circulation. Of the amount in the vaults $277,319,944 were represented by +outstanding silver certificates, leaving $6,219,577 not in circulation and +not represented by certificates. + +The law requiring the purchase by the Treasury of $2,000,000 worth of +silver bullion each month, to be coined into silver dollars of 412 1/2 +grains, has been observed by the Department, but neither the present +Secretary nor any of his predecessors has deemed it safe to exercise the +discretion given by law to increase the monthly purchases to $4,000,000. +When the law was enacted (February 28, 1878) the price of silver in the +market was $1.204 per ounce, making the bullion value of the dollar 93 +cents. Since that time the price has fallen as low as 91.2 cents per ounce, +reducing the bullion value of the dollar to 70.6 cents. Within the last few +months the market price has somewhat advanced, and on the 1st day of +November last the bullion value of the silver dollar was 72 cents. + +The evil anticipations which have accompanied the coinage and use of the +silver dollar have not been realized. As a coin it has not had general use, +and the public Treasury has been compelled to store it. But this is +manifestly owing to the fact that its paper representative is more +convenient. The general acceptance and the use of the silver certificate +show that silver has not been otherwise discredited. Some favorable +conditions have contributed to maintain this practical equality in their +commercial use between the gold and silver dollars; but some of these are +trade conditions that statutory enactments do not control and of the +continuance of which we can not be certain. + +I think it is clear that if we should make the coinage of silver at the +present ratio free we must expect that the difference in the bullion values +of the gold and silver dollars will be taken account of in commercial +transactions; and I fear the same result would follow any considerable +increase of the present rate of coinage. Such a result would be +discreditable to our financial management and disastrous to all business +interests. We should not tread the dangerous edge of such a peril. And, +indeed, nothing more harmful could happen to the silver interests. Any safe +legislation upon this subject must secure the equality of the two coins in +their commercial uses. + +I have always been an advocate of the use of silver in our currency. We are +large producers of that metal, and should not discredit it. To the plan +which will be presented by the Secretary of the Treasury for the issuance +of notes or certificates upon the deposit of silver bullion at its market +value I have been able to give only a hasty examination, owing to the press +of other matters and to the fact that it has been so recently formulated. +The details of such a law require careful consideration, but the general +plan suggested by him seems to satisfy the purpose--to continue the use of +silver in connection with our currency and at the same time to obviate the +danger of which I have spoken. At a later day I may communicate further +with Congress upon this subject. + +The enforcement of the Chinese exclusion act has been found to be very +difficult on the northwestern frontier. Chinamen landing at Victoria find +it easy to pass our border, owing to the impossibility with the force at +the command of the customs officers of guarding so long an inland line. The +Secretary of the Treasury has authorized the employment of additional +officers, who will be assigned to this duty, and every effort will be made +to enforce the law. The Dominion exacts a head tax of $50 for each Chinaman +landed, and when these persons, in fraud of our law, cross into our +territory and are apprehended our officers do not know what to do with +them, as the Dominion authorities will not suffer them to be sent back +without a second payment of the tax. An effort will be made to reach an +understanding that will remove this difficulty. + +The proclamation required by section 3 of the act of March 2, 1889, +relating to the killing of seals and other fur-bearing animals, was issued +by me on the 21st day of March, and a revenue vessel was dispatched to +enforce the laws and protect the interests of the United States. The +establishment of a refuge station at Point Barrow, as directed by Congress, +was successfully accomplished. + +Judged by modern standards, we are practically without coast defenses. Many +of the structures we have would enhance rather than diminish the perils of +their garrisons if subjected to the fire of improved guns, and very few are +so located as to give full effect to the greater range of such guns as we +are now making for coast-defense uses. This general subject has had +consideration in Congress for some years, and the appropriation for the +construction of large rifled guns made one year ago was, I am sure, the +expression of a purpose to provide suitable works in which these guns might +be mounted. An appropriation now made for that purpose would not advance +the completion of the works beyond our ability to supply them with fairly +effective guns. + +The security of our coast cities against foreign attacks should not rest +altogether in the friendly disposition of other nations. There should be a +second line wholly in our own keeping. I very urgently recommend an +appropriation at this session for the construction of such works in our +most exposed harbors. + +I approve the suggestion of the Secretary of War that provision be made for +encamping companies of the National Guard in our coast works for a +specified time each year and for their training in the use of heavy guns. +His suggestion that an increase of the artillery force of the Army is +desirable is also, in this connection, commended to the consideration of +Congress. + +The improvement of our important rivers and harbors should be promoted by +the necessary appropriations. Care should be taken that the Government is +not committed to the prosecution of works not of public and general +advantage and that the relative usefulness of works of that class is not +overlooked. So far as this work can ever be said to be completed, I do not +doubt that the end would be sooner and more economically reached if fewer +separate works were undertaken at the same time, and those selected for +their greater general interest were more rapidly pushed to completion. A +work once considerably begun should not be subjected to the risks and +deterioration which interrupted or insufficient appropriations necessarily +occasion. + +The assault made by David S. Terry upon the person of Justice Field, of the +Supreme Court of the United States, at Lathtop, Cal., in August last, and +the killing of the assailant by a deputy United States marshal who had been +deputed to accompany Justice Field and to protect him from anticipated +violence at the hands of Terry, in connection with the legal proceedings +which have followed, suggest questions which, in my judgment, are worthy of +the attention of Congress. + +I recommend that more definite provision be made by law not only for the +protection of Federal officers, but for a full trial of such cases in the +United States courts. In recommending such legislation I do not at all +impeach either the general adequacy of the provision made by the State laws +for the protection of all citizens or the general good disposition of those +charged with the execution of such laws to give protection to the officers +of the United States. The duty of protecting its officers, as such, and of +punishing those who assault them on account of their official acts should +not be devolved expressly or by acquiescence upon the local authorities. + +Events which have been brought to my attention happening in other parts of +the country have also suggested the propriety of extending by legislation +fuller protection to those who may be called as witnesses in the courts of +the United States. The law compels those who are supposed to have knowledge +of public offenses to attend upon our courts and grand juries and to give +evidence. There is a manifest resulting duty that these witnesses shall be +protected from injury on account of their testimony. The investigations of +criminal offenses are often rendered futile and the punishment of crime +impossible by the intimidation of witnesses. + +The necessity of providing some more speedy method for disposing of the +cases which now come for final adjudication to the Supreme Court becomes +every year more apparent and urgent. The plan of providing some +intermediate courts having final appellate jurisdiction of certain classes +of questions and cases has, I think, received a more general approval from +the bench and bar of the country than any other. Without attempting to +discuss details, I recommend that provision be made for the establishment +of such courts. + +The salaries of the judges of the district courts in many of the districts +are, in my judgment, inadequate. I recommend that all such salaries now +below $5,000 per annum be increased to that amount. It is quite true that +the amount of labor performed by these judges is very unequal, but as they +can not properly engage in other pursuits to supplement their incomes the +salary should be such in all cases as to provide an independent and +comfortable support. + +Earnest attention should be given by Congress to a consideration of the +question how far the restraint of those combinations of capital commonly +called "trusts" is matter of Federal jurisdiction. When organized, as they +often are, to crush out all healthy competition and to monopolize the +production or sale of an article of commerce and general necessity, they +are dangerous conspiracies against the public good, and should be made the +subject of prohibitory and even penal legislation. + +The subject of an international copyright has been frequently commended to +the attention of Congress by my predecessors. The enactment of such a law +would be eminently wise and just. + +Our naturalization laws should be so revised as to make the inquiry into +the moral character and good disposition toward our Government of the +persons applying for citizenship more thorough. This can only be done by +taking fuller control of the examination, by fixing the times for hearing +such applications, and by requiring the presence of some one who shall +represent the Government in the inquiry. Those who are the avowed enemies +of social order or who come to our shores to swell the injurious influence +and to extend the evil practices of any association that defies our laws +should not only be denied citizenship, but a domicile. + +The enactment of a national bankrupt law of a character to be a permanent +part of our general legislation is desirable. It should be simple in its +methods and inexpensive in its administration. + +The report of the Postmaster-General not only exhibits the operations of +the Department for the last fiscal year, but contains many valuable +suggestions for the improvement and extension of the service, which are +commended to your attention. No other branch of the Government has so close +a contact with the daily life of the people. Almost everyone uses the +service it offers, and every hour gained in the transmission of the great +commercial mails has an actual and possible value that only those engaged +in trade can understand. + +The saving of one day in the transmission of the mails between New York and +San Francisco, which has recently been accomplished, is an incident worthy +of mention. + +The plan suggested of a supervision of the post-offices in separate +districts that shall involve instruction and suggestion and a rating of the +efficiency of the postmasters would, I have no doubt, greatly improve the +service. + +A pressing necessity exists for the erection of a building for the joint +use of the Department and of the city post-office. The Department was +partially relieved by renting .outside quarters for a part of its force, +but it is again overcrowded. The building used by the city office never was +fit for the purpose, and is now inadequate and unwholesome. + +The unsatisfactory condition of the law relating to the transmission +through the mails of lottery advertisements and remittances is clearly +stated by the Postmaster-General, and his suggestion as to amendments +should have your favorable consideration. + +The report of the Secretary of the Navy shows a reorganization of the +bureaus of the Department that will, I do not doubt, promote the efficiency +of each. + +In general, satisfactory progress has been made in the construction of the +new ships of war authorized by Congress. The first vessel of the new Navy, +the Dolphin, was subjected to very severe trial tests and to very much +adverse criticism; but it is gratifying to be able to state that a cruise +around the world, from which she has recently returned, has demonstrated +that she is a first-class vessel of her rate. + +The report of the Secretary shows that while the effective force of the +Navy is rapidly increasing by reason of the improved build and armament of +the new ships, the number of our ships fit for sea duty grows very slowly. +We had on the 4th of March last 37 serviceable ships, and though 4 have +since been added to the list, the total has not been increased, because in +the meantime 4 have been lost or condemned. Twenty-six additional vessels +have been authorized and appropriated for; but it is probable that when +they are completed our list will only be increased to 42--a gain of 5. The +old wooden ships are disappearing almost as fast as the new vessels are +added. These facts carry their own argument. One of the new ships may in +fighting strength be equal to two of the old, but it can not do the +cruising duty of two. It is important, therefore, that we should have a +more rapid increase in the number of serviceable ships. I concur in the +recommendation of the Secretary that the construction of 8 armored ships, 3 +gunboats, and 5 torpedo boats be authorized. + +An appalling calamity befell three of our naval vessels on duty at the +Samoan Islands, in the harbor of Apia, in March last, involving the loss of +4 officers and 47 seamen, of two vessels, the Trenton and the Vandalia, and +the disabling of a third, the Nipsic. Three vessels of the German navy, +also in the harbor, shared with our ships the force of the hurricane and +suffered even more heavily. While mourning the brave officers and men who +died facing with high resolve perils greater than those of battle, it is +most gratifying to state that the credit of the American Navy for +seamanship, courage, and generosity was magnificently sustained in the +storm-beaten harbor of Apia. + +The report of the Secretary of the Interior exhibits the transactions of +the Government with the Indian tribes. Substantial progress has been made +in the education of the children of school age and in the allotment of +lands to adult Indians. It is to be regretted that the policy of breaking +up the tribal relation and of dealing with the Indian as an individual did +not appear earlier in our legislation. Large reservations held in common +and the maintenance of the authority of the chiefs and headmen have +deprived the individual of every incentive to the exercise of thrift, and +the annuity has contributed an affirmative impulse toward a state of +confirmed pauperism. + +Our treaty stipulations should be observed with fidelity and our +legislation should be highly considerate of the best interests of an +ignorant and helpless people. The reservations are now generally surrounded +by white settlements. We can no longer push the Indian back into the +wilderness, and it remains only by every suitable agency to push him upward +into the estate of a self-supporting and responsible citizen. For the adult +the first step is to locate him upon a farm, and for the child to place him +in a school. + +School attendance should be promoted by every moral agency, and those +failing should be compelled. The national schools for Indians have been +very successful and should be multiplied, and as far as possible should be +so organized and conducted as to facilitate the transfer of the schools to +the States or Territories in which they are located when the Indians in a +neighborhood have accepted citizenship and have become otherwise fitted for +such a transfer. This condition of things will be attained slowly, but it +will be hastened by keeping it in mind; and in the meantime that +cooperation between the Government and the mission schools which has +wrought much good should be cordially and impartially maintained. + +The last Congress enacted two distinct laws relating to negotiations with +the Sioux Indians of Dakota for a relinquishment of a portion of their +lands to the United States and for dividing the remainder into separate +reservations. Both were approved on the same day--March 2. The one +submitted to the Indians a specific proposition; the other (section 3 of +the Indian appropriation act) authorized the President to appoint three +commissioners to negotiate with these Indians for the accomplishment of the +same general purpose, and required that any agreements made should be +submitted to Congress for ratification. + +On the 16th day of April last I appointed Hon. Charles Foster, of Ohio, +Hon. William Warner, of Missouri, and Major-General George Crook, of the +United States Army, commissioners under the last-named law. They were, +however, authorized and directed first to submit to the Indians the +definite proposition made to them by the act first mentioned, and only in +the event of a failure to secure the assent of the requisite number to that +proposition to open negotiations for modified terms under the other act. +The work of the commission was prolonged and arduous, but the assent of the +requisite number was, it is understood, finally obtained to the proposition +made by Congress, though the report of the commission has not yet been +submitted. In view of these facts, I shall not, as at present advised, deem +it necessary to submit the agreement to Congress for ratification, but it +will in due course be submitted for information. This agreement releases to +the United States about 9,000,000 acres of land. + +The commission provided for by section 14 of the Indian appropriation bill +to negotiate with the Cherokee Indians and all other Indians owning or +claiming lands lying west of the ninety-sixth degree of longitude for the +cession to the United States of all such lands was constituted by the +appointment of Hon. Lucius Fairchild, of Wisconsin, Hon. John F. Hartranft, +of Pennsylvania, and Hon. Alfred M. Wilson, of Arkansas, and organized on +June 29 last. Their first conference with the representatives of the +Cherokees was held at Tahlequah July 29, with no definite results. General +John F. Hartranft, of Pennsylvania, was prevented by ill health from taking +part in the conference. His death, which occurred recently, is justly and +generally lamented by a people he had served with conspicuous gallantry in +war and with great fidelity in peace. The vacancy thus created was filled +by the appointment of Hon. Warren G. Sayre, of Indiana. + +A second conference between the commission and the Cherokees was begun +November 6, but no results have yet been obtained, nor is it believed that +a conclusion can be immediately expected. The cattle syndicate now +occupying the lands for grazing purposes is clearly one of the agencies +responsible for the obstruction of our negotiations with the Cherokees. The +large body of agricultural lands constituting what is known as the +"Cherokee Outlet" ought not to be, and, indeed, can not long be, held for +grazing and for the advantage of a few against the public interests and the +best advantage of the Indians themselves. The United States has now under +the treaties certain rights in these lands. These will not be used +oppressively, but it can not be allowed that those who by sufferance occupy +these lands shall interpose to defeat the wise and beneficent purposes of +the Government. I can not but believe that the advantageous character of +the offer made by the United States to the Cherokee Nation for a full +release of these lands as compared with other suggestions now made to them +will yet obtain for it a favorable consideration. + +Under the agreement made between the United States and the Muscogee (or +Creek) Nation of Indians on the 19th day of January, 1889, an absolute +title was secured by the United States to about 3,500,000 acres of land. +Section 12 of the general Indian appropriation act approved March 2, 1889, +made provision for the purchase by the United States from the Seminole +tribe of a certain portion of their lands. The delegates of the Seminole +Nation, having first duly evidenced to me their power to act in that +behalf, delivered a proper release or conveyance to the United States of +all the lands mentioned in the act, which was accepted by me and certified +to be in compliance with the statute. + +By the terms of both the acts referred to all the lands so purchased were +declared to be a part of the public domain and open to settlement under the +homestead law. But of the lands embraced in these purchases, being in the +aggregate about 5,500,000 acres, 3,500,000 acres had already, under the +terms of the treaty of 1866, been acquired by the United States for the +purpose of settling other Indian tribes thereon and had been appropriated +to that purpose. The land remaining and available for settlement consisted +of 1,887,796 acres, surrounded on all sides by lands in the occupancy of +Indian tribes. Congress had provided no civil government for the people who +were to be invited by my proclamation to settle upon these lands, except as +the new court which had been established at Muscogee or the United States +courts in some of the adjoining States had power to enforce the general +laws of the United States. + +In this condition of things I was quite reluctant to open the lands to +settlement; but in view of the fact that several thousand persons, many of +them with their families, had gathered upon the borders of the Indian +Territory with a view to securing homesteads on the ceded lands, and that +delay would involve them in much loss and suffering, I did on the 23d day +of March last issue a proclamation declaring that the lands therein +described would be open to settlement under the provisions of the law on +the 22d day of April following at 12 o'clock noon. Two land districts had +been established and the offices were opened for the transaction of +business when the appointed time arrived. + +It is much to the credit of the settlers that they very generally observed +the limitation as to the time when they might enter the Territory. Care +will be taken that those who entered in violation of the law do not secure +the advantage they unfairly sought. There was a good deal of apprehension +that the strife for locations would result in much violence and bloodshed, +but happily these anticipations were not realized. It is estimated that +there are now in the Territory about 60,000 people, and several +considerable towns have sprung up, for which temporary municipal +governments have been organized. Guthrie is said to have now a population +of almost 8,000. Eleven schools and nine churches have been established, +and three daily and five weekly newspapers are published in this city, +whose charter and ordinances have only the sanction of the voluntary +acquiescence of the people from day to day. + +Oklahoma City has a population of about 5,000, and is proportionately as +well provided as Guthrie with churches, schools, and newspapers. Other +towns and villages having populations of from 100 to 1,000 are scattered +over the Territory. + +In order to secure the peace of this new community in the absence of civil +government, I directed General Merritt, commanding the Department of the +Missouri, to act in conjunction with the marshals of the United States to +preserve the peace, and upon their requisition to use the troops to aid +them in executing warrants and in quieting any riots or breaches of the +peace that might occur. He was further directed to use his influence to +promote good order and to avoid any conflicts between or with the settlers. +Believing that the introduction and sale of liquors where no legal +restraints or regulations existed would endanger the public peace, and in +view of the fact that such liquors must first be introduced into the Indian +reservations before reaching the white settlements, I further directed the +general commanding to enforce the laws relating to the introduction of +ardent spirits into the Indian country. + +The presence of the troops has given a sense of security to the +well-disposed citizens and has tended to restrain the lawless. In one +instance the officer in immediate command of the troops went further than I +deemed justifiable in supporting the de facto municipal government of +Guthrie, and he was so informed, and directed to limit the interference of +the military to the support of the marshals on the lines indicated in the +original order. I very urgently recommend that Congress at once provide a +Territorial government for these people. Serious questions, which may at +any time lead to violent outbreaks, are awaiting the institution of courts +for their peaceful adjustment. The American genius for self-government has +been well illustrated in Oklahoma; but it is neither safe nor wise to leave +these people longer to the expedients which have temporarily served them. + +Provision should be made for the acquisition of title to town lots in the +towns now established in Alaska, for locating town sites, and for the +establishment of municipal governments. Only the mining laws have been +extended to that Territory, and no other form of title to lands can now be +obtained. The general land laws were framed with reference to the +disposition of agricultural lands, and it is doubtful if their operation in +Alaska would be beneficial. + +We have fortunately not extended to Alaska the mistaken policy of +establishing reservations for the Indian tribes, and can deal with them +from the beginning as individuals with, I am sure, better results; but any +disposition of the public lands and any regulations relating to timber and +to the fisheries should have a kindly regard to their interests. Having no +power to levy taxes, the people of Alaska are wholly dependent upon the +General Government, to whose revenues the seal fisheries make a large +annual contribution. An appropriation for education should neither be +overlooked nor stinted. + +The smallness of the population and the great distances between the +settlements offer serious obstacles to the establishment of the usual +Territorial form of government. Perhaps the organization of several +sub-districts with a small municipal council of limited powers for each +would be safe and useful. + +Attention is called in this connection to the suggestions of the Secretary +of the Treasury relating to the establishment of another port of entry in +Alaska and of other needed customs facilities and regulations. + +In the administration of the land laws the policy of facilitating in every +proper way the adjustment of the honest claims of individual settlers upon +the public lands has been pursued. The number of pending cases had during +the preceding Administration been greatly increased under the operation of +orders for a time suspending final action in a large part of the cases +originating in the West and Northwest, and by the subsequent use of unusual +methods of examination. Only those who are familiar with the conditions +under which our agricultural lands have been settled can appreciate the +serious and often fatal consequences to the settler of a policy that puts +his title under suspicion or delays the issuance of his patent. While care +is taken to prevent and to expose fraud, it should not be imputed without +reason. + +The manifest purpose of the homestead and preemption laws was to promote +the settlement of the public domain by persons having a bona fide intent to +make a home upon the selected lands. Where this intent is well established +and the requirements of the law have been substantially complied with, the +claimant is entitled to a prompt and friendly consideration of his case; +but where there is reason to believe that the claimant is the mere agent of +another who is seeking to evade a law intended to promote small holdings +and to secure by fraudulent methods large tracts of timber and other lands, +both principal and agent should not only be thwarted in their fraudulent +purpose, but should be made to feel the full penalties of our criminal +statutes. The laws should be so administered as not to confound these two +classes and to visit penalties only upon the latter. + +The unsettled state of the titles to large bodies of lands in the +Territories of New Mexico and Arizona has greatly retarded the development +of those Territories. Provision should be made by law for the prompt trial +and final adjustment before a judicial tribunal or commission of all claims +based upon Mexican grants. It is not just to an intelligent and +enterprising people that their peace should be disturbed and their +prosperity retarded by these old contentions. I express the hope that +differences of opinion as to methods may yield to the urgency of the case. + +The law now provides a pension for every soldier and sailor who was +mustered into the service of the United States during the Civil War and is +now suffering from wounds or disease having an origin in the service and in +the line of duty. Two of the three necessary facts, viz, muster and +disability, are usually susceptible of easy proof; but the third, origin in +the service, is often difficult and in many deserving cases impossible to +establish. That very many of those who endured the hardships of our most +bloody and arduous campaigns are now disabled from diseases that had a real +but not traceable origin in the service I do not doubt. Besides these there +is another class composed of men many of whom served an enlistment of three +full years and of reenlisted veterans who added a fourth year of service, +who escaped the casualties of battle and the assaults of disease, who were +always ready for any detail, who were in every battle line of their +command, and were mustered out in sound health, and have since the close of +the war, while fighting with the same indomitable and independent spirit +the contests of civil life, been overcome by disease or casualty. + +I am not unaware that the pension roll already involves a very large annual +expenditure; neither am I deterred by that fact from recommending that +Congress grant a pension to such honorably discharged soldiers and sailors +of the Civil War as, having rendered substantial service during the war, +are now dependent upon their own labor for a maintenance and by disease or +casualty are incapacitated from earning it. Many of the men who would be +included in this form of relief are now dependent upon public aid, and it +does not, in my judgment, consist with the national honor that they shall +continue to subsist upon the local relief given indiscriminately to paupers +instead of upon the special and generous provision of the nation they +served so gallantly and unselfishly. Our people will, I am sure, very +generally approve such legislation. And I am equally sure that the +survivors of the Union Army and Navy will feel a grateful sense of relief +when this worthy and suffering class of their comrades is fairly cared +for. + +There are some manifest inequalities in the existing law that should be +remedied. To some of these the Secretary of the Interior has called +attention. + +It is gratifying to be able to state that by the adoption of new and better +methods in the War Department the calls of the Pension Office for +information as to the military and hospital records of pension claimants +are now promptly answered and the injurious and vexatious delays that have +heretofore occurred are entirely avoided. This will greatly facilitate the +adjustment of all pending claims. + +The advent of four new States--South Dakota, North Dakota, Montana, and +Washington--into the Union under the Constitution in the same month, and +the admission of their duly chosen representatives to our National Congress +at the same session, is an event as unexampled as it is interesting. + +The certification of the votes cast and of the constitutions adopted in +each of the States was filed with me, as required by the eighth section of +the act of February 22, 1889, by the governors of said Territories, +respectively. Having after a careful examination found that the several +constitutions and governments were republican in form and not repugnant to +the Constitution of the United States, that all the provisions of the act +of Congress had been complied with, and that a majority of the votes cast +in each of said proposed States was in favor of the adoption of the +constitution submitted therein, I did so declare by a separate proclamation +as to each--as to North Dakota and South Dakota on Saturday, November 2; as +to Montana on Friday, November 8, and as to Washington on Monday, November +11. + +Each of these States has within it resources the development of which will +employ the energies of and yield a comfortable subsistence to a great +population. The smallest of these new States, Washington, stands twelfth, +and the largest, Montana, third, among the forty-two in area. The people of +these States are already well-trained, intelligent, and patriotic American +citizens, having common interests and sympathies with those of the older +States and a common purpose to defend the integrity and uphold the honor of +the nation. + +The attention of the Interstate Commerce Commission has been called to the +urgent need of Congressional legislation for the better protection of the +lives and limbs of those engaged in operating the great interstate freight +lines of the country, and especially of the yardmen and brakemen. A +petition signed by nearly 10,000 railway brakemen was presented to the +Commission asking that steps might be taken to bring about the use of +automatic brakes and couplers on freight cars. + +At a meeting of State railroad commissioners and their accredited +representatives held at Washington in March last upon the invitation of the +Interstate Commerce Commission a resolution was unanimously adopted urging +the Commission "to consider what can be done to prevent the loss of life +and limb in coupling and uncoupling freight cars and in handling the brakes +of such cars." During the year ending June 30, 1888, over 2,000 railroad +employees were killed in service and more than 20,000 injured. It is +competent, I think, for Congress to require uniformity in the construction +of cars used in interstate commerce and the use of improved safety +appliances upon such trains. Time will be necessary to make the needed +changes, but an earnest and intelligent beginning should be made at once. +It is a reproach to our civilization that any class of American workmen +should in the pursuit of a necessary and useful vocation be subjected to a +peril of life and limb as great as that of a soldier in time of war. + +The creation of an Executive Department to be known as the Department of +Agriculture by the act of February 9 last was a wise and timely response to +a request which had long been respectfully urged by the farmers of the +country; but much remains to be done to perfect the organization of the +Department so that it may fairly realize the expectations which its +creation excited. In this connection attention is called to the suggestions +contained in the report of the Secretary, which is herewith submitted. The +need of a law officer for the Department such as is provided for the other +Executive Departments is manifest. The failure of the last Congress to make +the usual provision for the publication of the annual report should be +promptly remedied. The public interest in the report and its value to the +farming community, I am sure, will not be diminished under the new +organization of the Department. + +I recommend that the weather service be separated from the War Department +and established as a bureau in the Department of Agriculture. This will +involve an entire reorganization both of the Weather Bureau and of the +Signal Corps, making of the first a purely civil organization and of the +other a purely military staff corps. The report of the Chief Signal Officer +shows that the work of the corps on its military side has been +deteriorating. + +The interests of the people of the District of Columbia should not be lost +sight of in the pressure for consideration of measures affecting the whole +country. Having no legislature of its own, either municipal or general, its +people must look to Congress for the regulation of all those concerns that +in the States are the subject of local control. Our whole people have an +interest that the national capital should be made attractive and beautiful, +and, above all, that its repute for social order should be well maintained. +The laws regulating the sale of intoxicating drinks in the District should +be revised with a view to bringing the traffic under stringent limitations +and control. + +In execution of the power conferred upon me by the act making +appropriations for the expenses of the District of Columbia for the year +ending June 30, 1890, I did on the 17th day of August last appoint Rudolph +Hering, of New York, Samuel M. Gray, of Rhode Island, and Frederick P. +Stearns, of Massachusetts, three eminent sanitary engineers, to examine and +report upon the system of sewerage existing in the District of Columbia. +Their report, which is not yet completed, will be in due course submitted +to Congress. + +The report of the Commissioners of the District is herewith transmitted, +and the attention of Congress is called to the suggestions contained +therein. + +The proposition to observe the four hundredth anniversary of the discovery +of America by the opening of a world's fair or exposition in some one of +our great cities will be presented for the consideration of Congress. The +value and interest of such an exposition may well claim the promotion of +the General Government. + +On the 4th of March last the Civil Service Commission had but a single +member. The vacancies were filled on the 7th day of May, and since then the +Commissioners have been industriously, though with an inadequate force, +engaged in executing the law. They were assured by me that a cordial +support would be given them in the faithful and impartial enforcement of +the statute and of the rules and regulations adopted in aid of it. + +Heretofore the book of eligibles has been closed to everyone, except as +certifications were made upon the requisition of the appointing officers. +This secrecy was the source of much suspicion and of many charges of +favoritism in the administration of the law. What is secret is always +suspected; what is open can be judged. The Commission, with the full +approval of all its members, has now opened the list of eligibles to the +public. The eligible lists for the classified post-offices and +custom-houses are now publicly posted in the respective offices, as are +also the certifications for appointments. The purpose of the civil-service +law was absolutely to exclude any other consideration in connection with +appointments under it than that of merit as tested by the examinations. The +business proceeds upon the theory that both the examining boards and the +appointing officers are absolutely ignorant as to the political views and +associations of all persons on the civil-service lists. It is not too much +to say, however, that some recent Congressional investigations have +somewhat shaken public confidence in the impartiality of the selections for +appointment. + +The reform of the civil service will make no safe or satisfactory advance +until the present law and its equal administration are well established in +the confidence of the people. It will be my pleasure, as it is my duty, to +see that the law is executed with firmness and impartiality. If some of its +provisions have been fraudulently evaded by appointing officers, our +resentment should not suggest the repeal of the law, but reform in its +administration. We should have one view of the matter, and hold it with a +sincerity that is not affected by the consideration that the party to which +we belong is for the time in power. + +My predecessor, on the 4th day of January, 1889, by an Executive order to +take effect March 15, brought the Railway Mail Service under the operation +of the civil-service law. Provision was made that the order should take +effect sooner in any State where an eligible list was sooner obtained. On +the 11th day of March Mr. Lyman, then the only member of the Commission, +reported to me in writing that it would not be possible to have the list of +eligibles ready before May 1, and requested that the taking effect of the +order be postponed until that time, which was done, subject to the same +provision contained in the original order as to States in which an eligible +list was sooner obtained. + +As a result of the revision of the rules, of the new classification, and of +the inclusion of the Railway Mail Service, the work of the Commission has +been greatly increased, and the present clerical force is found to be +inadequate. I recommend that the additional clerks asked by the Commission +be appropriated for. + +The duty of appointment is devolved by the Constitution or by the law, and +the appointing officers are properly held to a high responsibility in its +exercise. The growth of the country and the consequent increase of the +civil list have magnified this function of the Executive disproportionally. +It can not be denied, however, that the labor connected with this necessary +work is increased, often to the point of actual distress, by the sudden and +excessive demands that are made upon an incoming Administration for +removals and appointments. But, on the other hand, it is not true that +incumbency is a conclusive argument for continuance in office. +Impartiality, moderation, fidelity to public duty, and a good attainment in +the discharge of it must be added before the argument is complete. When +those holding administrative offices so conduct themselves as to convince +just political opponents that no party consideration or bias affects in any +way the discharge of their public duties, we can more easily stay the +demand for removals. + +I am satisfied that both in and out of the classified service great benefit +would accrue from the adoption of some system by which the officer would +receive the distinction and benefit that in all private employments comes +from exceptional faithfulness and efficiency in the performance of duty. + +I have suggested to the heads of the Executive Departments that they +consider whether a record might not be kept in each bureau of all those +elements that are covered by the terms "faithfulness" and "efficiency," and +a rating made showing the relative merits of the clerks of each class, this +rating to be regarded as a test of merit in making promotions. + +I have also suggested to the Postmaster-General that he adopt some plan by +which he can, upon the basis of the reports to the Department and of +frequent inspections, indicate the relative merit of postmasters of each +class. They will be appropriately indicated in the Official Register and in +the report of the Department. That a great stimulus would thus be given to +the whole service I do not doubt, and such a record would be the best +defense against inconsiderate removals from office. + +The interest of the General Government in the education of the people found +an early expression, not only in the thoughtful and sometimes warning +utterances of our ablest statesmen, but in liberal appropriations from the +common resources for the support of education in the new States. No one +will deny that it is of the gravest national concern that those who hold +the ultimate control of all public affairs should have the necessary +intelligence wisely to direct and determine them. National aid to education +has heretofore taken the form of land grants, and in that form the +constitutional power of Congress to promote the education of the people is +not seriously questioned. I do not think it can be successfully questioned +when the form is changed to that of a direct grant of money from the public +Treasury. + +Such aid should be, as it always has been, suggested by some exceptional +conditions. The sudden emancipation of the slaves of the South, the +bestowal of the suffrage which soon followed, and the impairment of the +ability of the States where these new citizens were chiefly found to +adequately provide educational facilities presented not only exceptional +but unexampled conditions. That the situation has been much ameliorated +there is no doubt. The ability and interest of the States have happily +increased. + +But a great work remains to be done, and I think the General Government +should lend its aid. As the suggestion of a national grant in aid of +education grows chiefly out of the condition and needs of the emancipated +slave and his descendants, the relief should as far as possible, while +necessarily proceeding upon some general lines, be applied to the need that +suggested it. It is essential, if much good is to be accomplished, that the +sympathy and active interest of the people of the States should be +enlisted, and that the methods adopted should be such as to stimulate and +not to supplant local taxation for school purposes. + +As one Congress can not bind a succeeding one in such a case and as the +effort must in some degree be experimental, I recommend that any +appropriation made for this purpose be so limited in annual amount and as +to the time over which it is to extend as will on the one hand give the +local school authorities opportunity to make the best use of the first +year's allowance, and on the other deliver them from the temptation to +unduly postpone the assumption of the whole burden themselves. + +The colored people did not intrude themselves upon us. They were brought +here in chains and held in the communities where they are now chiefly found +by a cruel slave code. Happily for both races, they are now free. They have +from a standpoint of ignorance and poverty--which was our shame, not +theirs--made remarkable advances in education and in the acquisition of +property. They have as a people shown themselves to be friendly and +faithful toward the white race under temptations of tremendous strength. +They have their representatives in the national cemeteries, where a +grateful Government has gathered the ashes of those who died in its +defense. They have furnished to our Regular Army regiments that have won +high praise from their commanding officers for courage and soldierly +qualities and for fidelity to the enlistment oath. In civil life they are +now the toilers of their communities, making their full contribution to the +widening streams of prosperity which these communities are receiving. Their +sudden withdrawal would stop production and bring disorder into the +household as well as the shop. Generally they do not desire to quit their +homes, and their employers resent the interference of the emigration agents +who seek to stimulate such a desire. + +But notwithstanding all this, in many parts of our country where the +colored population is large the people of that race are by various devices +deprived of any effective exercise of their political rights and of many of +their civil rights. The wrong does not expend itself upon those whose votes +are suppressed. Every constituency in the Union is wronged. + +It has been the hope of every patriot that a sense of justice and of +respect for the law would work a gradual cure of these flagrant evils. +Surely no one supposes that the present can be accepted as a permanent +condition. If it is said that these communities must work out this problem +for themselves, we have a right to ask whether they are at work upon it. Do +they suggest any solution? When and under what conditions is the black man +to have a free ballot? When is he in fact to have those full civil rights +which have so long been his in law? When is that equality of influence +which our form of government was intended to secure to the electors to be +restored? This generation should courageously face these grave questions, +and not leave them as a heritage of woe to the next. The consultation +should proceed with candor, calmness, and great patience, upon the lines of +justice and humanity, not of prejudice and cruelty. No question in our +country can be at rest except upon the firm base of justice and of the +law. + +I earnestly invoke the attention of Congress to the consideration of such +measures within its well-defined constitutional powers as will secure to +all our people a free exercise of the right of suffrage and every other +civil right under the Constitution and laws of the United States. No evil, +however deplorable, can justify the assumption either on the part of the +Executive or of Congress of powers not granted, but both will be highly +blamable if all the powers granted are not wisely but firmly used to +correct these evils. The power to take the whole direction and control of +the election of members of the House of Representatives is clearly given to +the General Government. A partial and qualified supervision of these +elections is now provided for by law, and in my opinion this law may be so +strengthened and extended as to secure on the whole better results than can +be attained by a law taking all the processes of such election into Federal +control. The colored man should be protected in all of his relations to the +Federal Government, whether as litigant, juror, or witness in our courts, +as an elector for members of Congress, or as a peaceful traveler upon our +interstate railways. + +There is nothing more justly humiliating to the national pride and nothing +more hurtful to the national prosperity than the inferiority of our +merchant marine compared with that of other nations whose general +resources, wealth, and seacoast lines do not suggest any reason for their +supremacy on the sea. It was not always so, and our people are agreed, I +think, that it shall not continue to be so. It is not possible in this +communication to discuss the causes of the decay of our shipping interests +or the differing methods by which it is proposed to restore them. The +statement of a few well-authenticated facts and some general suggestions as +to legislation is all that is practicable. That the great steamship lines +sailing under the flags of England, France, Germany, Spain, and Italy, and +engaged in foreign commerce, were .promoted and have since been and now are +liberally aided by grants of public money in one form or another is +generally known. That the American lines of steamships have been abandoned +by us to an unequal contest with the aided lines of other nations until +they have been withdrawn, or in the few cases where they are still +maintained are subject to serious disadvantages, is matter of common +knowledge. + +The present situation is such that travelers and merchandise find Liverpool +often a necessary intermediate port between New York and some of the South +American capitals. The fact that some of the delegates from South American +States to the conference of American nations now in session at Washington +reached our shores by reversing that line of travel is very conclusive of +the need of such a conference and very suggestive as to the first and most +necessary step in the direction of fuller and more beneficial intercourse +with nations that are now our neighbors upon the lines of latitude, but not +upon the lines of established commercial intercourse. + +I recommend that such appropriations be made for ocean mail service in +American steamships between our ports and those of Central and South +America, China, Japan, and the important islands in both of the great +oceans as will be liberally remunerative for the service rendered and as +will encourage the establishment and in some fair degree equalize the +chances of American steamship lines in the competitions which they must +meet. That the American States lying south of us will cordially cooperate +in establishing and maintaining such lines of steamships to their principal +ports I do not doubt. + +We should also make provision for a naval reserve to consist of such +merchant ships of American construction and of a specified tonnage and +speed as the owners will consent to place at the use of the Government in +case of need as armed cruisers. England has adopted this policy, and as a +result can now upon necessity at once place upon her naval list some of the +fastest steamships in the world. A proper supervision of the construction +of such vessels would make their conversion into effective ships of war +very easy. + +I am an advocate of economy in our national expenditures, but it is a +misuse of terms to make this word describe a policy that withholds an +expenditure for the purpose of extending our foreign commerce. The +enlargement and improvement of our merchant marine, the development of a +sufficient body of trained American seamen, the promotion of rapid and +regular mail communication between the ports of other countries and our +own, and the adaptation of large and swift American merchant steamships to +naval uses in time of war are public purposes of the highest concern. The +enlarged participation of our people in the carrying trade, the new and +increased markets that will be opened for the products of our farms and +factories, and the fuller and better employment of our mechanics which will +result from a liberal promotion of our foreign commerce insure the widest +possible diffusion of benefit to all the States and to all our people. +Everything is most propitious for the present inauguration of a liberal and +progressive policy upon this subject, and we should enter upon it with +promptness and decision. + +The legislation which I have suggested, it is sincerely believed, will +promote the peace and honor of our country and the prosperity and security +of the people. I invoke the diligent and serious attention of Congress to +the consideration of these and such other measures as may be presented +having the same great end in view. + +BENJ. HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 1, 1890 + +To the Senate and House of Representatives: + +The reports of the several Executive Departments, which will be laid before +Congress in the usual course, will exhibit in detail the operations of the +Government for the last fiscal year. Only the more important incidents and +results, and chiefly such as may be the foundation of the recommendations I +shall submit, will be referred to in this annual message. + +The vast and increasing business of the Government has been transacted by +the several Departments during the year with faithfulness, energy, and +success. + +The revenues, amounting to above $450,000,000, have been collected and +disbursed without revealing, so far as I can ascertain, a single case of +defalcation or embezzlement. An earnest effort has been made to stimulate a +sense of responsibility and public duty in all officers and employees of +every grade, and the work done by them has almost wholly escaped +unfavorable criticism. I speak of these matters with freedom because the +credit of this good work is not mine, but is shared by the heads of the +several Departments with the great body of faithful officers and employees +who serve under them. The closest scrutiny of Congress is invited to all +the methods of administration and to every item of expenditure. + +The friendly relations of our country with the nations of Europe and of the +East have been undisturbed, while the ties of good will and common interest +that bind us to the States of the Western Hemisphere have been notably +strengthened by the conference held in this capital to consider measures +for the general welfare. Pursuant to the invitation authorized by Congress, +the representatives of every independent State of the American continent +and of Hayti met in conference in this capital in October, 1889, and +continued in session until the 19th of last April. This important +convocation marks a most interesting and influential epoch in the history +of the Western Hemisphere. It is noteworthy that Brazil, invited while +under an imperial form of government, shared as a republic in the +deliberations and results of the conference. The recommendations of this +conference were all transmitted to Congress at the last session. + +The International Marine Conference, which sat at Washington last winter, +reached a very gratifying result. The regulations suggested have been +brought to the attention of all the Governments represented, and their +general adoption is confidently expected. The legislation of Congress at +the last session is in conformity with the propositions of the conference, +and the proclamation therein provided for will be issued when the other +powers have given notice of their adhesion. + +The Conference of Brussels, to devise means for suppressing the slave trade +in Africa, afforded an opportunity for a new expression of the interest the +American people feel in that great work. It soon became evident that the +measure proposed would tax the resources of the Kongo Basin beyond the +revenues available under the general act of Berlin of 1884. The United +States, not being a party to that act, could not share in its revision, but +by a separate act the Independent State of the Kongo was freed from the +restrictions upon a customs revenue. The demoralizing and destructive +traffic in ardent spirits among the tribes also claimed the earnest +attention of the conference, and the delegates of the United States were +foremost in advocating measures for its repression. An accord was reached +the influence of which will be very helpful and extend over a wide region. +As soon as these measures shall receive the sanction of the Netherlands, +for a time withheld, the general acts will be submitted for ratification by +the Senate. Meanwhile negotiations have been opened for a new and completed +treaty of friendship, commerce, and navigation between the United States +and the Independent State of the Kongo. + +Toward the end of the past year the only independent monarchical government +on the Western Continent, that of Brazil, ceased to exist, and was +succeeded by a republic. Diplomatic relations were at once established with +the new Government, but it was not completely recognized until an +opportunity had been afforded to ascertain that it had popular approval and +support. When the course of events had yielded assurance of this fact, no +time was lost in extending to the new Government a full and cordial welcome +into the family of American Commonwealths. It is confidently believed that +the good relations of the two countries will be preserved and that the +future will witness an increased intimacy of intercourse and an expansion +of their mutual commerce. + +The peace of Central America has again been disturbed through a +revolutionary change in Salvador, which was not recognized by other States, +and hostilities broke out between Salvador and Guatemala, threatening to +involve all Central America in conflict and to undo the progress which had +been made toward a union of their interests. The efforts of this Government +were promptly and zealously exerted to compose their differences, and +through the active efforts of the representative of the United States a +provisional treaty of peace was signed August 26, whereby the right of the +Republic of Salvador to choose its own rulers was recognized. General +Ezeta, the chief of the Provisional Government, has since been confirmed in +the Presidency by the Assembly, and diplomatic recognition duly followed. + +The killing of General Barrundia on board the Pacific mail steamer +Acapulco, while anchored in transit in the port of San Jose de Guatemala, +demanded careful inquiry. Having failed in a revolutionary attempt to +invade Guatemala from Mexican territory, General Barrundia took passage at +Acapulco for Panama. The consent of the representatives of the United +States was sought to effect his seizure, first at Champerico, where the +steamer touched, and afterwards at San Jose. The captain of the steamer +refused to give up his passenger without a written order from the United +States minister. The latter furnished the desired letter, stipulating as +the condition of his action that General Barrundia's life should be spared +and that he should be tried only for offenses growing out of his +insurrectionary movements. This letter was produced to the captain of the +Acapulco by the military commander at San Jose as his warrant to take the +passenger from the steamer. General Barrundia resisted capture and was +killed. It being evident that the minister, Mr. Mizner, had exceeded the +bounds of his authority in intervening, in compliance with the demands of +the Guatemalan authorities, to authorize and effect, in violation of +precedent, the seizure on a vessel of the United States of a passenger in +transit charged with political offenses, in order that he might be tried +for such offenses under what was described as martial law, I was +constrained to disavow Mr. Mizner's act and recall him from his post. + +The Nicaragua Canal project, under the control of our citizens, is making +most encouraging progress, all the preliminary conditions and initial +operations having been accomplished within the prescribed time. + +During the past year negotiations have been renewed for the settlement of +the claims of American citizens against the Government of Chile, +principally growing out of the late war with Peru. The reports from our +minister at Santiago warrant the expectation of an early and satisfactory +adjustment. + +Our relations with China, which have for several years occupied so +important a place in our diplomatic history, have called for careful +consideration and have been the subject of much correspondence. + +The communications of the Chinese minister have brought into view the whole +subject of our conventional relations with his country, and at the same +time this Government, through its legation at Peking, has sought to arrange +various matters and complaints touching the interests and protection of our +citizens in China. + +In pursuance of the concurrent resolution of October 1, 1890, I have +proposed to the Governments of Mexico and Great Britain to consider a +conventional regulation of the passage of Chinese laborers across our +southern and northern frontiers. + +On the 22d day of August last Sir Edmund Monson, the arbitrator selected +under the treaty of December 6, 1888, rendered an award to the effect that +no compensation was due from the Danish Government to the United States on +account of what is commonly known as the Carlos Butterfield claim. + +Our relations with the French Republic continue to be cordial. Our +representative at that court has very diligently urged the removal of the +restrictions imposed upon our meat products, and it is believed that +substantial progress has been made toward a just settlement. + +The Samoan treaty, signed last year at Berlin by the representatives of the +United States, Germany, and Great Britain, after due ratification and +exchange, has begun to produce salutary effects. The formation of the +government agreed upon will soon replace the disorder of the past by a +stable administration alike just to the natives and equitable to the three +powers most concerned in trade and intercourse with the Samoan Islands. The +chief justice has been chosen by the King of Sweden and Norway on the +invitation of the three powers, and will soon be installed. The land +commission and the municipal council are in process of organization. A +rational and evenly distributed scheme of taxation, both municipal and upon +imports, is in operation. Malietoa is respected as King. + +The new treaty of extradition with Great Britain, after due ratification, +was proclaimed on the 25th of last March. Its beneficial working is already +apparent. + +The difference between the two Governments touching the fur-seal question +in the Bering Sea is not yet adjusted, as will be seen by the +correspondence which will soon be laid before the Congress. The offer to +submit the question to arbitration, as proposed by Her Majesty's +Government, has not been accepted, for the reason that the form of +submission proposed is not thought to be calculated to assure a conclusion +satisfactory to either party. It is sincerely hoped that before the opening +of another sealing season some arrangement may be effected which will +assure to the United States a property right derived from Russia, which was +not disregarded by any nation for more than eighty years preceding the +outbreak of the existing trouble. + +In the tariff act a wrong was done to the Kingdom of Hawaii which I am +bound to presume was wholly unintentional. Duties were levied on certain +commodities which are included in the reciprocity treaty now existing +between the United States and the Kingdom of Hawaii, without indicating the +necessary exception in favor of that Kingdom. I hope Congress will repair +what might otherwise seem to be a breach of faith on the part of this +Government. + +An award in favor of the United States in the matter of the claim of Mr. +Van Bokkelen against Hayti was rendered on the 4th of December, 1888, but +owing to disorders then and afterwards prevailing in Hayti the terms of +payment were not observed. A new agreement as to the time of payment has +been approved and is now in force. Other just claims of citizens of the +United States for redress of wrongs suffered during the late political +conflict in Hayti will, it is hoped, speedily yield to friendly treatment. + +Propositions for the amendment of the treaty of extradition between the +United States and Italy are now under consideration. + +You will be asked to provide the means of accepting the invitation of the +Italian Government to take part in an approaching conference to consider +the adoption of a universal prime meridian from which to reckon longitude +and time. As this proposal follows in the track of the reform sought to be +initiated by the Meridian Conference of Washington, held on the invitation +of this Government, the United States should manifest a friendly interest +in the Italian proposal. + +In this connection I may refer with approval to the suggestion of my +predecessors that standing provision be made for accepting, whenever deemed +advisable, the frequent invitations of foreign governments to share in +conferences looking to the advancement of international reforms in regard +to science, sanitation, commercial laws and procedure, and other matters +affecting the intercourse and progress of modern communities. + +In the summer of 1889 an incident occurred which for some time threatened +to interrupt the cordiality of our relations with the Government of +Portugal. That Government seized the Delagoa Bay Railway, which was +constructed under a concession granted to an American citizen, and at the +same time annulled the charter. The concessionary, who had embarked his +fortune in the enterprise, having exhausted other means of redress, was +compelled to invoke the protection of his Government. Our representations, +made coincidently with those of the British Government, whose subjects were +also largely interested, happily resulted in the recognition by Portugal of +the propriety of submitting the claim for indemnity growing out of its +action to arbitration. This plan of settlement having been agreed upon, the +interested powers readily concurred in the proposal to submit the case to +the judgment of three eminent jurists, to be designated by the President of +the Swiss Republic, who, upon the joint invitation of the Governments of +the United States, Great Britain, and Portugal, has selected persons well +qualified for the task before them. + +The revision of our treaty relations with the Empire of Japan has continued +to be the subject of consideration and of correspondence. The questions +involved are both grave and delicate; and while it will be my duty to see +that the interests of the United States are not by any changes exposed to +undue discrimination, I sincerely hope that such revision as will satisfy +the legitimate expectations of the Japanese Government and maintain the +present and long-existing friendly relations between Japan and the United +States will be effected. + +The friendship between our country and Mexico, born of close neighborhood +and strengthened by many considerations of intimate intercourse and +reciprocal interest, has never been more conspicuous than now nor more +hopeful of increased benefit to both nations. The intercourse of the two +countries by rail, already great, is making constant growth. The +established lines and those recently projected add to the intimacy of +traffic and open new channels of access to fresh areas of demand and +supply. The importance of the Mexican railway system will be further +enhanced to a degree almost impossible to forecast if it should become a +link in the projected intercontinental railway. I recommend that our +mission in the City of Mexico be raised to the first class. + +The cordial character of our relations with Spain warrants the hope that by +the continuance of methods of friendly negotiation much may be accomplished +in the direction of an adjustment of pending questions and of the increase +of our trade. The extent and development of our trade with the island of +Cuba invest the commercial relations of the United States and Spain with a +peculiar importance. It is not doubted that a special arrangement in regard +to commerce, based upon the reciprocity provision of the recent tariff act, +would operate most beneficially for both Governments. This subject is now +receiving attention. + +The restoration of the remains of John Ericsson to Sweden afforded a +gratifying occasion to honor the memory of the great inventor, to whose +genius our country owes so much, and to bear witness to the unbroken +friendship which has existed between the land which bore him and our own, +which claimed him as a citizen. + +On the 2d of September last the commission appointed to revise the +proceedings of the commission under the claims convention between the +United States and Venezuela of 1866 brought its labors to a close within +the period fixed for that purpose. The proceedings of the late commission +were characterized by a spirit of impartiality and a high sense of justice, +and an incident which was for many years the subject of discussion between +the two Governments has been disposed of in a manner alike honorable and +satisfactory to both parties. For the settlement of the claim of the +Venezuela Steam Transportation Company, which was the subject of a joint +resolution adopted at the last session of Congress, negotiations are still +in progress, and their early conclusion is anticipated. + +The legislation of the past few years has evinced on the part of Congress a +growing realization of the importance of the consular service in fostering +our commercial relations abroad and in protecting the domestic revenues. As +the scope of operations expands increased provision must be made to keep up +the essential standard of efficiency. The necessity of some adequate +measure of supervision and inspection has been so often presented that I +need only commend the subject to your attention. + +The revenues of the Government from all sources for the fiscal year ending +June 30, 1890, were $463,963,080.55 and the total expenditures for the same +period were $358,618,584.52. The postal receipts have not heretofore been +included in the statement of these aggregates, and for the purpose of +comparison the sum of $60,882,097.92 should be deducted from both sides of +the account. The surplus for the year, including the amount applied to the +sinking fund, was $105,344,496.03. The receipts for 1890 were +$16,030,923.79 and the expenditures $15,739,871 in excess of those of 1889. +The customs receipts increased $5,835,842.88 and the receipts from internal +revenue $11,725,191.89, while on the side of expenditures that for pensions +was $19,312,075.96 in excess of the preceding year. + +The Treasury statement for the current fiscal year, partly actual and +partly estimated, is as follows: Receipts from all sources, $406,000,000; +total expenditures, $354,000,000, leaving a surplus of $52,000,000, not +taking the postal receipts into the account on either side. The loss of +revenue from customs for the last quarter is estimated at $25,000,000, but +from this is deducted a gain of about $16,000,000 realized during the first +four months of the year. + +For the year 1892 the total estimated receipts are $373,000,000 and the +estimated expenditures $357,852,209.42, leaving an estimated surplus of +$15,247,790.58, which, with a cash balance of $52,000,000 at the beginning +of the year, will give $67,247,790.58 as the sum available for the +redemption of outstanding bonds or other uses. The estimates of receipts +and expenditures for the Post-Office Department, being equal, are not +included in this statement on either side. + +The act "directing the purchase of silver bullion and the issue of Treasury +notes thereon," approved July 14, 1890, has been administered by the +Secretary of the Treasury with an earnest purpose to get into circulation +at the earliest possible dates the full monthly amounts of Treasury notes +contemplated by its provisions and at the same time to give to the market +for the silver bullion such support as the law contemplates. The recent +depreciation in the price of silver has been observed with regret. The +rapid rise in price which anticipated and followed the passage of the act +was influenced in some degree by speculation, and the recent reaction is in +part the result of the same cause and in part of the recent monetary +disturbances. Some months of further trial will be necessary to determine +the permanent effect of the recent legislation upon silver values, but it +is gratifying to know that the increased circulation secured by the act has +exerted, and will continue to exert, a most beneficial influence upon +business and upon general values. + +While it has not been thought best to renew formally the suggestion of an +international conference looking to an agreement touching the full use of +silver for coinage at a uniform ratio, care has been taken to observe +closely any change in the situation abroad, and no favorable opportunity +will be lost to promote a result which it is confidently believed would +confer very large benefits upon the commerce of the world. + +The recent monetary disturbances in England are not unlikely to suggest a +reexamination of opinions upon this subject. Our very large supply of gold +will, if not lost by impulsive legislation in the supposed interest of +silver, give us a position of advantage in promoting a permanent and safe +international agreement for the free use of silver as a coin metal. + +The efforts of the Secretary to increase the volume of money in circulation +by keeping down the Treasury surplus to the lowest practicable limit have +been unremitting and in a very high degree successful. The tables presented +by him showing the increase of money in circulation during the last two +decades, and especially the table showing the increase during the nineteen +months he has administered the affairs of the Department, are interesting +and instructive. The increase of money in circulation during the nineteen +months has been in the aggregate $93,866,813, or about $1.50 per capita, +and of this increase only $7,100,000 was due to the recent silver +legislation. That this substantial and needed aid given to commerce +resulted in an enormous reduction of the public debt and of the annual +interest charge is matter of increased satisfaction. There have been +purchased and redeemed since March 4, 1889, 4 and 4 1\2 per cent bonds to +the amount of $211,832,450, at a cost of $246,620,741, resulting in the +reduction of the annual interest charge of $8,967,609 and a total saving of +interest of $51,576,706. + +I notice with great pleasure the statement of the Secretary that the +receipts from internal revenue have increased during the last fiscal year +nearly $12,000,000, and that the cost of collecting this larger revenue was +less by $90,617 than for the same purpose in the preceding year. The +percentage of cost of collecting the customs revenue was less for the last +fiscal year than ever before. + +The Customs Administration Board, provided for by the act of June 10, 1890, +was selected with great care, and is composed in part of men whose previous +experience in the administration of the old customs regulations had made +them familiar with the evils to be remedied, and in part of men whose legal +and judicial acquirements and experience seemed to fit them for the work of +interpreting and applying the new statute. The chief aim of the law is to +secure honest valuations of all dutiable merchandise and to make these +valuations uniform at all our ports of entry. It had been made manifest by +a Congressional investigation that a system of undervaluation had been long +in use by certain classes of importers, resulting not only in a great loss +of revenue, but in a most intolerable discrimination against honesty. It is +not seen how this legislation, when it is understood, can be regarded by +the citizens of any country having commercial dealings with us as +unfriendly. If any duty is supposed to be excessive, let the complaint be +lodged there. It will surely not be claimed by any well-disposed people +that a remedy may be sought and allowed in a system of quasi smuggling. + +The report of the Secretary of War exhibits several gratifying results +attained during the year by wise and unostentatious methods. The percentage +of desertions from the Army (an evil for which both Congress and the +Department have long been seeking a remedy) has been reduced during the +past year 24 per cent, and for the months of August and September, during +which time the favorable effects of the act of June 16 were felt, 33 per +cent, as compared with the same months of 1889. + +The results attained by a reorganization and consolidation of the divisions +having charge of the hospital and service records of the volunteer soldiers +are very remarkable. This change was effected in July, 1889, and at that +time there were 40,654 cases awaiting attention, more than half of these +being calls from the Pension Office for information necessary to the +adjudication of pension claims. On the 30th day of June last, though over +300,000 new calls had come in, there was not a single case that had not +been examined and answered. + +I concur in the recommendations of the Secretary that adequate and regular +appropriations be continued for coast-defense works and ordnance. Plans +have been practically agreed upon, and there can be no good reason for +delaying the execution of them, while the defenseless state of our great +seaports furnishes an urgent reason for wise expedition. + +The encouragement that has been extended to the militia of the States, +generally and most appropriately designated the "National Guard," should be +continued and enlarged. These military organizations constitute in a large +sense the Army of the United States, while about five-sixths of the annual +cost of their maintenance is defrayed by the States. + +The report of the Attorney-General is under the law submitted directly to +Congress, but as the Department of Justice is one of the Executive +Departments some reference to the work done is appropriate here. + +A vigorous and in the main an effective effort has been made to bring to +trial and punishment all violators of the law, but at the same time care +has been taken that frivolous and technical offenses should not be used to +swell the fees of officers or to harass well-disposed citizens. Especial +attention is called to the facts connected with the prosecution of +violations of the election laws and of offenses against United States +officers. The number of convictions secured, very many of them upon pleas +of guilty, will, it is hoped, have a salutary restraining influence. There +have been several cases where postmasters appointed by me have been +subjected to violent interference in the discharge of their official duties +and to persecutions and personal violence of the most extreme character. +Some of these cases have been dealt with through the Department of Justice, +and in some cases the post-offices have been abolished or suspended. I have +directed the Postmaster-General to pursue this course in all cases where +other efforts failed to secure for any postmaster not himself in fault an +opportunity peacefully to exercise the duties of his office. But such +action will not supplant the efforts of the Department of Justice to bring +the particular offenders to punishment. + +The vacation by judicial decrees of fraudulent certificates of +naturalization, upon bills in equity filed by the Attorney-General in the +circuit court of the United States, is a new application of a familiar +equity jurisdiction. Nearly one hundred such decrees have been taken during +the year, the evidence disclosing that a very large number of fraudulent +certificates of naturalization have been issued. And in this connection I +beg to renew my recommendation that the laws be so amended as to require a +more full and searching inquiry into all the facts necessary to +naturalization before any certificates are granted. It certainly is not too +much to require that an application for American citizenship shall be heard +with as much care and recorded with as much formality as are given to cases +involving the pettiest property right. + +At the last session I returned without my approval a bill entitled "An act +to prohibit bookmaking and pool selling in the District of Columbia," and +stated my objection to be that it did not prohibit but in fact licensed +what it purported to prohibit. An effort will be made under existing laws +to suppress this evil, though it is not certain that they will be found +adequate. + +The report of the Postmaster-General shows the most gratifying progress in +the important work committed to his direction. The business methods have +been greatly improved. A large economy in expenditures and an increase of +four and three-quarters millions in receipts have been realized. The +deficiency this year is $5,786,300, as against $6,350,183 last year, +notwithstanding the great enlargement of the service. Mail routes have been +extended and quickened and greater accuracy and dispatch in distribution +and delivery have been attained. The report will be found to be full of +interest and suggestion, not only to Congress, but to those thoughtful +citizens who may be interested to know what business methods can do for +that department of public administration which most nearly touches all our +people. + +The passage of the act to amend certain sections of the Revised Statutes +relating to lotteries, approved September 19, 1890, has been received with +great and deserved popular favor. The Post-Office Department and the +Department of Justice at once entered upon the enforcement of the law with +sympathetic vigor, and already the public mails have been largely freed +from the fraudulent and demoralizing appeals and literature emanating from +the lottery companies. + +The construction and equipment of the new ships for the Navy have made very +satisfactory progress. Since March 4, 1889, nine new vessels have been put +in commission, and during this winter four more, including one monitor, +will be added. The construction of the other vessels authorized is being +pushed both in the Government and private yards with energy and watched +with the most scrupulous care. + +The experiments conducted during the year to test the relative resisting +power of armor plates have been so valuable as to attract great attention +in Europe. The only part of the work upon the new ships that is threatened +by unusual delay is the armor plating, and every effort is being made to +reduce that to the minimum. It is a source of congratulation that the +anticipated influence of these modern vessels upon the esprit de corps of +the officers and seamen has been fully realized. Confidence and pride in +the ship among the crew are equivalent to a secondary battery. Your +favorable consideration is invited to the recommendations of the +Secretary. + +The report of the Secretary of the Interior exhibits with great fullness +and clearness the vast work of that Department and the satisfactory results +attained. The suggestions made by him are earnestly commended to the +consideration of Congress, though they can not all be given particular +mention here. + +The several acts of Congress looking to the reduction of the larger Indian +reservations, to the more rapid settlement of the Indians upon individual +allotments, and the restoration to the public domain of lands in excess of +their needs have been largely carried into effect so far as the work was +confided to the Executive. Agreements have been concluded since March 4, +1889, involving the cession to the United States of about 14,726,000 acres +of land. These contracts have, as required by law, been submitted to +Congress for ratification and for the appropriations necessary to carry +them into effect. Those with the Sisseton and Wahpeton, Sac and Fox, Iowa, +Pottawatomies and Absentee Shawnees, and Coeur d'Alene tribes have not yet +received the sanction of Congress. Attention is also called to the fact +that the appropriations made in the case of the Sioux Indians have not +covered all the stipulated payments. This should be promptly corrected. If +an agreement is confirmed, all of its terms should be complied with without +delay and full appropriations should be made. + +The policy outlined in my last annual message in relation to the patenting +of lands to settlers upon the public domain has been carried out in the +administration of the Land Office. No general suspicion or imputation of +fraud has been allowed to delay the hearing and adjudication of individual +cases upon their merits. The purpose has been to perfect the title of +honest settlers with such promptness that the value of the entry might not +be swallowed up by the expense and extortions to which delay subjected the +claimant. The average monthly issue of agricultural patents has been +increased about 6,000. + +The disability-pension act, which was approved on the 27th of June last, +has been put into operation as rapidly as was practicable. The increased +clerical force provided was selected and assigned to work, and a +considerable part of the force engaged in examinations in the field was +recalled and added to the working force of the office. The examination and +adjudication of claims have by reason of improved methods been more rapid +than ever before. There is no economy to the Government in delay, while +there is much hardship and injustice to the soldier. The anticipated +expenditure, while very large, will not, it is believed, be in excess of +the estimates made before the enactment of the law. This liberal +enlargement of the general law should suggest a more careful scrutiny of +bills for special relief, both as to the cases where relief is granted and +as to the amount allowed. + +The increasing numbers and influence of the non-Mormon population of Utah +are observed with satisfaction. The recent letter of Wilford Woodruff, +president of the Mormon Church, in which he advised his people "to refrain +from contracting any marriage forbidden by the laws of the land," has +attracted wide attention, and it is hoped that its influence will be highly +beneficial in restraining infractions of the laws of the United States. But +the fact should not be overlooked that the doctrine or belief of the church +that polygamous marriages are rightful and supported by divine revelation +remains unchanged. President Woodruff does not renounce the doctrine, but +refrains from teaching it, and advises against the practice of it because +the law is against it. Now, it is quite true that the law should not +attempt to deal with the faith or belief of anyone; but it is quite another +thing, and the only safe thing, so to deal with the Territory of Utah as +that those who believe polygamy to be rightful shall not have the power to +make it lawful. + +The admission of the States of Wyoming and Idaho to the Union are events +full of interest and congratulation, not only to the people of those States +now happily endowed with a full participation in our privileges and +responsibilities, but to all our people. Another belt of States stretches +from the Atlantic to the Pacific. + +The work of the Patent Office has won from all sources very high +commendation. The amount accomplished has been very largely increased, and +all the results have been such as to secure confidence and consideration +for the suggestions of the Commissioner. + +The enumeration of the people of the United States under the provisions of +the act of March 1, 1889, has been completed, and the result will be at +once officially communicated to Congress. The completion of this decennial +enumeration devolves upon Congress the duty of making a new apportionment +of Representatives "among the several States according to their respective +numbers." + +At the last session I had occasion to return with my objections several +bills making provisions for the erection of public buildings for the reason +that the expenditures contemplated were, in my opinion, greatly in excess +of any public need. No class of legislation is more liable to abuse or to +degenerate into an unseemly scramble about the public Treasury than this. +There should be exercised in this matter a wise economy, based upon some +responsible and impartial examination and report as to each case, under a +general law. + +The report of the Secretary of Agriculture deserves especial attention in +view of the fact that the year has been marked in a very unusual degree by +agitation and organization among the farmers looking to an increase in the +profits of their business. It will be found that the efforts of the +Department have been intelligently and zealously devoted to the promotion +of the interests intrusted to its care. + +A very substantial improvement in the market prices of the leading farm +products during the year is noticed. The price of wheat advanced from 81 +cents in October, 1889, to $1.00 3/4 in October, 1890; corn from 31 cents +to 50 1/4 cents; oats from 19 1/4 cents to 43 cents, and barley from 63 +cents to 78 cents. Meats showed a substantial but not so large an increase. +The export trade in live animals and fowls shows a very large increase. The +total value of such exports for the year ending June 30, 1890, was +$33,000,000, and the increase over the preceding year was over $15,000,000. +Nearly 200,000 more cattle and over 45,000 more hogs were exported than in +the preceding year. The export trade in beef and pork products and in dairy +products was very largely increased, the increase in the article of butter +alone being from 15,504,978 pounds to 29,748,042 pounds, and the total +increase in the value of meat and dairy products exported being +$34,000,000. This trade, so directly helpful to the farmer, it is believed, +will be yet further and very largely increased when the system of +inspection and sanitary supervision now provided by law is brought fully +into operation. + +The efforts of the Secretary to establish the healthfulness of our meats +against the disparaging imputations that have been put upon them abroad +have resulted in substantial progress. Veterinary surgeons sent out by the +Department are now allowed to participate in the inspection of the live +cattle from this country landed at the English docks, and during the +several months they have been on duty no case of contagious +pleuro-pneumonia has been reported. This inspection abroad and the domestic +inspection of live animals and pork products provided for by the act of +August 30, 1890, will afford as perfect a guaranty for the wholesomeness of +our meats offered for foreign consumption as is anywhere given to any food +product, and its nonacceptance will quite clearly reveal the real motive of +any continued restriction of their use, and that having been made clear the +duty of the Executive will be very plain. + +The information given by the Secretary of the progress and prospects of the +beet-sugar industry is full of interest. It has already passed the +experimental stage and is a commercial success. The area over which the +sugar beet can be successfully cultivated is very large, and another field +crop of great value is offered to the choice of the farmer. + +The Secretary of the Treasury concurs in the recommendation of the +Secretary of Agriculture that the official supervision provided by the +tariff law for sugar of domestic production shall be transferred to the +Department of Agriculture. + +The law relating to the civil service has, so far as I can learn, been +executed by those having the power of appointment in the classified service +with fidelity and impartiality, and the service has been increasingly +satisfactory. The report of the Commission shows a large amount of good +work done during the year with very limited appropriations. + +I congratulate the Congress and the country upon the passage at the first +session of the Fifty-first Congress of an unusual number of laws of very +high importance. That the results of this legislation will be the +quickening and enlargement of our manufacturing industries, larger and +better markets for our breadstuffs and provisions both at home and abroad, +more constant employment and better wages for our working people, and an +increased supply of a safe currency for the transaction of business, I do +not doubt. Some of these measures were enacted at so late a period that the +beneficial effects upon commerce which were in the contemplation of +Congress have as yet but partially manifested themselves. + +The general trade and industrial conditions throughout the country during +the year have shown a marked improvement. For many years prior to 1888 the +merchandise balances of foreign trade had been largely in our favor, but +during that year and the year following they turned against us. It is very +gratifying to know that the last fiscal year again shows a balance in our +favor of over $68,000,000. The bank clearings, which furnish a good test of +the volume of business transacted, for the first ten months of the year +1890 show as compared with the same months of 1889 an increase for the +whole country of about 8.4 per cent, while the increase outside of the city +of New York was over 13 per cent. During the month of October the clearings +of the whole country showed an increase of 3.1 per cent over October, 1889, +while outside of New York the increase was 11.5 per cent. These figures +show that the increase in the volume of business was very general +throughout the country. That this larger business was being conducted upon +a safe and profitable basis is shown by the fact that there were 300 less +failures reported in October, 1890, than in the same month of the preceding +year, with liabilities diminished by about $5,000,000. + +The value of our exports of domestic merchandise during the last year was +over $115,000,000 greater than the preceding year, and was only exceeded +once in our history. About $100,000,000 of this excess was in agricultural +products. The production of pig iron, always a good gauge of general +prosperity, is shown by a recent census bulletin to have been 153 per cent +greater in 1890 than in 1880, and the production of steel 290 per cent +greater. Mining in coal has had no limitation except that resulting from +deficient transportation. The general testimony is that labor is everywhere +fully employed, and the reports for the last year show a smaller number of +employees affected by strikes and lockouts than in any year since 1884. The +depression in the prices of agricultural products had been greatly relieved +and a buoyant and hopeful tone was beginning to be felt by all our people. + +These promising influences have been in some degree checked by the +surprising and very unfavorable monetary events which have recently taken +place in England. It is gratifying to know that these did not grow in any +degree out of the financial relations of London with our people or out of +any discredit attached to our securities held in that market. The return of +our bonds and stocks was caused by a money stringency in England, not by +any loss of value or credit in the securities themselves. We could not, +however, wholly escape the ill effects of a foreign monetary agitation +accompanied by such extraordinary incidents as characterized this. It is +not believed, however, that these evil incidents, which have for the time +unfavorably affected values in this country, can long withstand the strong, +safe, and wholesome influences which are operating to give to our people +profitable returns in all branches of legitimate trade and industry. The +apprehension that our tariff may again and at once be subjected to +important general changes would undoubtedly add a depressing influence of +the most serious character. + +The general tariff act has only partially gone into operation, some of its +important provisions being limited to take effect at dates yet in the +future. The general provisions of the law have been in force less than +sixty days. Its permanent effects upon trade and prices still largely stand +in conjecture. It is curious to note that the advance in the prices of +articles wholly unaffected by the tariff act was by many hastily ascribed +to that act. Notice was not taken of the fact that the general tendency of +the markets was upward, from influences wholly apart from the recent tariff +legislation. The enlargement of our currency by the silver bill undoubtedly +gave an upward tendency to trade and had a marked effect on prices; but +this natural and desired effect of the silver legislation was by many +erroneously attributed to the tariff act. + +There is neither wisdom nor justice in the suggestion that the subject of +tariff revision shall be again opened before this law has had a fair trial. +It is quite true that every tariff schedule is subject to objections. No +bill was ever framed, I suppose, that in all of its rates and +classifications had the full approval even of a party caucus. Such +legislation is always and necessarily the product of compromise as to +details, and the present law is no exception. But in its general scope and +effect I think it will justify the support of those who believe that +American legislation should conserve and defend American trade and the +wages of American workmen. + +The misinformation as to the terms of the act which has been so widely +disseminated at home and abroad will be corrected by experience, and the +evil auguries as to its results confounded by the market reports, the +savings banks, international trade balances, and the general prosperity of +our people. Already we begin to hear from abroad and from our customhouses +that the prohibitory effect upon importations imputed to the act is not +justified. The imports at the port of New York for the first three weeks of +November were nearly 8 per cent greater than for the same period in 1889 +and 29 per cent greater than in the same period of 1888. And so far from +being an act to limit exports, I confidently believe that under it we shall +secure a larger and more profitable participation in foreign trade than we +have ever enjoyed, and that we shall recover a proportionate participation +in the ocean carrying trade of the world. + +The criticisms of the bill that have come to us from foreign sources may +well be rejected for repugnancy. If these critics really believe that the +adoption by us of a free-trade policy, or of tariff rates having reference +solely to revenue, would diminish the participation of their own countries +in the commerce of the world, their advocacy and promotion, by speech and +other forms of organized effort, of this movement among our people is a +rare exhibition of unselfishness in trade. And, on the other hand, if they +sincerely believe that the adoption of a protective-tariff policy by this +country inures to their profit and our hurt, it is noticeably strange that +they should lead the outcry against the authors of a policy so helpful to +their countrymen and crown with their favor those who would snatch from +them a substantial share of a trade with other lands already inadequate to +their necessities. + +There is no disposition among any of our people to promote prohibitory or +retaliatory legislation. Our policies are adopted not to the hurt of +others, but to secure for ourselves those advantages that fairly grow out +of our favored position as a nation. Our form of government, with its +incident of universal suffrage, makes it imperative that we shall save our +working people from the agitations and distresses which scant work and +wages that have no margin for comfort always beget. But after all this is +done it will be found that our markets are open to friendly commercial +exchanges of enormous value to the other great powers. + +From the time of my induction into office the duty of using every power and +influence given by law to the executive department for the development of +larger markets for our products, especially our farm products, has been +kept constantly in mind, and no effort has been or will be spared to +promote that end. We are under no disadvantage in any foreign market, +except that we pay our workmen and workwomen better wages than are paid +elsewhere--better abstractly, better relatively to the cost of the +necessaries of life. I do not doubt that a very largely increased foreign +trade is accessible to us without bartering for it either our home market +for such products of the farm and shop as our own people can supply or the +wages of our working people. + +In many of the products of wood and iron and in meats and breadstuffs we +have advantages that only need better facilities of intercourse and +transportation to secure for them large foreign markets. The reciprocity +clause of the tariff act wisely and effectively opens the way to secure a +large reciprocal trade in exchange for the free admission to our ports of +certain products. The right of independent nations to make special +reciprocal trade concessions is well established, and does not impair +either the comity due to other powers or what is known as the +"favored-nation clause," so generally found in commercial treaties. What is +given to one for an adequate agreed consideration can not be claimed by +another freely. The state of the revenues was such that we could dispense +with any import duties upon coffee, tea, hides, and the lower grades of +sugar and molasses. That the large advantage resulting to the countries +producing and exporting these articles by placing them on the free list +entitled us to expect a fair return in the way of customs concessions upon +articles exported by us to them was so obvious that to have gratuitously +abandoned this opportunity to enlarge our trade would have been an +unpardonable error. + +There were but two methods of maintaining control of this question open to +Congress--to place all of these articles upon the dutiable list, subject to +such treaty agreements as could be secured, or to place them all presently +upon the free list, but subject to the reimposition of specified duties if +the countries from which we received them should refuse to give to us +suitable reciprocal benefits. This latter method, I think, possesses great +advantages. It expresses in advance the consent of Congress to reciprocity +arrangements affecting these products, which must otherwise have been +delayed and unascertained until each treaty was ratified by the Senate and +the necessary legislation enacted by Congress. Experience has shown that +some treaties looking to reciprocal trade have failed to secure a +two-thirds vote in the Senate for ratification, and others having passed +that stage have for years awaited the concurrence of the House and Senate +in such modifications of our revenue laws as were necessary to give effect +to their provisions. We now have the concurrence of both Houses in advance +in a distinct and definite offer of free entry to our ports of specific +articles. The Executive is not required to deal in conjecture as to what +Congress will accept. Indeed, this reciprocity provision is more than an +offer. Our part of the bargain is complete; delivery has been made; and +when the countries from which we receive sugar, coffee, tea, and hides have +placed on their free lists such of our products as shall be agreed upon as +an equivalent for our concession, a proclamation of that fact completes the +transaction; and in the meantime our own people have free sugar, tea, +coffee, and hides. + +The indications thus far given are very hopeful of early and favorable +action by the countries from which we receive our large imports of coffee +and sugar, and it is confidently believed that if steam communication with +these countries can be promptly improved and enlarged the next year will +show a most gratifying increase in our exports of breadstuffs and +provisions, as well as of some important lines of manufactured goods. + +In addition to the important bills that became laws before the adjournment +of the last session, some other bills of the highest importance were well +advanced toward a final vote and now stand upon the calendars of the two +Houses in favored positions. The present session has a fixed limit, and if +these measures are not now brought to a final vote all the work that has +been done upon them by this Congress is lost. The proper consideration of +these, of an apportionment bill, and of the annual appropriation bills will +require not only that no working day of the session shall be lost, but that +measures of minor and local interest shall not be allowed to interrupt or +retard the progress of those that are of universal interest. In view of +these conditions, I refrain from bringing before you at this time some +suggestions that would otherwise be made, and most earnestly invoke your +attention to the duty of perfecting the important legislation now well +advanced. To some of these measures, which seem to me most important, I now +briefly call your attention. + +I desire to repeat with added urgency the recommendations contained in my +last annual message in relation to the development of American steamship +lines. The reciprocity clause of the tariff bill will be largely limited +and its benefits retarded and diminished if provision is not +contemporaneously made to encourage the establishment of first-class steam +communication between our ports and the ports of such nations as may meet +our overtures for enlarged commercial exchanges. The steamship, carrying +the mails statedly and frequently and offering to passengers a comfortable, +safe, and speedy transit, is the first condition of foreign trade. It +carries the order or the buyer, but not all that is ordered or bought. It +gives to the sailing vessels such cargoes as are not urgent or perishable, +and, indirectly at least, promotes that important adjunct of commerce. +There is now both in this country and in the nations of Central and South +America a state of expectation and confidence as to increased trade that +will give a double value to your prompt action upon this question. + +The present situation of our mail communication with Australia illustrates +the importance of early action by Congress. The Oceanic Steamship Company +maintains a line of steamers between San Francisco, Sydney, and Auckland +consisting of three vessels, two of which are of United States registry and +one of foreign registry. For the service done by this line in carrying the +mails we pay annually the sum of $46,000, being, as estimated, the full sea +and United States inland postage, which is the limit fixed by law. The +colonies of New South Wales and New Zealand have been paying annually to +these lines lbs. 37,000 for carrying the mails from Sydney and Auckland to +San Francisco. The contract under which this payment has been made is now +about to expire, and those colonies have refused to renew the contract +unless the United States shall pay a more equitable proportion of the whole +sum necessary to maintain the service. + +I am advised by the Postmaster-General that the United States receives for +carrying the Australian mails, brought to San Francisco in these steamers, +by rail to Vancouver, an estimated annual income of $75,000, while, as I +have stated, we are paying out for the support of the steamship line that +brings this mail to us only $46,000, leaving an annual surplus resulting +from this service of $29,000. The trade of the United States with +Australia, which is in a considerable part carried by these steamers, and +the whole of which is practically dependent upon the mail communication +which they maintain, is largely in our favor. Our total exports of +merchandise to Australasian ports during the fiscal year ending June 30, +1890, were $11,266,484, while the total imports of merchandise from these +ports were only $4,277,676. If we are not willing to see this important +steamship line withdrawn, or continued with Vancouver substituted for San +Francisco as the American terminal, Congress should put it in the power of +the Postmaster-General to make a liberal increase in the amount now paid +for the transportation of this important mail. + +The South Atlantic and Gulf ports occupy a very favored position toward the +new and important commerce which the reciprocity clause of the tariff act +and the postal shipping bill are designed to promote. Steamship lines from +these ports to some northern port of South America will almost certainly +effect a connection between the railroad systems of the continents long +before any continuous line of railroads can be put into operation. The very +large appropriation made at the last session for the harbor of Galveston +was justified, as it seemed to me, by these considerations. The great +Northwest will feel the advantage of trunk lines to the South as well as to +the East and of the new markets opened for their surplus food products and +for many of their manufactured products. + +I had occasion in May last to transmit to Congress a report adopted by the +International American Conference upon the subject of the incorporation of +an international American bank, with a view to facilitating money exchanges +between the States represented in that conference. Such an institution +would greatly promote the trade we are seeking to develop. I renew the +recommendation that a careful and well-guarded charter be granted. I do not +think the powers granted should include those ordinarily exercised by +trust, guaranty, and safe-deposit companies, or that more branches in the +United States should be authorized than are strictly necessary to +accomplish the object primarily in view, namely, convenient foreign +exchanges. It is quite important that prompt action should be taken in this +matter, in order that any appropriations for better communication with +these countries and any agreements that may be made for reciprocal trade +may not be hindered by the inconvenience of making exchanges through +European money centers or burdened by the tribute which is an incident of +that method of business. + +The bill for the relief of the Supreme Court has after many years of +discussion reached a position where final action is easily attainable, and +it is hoped that any differences of opinion may be so harmonized as to save +the essential features of this very important measure. In this connection I +earnestly renew my recommendation that the salaries of the judges of the +United States district courts be so readjusted that none of them shall +receive less than $5,000 per annum. + +The subject of the unadjusted Spanish and Mexican land grants and the +urgent necessity for providing some commission or tribunal for the trial of +questions of title growing out of them were twice brought by me to the +attention of Congress at the last session. Bills have been reported from +the proper committees in both Houses upon the subject, and I very earnestly +hope that this Congress will put an end to the delay which has attended the +settlement of the disputes as to the title between the settlers and the +claimants under these grants. These disputes retard the prosperity and +disturb the peace of large and important communities. The governor of New +Mexico in his last report to the Secretary of the Interior suggests some +modifications of the provisions of the pending bills relating to the small +holdings of farm lands. I commend to your attention the suggestions of the +Secretary of the Interior upon this subject. + +The enactment of a national bankrupt law I still regard as very desirable. +The Constitution having given to Congress jurisdiction of this subject, it +should be exercised and uniform rules provided for the administration of +the affairs of insolvent debtors. The inconveniences resulting from the +occasional and temporary exercise of this power by Congress and from the +conflicting State codes of insolvency which come into force intermediately +should be removed by the enactment of a simple, inexpensive, and permanent +national bankrupt law. + +I also renew my recommendation in favor of legislation affording just +copyright protection to foreign authors on a footing of reciprocal +advantage for our authors abroad. + +It may still be possible for this Congress to inaugurate by suitable +legislation a movement looking to uniformity and increased safety in the +use of couplers and brakes upon freight trains engaged in interstate +commerce. The chief difficulty in the way is to secure agreement as to the +best appliances, simplicity, effectiveness, and cost being considered. This +difficulty will only yield to legislation, which should be based upon full +inquiry and impartial tests. The purpose should be to secure the +cooperation of all well-disposed managers and owners; but the fearful fact +that every year's delay involves the sacrifice of 2,000 lives and the +maiming of 20,000 young men should plead both with Congress and the +managers against any needless delay. + +The subject of the conservation and equal distribution of the water supply +of the arid regions has had much attention from Congress, but has not as +yet been put upon a permanent and satisfactory basis. The urgency of the +subject does not grow out of any large present demand for the use of these +lands for agriculture, but out of the danger that the water supply and the +sites for the necessary catch basins may fall into the hands of individuals +or private corporations and be used to render subservient the large areas +dependent upon such supply. The owner of the water is the owner of the +lands, however the titles may run. All unappropriated natural water sources +and all necessary reservoir sites should be held by the Government for the +equal use at fair rates of the homestead settlers who will eventually take +up these lands. The United States should not, in my opinion, undertake the +construction of dams or canals, but should limit its work to such surveys +and observations as will determine the water supply, both surface and +subterranean, the areas capable of irrigation, and the location and storage +capacity of reservoirs. This done, the use of the water and of the +reservoir sites might be granted to the respective States or Territories or +to individuals or associations upon the condition that the necessary works +should be constructed and the water furnished at fair rates without +discrimination, the rates to be subject to supervision by the legislatures +or by boards of water commissioners duly constituted. The essential thing +to be secured is the common and equal use at fair rates of the accumulated +water supply. It were almost better that these lands should remain arid +than that those who occupy them should become the slaves of unrestrained +monopolies controlling the one essential element of land values and crop +results. + +The use of the telegraph by the Post-Office Department as a means for the +rapid transmission of written communications is, I believe, upon proper +terms, quite desirable. The Government does not own or operate the +railroads, and it should not, I think, own or operate the telegraph lines. +It does, however, seem to be quite practicable for the Government to +contract with the telegraph companies, as it does with railroad companies, +to carry at specified rates such communications as the senders may +designate for this method of transmission. I recommend that such +legislation be enacted as will enable the Post-Office Department fairly to +test by experiment the advantages of such a use of the telegraph. + +If any intelligent and loyal company of American citizens were required to +catalogue the essential human conditions of national life, I do not doubt +that with absolute unanimity they would begin with "free and honest +elections." And it is gratifying to know that generally there is a growing +and nonpartisan demand for better election laws; but against this sign of +hope and progress must be set the depressing and undeniable fact that +election laws and methods are sometimes cunningly contrived to secure +minority control, while violence completes the shortcomings of fraud. + +In my last annual message I suggested that the development of the existing +law providing a Federal supervision of Congressional elections offered an +effective method of reforming these abuses. The need of such a law has +manifested itself in many parts of the country, and its wholesome +restraints and penalties will be useful in all. The constitutionality of +such legislation has been affirmed by the Supreme Court. Its probable +effectiveness is evidenced by the character of the opposition that is made +to it. It has been denounced as if it were a new exercise of Federal power +and an invasion of the rights of States. Nothing could be further from the +truth. Congress has already fixed the time for the election of members of +Congress. It has declared that votes for members of Congress must be by +written or printed ballot; it has provided for the appointment by the +circuit courts in certain cases, and upon the petition of a certain number +of citizens, of election supervisors, and made it their duty to supervise +the registration of voters conducted by the State officers; to challenge +persons offering to register; to personally inspect and scrutinize the +registry lists, and to affix their names to the lists for the purpose of +identification and the prevention of frauds; to attend at elections and +remain with the boxes till they are all cast and counted; to attach to the +registry lists and election returns any statement touching the accuracy and +fairness of the registry and election, and to take and transmit to the +Clerk of the House of Representatives any evidence of fraudulent practices +which may be presented to them. The same law provides for the appointment +of deputy United States marshals to attend at the polls, support the +supervisors in the discharge of their duties, and to arrest persons +violating the election laws. The provisions of this familiar title of the +Revised Statutes have been put into exercise by both the great political +parties, and in the North as well as in the South, by the filing with the +court of the petitions required by the law. + +It is not, therefore, a question whether we shall have a Federal election +law, for we now have one and have had for nearly twenty years, but whether +we shall have an effective law. The present law stops just short of +effectiveness, for it surrenders to the local authorities all control over +the certification which establishes the prima facie right to a seat in the +House of Representatives. This defect should be cured. Equality of +representation and the parity of the electors must be maintained or +everything that is valuable in our system of government is lost. The +qualifications of an elector must be sought in the law, net in the +opinions, prejudices, or fears of any class, however powerful. The path of +the elector to the ballot box must be free from the ambush of fear and the +enticements of fraud; the count so true and open that none shall gainsay +it. Such a law should be absolutely nonpartisan and impartial. It should +give the advantage to honesty and the control to majorities. Surely there +is nothing sectional about this creed, and if it shall happen that the +penalties of laws intended to enforce these rights fall here and not there +it is not because the law is sectional, but because, happily, crime is +local and not universal. Nor should it be forgotten that every law, whether +relating to elections or to any other subject, whether enacted by the State +or by the nation, has force behind it; the courts, the marshal or +constable, the posse comitatus, the prison, are all and always behind the +law. + +One can not be justly charged with unfriendliness to any section or class +who seeks only to restrain violations of law and of personal right. No +community will find lawlessness profitable. No community can afford to have +it known that the officers who are charged with the preservation of the +public peace and the restraint of the criminal classes are themselves the +product of fraud or violence. The magistrate is then without respect and +the law without sanction. The floods of lawlessness can not be leveed and +made to run in one channel. The killing of a United States marshal carrying +a writ of arrest for an election offense is full of prompting and +suggestion to men who are pursued by a city marshal for a crime against +life or property. + +But it is said that this legislation will revive race animosities, and some +have even suggested that when the peaceful methods of fraud are made +impossible they may be supplanted by intimidation and violence. If the +proposed law gives to any qualified elector by a hair's weight more than +his equal influence or detracts by so much from any other qualified +elector, it is fatally impeached. But if the law is equal and the +animosities it is to evoke grow out of the fact that some electors have +been accustomed to exercise the franchise for others as well as for +themselves, then these animosities ought not to be confessed without shame, +and can not be given any weight in the discussion without dishonor No +choice is left to me but to enforce with vigor all laws intended to secure +to the citizen his constitutional rights and to recommend that the +inadequacies of such laws be promptly remedied. If to promote with zeal and +ready interest every project for the development of its material interests, +its rivers, harbors, mines, and factories, and the intelligence, peace, and +security under the law of its communities and its homes is not accepted as +sufficient evidence of friendliness to any State or section, I can not add +connivance at election practices that not only disturb local results, but +rob the electors of other States and sections of their most priceless +political rights. + +The preparation of the general appropriation bills should be conducted with +the greatest care and the closest scrutiny of expenditures. Appropriations +should be adequate to the needs of the public service, but they should be +absolutely free from prodigality. + +I venture again to remind you that the brief time remaining for the +consideration of the important legislation now awaiting your attention +offers no margin for waste. If the present duty is discharged with +diligence, fidelity, and courage, the work of the Fifty-first Congress may +be confidently submitted to the considerate judgment of the people. BENJ. +HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 9, 1891 + +To the Senate and House of Representatives: + +The reports of the heads of the several Executive Departments required by +law to be submitted to me, which are herewith transmitted, and the reports +of the Secretary of the Treasury and the Attorney-General, made directly to +Congress, furnish a comprehensive view of the administrative work of the +last fiscal year relating to internal affair. It would be of great +advantage if these reports could have an alternative perusal by every +member of Congress and by all who take an interest in public affairs. Such +a perusal could not fail to excite a higher appreciation of the vast labor +and conscientious effort which are given to the conduct of our civil +administration. + +The reports will, I believe, show that every question has been approached, +considered, and decided from the standpoint of public duty upon +considerations affecting the public interests alone. Again I invite to +every branch of the service the attention and scrutiny of Congress. + +The work of the State Department during the last year has been +characterized by an unusual number of important negotiations and by +diplomatic results of a notable and highly beneficial character. Among +these are the reciprocal trade arrangements which have been concluded, in +the exercise of the powers conferred by section 3 of the tariff law, with +the Republic of Brazil, with Spain for its West India possessions, and with +Santo Domingo. Like negotiations with other countries have been much +advanced, and it is hoped that before the close of the year further +definitive trade arrangements of great value will be concluded. + +In view of the reports which had been received as to the diminution of the +seal herds in the Bering Sea, I deemed it wise to propose to Her Majesty's +Government in February last that an agreement for a closed season should be +made pending the negotiations for arbitration, which then seemed to be +approaching a favorable conclusion. After much correspondence and delays, +for which this Government was not responsible, an agreement was reached and +signed on the 15th of June, by which Great Britain undertook from that date +and until May 1, 1892, to prohibit the killing by her subjects of seals in +the Bering Sea, and the Government of the United States during the same +period to enforce its existing prohibition against pelagic sealing and to +limit the catch by the fur-seal company upon the islands to 7,500 skins. If +this agreement could have been reached earlier in response to the strenuous +endeavors of this Government, it would have been more effective; but coming +even as late as it did it unquestionably resulted in greatly diminishing +the destruction of the seals by the Canadian sealers. + +In my last annual message I stated that the basis of arbitration proposed +by Her Majesty's Government for the adjustment of the long-pending +controversy as to the seal fisheries was not acceptable. I am glad now to +be able to announce that terms satisfactory to this Government have been +agreed upon and that an agreement as to the arbitrators is all that is +necessary to the completion of the convention. In view of the advanced +position which this Government has taken upon the subject of international +arbitration, this renewed expression of our adherence to this method for +the settlement of disputes such as have arisen in the Bering Sea will, I +doubt not, meet with the concurrence of Congress. + +Provision should be made for a joint demarcation of the frontier line +between Canada and the United States wherever required by the increasing +border settlements, and especially for the exact location of the water +boundary in the straits and rivers. + +I should have been glad to announce some favorable disposition of the +boundary dispute between Great Britain and Venezuela touching the western +frontier of British Guiana, but the friendly efforts of the United States +in that direction have thus far been unavailing. This Government will +continue to express its concern at any appearance of foreign encroachment +on territories long under the administrative control of American States. +The determination of a disputed boundary is easily attainable by amicable +arbitration where the rights of the respective parties rest, as here, on +historic facts readily ascertainable. + +The law of the last Congress providing a system of inspection for our meats +intended for export, and clothing the President with power to exclude +foreign products from our market in case the country sending them should +perpetuate unjust discriminations against any product of the United States, +placed this Government in a position to effectively urge the removal of +such discriminations against our meats. It is gratifying to be able to +state that Germany, Denmark, Italy, Austria, and France, in the order +named, have opened their ports to inspected American pork products. The +removal of these restrictions in every instance was asked for and given +solely upon the ground that we have now provided a meat inspection that +should be accepted as adequate to the complete removal of the dangers, real +or fancied, which had been previously urged. The State Department, our +ministers abroad, and the Secretary of Agriculture have cooperated with +unflagging and intelligent zeal for the accomplishment of this great +result. The outlines of an agreement have been reached with Germany looking +to equitable trade concessions in consideration of the continued free +importation of her sugars, but the time has not yet arrived when this +correspondence can be submitted to Congress. + +The recent political disturbances in the Republic of Brazil have excited +regret and solicitude. The information we possessed was too meager to +enable us to form a satisfactory judgment of the causes leading to the +temporary assumption of supreme power by President Fonseca; but this +Government did not fail to express to him its anxious solicitude for the +peace of Brazil and for the maintenance of the free political institutions +which had recently been established there, nor to offer our advice that +great moderation should be observed in the clash of parties and the contest +for leadership. These counsels were received in the most friendly spirit, +and the latest information is that constitutional government has been +reestablished without bloodshed. + +The lynching at New Orleans in March last of eleven men of Italian nativity +by a mob of citizens was a most deplorable and discreditable incident. It +did not, however, have its origin in any general animosity to the Italian +people, nor in any disrespect to the Government of Italy, with which our +relations were of the most friendly character. The fury of the mob was +directed against these men as the supposed participants or accessories in +the murder of a city officer. I do not allude to this as mitigating in any +degree this offense against law and humanity, but only as affecting the +international questions which grew out of it. It was at once represented by +the Italian minister that several of those whose lives had been taken by +the mob were Italian subjects, and a demand was made for the punishment of +the participants and for an indemnity to the families of those who were +killed. It is to be regretted that the manner in which these claims were +presented was not such as to promote a calm discussion of the questions +involved; but this may well be attributed to the excitement and indignation +which the crime naturally evoked. The views of this Government as to its +obligations to foreigners domiciled here were fully stated in the +correspondence, as well as its purpose to make an investigation of the +affair with a view to determine whether there were present any +circumstances that could under such rules of duty as we had indicated +create an obligation upon the United States. The temporary absence of a +minister plenipotentiary of Italy at this capital has retarded the further +correspondence, but it is not doubted that a friendly conclusion is +attainable. + +Some suggestions growing out of this unhappy incident are worthy the +attention of Congress. It would, I believe, be entirely competent for +Congress to make offenses against the treaty rights of foreigners domiciled +in the United States cognizable in the Federal courts. This has not, +however, been done, and the Federal officers and courts have no power in +such cases to intervene, either for the protection of a foreign citizen or +for the punishment of his slayers. It seems to me to follow, in this state +of the law, that the officers of the State charged with police and judicial +powers in such cases must in the consideration of international questions +growing out of such incidents be regarded in such sense as Federal agents +as to make this Government answerable for their acts in cases where it +would be answerable if the United States had used its constitutional power +to define and punish crime against treaty rights. + +The civil war in Chile, which began in January last, was continued, but +fortunately with infrequent and not important armed collisions, until +August 28, when the Congressional forces landed near Valparaiso and after a +bloody engagement captured that city. President Balmaceda at once +recognized that his cause was lost, and a Provisional Government was +speedily established by the victorious party. Our minister was promptly +directed to recognize and put himself in communication with this Government +so soon as it should have established its de facto character, which was +done. During the pendency of this civil contest frequent indirect appeals +were made to this Government to extend belligerent rights to the insurgents +and to give audience to their representatives. This was declined, and that +policy was pursued throughout which this Government when wrenched by civil +war so strenuously insisted upon on the part of European nations. The +Itata, an armed vessel commanded by a naval officer of the insurgent fleet, +manned by its sailors and with soldiers on board, was seized under process +of the United States court at San Diego, Cal., for a violation of our +neutrality laws. While in the custody of an officer of the court the vessel +was forcibly wrested from his control and put to sea. It would have been +inconsistent with the dignity and self-respect of this Government not to +have insisted that the Itala should be returned to San Diego to abide the +judgment of the court. This was so clear to the junta of the Congressional +party, established at Iquique, that before the arrival of the Itata at that +port the secretary of foreign relations of the Provisional Government +addressed to Rear-Admiral Brown, commanding the United States naval forces, +a communication, from which the following is an extract: The Provisional +Government has learned by the cablegrams of the Associated Press that the +transport Itata, detained in San Diego by order of the United States for +taking on board munitions of war, and in possession of the marshal, left +the port, carrying on board this official, who was landed at a point near +the coast, and then continued her voyage. If this news be correct this +Government would deplore the conduct of the Itata, and as an evidence that +it is not disposed to support or agree to the infraction of the laws of the +United States the undersigned takes advantage of the personal relations you +have been good enough to maintain with him since your arrival in this port +to declare to you that as soon as she is within reach of our orders his +Government will put the Itata, with the arms and munitions she took on +board in Sail Diego, at the disposition of the United States. A trial in +the district court of the United States for the southern district of +California has recently resulted in a decision holding, among other things, +that inasmuch as the Congressional party had not been recognized as a +belligerent the acts done in its interest could not be a violation of our +neutrality laws. From this judgment the United States has appealed, not +that the condemnation of the vessel is a matter of importance, but that we +may know what the present state of our law is; for if this construction of +the statute is correct there is obvious necessity for revision and +amendment. + +During the progress of the war in Chile this Government tendered its good +offices to bring about a peaceful adjustment, and it was at one time hoped +that a good result might be reached; but in this we were disappointed. + +The instructions to our naval officers and to our minister at Santiago from +the first to the last of this struggle enjoined upon them the most +impartial treatment and absolute noninterference. I am satisfied that these +instructions were observed and that our representatives were always +watchful to use their influence impartially in the interest of humanity, +and on more than one occasion did so effectively. We could not forget, +however, that this Government was in diplomatic relations with the then +established Government of Chile, as it is now in such relations with the +successor of that Government. I am quite sure that President Montt, who +has, under circumstances of promise for the peace of Chile, been installed +as President of that Republic, will not desire that in the unfortunate +event of any revolt against his authority the policy of this Government +should be other than that which we have recently observed. No official +complaint of the conduct of our minister or of our naval officers during +the struggle has been presented to this Government, and it is a matter of +regret that so many of our own people should have given ear to unofficial +charges and complaints that manifestly had their origin in rival interests +and in a wish to pervert the relations of the United States with Chile. + +The collapse of the Government of Balmaceda brought about a condition which +is unfortunately too familiar in the history of the Central and South +American States. With the overthrow of the Balmaceda Government he and many +of his councilors and officers became at once fugitives for their lives and +appealed to the commanding officers of the foreign naval vessels in the +harbor of Valparaiso and to the resident foreign ministers at Santiago for +asylum. This asylum was freely given, according to my information, by the +naval vessels of several foreign powers and by several of the legations at +Santiago. The American minister as well as his colleagues, acting upon the +impulse of humanity, extended asylum to political refugees whose lives were +in peril. I have not been willing to direct the surrender of such of these +persons as are still in the American legation without suitable conditions. + +It is believed that the Government of Chile is not in a position, in view +of the precedents with which it has been connected, to broadly deny the +right of asylum, and the correspondence has not thus far presented any such +denial. The treatment of our minister for a time was such as to call for a +decided protest, and it was very gratifying to observe that unfriendly +measures, which were undoubtedly the result of the prevailing excitement, +were at once rescinded or suitably relaxed. + +On the 16th of October an event occurred in Valparaiso so serious and +tragic in its circumstances and results as to very justly excite the +indignation of our people and to call for prompt and decided action on the +part of this Government. A considerable number of the sailors of the United +States steamship Baltimore, then in the harbor at Valparaiso, being upon +shore leave and unarmed, were assaulted by armed men nearly simultaneously +in different localities in the city. One petty officer was killed outright +and seven or eight seamen were seriously wounded, one of whom has since +died. So savage and brutal was the assault that several of our sailors +received more than two and one as many as eighteen stab wounds. An +investigation of the affair was promptly made by a board of officers of the +Baltimore, and their report shows that these assaults were unprovoked, that +our men were conducting themselves in a peaceable and orderly manner, and +that some of the police of the city took part in the assault and used their +weapons with fatal effect, while a few others, with some well-disposed +citizens, endeavored to protect our men. Thirty-six of our sailors were +arrested, and some of them while being taken to prison were cruelly beaten +and maltreated. The fact that they were all discharged, no criminal charge +being lodged against any one of them, shows very clearly that they were +innocent of any breach of the peace. + +So far as I have yet been able to learn no other explanation of this bloody +work has been suggested than that it had its origin in hostility to those +men as sailors of the United States, wearing the uniform of their +Government, and not in any individual act or personal animosity. The +attention of the Chilean Government was at once called to this affair, and +a statement of the facts obtained by the investigation we had conducted was +submitted, accompanied by a request to be advised of any other or +qualifying facts in the possession of the Chilean Government that might +tend to relieve this affair of the appearance of an insult to this +Government. The Chilean Government was also advised that if such qualifying +facts did not exist this Government would confidently expect full and +prompt reparation. + +It is to be regretted that the reply of the secretary for foreign affairs +of the Provisional Government was couched in an offensive tone. To this no +response has been made. This Government is now awaiting the result of an +investigation which has been conducted by the criminal court at Valparaiso. +It is reported unofficially that the investigation is about completed, and +it is expected that the result will soon be communicated to this +Government, together with some adequate and satisfactory response to the +note by which the attention of Chile was called to this incident. If these +just expectations should be disappointed or further needless delay +intervene, I will by a special message bring this matter again to the +attention of Congress for such action as may be necessary. The entire +correspondence with the Government of Chile will at an early day be +submitted to Congress. + +I renew the recommendation of my special message dated January 16, 1890, +for the adoption of the necessary legislation to enable this Government to +apply in the case of Sweden and Norway the same rule in respect to the +levying of tonnage dues as was claimed and secured to the shipping of the +United States in 1828 under Article VIII of the treaty of 1827. + +The adjournment of the Senate without action on the pending acts for the +suppression of the slave traffic in Africa and for the reform of the +revenue tariff of the Independent State of the Kongo left this Government +unable to exchange those acts on the date fixed, July 2, 1891. A modus +vivendi has been concluded by which the power of the Kongo State to levy +duties on imports is left unimpaired, and by agreement of all the +signatories to the general slave-trade act the time for the exchange of +ratifications on the part of the United States has been extended to +February 2, 1892. + +The late outbreak against foreigners in various parts of the Chinese Empire +has been a cause of deep concern in view of the numerous establishments of +our citizens in the interior of that country. This Government can do no +less than insist upon a continuance of the protective and punitory measures +which the Chinese Government has heretofore applied. No effort will be +omitted to protect our citizens peaceably sojourning in China, but recent +unofficial information indicates that what was at first regarded as an +outbreak of mob violence against foreigners has assumed the larger form of +an insurrection against public order. + +The Chinese Government has declined to receive Mr. Blair as the minister of +the United States on the ground that as a participant while a Senator in +the enactment of the existing legislation against the introduction of +Chinese laborers he has become unfriendly and objectionable to China. I +have felt constrained to point out to the Chinese Government the +untenableness of this position, which seems to rest as much on the +unacceptability of our legislation as on that of the person chosen, and +which if admitted would practically debar the selection of any +representative so long as the existing laws remain in force. + +You will be called upon to consider the expediency of making special +provision by law for the temporary admission of some Chinese artisans and +laborers in connection with the exhibit of Chinese industries at the +approaching Columbian Exposition. I regard it as desirable that the Chinese +exhibit be facilitated in every proper way. + +A question has arisen with the Government of Spain touching the rights of +American citizens in the Caroline Islands. Our citizens there long prior to +the confirmation of Spain's claim to the islands had secured by settlement +and purchase certain rights to the recognition and maintenance of which the +faith of Spain was pledged. I have had reason within the past year very +strongly to protest against the failure to carry out this pledge on the +part of His Majesty's ministers, which has resulted in great injustice and +injury to the American residents. + +The Government and people of Spain propose to celebrate the four hundredth +anniversary of the discovery of America by holding an exposition at Madrid, +which will open on the 12th of September and continue until the 31st of +December, 1892. A cordial invitation has been extended to the United States +to take part in this commemoration, and as Spain was one of the first +nations to express the intention to participate in the World's Columbian +Exposition at Chicago, it would be very appropriate for this Government to +give this invitation its friendly promotion. + +Surveys for the connecting links of the projected intercontinental railway +are in progress, not only in Mexico, but at various points along the course +mapped out. Three surveying parties are now in the field under the +direction of the commission. Nearly 1,000 miles of the proposed road have +been surveyed, including the most difficult part, that through Ecuador and +the southern part of Colombia. The reports of the engineers are very +satisfactory, and show that no insurmountable obstacles have been met +with. + +On November 12, 1884, a treaty was concluded with Mexico reaffirming the +boundary between the two countries as described in the treaties of February +2, 1848, and December 30, 1853. March 1, 1889, a further treaty was +negotiated to facilitate the carrying out of the principles of the treaty +of 1884 and to avoid the difficulties occasioned by reason of the changes +and alterations that take place from natural causes in the Rio Grande and +Colorado rivers in the portions thereof constituting the boundary line +between the two Republics. The International Boundary Commission provided +for by the treaty of 1889 to have exclusive jurisdiction of any question +that may arise has been named by the Mexican Government. An appropriation +is necessary to enable the United States to fulfill its treaty obligations +in this respect. + +The death of King Kalakaua in the United States afforded occasion to +testify our friendship for Hawaii by conveying the King's body to his own +land in a naval vessel with all due honors. The Government of his +successor, Queen Liliuokolani is seeking to promote closer commercial +relations with the United States. Surveys for the much-needed submarine +cable from our Pacific coast to Honolulu are in progress, and this +enterprise should have the suitable promotion of the two Governments. I +strongly recommend that provision be made for improving the harbor of Pearl +River and equipping it as a naval station. + +The arbitration treaty formulated by the International American Conference +lapsed by reason of the failure to exchange ratifications fully within the +limit of time provided; but several of the Governments concerned have +expressed a desire to save this important result of the conference by an +extension of the period. It is, in my judgment, incumbent upon the United +States to conserve the influential initiative it has taken in this measure +by ratifying the instrument and by advocating the proposed extension of the +time for exchange. These views have been made known to the other +signatories. + +This Government has found occasion to express in a friendly spirit, but +with much earnestness, to the Government of the Czar its serious concern +because of the harsh measures now being enforced against the Hebrews in +Russia. By the revival of antisemitic laws, long in abeyance, great numbers +of those unfortunate people have been constrained to abandon their homes +and leave the Empire by reason of the impossibility of finding subsistence +within the pale to which it is sought to confine them. The immigration of +these people to the United States--many other countries being closed to +them--is largely increasing and is likely to assume proportions which may +make it difficult to find homes and employment for them here and to +seriously affect the labor market. It is estimated that over 1,000,000 will +be forced from Russia within a few years. The Hebrew is never a beggar; he +has always kept the law--life by toil--often under severe and oppressive +civil restrictions. It is also true that no race, sect, or class has more +fully cared for its own than the Hebrew race. But the sudden transfer of +such a multitude under conditions that tend to strip them of their small +accumulations and to depress their energies and courage is neither good for +them nor for us. + +The banishment, whether by direct decree or by not less certain indirect +methods, of so large a number of men and women is not a local question. A +decree to leave one country is in the nature of things an order to enter +another--some other. This consideration, as well as the suggestion of +humanity, furnishes ample ground for the remonstrances which we have +presented to Russia, while our historic friendship for that Government can +not fail to give the assurance that our representations are those of a +sincere wellwisher. + +The annual report of the Maritime Canal Company of Nicaragua shows that +much costly and necessary preparatory work has been done during the year in +the construction of shops, railroad tracks, and harbor piers and +breakwaters, and that the work of canal construction has made some +progress. + +I deem it to be a matter of the highest concern to the United States that +this canal, connecting the waters of the Atlantic and Pacific oceans and +giving to us a short water communication between our ports upon those two +great seas, should be speedily constructed and at the smallest practicable +limit of cost. The gain in freights to the people and the direct saving to +the Government of the United States in the use of its naval vessels would +pay the entire cost of this work within a short series of years. The report +of the Secretary of the Navy shows the saving in our naval expenditures +which would result. + +The Senator from Alabama (Mr. Morgan) in his argument upon this subject +before the Senate at the last session did not overestimate the importance +of this work when he said that "the canal is the most important subject now +connected with the commercial growth and progress of the United States." + +If this work is to be promoted by the usual financial methods and without +the aid of this Government, the expenditures in its interest-bearing +securities and stock will probably be twice the actual cost. This will +necessitate higher tolls and constitute a heavy and altogether needless +burden upon our commerce and that of the world. Every dollar of the bonds +and stock of the company should represent a dollar expended in the +legitimate and economical prosecution of the work. This is only possible by +giving to the bonds the guaranty of the United States Government. Such a +guaranty would secure the ready sale at par of a 3 per cent bond from time +to time as the money was needed. I do not doubt that built upon these +business methods the canal would when fully inaugurated earn its fixed +charges and operating expenses. But if its bonds are to be marketed at +heavy discounts and every bond sold is to be accompanied by a gift of +stock, as has come to be expected by investors in such enterprises, the +traffic will be seriously burdened to pay interest and dividends. I am +quite willing to recommend Government promotion in the prosecution of a +work which, if no other means offered for securing its completion, is of +such transcendent interest that the Government should, in my opinion, +secure it by direct appropriations from its Treasury. + +A guaranty of the bonds of the canal company to an amount necessary to the +completion of the canal could, I think, be so given as not to involve any +serious risk of ultimate loss. The things to be carefully guarded are the +completion of the work within the limits of the guaranty, the subrogation +of the United States to the rights of the first-mortgage bondholders for +any amounts it may have to pay, and in the meantime a control of the stock +of the company as a security against mismanagement and loss. I most +sincerely hope that neither party nor sectional lines will be drawn upon +this great American project, so full of interest to the people of all our +States and so influential in its effects upon the prestige and prosperity +of our common country. + +The island of Navassa, in the West Indian group, has, under the provisions +of Title VII of the Revised Statutes, been recognized by the President as +appertaining to the United States. It contains guano deposits, is owned by +the Navassa Phosphate Company, and is occupied solely its employees. In +September, 1889, a revolt took place among these laborers, resulting in the +killing of some of the agents of the company, caused, as the laborers +claimed, by cruel treatment. These men were arrested and tried in the +United States court at Baltimore, under section 5576 of the statute +referred to, as if the offenses had been committed on board a merchant +vessel of the United States on the high seas. There appeared on the trial +and otherwise came to me such evidences of the bad treatment of the men +that in consideration of this and of the fact that the men had no access to +any public officer or tribunal for protection or the redress of their +wrongs I commuted the death sentences that had been passed by the court +upon three of them. In April last my attention was again called to this +island and to the unregulated condition of things there by a letter from a +colored laborer, who complained that he was wrongfully detained upon the +island by the phosphate company after the expiration of his contract of +service. A naval vessel was sent to examine into the case of this man and +generally into the condition of things on the island. It was found that the +laborer referred to had been detained beyond the contract limit and that a +condition of revolt again existed among the laborers. A board of naval +officers reported, among other things, as follows: We would desire to state +further that the discipline maintained on the island seems to be that of a +convict establishment without its comforts and cleanliness, and that until +more attention is paid to the shipping of laborers by placing it under +Government supervision to prevent misunderstanding and misrepresentation, +and until some amelioration is shown in the treatment of the laborers, +these disorders will be of constant occurrence. I recommend legislation +that shall place labor contracts upon this and other islands having the +relation that Navassa has to the United States under the supervision of a +court commissioner, and that shall provide at the expense of the owners an +officer to reside upon the island, with power to judge and adjust disputes +and to enforce a just and humane treatment of the employees. It is +inexcusable that American laborers should be left within our own +jurisdiction without access to any Government officer or tribunal for their +protection and the redress of their wrongs. + +International copyright has been secured, in accordance with the conditions +of the act of March 3, 1891, with Belgium, France, Great Britain and the +British possessions, and Switzerland, the laws of those countries +permitting to our citizens the benefit of copyright on substantially the +same basis as to their own citizens or subjects. + +With Germany a special convention has been negotiated upon this subject +which will bring that country within the reciprocal benefits of our +legislation. + +The general interest in the operations of the Treasury Department has been +much augmented during the last year by reason of the conflicting +predictions, which accompanied and followed the tariff and other +legislation of the last Congress affecting the revenues, as to the results +of this legislation upon the Treasury and upon the country. On the one hand +it was contended that imports would so fall off as to leave the Treasury +bankrupt and that the prices of articles entering into the living of the +people would be so enhanced as to disastrously affect their comfort and +happiness, while on the other it was argued that the loss to the revenue, +largely the result of placing sugar on the free list, would be a direct +gain to the people; that the prices of the necessaries of life, including +those most highly protected, would not be enhanced; that labor would have a +larger market and the products of the farm advanced prices, while the +Treasury surplus and receipts would be adequate to meet the appropriations, +including the large exceptional expenditures for the refunding to the +States of the direct tax and the redemption of the 4 1/2 per cent bonds. + +It is not my purpose to enter at any length into a discussion of the +effects of the legislation to which I have referred; but a brief +examination of the statistics of the Treasury and a general glance at the +state of business throughout the country will, I think, satisfy any +impartial inquirer that its results have disappointed the evil prophecies +of its opponents and in a large measure realized the hopeful predictions of +its friends. Rarely, if ever before, in the history of the country has +there been a time when the proceeds of one day's labor or the product of +one farmed acre would purchase so large an amount of those things that +enter into the living of the masses of the people. I believe that a full +test will develop the fact that the tariff act of the Fifty-first Congress +is very favorable in its average effect upon the prices of articles +entering into common use. + +During the twelve months from October 1, 1890, to September 30, 1891, the +total value of our foreign commerce (imports and exports combined) was +$1,747,806,406, which was the largest of any year in the history of the +United States. The largest in any previous year was in 1890, when our +commerce amounted to $1,647,139,093, and the last year exceeds this +enormous aggregate by over one hundred millions. It is interesting, and to +some will be surprising, to know that during the year ending September 30, +1891, our imports of merchandise amounted to $824,715,270, which was an +increase of more than $11,000,000 over the value of the imports of the +corresponding months of the preceding year, when the imports of merchandise +were unusually large in anticipation of the tariff legislation then +pending. The average annual value of the imports of merchandise for the ten +years from 1881 to 1890 was $692,186,522, and during the year ending +September 30, 1891, this annual average was exceeded by $132,528,469. + +The value of free imports during the twelve months ending September 30, +1891, was $118,092,387 more than the value of free imports during the +corresponding twelve months of the preceding year, and there was during the +same period a decrease of $106,846,508 in the value of imports of dutiable +merchandise. The percentage of merchandise admitted free of duty during the +year to which I have referred, the first under the new tariff, was 48.18, +while during the preceding twelve months, under the old tariff, the +percentage was 34.27, an increase of 13.91 per cent. If we take the six +months ending September 30 last, which covers the time during which sugars +have been admitted free of duty, the per cent of value of merchandise +imported free of duty is found to be 55.37, which is a larger percentage of +free imports than during any prior fiscal year in the history of the +Government. + +If we turn to exports of merchandise, the statistics are full of +gratification. The value of such exports of merchandise for the twelve +months ending September 30, 1891, was $923,091,136, while for the +corresponding previous twelve months it was $860,177,115, an increase of +$62,914,021, which is nearly three times the average annual increase of +exports of merchandise for the preceding twenty years. This exceeds in +amount and value the exports of merchandise during any year in the history +of the Government. The increase in the value of exports of agricultural +products during the year referred to over the corresponding twelve months +of the prior year was $45,846,197, while the increase in the value of +exports of manufactured products was $16,838,240. + +There is certainly nothing in the condition of trade, foreign or domestic, +there is certainly nothing in the condition of our people of any class, to +suggest that the existing tariff and revenue legislation bears oppressively +upon the people or retards the commercial development of the nation. It may +be argued that our condition would be better if tariff legislation were +upon a free-trade basis; but it can not be denied that all the conditions +of prosperity and of general contentment are present in a larger degree +than ever before in our history, and that, too, just when it was prophesied +they would be in the worst state. Agitation for radical changes in tariff +and financial legislation can not help but may seriously impede business, +to the prosperity of which some degree of stability in legislation is +essential. + +I think there are conclusive evidences that the new tariff has created +several great industries, which will within a few years give employment to +several hundred thousand American working men and women. In view of the +somewhat overcrowded condition of the labor market of the United States, +every patriotic citizen should rejoice at such a result. + +The report of the Secretary of the Treasury shows that the total receipts +of the Government from all sources for the fiscal year ending June 30, +1891, were $458,544,233.03, while the expenditures for the same period were +$421,304,470.46, leaving a surplus of $37,239,762.57. + +The receipts of the fiscal year ending June 30, 1892, actual and estimated, +are $433,000,000 and the expenditures $409,000,000. For the fiscal year +ending June 30, 1893, the estimated receipts are $455,336,350 and the +expenditures $441,300,093. + +Under the law of July 14, 1890, the Secretary of the Treasury has purchased +(since August 13) during the fiscal year 48,393,113 ounces of silver +bullion at an average cost of $1.045 per ounce. The highest price paid +during the year was $1.2025 and the lowest $0.9636. In exchange for this +silver bullion there have been issued $50,577,498 of the Treasury notes +authorized by the act. The lowest price of silver reached during the fiscal +year was $0.9636 on April 22, 1891; but on November 1 the market price was +only $0.96, which would give to the silver dollar a bullion value of 74 1/4 +cents. + +Before the influence of the prospective silver legislation was felt in the +market silver was worth in New York about $0.955 per ounce. The ablest +advocates of free coinage in the last Congress were most confident in their +predictions that the purchases by the Government required by the law would +at once bring the price of silver to $1.2929 per ounce, which would make +the bullion value of a dollar 100 cents and hold it there. The prophecies +of the antisilver men of disasters to result from the coinage of $2,000,000 +per month were not wider of the mark. The friends of free silver are not +agreed, I think, as to the causes that brought their hopeful predictions to +naught. Some facts are known. The exports of silver from London to India +during the first nine months of this calendar year fell off over 50 per +cent, or $17,202,730, compared with the same months of the preceding year. +The exports of domestic silver bullion from this country, which had +averaged for the last ten years over $17,000,000, fell in the last fiscal +year to $13,797,391, while for the first time in recent years the imports +of silver into this country exceeded the exports by the sum of $2,745,365. +In the previous year the net exports of silver from the United States +amounted to $8,545,455. The production of the United States increased from +50,000,000 ounces in 1889 to 54,500,000 in 1890. The Government is now +buying and putting aside annually 54,000,000 ounces, which, allowing for +7,140,000 ounces of new bullion used in the arts, is 6,640,000 more than +our domestic products available for coinage. + +I hope the depression in the price of silver is temporary and that a +further trial of this legislation will more favorably affect it. That the +increased volume of currency thus supplied for the use of the people was +needed and that beneficial results upon trade and prices have followed this +legislation I think must be very clear to everyone. Nor should it be +forgotten that for every dollar of these notes issued a full dollar's worth +of silver bullion is at the time deposited in the Treasury as a security +for its redemption. Upon this subject, as upon the tariff, my +recommendation is that the existing laws be given a full trial and that our +business interests be spared the distressing influence which threats of +radical changes always impart. Under existing legislation it is in the +power of the Treasury Department to maintain that essential condition of +national finance as well as of commercial prosperity--the parity in use of +the coined dollars and their paper representatives. The assurance that +these powers would be freely and unhesitatingly used has done much to +produce and sustain the present favorable business conditions. + +I am still of the opinion that the free coinage of silver under existing +conditions would disastrously affect our business interests at home and +abroad. We could not hope to maintain an equality in the purchasing power +of the gold and silver dollar in our own markets, and in foreign trade the +stamp gives no added value to the bullion contained in coins. The producers +of the country, its farmers and laborers, have the highest interest that +every dollar, paper or coin, issued by the Government shall be as good as +any other. If there is one less valuable than another, its sure and +constant errand will be to pay them for their toil and for their crops. The +money lender will protect himself by stipulating for payment in gold, but +the laborer has never been able to do that. To place business upon a silver +basis would mean a sudden and severe contraction of the currency by the +withdrawal of gold and gold notes and such an unsettling of all values as +would produce a commercial panic. I can not believe that a people so strong +and prosperous as ours will promote such a policy. + +The producers of silver are entitled to just consideration, but they should +not forget that the Government is now buying and putting out of the market +what is the equivalent of the entire product of our silver mines. This is +more than they themselves thought of asking two years ago. I believe it is +the earnest desire of a great majority of the people, as it is mine, that a +full coin use shall be made of silver just as soon as the cooperation of +other nations can be secured and a ratio fixed that will give circulation +equally to gold and silver. The business of the world requires the use of +both metals; but I do not see any prospect of gain, but much of loss, by +giving up the present system, in which a full use is made of gold and a +large use of silver, for one in which silver alone will circulate. Such an +event would be at once fatal to the further progress of the silver +movement. Bimetallism is the desired end, and the true friends of silver +will be careful not to overrun the goal and bring in silver monometallism +with its necessary attendants--the loss of our gold to Europe and the +relief of the pressure there for a larger currency. I have endeavored by +the use of official and unofficial agencies to keep a close observation of +the state of public sentiment in Europe upon this question and have not +found it to be such as to justify me in proposing an international +conference. There is, however, I am sure, a growing sentiment in Europe in +favor of a larger use of silver, and I know of no more effectual way of +promoting this sentiment than by accumulating gold here. A scarcity of gold +in the European reserves will be the most persuasive argument for the use +of silver. + +The exports of gold to Europe, which began in February last and continued +until the close of July, aggregated over $70,000,000. The net loss of gold +during the fiscal year was nearly $68,000,000. That no serious monetary +disturbance resulted was most gratifying and gave to Europe fresh evidence +of the strength and stability of our financial institutions. With the +movement of crops the outflow of gold was speedily stopped and a return set +in. Up to December 1 we had recovered of our gold lost at the port of New +York $27,854,000, and it is confidently believed that during the winter and +spring this aggregate will be steadily and largely increased. + +The presence of a large cash surplus in the Treasury has for many years +been the subject of much unfavorable criticism, and has furnished an +argument to those who have desired to place the tariff upon a purely +revenue basis. It was agreed by all that the withdrawal from circulation of +so large an amount of money was an embarrassment to the business of the +country and made necessary the intervention of the Department at frequent +intervals to relieve threatened monetary panics. The surplus on March 1, +1889, was $183,827,190.29. The policy of applying this surplus to the +redemption of the interest-bearing securities of the United States was +thought to be preferable to that of depositing it without interest in +selected national banks. There have been redeemed since the date last +mentioned of interest-bearing securities $259,079,350, resulting in a +reduction of the annual interest charge of $11,684,675. The money which had +been deposited in banks without interest has been gradually withdrawn and +used in the redemption of bonds. + +The result of this policy, of the silver legislation, and of the refunding +of the 4 1/2 per cent bonds has been a large increase of the money in +circulation. At the date last named the circulation was $1,404,205,896, or +$23.03 per capita, while on the 1st day of December, 1891, it had increased +to $1,577,262,070, or $24.38 per capita. The offer of the Secretary of the +Treasury to the holders of the 4 1/2 per cent bonds to extend the time of +redemption, at the option of the Government, at an interest of 2 per cent, +was accepted by the holders of about one-half the amount, and the +unextended bonds are being redeemed on presentation. + +The report of the Secretary of War exhibits the results of an intelligent, +progressive, and businesslike administration of a Department which has been +too much regarded as one of mere routine. The separation of Secretary +Proctor from the Department by reason of his appointment as a Senator from +the State of Vermont is a source of great regret to me and to his +colleagues in the Cabinet, as I am sure it will be to all those who have +had business with the Department while under his charge. + +In the administration of army affairs some especially good work has been +accomplished. The efforts of the Secretary to reduce the percentage of +desertions by removing the causes that promoted it have been so successful +as to enable him to report for the last year a lower percentage of +desertion than has been before reached in the history of the Army. The +resulting money saving is considerable, but the improvement in the morale +of the enlisted men is the most valuable incident of the reforms which have +brought about this result. + +The work of securing sites for shore batteries for harbor defense and the +manufacture of mortars and guns of high power to equip them have made good +progress during the year. The preliminary work of tests and plans which so +long delayed a start is now out of the way. Some guns have been completed, +and with an enlarged shop and a more complete equipment at Watervliet the +Army will soon be abreast of the Navy in gun construction. Whatever +unavoidable causes of delay may arise, there should be none from delayed or +insufficient appropriations. We shall be greatly embarrassed in the proper +distribution and use of naval vessels until adequate shore defenses are +provided for our harbors. + +I concur in the recommendation of the Secretary that the three-battalion +organization be adopted for the infantry. The adoption of a smokeless +powder and of a modern rifle equal in range, precision, and rapidity of +fire to the best now in use will, I hope, not be longer delayed. + +The project of enlisting Indians and organizing them into separate +companies upon the same basis as other soldiers was made the subject of +very careful study by the Secretary and received my approval. Seven +companies have been completely organized and seven more are in process of +organization. The results of six months' training have more than realized +the highest anticipations. The men are readily brought under discipline, +acquire the drill with facility, and show great pride in the right +discharge of their duty and perfect loyalty to their officers, who declare +that they would take them into action with confidence. The discipline, +order, and cleanliness of the military posts will have a wholesome and +elevating influence upon the men enlisted, and through them upon their +tribes, while a friendly feeling for the whites and a greater respect for +the Government will certainly be promoted. + +The great work done in the Record and Pension Division of the War +Department by Major Ainsworth, of the Medical Corps, and the clerks under +him is entitled to honorable mention. Taking up the work with nearly 41,000 +cases behind, he closed the last fiscal year without a single case left +over, though the new cases had increased 52 per cent in number over the +previous year by reason of the pension legislation of the last Congress. + +I concur in the recommendation of the Attorney-General that the right in +felony cases to a review by the Supreme court be limited. It would seem +that personal liberty would have a safe guaranty if the right of review in +cases involving only fine and imprisonment were limited to the circuit +court of appeals, unless a constitutional question should in some way be +involved. + +The judges of the Court of Private Land Claims, provided for by the act of +March 3, 1891, have been appointed and the court organized. It is now +possible to give early relief to communities long repressed in their +development by unsettled land titles and to establish the possession and +right of settlers whose lands have been rendered valueless by adverse and +unfounded claims. + +The act of July 9, 1888, provided for the incorporation and management of a +reform school for girls in the District of Columbia; but it has remained +inoperative for the reason that no appropriation has been made for +construction or maintenance. The need of such an institution is very +urgent. Many girls could be saved from depraved lives by the wholesome +influences and restraints of such a school. I recommend that the necessary +appropriation be made for a site and for construction. + +The enforcement by the Treasury Department of the law prohibiting the +coming of Chinese to the United States has been effective as to such as +seek to land from vessels entering our ports. The result has been to divert +the travel to vessels entering the ports of British Columbia, whence +passage into the United States at obscure points along the Dominion +boundary is easy. A very considerable number of Chinese laborers have +during the past year entered the United States from Canada and Mexico. + +The officers of the Treasury Department and of the Department of Justice +have used every means at their command to intercept this immigration; but +the impossibility of perfectly guarding our extended frontier is apparent. +The Dominion government collects a head tax of $50 from every Chinaman +entering Canada, and thus derives a considerable revenue from those who +only use its ports to reach a position of advantage to evade our exclusion +laws. There seems to be satisfactory evidence that the business of passing +Chinamen through Canada to the United States is organized and quite active. +The Department of Justice has construed the laws to require the return of +any Chinaman found to be unlawfully in this country to China as the country +from which he came, notwithstanding the fact that he came by way of Canada; +but several of the district courts have in cases brought before them +overruled this view of the law and decided that such persons must be +returned to Canada. This construction robs the law of all effectiveness, +even if the decrees could be executed, for the men returned can the next +day recross our border. But the only appropriation made is for sending them +back to China, and the Canadian officials refuse to allow them to reenter +Canada without the payment of the fifty-dollar head tax. I recommend such +legislation as will remedy these defects in the law. + +In previous messages I have called the attention of Congress to the +necessity of so extending the jurisdiction of the United States courts as +to make triable therein any felony committed while in the act of violating +a law of the United States. These courts can not have that independence and +effectiveness which the Constitution contemplates so long as the felonious +killing of court officers, jurors, and witnesses in the discharge of their +duties or by reason of their acts as such is only cognizable in the State +courts. The work done by the Attorney-General and the officers of his +Department, even under the present inadequate legislation, has produced +some notable results in the interest of law and order. + +The Attorney-General and also the Commissioners of the District of Columbia +call attention to the defectiveness and inadequacy of the laws relating to +crimes against chastity in the District of Columbia. A stringent code upon +this subject has been provided by Congress for Utah, and it is a matter of +surprise that the needs of this District should have been so long +overlooked. + +In the report of the Postmaster-General some very gratifying results are +exhibited and many betterments of the service suggested. A perusal of the +report gives abundant evidence that the supervision and direction of the +postal system have been characterized by an intelligent and conscientious +desire to improve the service. The revenues of the Department show an +increase of over $5,000,000, with a deficiency for the year 1892 of less +than $4,000,000, while the estimate for the year 1893 shows a surplus of +receipts over expenditures. + +Ocean mail post-offices have been established upon the steamers of the +North German Lloyd and Hamburg lines, saving by the distribution on +shipboard from two to fourteen hours' time in the delivery of mail at the +port of entry and often much more than this in the delivery at interior +places. So thoroughly has this system, initiated by Germany and the United +States, evidenced its usefulness that it can not be long before it is +installed upon all the great ocean mail-carrying steamships. + +Eight thousand miles of new postal service has been established upon +railroads, the car distribution to substations in the great cities has been +increased about 12 per cent, while the percentage of errors in distribution +has during the past year been reduced over one-half. An appropriation was +given by the last Congress for the purpose of making some experiments in +free delivery in the smaller cities and towns. The results of these +experiments have been so satisfactory that the Postmaster-General +recommends, and I concur in the recommendation, that the free-delivery +system be at once extended to towns of 5,000 population. His discussion of +the inadequate facilities extended under our present system to rural +communities and his suggestions with a view to give these communities a +fuller participation in the benefits of the postal service are worthy of +your careful consideration. It is not just that the farmer, who receives +his mail at a neighboring town, should not only be compelled to send to the +post-office for it, but to pay a considerable rent for a box in which to +place it or to wait his turn at a general-delivery window, while the city +resident has his mail brought to his door. It is stated that over 54,000 +neighborhoods are under the present system receiving mail at post-offices +where money orders and postal notes are not issued. The extension of this +system to these communities is especially desirable, as the patrons of such +offices are not possessed of the other facilities offered in more populous +communities for the transmission of small sums of money. + +I have in a message to the preceding Congress expressed my views as to a +modified use of the telegraph in connection with the postal service. In +pursuance of the ocean mail law of March 3, 1891, and after a most careful +study of the whole subject and frequent conferences with ship-owners, +boards of trade, and others, advertisements were issued by the +postmaster-General for 53 lines of ocean mail service--10 to Great Britain +and the Continent, 27 to South America, 3 to China and Japan, 4 to +Australia and the Pacific islands, 7 to the West Indies, and 2 to Mexico. +It was not, of course, expected that bids for all these lines would be +received or that service upon them all would be contracted for. It was +intended, in furtherance of the act, to secure as many new lines as +possible, while including in the list most or all of the foreign lines now +occupied by American ships. It was hoped that a line to England and perhaps +one to the Continent would be secured; but the outlay required to equip +such lines wholly with new ships of the first class and the difficulty of +establishing new lines in competition with those already established +deterred bidders whose interest had been enlisted. It is hoped that a way +may yet be found of overcoming these difficulties. + +The Brazil Steamship Company, by reason of a miscalculation as to the speed +of its vessels, was not able to bid under the terms of the advertisement. +The policy of the Department was to secure from the established lines an +improved service as a condition of giving to them the benefits of the law. +This in all instances has been attained. The Postmaster-General estimates +that an expenditure in American shipyards of about $10,000,000 will be +necessary to enable the bidders to construct the ships called for by the +service which they have accepted. I do not think there is any reason for +discouragement or for any turning back from the policy of this legislation. +Indeed, a good beginning has been made, and as the subject is further +considered and understood by capitalists and shipping people new lines will +be ready to meet future proposals, and we may date from the passage of this +law the revival of American shipping interests and the recovery of a fair +share of the carrying trade of the world. We were receiving for foreign +postage nearly $2,000,000 under the old system, and the outlay for ocean +mail service did not exceed $600,000 per annum. It is estimated by the +Postmaster-General that if all the contracts proposed are completed it will +require $247,354 for this year in addition to the appropriation for sea and +inland postage already in the estimates, and that for the next fiscal year, +ending June 30, 1893, there would probably be needed about $560,000. + +The report of the Secretary of the Navy shows a gratifying increase of new +naval vessels in commission. The Newark, Concord, Bennington, and +Miantonomoh have been added during the year, with an aggregate of something +more than 11,000 tons. Twenty-four warships of all classes are now under +construction in the navy-yards and private shops; but while the work upon +them is going forward satisfactorily, the completion of the more important +vessels will yet require about a year's time. Some of the vessels now +under construction, it is believed, will be triumphs of naval engineering. +When it is recollected that the work of building a modern navy was only +initiated in the year 1883, that our naval constructors and shipbuilders +were practically without experience in the construction of large iron or +steel ships, that our engine shops were unfamiliar with great marine +engines, and that the manufacture of steel forgings for guns and plates was +almost wholly a foreign industry, the progress that has been made is not +only highly satisfactory, but furnishes the assurance that the United +States will before long attain in the construction of such vessels, with +their engines and armaments, the same preeminence which it attained when +the best instrument of ocean commerce was the clipper ship and the most +impressive exhibit of naval power the old wooden three-decker man-of-war. +The officers of the Navy and the proprietors and engineers of our great +private shops have responded with wonderful intelligence and professional +zeal to the confidence expressed by Congress in its liberal legislation. We +have now at Washington a gun shop, organized and conducted by naval +officers, that in its system, economy, and product is unexcelled. +Experiments with armor plate have been conducted during the year with most +important results. It is now believed that a plate of higher resisting +power than any in use has been found and that the tests have demonstrated +that cheaper methods of manufacture than those heretofore thought necessary +can be used. + +I commend to your favorable consideration the recommendations of the +Secretary, who has, I am sure, given to them the most conscientious study. +There should be no hesitation in promptly completing a navy of the best +modern type large enough to enable this country to display its flag in all +seas for the protection of its citizens and of its extending commerce. The +world needs no assurance of the peaceful purposes of the United States, but +we shall probably be in the future more largely a competitor in the +commerce of the world, and it is essential to the dignity of this nation +and to that peaceful influence which it should exercise on this hemisphere +that its Navy should be adequate both upon the shores of the Atlantic and +of the Pacific. + +The report of the Secretary of the Interior shows that a very gratifying +progress has been made in all of the bureaus which make up that complex and +difficult Department. + +The work in the Bureau of Indian Affairs was perhaps never so large as now, +by reason of the numerous negotiations which have been proceeding with the +tribes for a reduction of the reservations, with the incident labor of +making allotments, and was never more carefully conducted. The provision of +adequate school facilities for Indian children and the locating of adult +Indians upon farms involve the solution of the "Indian question." +Everything else--rations, annuities, and tribal negotiations, with the +agents, inspectors, and commissioners who distribute and conduct them--must +pass away when the Indian has become a citizen, secure in the individual +ownership of a farm from which he derives his subsistence by his own labor, +protected by and subordinate to the laws which govern the white man, and +provided by the General Government or by the local communities in which he +lives with the means of educating his children. When an Indian becomes a +citizen in an organized State or Territory, his relation to the General +Government ceases in great measure to be that of a ward; but the General +Government ought not at once to put upon the State or Territory the burden +of the education of his children. + +It has been my thought that the Government schools and school buildings +upon the reservations would be absorbed by the school systems of the States +and Territories; but as it has been found necessary to protect the Indian +against the compulsory alienation of his land by exempting him from +taxation for a period of twenty-five years, it would seem to be right that +the General Government, certainly where there are tribal funds in its +possession, should pay to the school fund of the State what would be +equivalent to the local school tax upon the property of the Indian. It will +be noticed from the report of the Commissioner of Indian Affairs that +already some contracts have been made with district schools for the +education of Indian children. There is great advantage, I think, in +bringing the Indian children into mixed schools. This process will be +gradual, and in the meantime the present educational provisions and +arrangements, the result of the best experience of those who have been +charged with this work, should be continued. This will enable those +religious bodies that have undertaken the work of Indian education with so +much zeal and with results so restraining and beneficent to place their +institutions in new and useful relations to the Indian and to his white +neighbors. + +The outbreak among the Sioux which occurred in December last is as to its +causes and incidents fully reported upon by the War Department and the +Department of the Interior. That these Indians had some just complaints, +especially in the matter of the reduction of the appropriation for rations +and in the delays attending the enactment of laws to enable the Department +to perform the engagements entered into with them, is probably true; but +the Sioux tribes are naturally warlike and turbulent, and their warriors +were excited by their medicine men and chiefs, who preached the coming of +an Indian messiah who was to give them power to destroy their enemies. In +view of the alarm that prevailed among the white settlers near the +reservation and of the fatal consequences that would have resulted from an +Indian incursion, I placed at the disposal of General Miles, commanding the +Division of the Missouri, all such forces as were thought by him to be +required. He is entitled to the credit of having given thorough protection +to the settlers and of bringing the hostiles into subjection with the least +possible loss of life. + +The appropriation of $2,991,450 for the Choctaws and Chickasaws contained +in the general Indian appropriation bill of March 3, 1891, has not been +expended, for the reason that I have not yet approved a release (to the +Government) of the Indian claim to the lands mentioned. This matter will be +made the subject of a special message, placing before Congress all the +facts which have come to my knowledge. + +The relation of the Five Civilized Tribes now occupying the Indian +Territory to the United States is not, I believe, that best calculated to +promote the highest advancement of these Indians. That there should be +within our borders five independent states having no relations, except +those growing out of treaties, with the Government of the United States, no +representation in the National Legislature, its people not citizens, is a +startling anomaly. + +It seems to me to be inevitable that there shall be before long some +organic changes in the relation of these people to the United States. What +form these changes should take I do not think it desirable now to suggest, +even if they were well defined in my own mind. They should certainly +involve the acceptance of citizenship by the Indians and a representation +in Congress. These Indians should have opportunity to present their claims +and grievances upon the floor rather than, as now, in the lobby. If a +commission could be appointed to visit these tribes to confer with them in +a friendly spirit upon this whole subject, even if no agreement were +presently reached the feeling of the tribes upon this question would be +developed, and discussion would prepare the way for changes which must come +sooner or later. + +The good work of reducing the larger Indian reservations by allotments in +severalty to the Indians and the cession of the remaining lands to the +United States for disposition under the homestead law has been prosecuted +during the year with energy and success. In September last I was enabled to +open to settlement in the Territory of Oklahoma 900,000 acres of land, all +of which was taken up by settlers in a single day. The rush for these lands +was accompanied by a great deal of excitement, but was happily free from +incidents of violence. + +It was a source of great regret that I was not able to open at the same +time the surplus lands of the Cheyenne and Arapahoe Reservation, amounting +to about 3,000,000 acres, by reason of the insufficiency of the +appropriation for making the allotments. Deserving and impatient settlers +are waiting to occupy these lands, and I urgently recommend that a special +deficiency appropriation be promptly made of the small amount needed, so +that the allotments may be completed and the surplus lands opened in time +to permit the settlers to get upon their homesteads in the early spring. + +During the past summer the Cherokee Commission have completed arrangements +with the Wichita, Kickapoo, and Tonkawa tribes whereby, if the agreements +are ratified by Congress, over 800,000 additional acres will be opened to +settlement in Oklahoma. + +The negotiations for the release by the Cherokees of their claim to the +Cherokee Strip have made no substantial progress so far as the Department +is officially advised, but it is still hoped that the cession of this large +and valuable tract may be secured. The price which the commission was +authorized to offer--$1.25 per acre--is, in my judgment, when all the +circumstances as to title and the character of the lands are considered, a +fair and adequate one, and should have been accepted by the Indians. + +Since March 4, 1889, about 23,000,000 acres have been separated from Indian +reservations and added to the public domain for the use of those who +desired to secure free homes under our beneficent laws. It is difficult to +estimate the increase of wealth which will result from the conversion of +these waste lands into farms, but it is more difficult to estimate the +betterment which will result to the families that have found renewed hope +and courage in the ownership of a home and the assurance of a comfortable +subsistence under free and healthful conditions. It is also gratifying to +be able to feel, as we may, that this work has proceeded upon lines of +justice toward the Indian, and that he may now, if he will, secure to +himself the good influences of a settled habitation, the fruits of +industry, and the security of citizenship. + +Early in this Administration a special effort was begun to bring up the +work of the General Land Office. By faithful work the arrearages have been +rapidly reduced. At the end of the last fiscal year only 84,172 final +agricultural entries remained undisposed of, and the Commissioner reports +that with the present force the work can be fully brought up by the end of +the next fiscal year. + +Your attention is called to the difficulty presented by the Secretary of +the Interior as to the administration of the law of March 3, 1891, +establishing a Court of Private Land Claims. The small holdings intended to +be protected by the law are estimated to be more than 15,000 in number. The +claimants are a most deserving class and their titles are supported by the +strongest equities. The difficulty grows out of the fact that the lands +have largely been surveyed according to our methods, while the holdings, +many of which have been in the same family for generations, are laid out in +narrow strips a few rods wide upon a stream and running back to the hills +for pasturage and timber.. Provision should be made for numbering these +tracts as lots and for patenting them by such numbers and without reference +to section lines. + +The administration of the Pension Bureau has been characterized during the +year by great diligence. The total number of pensioners upon the roll on +the 30th day of June, 1891, was 676,160. There were allowed during the +fiscal year ending at that time 250,565 cases. Of this number 102,387 were +allowed under the law of June 27, 1890. The issuing of certificates has +been proceeding at the rate of about 30,000 per month, about 75 per cent of +these being cases under the new law. The Commissioner expresses the opinion +that he will be able to carefully adjudicate and allow 350,000 claims +during the present fiscal year. The appropriation for the payment of +pensions for the fiscal year 1890-91 was $127,685,793.89 and the amount +expended $118,530,649.25, leaving an unexpended surplus of $9,155,144.64. + +The Commissioner is quite confident that there will be no call this year +for a deficiency appropriation, notwithstanding the rapidity with which the +work is being pushed. The mistake which has been made by many in their +exaggerated estimates of the cost of pensions is in not taking account of +the diminished value of first payments under the recent legislation. These +payments under the general law have been for many years very large, as the +pensions when allowed dated from the time of filing the claim, and most of +these claims had been pending for years. The first payments under the law +of June, 1890, are relatively small, and as the per cent of these cases +increases and that of the old cases diminishes the annual aggregate of +first payments is largely reduced. The Commissioner, under date of November +13, furnishes me with the statement that during the last four months +113,175 certificates were issued, 27,893 under the general law and 85,282 +under the act of June 27, 1890. The average first payment during these four +months was $131.85, while the average first payment upon cases allowed +during the year ending June 30, 1891, was $239.33, being a reduction in the +average first payments during these four months of $107.48. + +The estimate for pension expenditures for the fiscal year ending June 30, +1893, is $144,956,000, which, after a careful examination of the subject, +the Commissioner is of the opinion will be sufficient. While these +disbursements to the disabled soldiers of the great Civil War are large, +they do not realize the exaggerated estimates of those who oppose this +beneficent legislation. The Secretary of the Interior shows with great +fullness the care that is taken to exclude fraudulent claims, and also the +gratifying fact that the persons to whom these pensions are going are men +who rendered not slight but substantial war service. + +The report of the Commissioner of Railroads shows that the total debt of +the subsidized railroads to the United States was on December 31, 1890, +$112,512,613.06. A large part of this debt is now fast approaching +maturity, with no adequate provision for its payment. Some policy for +dealing with this debt with a view to its ultimate collection should be at +once adopted. It is very difficult, well-nigh impossible, for so large a +body as the Congress to conduct the necessary negotiations and +investigations. I therefore recommend that provision be made for the +appointment of a commission to agree upon and report a plan for dealing +with this debt. + +The work of the Census Bureau is now far in advance and the great bulk of +the enormous labor involved completed. It will be more strictly a +statistical exhibit and less encumbered by essays than its immediate +predecessors. The methods pursued have been fair, careful, and intelligent, +and have secured the approval of the statisticians who have followed them +with a scientific and nonpartisan interest. The appropriations necessary to +the early completion and publication of the authorized volumes should be +given in time to secure against delays, which increase the cost and at the +same time diminish the value of the work. + +The report of the Secretary exhibits with interesting fullness the +condition of the Territories. They have shared with the States the great +increase in farm products, and are bringing yearly large areas into +cultivation by extending their irrigating canals. This work is being done +by individuals or local corporations and without that system which a full +preliminary survey of the water supply and of the irrigable lands would +enable them to adopt. The future of the Territories of New Mexico, Arizona, +and Utah in their material growth and in the increase, independence, and +happiness of their people is very largely dependent upon wise and timely +legislation, either by Congress or their own legislatures, regulating the +distribution of the water supply furnished by their streams. If this matter +is much longer neglected, private corporations will have unrestricted +control of one of the elements of life and the patentees of the arid lands +will be tenants at will of the water companies. + +The United States should part with its ownership of the water sources and +the sites for reservoirs, whether to the States and Territories or to +individuals or corporations, only upon conditions that will insure to the +settlers their proper water supply upon equal and reasonable terms. In the +Territories this whole subject is under the full control of Congress, and +in the States it is practically so as long as the Government holds the +title to the reservoir sites and water sources and can grant them upon such +conditions as it chooses to impose. The improvident granting of franchises +of enormous value without recompense to the State or municipality from +which they proceed and without proper protection of the public interests is +the most noticeable and flagrant evil of modern legislation. This fault +should not be committed in dealing with a subject that will before many +years affect so vitally thousands of our people. + +The legislation of Congress for the repression of polygamy has, after years +of resistance on the part of the Mormons, at last brought them to the +conclusion that resistance is unprofitable and unavailing. The power of +Congress over this subject should not be surrendered until we have +satisfactory evidence that the people of the State to be created would +exercise the exclusive power of the State over this subject in the same +way. The question is not whether these people now obey the laws of Congress +against polygamy, but rather would they make, enforce, and maintain such +laws themselves if absolutely free to regulate the subject? We can not +afford to experiment with this subject, for when a State is once +constituted the act is final and any mistake irretrievable. No compact in +the enabling act could, in my opinion, be binding or effective. + +I recommend that provision be made for the organization of a simple form of +town government in Alaska, with power to regulate such matters as are +usually in the States under municipal control. These local civil +organizations will give better protection in some matters than the present +skeleton Territorial organization. Proper restrictions as to the power to +levy taxes and to create debt should be imposed. + +If the establishment of the Department of Agriculture was regarded by +anyone as a mere concession to the unenlightened demand of a worthy class +of people, that impression has been most effectually removed by the great +results already attained. Its home influence has been very great in +disseminating agricultural and horticultural information, in stimulating +and directing a further diversification of crops, in detecting and +eradicating diseases of domestic animals, and, more than all, in the close +and informal contact which it has established and maintains with the +farmers and stock raisers of the whole country. Every request for +information has had prompt attention and every suggestion merited +consideration. The scientific corps of the Department is of a high order +and is pushing its investigations with method and enthusiasm. + +The inspection by this Department of cattle and pork products intended for +shipment abroad has been the basis of the success which has attended our +efforts to secure the removal of the restrictions maintained by the +European Governments. + +For ten years protests and petitions upon this subject from the packers and +stock raisers of the United States have been directed against these +restrictions, which so seriously limited our markets and curtailed the +profits of the farm. It is a source of general congratulation that success +has at last been attained, for the effects of an enlarged foreign market +for these meats will be felt not only by the farmer, but in our public +finances and in every branch of trade. It is particularly fortunate that +the increased demand for food products resulting from the removal of the +restrictions upon our meats and from the reciprocal trade arrangements to +which I have referred should have come at a time when the agricultural +surplus is so large. Without the help thus derived lower prices would have +prevailed. The Secretary of Agriculture estimates that the restrictions +upon the importation of our pork products into Europe lost us a market for +$20,000,000 worth of these products annually. + +The grain crop of this year was the largest in our history--50 per cent +greater than that of last year--and yet the new markets that have been +opened and the larger demand resulting from short crops in Europe have +sustained prices to such an extent that the enormous surplus of meats and +breadstuffs will be marketed at good prices, bringing relief and prosperity +to an industry that was much depressed. The value of the grain crop of the +United States is estimated by the Secretary to be this year $500,000,000 +more than last; of meats $150,000,000 more, and of all products of the farm +$700,000,000 more. It is not inappropriate, I think, here to suggest that +our satisfaction in the contemplation of this marvelous addition to the +national wealth is unclouded by any suspicion of the currency by which it +is measured and in which the farmer is paid for the products of his +fields. + +The report of the Civil Service Commission should receive the careful +attention of the opponents as well as the friends of this reform. The +Commission invites a personal inspection by Senators and Representatives of +its records and methods, and every fair critic will feel that such an +examination should precede a judgment of condemnation either of the system +or its administration. It is not claimed that either is perfect, but I +believe that the law is being executed with impartiality and that the +system is incomparably better and fairer than that of appointments upon +favor. I have during the year extended the classified service to include +superintendents, teachers, matrons, and physicians in the Indian service. +This branch of the service is largely related to educational and +philanthropic work and will obviously be the better for the change. + +The heads of the several Executive Departments have been directed to +establish at once an efficiency record as the basis of a comparative rating +of the clerks within the classified service, with a view to placing +promotions therein upon the basis of merit. I am confident that such a +record, fairly kept and open to the inspection of those interested, will +powerfully stimulate the work of the Departments and will be accepted by +all as placing the troublesome matter of promotions upon a just basis. + +I recommend that the appropriation for the Civil Service Commission be made +adequate to the increased work of the next fiscal year. + +I have twice before urgently called the attention of Congress to the +necessity of legislation for the protection of the lives of railroad +employees, but nothing has yet been done. During the year ending June 30, +1890, 369 brakemen were killed and 7,841 maimed while engaged in coupling +cars. The total number of railroad employees killed during the year was +2,451 and the number injured 22,390. This is a cruel and largely needless +sacrifice. The Government is spending nearly $1,000,000 annually to save +the lives of shipwrecked seamen; every steam vessel is rigidly inspected +and required to adopt the most approved safety appliances. All this is +good. But how shall we excuse the lack of interest and effort in behalf of +this army of brave young men who in our land commerce are being sacrificed +every year by the continued use of antiquated and dangerous appliances? A +law requiring of every railroad engaged in interstate commerce the +equipment each year of a given per cent of its freight cars with automatic +couplers and air brakes would compel an agreement between the roads as to +the kind of brakes and couplers to be used, and would very soon and very +greatly reduce the present fearful death rate among railroad employees. + +The method of appointment by the States of electors of President and +Vice-President has recently attracted renewed interest by reason of a +departure by the State of Michigan from the method which had become uniform +in all the States. Prior to 1832 various methods had been used by the +different States, and even by the same State. In some the choice was made +by the legislature; in others electors were chosen by districts, but more +generally by the voters of the whole State upon a general ticket. The +movement toward the adoption of the last-named method had an early +beginning and went steadily forward among the States until in 1832 there +remained but a single State (South Carolina) that had not adopted it. That +State until the Civil War continued to choose its electors by a vote of the +legislature, but after the war changed its method and conformed to the +practice of the other States. For nearly sixty years all the States save +one have appointed their electors by a popular vote upon a general ticket, +and for nearly thirty years this method was universal. + +After a full test of other methods, without important division or dissent +in any State and without any purpose of party advantage, as we must +believe, but solely upon the considerations that uniformity was desirable +and that a general election in territorial divisions not subject to change +was most consistent with the popular character of our institutions, best +preserved the equality of the voters, and perfectly removed the choice of +President from the baneful influence of the "gerrymander," the practice of +all the States was brought into harmony. That this concurrence should now +be broken is, I think, an unfortunate and even a threatening episode, and +one that may well suggest whether the States that still give their approval +to the old and prevailing method ought not to secure by a constitutional +amendment a practice which has had the approval of all. The recent Michigan +legislation provides for choosing what are popularly known as the +Congressional electors for President by Congressional districts and the two +Senatorial electors by districts created for that purpose. This legislation +was, of course, accompanied by a new Congressional apportionment, and the +two statutes bring the electoral vote of the State under the influence of +the "gerrymander." + +These gerrymanders for Congressional purposes are in most cases buttressed +by a gerrymander of the legislative districts, thus making it impossible +for a majority of the legal voters of the State to correct the +apportionment and equalize the Congressional districts. A minority rule is +established that only a political convulsion can overthrow. I have recently +been advised that in one county of a certain State three districts for the +election of members of the legislature are constituted as follows: One has +65,000 population, one 15,000, and one 10,000, while in another county +detached, noncontiguous sections have been united to make a legislative +district. These methods have already found effective application to the +choice of Senators and Representatives in Congress, and now an evil start +has been made in the direction of applying them to the choice by the States +of electors of President and Vice-President. If this is accomplished, we +shall then have the three great departments of the Government in the grasp +of the "gerrymander," the legislative and executive directly and the +judiciary indirectly through the power of appointment. + +An election implies a body of electors having prescribed qualifications, +each one of whom has an equal value and influence in determining the +result. So when the Constitution provides that "each State shall appoint" +(elect), "in such manner as the legislature thereof may direct, a number of +electors," etc., an unrestricted power was not given to the legislatures in +the selection of the methods to be used. "A republican form of government" +is guaranteed by the Constitution to each State, and the power given by the +same instrument to the legislatures of the States to prescribe methods for +the choice by the State of electors must be exercised under that +limitation. The essential features of such a government are the right of +the people to choose their own officers and the nearest practicable +equality of value in the suffrages given in determining that choice. + +It will not be claimed that the power given to the legislature would +support a law providing that the persons receiving the smallest vote should +be the electors or a law that all the electors should be chosen by the +voters of a single Congressional district. The State is to choose, and +finder the pretense of regulating methods the legislature can neither vest +the right of choice elsewhere nor adopt methods not conformable to +republican institutions. It is not my purpose here to discuss the question +whether a choice by the legislature or by the voters of equal single +districts is a choice by the State, but only to recommend such regulation +of this matter by constitutional amendment as will secure uniformity and +prevent that disgraceful partisan jugglery to which such a liberty of +choice, if it exists, offers a temptation. + +Nothing just now is more important than to provide every guaranty for the +absolutely fair and free choice by an equal suffrage within the respective +States of all the officers of the National Government, whether that +suffrage is applied directly, as in the choice of members of the House of +Representatives, or indirectly, as in the choice of Senators and electors +of President. Respect for public officers and obedience to law will not +cease to be the characteristics of our people until our elections cease to +declare the will of majorities fairly ascertained without fraud, +suppression, or gerrymander. If I were called upon to declare wherein our +chief national danger lies, I should say without hesitation in the +overthrow of majority control by the suppression or perversion of the +popular suffrage. That there is a real danger here all must agree; but the +energies of those who see it have been chiefly expended in trying to fix +responsibility upon the opposite party rather than in efforts to make such +practices impossible by either party. + +Is it not possible now to adjourn that interminable and inconclusive debate +while we take by consent one step in the direction of reform by eliminating +the gerrymander, which has been denounced by all parties as an influence in +the selection of electors of President and members of Congress? All the +States have, acting freely and separately, determined that the choice of +electors by a general ticket is the wisest and safest method, and it would +seem there could be no objection to a constitutional amendment making that +method permanent. If a legislature chosen in one year upon purely local +questions should, pending a Presidential contest, meet, rescind the law for +a choice upon a general ticket, and provide for the choice of electors by +the legislature, and this trick should determine the result, it is not too +much to say that the public peace might be seriously and widely +endangered. + +I have alluded to the "gerrymander" as affecting the method of selecting +electors of President by Congressional districts, but the primary intent +and effect of this form of political robbery have relation to the selection +of members of the House of Representatives. The power of Congress is ample +to deal with this threatening and intolerable abuse. The unfailing test of +sincerity in election reform will be found in a willingness to confer as to +remedies and to put into force such measures as will most effectually +preserve the right of the people to free and equal representation. + +An attempt was made in the last Congress to bring to bear the +constitutional powers of the General Government for the correction of fraud +against the suffrage. It is important to know whether the opposition to +such measures is really rested in particular features supposed to be +objectionable or includes any proposition to give to the election laws of +the United States adequacy to the correction of grave and acknowledged +evils. I must yet entertain the hope that it is possible to secure a calm, +patriotic consideration of such constitutional or statutory changes as may +be necessary to secure the choice of the officers of the Government to the +people by fair apportionments and free elections. + +I believe it would be possible to constitute a commission, nonpartisan in +its membership and composed of patriotic, wise, and impartial men, to whom +a consideration of the question of the evils connected with our election +system and methods might be committed with a good prospect of securing +unanimity in some plan for removing or mitigating those evils. The +Constitution would permit the selection of the commission to be vested in +the Supreme Court if that method would give the best guaranty of +impartiality. This commission should be charged with the duty of inquiring +into the whole subject of the law of elections as related to the choice of +officers of the National Government, with a view to securing to every +elector a free and unmolested exercise of the suffrage and as near an +approach to an equality of value in each ballot cast as is attainable. + +While the policies of the General Government upon the tariff, upon the +restoration of our merchant marine, upon river and harbor improvements, and +other such matters of grave and general concern are liable to be turned +this way or that by the results of Congressional elections and +administrative policies, sometimes involving issues that tend to peace or +war, to be turned this way or that by the results of a Presidential +election, there is a rightful interest in all the States and in every +Congressional district that will not be deceived or silenced by the +audacious pretense that the question of the right of any body of legal +voters in any State or in any Congressional district to give their +suffrages freely upon these general questions is a matter only of local +concern or control. The demand that the limitations of suffrage shall be +found in the law, and only there, is a just demand, and no just man should +resent or resist it. My appeal is and must continue to be for a +consultation that shall "proceed with candor, calmness, and patience upon +the lines of justice and humanity, not of prejudice and cruelty." + +To the consideration of these very grave questions I invite not only the +attention of Congress, but that of all patriotic citizens. We must not +entertain the delusion that our people have ceased to regard a free ballot +and equal representation as the price of their allegiance to laws and to +civil magistrates. + +I have been greatly rejoiced to notice many evidences of the increased +unification of our people and of a revived national spirit. The vista that +now opens to us is wider and more glorious than ever before. Gratification +and amazement struggle for supremacy as we contemplate the population, +wealth, and moral strength of our country. A trust momentous in its +influence upon our people and upon the world is for a brief time committed +to us, and we must not be faithless to its first condition--the defense of +the free and equal influence of the people in the choice of public officers +and in the control of public affairs. + +BENJ. HARRISON + +*** + +State of the Union Address +Benjamin Harrison +December 6, 1892 + +To the Senate and House of Representatives: + +In submitting my annual message to Congress I have great satisfaction in +being able to say that the general conditions affecting the commercial and +industrial interests of the United States are in the highest degree +favorable. A comparison of the existing conditions with those of the most +favored period in the history of the country will, I believe, show that so +high a degree of prosperity and so general a diffusion of the comforts of +life were never before enjoyed by our people. + +The total wealth of the country in 1860 was $16,159,616,068. In 1890 it +amounted to $62,610,000,000, an increase of 287 per cent. + +The total mileage of railways in the United States in 1860 was 30,626. In +1890 it was 167,741, an increase of 448 per cent; and it is estimated that +there will be about 4,000 miles of track added by the close of the year +1892. + +The official returns of the Eleventh Census and those of the Tenth Census +for seventy-five leading cities furnish the basis for the following +comparisons: + +In 1880 the capital invested in manufacturing was $1,232,839,670. + +In 1890 the capital invested in manufacturing was $2,900,735,884. + +In 1880 the number of employees was 1,301,388. + +In 1890 the number of employees was 2,251,134. + +In 1880 the wages earned were $501,965,778. + +In 1890 the wages earned were $1,221,170,454. + +In 1880 the value of the product was $2,711,579,899. + +In 1890 the value of the product was $4,860,286,837. + +I am informed by the Superintendent of the Census that the omission of +certain industries in 1880 which were included in 1890 accounts in part for +the remarkable increase thus shown, but after making full allowance for +differences of method and deducting the returns for all industries not +included in the census of 1880 there remain in the reports from these +seventy-five cities an increase in the capital employed of $1,522,745,604, +in the value of the product of $2,024,236,166, in wages earned of +$677,943,929, and in the number of wage earners employed of 856,029. The +wage earnings not only show an increased aggregate, but an increase per +capita from $386 in 1880 to $547 in 1890, or 41.71 per cent. + +The new industrial plants established since October 6, 1890, and up to +October 22, 1892, as partially reported in the American Economist, number +345, and the extension of existing plants 108; the new capital invested +amounts to $40,449,050, and the number of additional employees to 37,285. + +The Textile World for July, 1892, states that during the first six months +of the present calendar year 135 new factories were built, of which 40 are +cotton mills, 48 knitting mills, 26 woolen mills, 15 silk mills, 4 plush +mills, and 2 linen mills. Of the 40 cotton mills 21 have been built in the +Southern States. Mr. A. B. Shepperson, of the New York Cotton Exchange, +estimates the number of working spindles in the United States on September +1, 1892, at 15,200,000, an increase of 660,000 over the year 1891. The +consumption of cotton by American mills in 1891 was 2,396,000 bales, and in +1892 2,584,000 bales, an increase of 188,000 bales. From the year 1869 to +1892, inclusive, there has been an increase in the consumption of cotton in +Europe of 92 per cent, while during the same period the increased +consumption in the United States has been about 150 per cent. + +The report of Ira Ayer, special agent of the Treasury Department, shows +that at the date of September 30, 1892, there were 32 companies +manufacturing tin and terne plate in the United States and 14 companies +building new works for such manufacture. The estimated investment in +buildings and plants at the close of the fiscal year June 30, 1893, if +existing conditions were to be continued, was $5,000,000 and the estimated +rate of production 200,000,000 pounds per annum. The actual production for +the quarter ending September 30, 1892, was 10,952,725 pounds. + +The report of Labor Commissioner Peck, of New York, shows that during the +year 1891, in about 6,000 manufacturing establishments in that State +embraced within the special inquiry made by him, and representing 67 +different industries, there was a net increase over the year 1890 of +$30,315,130.68 in the value of the product and of $6,377,925.09 in the +amount of wages paid. The report of the commissioner of labor for the State +of Massachusetts shows that 3,745 industries in that State paid +$129,416,248 in wages during the year 1891, against $126,030,303 in 1890, +an increase of $3,335,945, and that there was an increase of $9,932,490 in +the amount of capital and of 7,346 in the number of persons employed in the +same period. + +During the last six months of the year 1891 and the first six months of +1892 the total production of pig iron was 9,710,819 tons, as against +9,202,703 tons in the year 1890, which was the largest annual production +ever attained. For the same twelve months of 1891-92 the production of +Bessemer ingots was 3,878,581 tons, an increase of 189,710 gross tons over +the previously unprecedented yearly production of 3,688,871 gross tons in +1890. The production of Bessemer steel rails for the first six months of +1892 was 772,436 gross tons, as against 702,080 gross tons during the last +six months of the year 1891. + +The total value of our foreign trade (exports and imports of merchandise) +during the last fiscal year was $1,857,680,610, an increase of $128,283,604 +over the previous fiscal year. The average annual value of our imports and +exports of merchandise for the ten fiscal years prior to 1891 was +$1,457,322,019. It will be observed that our foreign trade for 1892 +exceeded this annual average value by $400,358,591, an increase of 27.47 +per cent. The significance and value of this increase are shown by the fact +that the excess in the trade of 1892 over 1891 was wholly in the value of +exports, for there was a decrease in the value of imports of $17,513,754. + +The value of our exports during the fiscal year 1892 reached the highest +figure in the history of the Government, amounting to $1,030,278,148, +exceeding by $145,797,338 the exports of 1891 and exceeding the value of +the imports by $202,875,686. A comparison of the value of our exports for +1892 with the annual average for the ten years prior to 1891 shows an +excess of $265,142,651, or of 34.65 per cent. The value of our imports of +merchandise for 1892, which was $829,402,462, also exceeded the annual +average value of the ten years prior to 1891 by $135,215,940. During the +fiscal year 1892 the value of imports free of duty amounted to +$457,999,658, the largest aggregate in the history of our commerce. The +value of the imports of merchandise entered free of duty in 1892 was 55.35 +per cent of the total value of imports, as compared with 43.35 per cent in +1891 and 33.66 per cent in 1890. + +In our coastwise trade a most encouraging development is in progress, there +having been in the last four years an increase of 16 per cent. In internal +commerce the statistics show that no such period of prosperity has ever +before existed. The freight carried in the coastwise trade of the Great +Lakes in 1890 aggregated 28,295,959 tons. On the Mississippi, Missouri, and +Ohio rivers and tributaries in the same year the traffic aggregated +29,405,046 tons, and the total vessel tonnage passing through the Detroit +River during that year was 21,684,000 tons. The vessel tonnage entered and +cleared in the foreign trade of London during 1890 amounted to 13,480,767 +tons, and of Liverpool 10,941,800 tons, a total for these two great +shipping ports of 24,422,568 tons, only slightly in excess of the vessel +tonnage passing through the Detroit River. And it should be said that the +season for the Detroit River was but 228 days, while of course in London +and Liverpool the season was for the entire year. The vessel tonnage +passing through the St. Marys Canal for the fiscal year 1892 amounted to +9,828,874 tons, and the freight tonnage of the Detroit River is estimated +for that year at 25,000,000 tons, against 23,209,619 tons in 1891. The +aggregate traffic on our railroads for the year 1891 amounted to +704,398,609 tons of freight, compared with 691,344,437 tons in 1890, an +increase of 13,054,172 tons. + +Another indication of the general prosperity of the country is found in the +fact that the number of depositors in savings banks increased from 693,870 +in 1860 to 4,258,893 in 1890, an increase of 513 per cent, and the amount +of deposits from $149,277,504 in 1860 to $1,524,844,506 in 1890, an +increase of 921 per cent. In 1891 the amount of deposits in savings banks +was $1,623,079,749. It is estimated that 90 per cent of these deposits +represent the savings of wage earners. The bank clearances for nine months +ending September 30, 1891, amounted to $41,049,390,08. For the same months +in 1892 they amounted to $45,189,601,947, an excess for the nine months of +$4,140,211,139. + +There never has been a time in our history when work was so abundant or +when wages were as high, whether measured by the currency in which they are +paid or by their power to supply the necessaries and comforts of life. It +is true that the market prices of cotton and wheat have been low. It is one +of the unfavorable incidents of agriculture that the farmer can not produce +upon orders. He must sow and reap in ignorance of the aggregate production +of the year, and is peculiarly subject to the depreciation which follows +overproduction. But while the fact I have stated is true as to the crops +mentioned, the general average of prices has been such as to give to +agriculture a fair participation in the general prosperity. The value of +our total farm products has increased from $1,363,646,866 in 1860 to +$4,500,000,000 in 1891, as estimated by statisticians, an increase of 230 +per cent. The number of hogs January 1, 1891, was 50,625,106 and their +value $210,193,925; on January 1, 1892, the number was 52,398,019 and the +value $241,031,415. On January 1, 1891, the number of cattle was 36,875,648 +and the value $544,127,908; on January 1 ,1892, the number was 37,651,239 +and the value $570,749,155. + +If any are discontented with their state here, if any believe that wages or +prices, the returns for honest toil, are inadequate, they should not fail +to remember that there is no other country in the world where the +conditions that seem to them hard would not be accepted as highly +prosperous. The English agriculturist would be glad to exchange the returns +of his labor for those of the American farmer and the Manchester workmen +their wages for those of their fellows at Fall River. + +I believe that the protective system, which has now for something more than +thirty years continuously prevailed in our legislation, has been a mighty +instrument for the development of our national wealth and a most powerful +agency in protecting the homes of our workingmen from the invasion of want. +I have felt a most solicitous interest to preserve to our working people +rates of wages that would not only give daily bread but supply a +comfortable margin for those home attractions and family comforts and +enjoyments without which life is neither hopeful nor sweet. They are +American citizens--a part of the great people for whom our Constitution and +Government were framed and instituted--and it can not be a perversion of +that Constitution to so legislate as to preserve in their homes the +comfort, independence, loyalty, and sense of interest in the Government +which are essential to good citizenship in peace, and which will bring this +stalwart throng, as in 1861, to the defense of the flag when it is +assailed. + +It is not my purpose to renew here the argument in favor of a protective +tariff. The result of the recent election must be accepted as having +introduced a new policy. We must assume that the present tariff, +constructed upon the lines of protection, is to be repealed and that there +is to be substituted for it a tariff law constructed solely with reference +to revenue; that no duty is to be higher because the increase will keep +open an American mill or keep up the wages of an American workman, but that +in every case such a rate of duty is to be imposed as will bring to the +Treasury of the United States the largest returns of revenue. The +contention has not been between schedules, but between principles, and it +would be offensive to suggest that the prevailing party will not carry into +legislation the principles advocated by it and the pledges given to the +people. The tariff bills passed by the House of Representatives at the last +session were, as I suppose, even in the opinion of their promoters, +inadequate, and justified only by the fact that the Senate and House of +Representatives were not in accord and that a general revision could not +therefore be undertaken. + +I recommend that the whole subject of tariff revision be left to the +incoming Congress. It is matter of regret that this work must be delayed +for at least three months, for the threat of great tariff changes +introduces so much uncertainty that an amount, not easily estimated, of +business inaction and of diminished production will necessarily result. It +is possible also that this uncertainty may result in decreased revenues +from customs duties, for our merchants will make cautious orders for +foreign goods in view of the prospect of tariff reductions and the +uncertainty as to when they will take effect. Those who have advocated a +protective tariff can well afford to have their disastrous forecasts of a +change of policy disappointed. If a system of customs duties can be framed +that will set the idle wheels and looms of Europe in motion and crowd our +warehouses with foreign-made goods and at the same time keep our own mills +busy; that will give us an increased participation in the "markets of the +world" of greater value than the home market we surrender; that will give +increased work to foreign workmen upon products to be consumed by our +people without diminishing the amount of work to be done here; that will +enable the American manufacturer to pay to his workmen from 50 to 100 per +cent more in wages than is paid in the foreign mill, and yet to compete in +our market and in foreign markets with the foreign producer; that will +further reduce the cost of articles of wear and food without reducing the +wages of those who produce them; that can be celebrated, after its effects +have been realized, as its expectation has been in European as well as in +American cities, the authors and promoters of it will be entitled to the +highest praise. We have had in our history several experiences of the +contrasted effects of a revenue and of a protective tariff, but this +generation has not felt them, and the experience of one generation is not +highly instructive to the next. The friends of the protective system with +undiminished confidence in the principles they have advocated will await +the results of the new experiment. + +The strained and too often disturbed relations existing between the +employees and the employers in our great manufacturing establishments have +not been favorable to a calm consideration by the wage earner of the effect +upon wages of the protective system. The facts that his wages were the +highest paid in like callings in the world and that a maintenance of this +rate of wages in the absence of protective duties upon the product of his +labor was impossible were obscured by the passion evoked by these contests. +He may now be able to review the question in the light of his personal +experience under the operation of a tariff for revenue only. If that +experience shall demonstrate that present rates of wages are thereby +maintained or increased, either absolutely or in their purchasing power, +and that the aggregate volume of work to be done in this country is +increased or even maintained, so that there are more or as many days' work +in a year, at as good or better wages, for the American workmen as has been +the case under the protective system, everyone will rejoice. A general +process of wage reduction can not be contemplated by any patriotic citizen +without the gravest apprehension. It may be, indeed I believe is, possible +for the American manufacturer to compete successfully with his foreign +rival in many branches of production without the defense of protective +duties if the pay rolls are equalized; but the conflict that stands between +the producer and that result and the distress of our working people when it +is attained are not pleasant to contemplate. The Society of the Unemployed, +now holding its frequent and threatening parades in the streets of foreign +cities, should not be allowed to acquire an American domicile. + +The reports of the heads of the several Executive Departments, which are +herewith submitted, have very naturally included a resume of the whole work +of the Administration with the transactions of the last fiscal year. The +attention not only of Congress but of the country is again invited to the +methods of administration which have been pursued and to the results which +have been attained. Public revenues amounting to $1,414,079,292.28 have +been collected and disbursed without loss from misappropriation, without a +single defalcation of such importance as to attract the public attention, +and at a diminished per cent of cost for collection. The public business +has been transacted not only with fidelity, but progressively and with a +view to giving to the people in the fullest possible degree the benefits of +a service established and maintained for their protection and comfort. + +Our relations with other nations are now undisturbed by any serious +controversy. The complicated and threatening differences with Germany and +England relating to Samoan affairs, with England in relation to the seal +fisheries in the Bering Sea, and with Chile growing out of the Baltimore +affair have been adjusted. + +There have been negotiated and concluded, under section 3 of the tariff +law, commercial agreements relating to reciprocal trade with the following +countries: Brazil, Dominican Republic, Spain for Cuba and Puerto Rico, +Guatemala, Salvador, the German Empire, Great Britain for certain West +Indian colonies and British Guiana, Nicaragua, Honduras, and +Austria-Hungary. + +Of these, those with Guatemala, Salvador, the German Empire, Great Britain, +Nicaragua, Honduras, and Austria-Hungary have been concluded since my last +annual message. Under these trade arrangements a free or favored admission +has been secured in every case for an important list of American products. +Especial care has been taken to secure markets for farm products, in order +to relieve that great underlying industry of the depression which the lack +of an adequate foreign market for our surplus often brings. An opening has +also been made for manufactured products that will undoubtedly, if this +policy is maintained, greatly augment our export trade. The full benefits +of these arrangements can not be realized instantly. New lines of trade are +to be opened. The commercial traveler must survey the field. The +manufacturer must adapt his goods to the new markets and facilities for +exchange must be established. This work has been well begun, our merchants +and manufacturers having entered the new fields with courage and +enterprise. In the case of food products, and especially with Cuba, the +trade did not need to wait, and the immediate results have been most +gratifying. If this policy and these trade arrangements can be continued in +force and aided by the establishment of American steamship lines, I do not +doubt that we shall within a short period secure fully one-third of the +total trade of the countries of Central and South America, which now +amounts to about $600,000,000 annually. In 1885 we had only 8 per cent of +this trade. + +The following statistics show the increase in our trade with the countries +with which we have reciprocal trade agreements from the date when such +agreements went into effect up to September 30, 1892, the increase being in +some almost wholly and in others in an important degree the result of these +agreements: + +The domestic exports to Germany and Austria-Hungary have increased in value +from $47,673,756 to $57,993,064, an increase of $10,319,308, or 21.63 per +cent. With American countries the value of our exports has increased from +$44,160,285 to $54,613,598, an increase of $10,453,313, or 23.67 per cent. +The total increase in the value of exports to all the countries with which +we have reciprocity agreements has been $20,772,621. This increase is +chiefly in wheat, flour, meat, and dairy products and in manufactures of +iron and steel and lumber. There has been a large increase in the value of +imports from all these countries since the commercial agreements went into +effect, amounting to $74,294,525, but it has been entirely in imports from +the American countries, consisting mostly of sugar, coffee, india rubber, +and crude drugs. The alarmed attention of our European competitors for the +South American market has been attracted to this new American policy and to +our acquisition and their loss of South American trade. + +A treaty providing for the arbitration of the dispute between Great Britain +and the United States as to the killing of seals in the Bering Sea was +concluded on the 29th of February last. This treaty was accompanied by an +agreement prohibiting pelagic sealing pending the arbitration, and a +vigorous effort was made during this season to drive out all poaching +sealers from the Bering Sea. Six naval vessels, three revenue cutters, and +one vessel from the Fish Commission, all under the command of Commander +Evans, of the Navy, were sent into the sea, which was systematically +patrolled. Some seizures were made, and it is believed that the catch in +the Bering Sea by poachers amounted to less than 500 seals. It is true, +however, that in the North Pacific, while the seal herds were on their way +to the passes between the Aleutian Islands, a very large number, probably +35,000, were taken. The existing statutes of the United States do not +restrain our citizens from taking seals in the Pacific Ocean, and perhaps +should not unless the prohibition can be extended to the citizens of other +nations. I recommend that power be given to the President by proclamation +to prohibit the taking of seals in the North Pacific by American vessels in +case, either as the result of the findings of the Tribunal of Arbitration +or otherwise, the restraints can be applied to the vessels of all +countries. The case of the United States for the Tribunal of Arbitration +has been prepared with great care and industry by the Hon. John W. Foster, +and the counsel who represent this Government express confidence that a +result substantially establishing our claims and preserving this great +industry for the benefit of all nations will be attained. + +During the past year a suggestion was received through the British minister +that the Canadian government would like to confer as to the possibility of +enlarging upon terms of mutual advantage the commercial exchanges of Canada +and of the United States, and a conference was held at Washington, with Mr. +Blaine acting for this Government and the British minister at this capital +and three members of the Dominion cabinet acting as commissioners on the +part of Great Britain. The conference developed the fact that the Canadian +government was only prepared to offer to the United States in exchange for +the concessions asked the admission of natural products. The statement was +frankly made that favored rates could not be given to the United States as +against the mother country. This admission, which was foreseen, necessarily +terminated the conference upon this question. The benefits of an exchange +of natural products would be almost wholly with the people of Canada. Some +other topics of interest were considered in the conference, and have +resulted in the making of a convention for examining the Alaskan boundary +and the waters of Passamaquoddy Bay adjacent to Eastport, Me., and in the +initiation of an arrangement for the protection of fish life in the +coterminous and neighboring waters of our northern border. + +The controversy as to tolls upon the Welland Canal, which was presented to +Congress at the last session by special message, having failed of +adjustment, I felt constrained to exercise the authority conferred by the +act of July 26, 1892, and to proclaim a suspension of the free use of St. +Marys Falls Canal to cargoes in transit to ports in Canada. The Secretary +of the Treasury established such tolls as were thought to be equivalent to +the exactions unjustly levied upon our commerce in the Canadian canals. + +If, as we must suppose, the political relations of Canada and the +disposition of the Canadian government are to remain unchanged, a somewhat +radical revision of our trade relations should, I think, be made. Our +relations must continue to be intimate, and they should be friendly. I +regret to say, however, that in many of the controversies, notably those as +to the fisheries on the Atlantic, the sealing interests on the Pacific, and +the canal tolls, our negotiations with Great Britain have continuously been +thwarted or retarded by unreasonable and unfriendly objections and protests +from Canada in the matter of the canal tolls our treaty rights were +flagrantly disregarded. It is hardly too much to say that the Canadian +Pacific and other railway lines which parallel our northern boundary are +sustained by commerce having either its origin or terminus, or both, in the +United States. Canadian railroads compete with those of the United States +for our traffic, and without the restraints of our interstate-commerce act. +Their cars pass almost without detention into and out of our territory. + +The Canadian Pacific Railway brought into the United States from China and +Japan via British Columbia during the year ended June 30, 1892, 23,239,689 +pounds of freight, and it carried from the United States, to be shipped to +China and Japan via British Columbia, 24,068,346 pounds of freight. There +were also shipped from the United States over this road from Eastern ports +of the United States to our Pacific ports during the same year 13,912,073 +pounds of freight, and there were received over this road at the United +States Eastern ports from ports on the Pacific Coast 13,293,315 pounds of +freight. Mr. Joseph Nimmo, Jr., former chief of the Bureau of Statistics, +when before the Senate Select Committee on Relations with Canada, April 26, +1890, said that "the value of goods thus transported between different +points in the United States across Canadian territory probably amounts to +$100,000,000 a year." + +There is no disposition on the part of the people or Government of the +United States to interfere in the smallest degree with the political +relations of Canada. That question is wholly with her own people. It is +time for us, however, to consider whether, if the present state of things +and trend of things is to continue, our interchanges upon lines of land +transportation should not be put upon a different basis and our entire +independence of Canadian canals and of the St. Lawrence as an outlet to the +sea secured by the construction of an American canal around the Falls of +Niagara and the opening of ship communication between the Great Lakes and +one of our own seaports. We should not hesitate to avail ourselves of our +great natural trade advantages. We should withdraw the support which is +given to the railroads and steamship lines of Canada by a traffic that +properly belongs to us and no longer furnish the earnings which lighten the +otherwise crushing weight of the enormous public subsidies that have been +given to them. The subject of the power of the Treasury to deal with this +matter without further legislation has been under consideration, but +circumstances have postponed a conclusion. It is probable that a +consideration of the propriety of a modification or abrogation of the +article of the treaty of Washington relating to the transit of goods in +bond is involved in any complete solution of the question. + +Congress at the last session was kept advised of the progress of the +serious and for a time threatening difference between the United States and +Chile. It gives me now great gratification to report that the Chilean +Government in a most friendly and honorable spirit has tendered and paid as +an indemnity to the families of the sailors of the Baltimore who were +killed and to those who were injured in the outbreak in the city of +Valparaiso the sum of $75,000. This has been accepted not only as an +indemnity for a wrong done, but as a most gratifying evidence that the +Government of Chile rightly appreciates the disposition of this Government +to act in a spirit of the most absolute fairness and friendliness in our +intercourse with that brave people. A further and conclusive evidence of +the mutual respect and confidence now existing is furnished by the fact +that a convention submitting to arbitration the mutual claims of the +citizens of the respective Governments has been agreed upon. Some of these +claims have been pending for many years and have been the occasion of much +unsatisfactory diplomatic correspondence. + +I have endeavored in every way to assure our sister Republics of Central +and South America that the United States Government and its people have +only the most friendly disposition toward them all. We do not covet their +territory. We have no disposition to be oppressive or exacting in our +dealings with any of them, even the weakest. Our interests and our hopes +for them all lie in the direction of stable governments by their people and +of the largest development of their great commercial resources. The mutual +benefits of enlarged commercial exchanges and of a more familiar and +friendly intercourse between our peoples we do desire, and in this have +sought their friendly cooperation. + +I have believed, however, while holding these sentiments in the greatest +sincerity, that we must insist upon a just responsibility for any injuries +inflicted upon our official representatives or upon our citizens. This +insistence, kindly and justly but firmly made, will, I believe, promote +peace and mutual respect. + +Our relations with Hawaii have been such as to attract an increased +interest, and must continue to do so. I deem it of great importance that +the projected submarine cable, a survey for which has been made, should be +promoted. Both for naval and commercial uses we should have quick +communication with Honolulu. We should before this have availed ourselves +of the concession made many years ago to this Government for a harbor and +naval station at Pearl River. Many evidences of the friendliness of the +Hawaiian Government have been given in the past, and it is gratifying to +believe that the advantage and necessity of a continuance of very close +relations is appreciated. + +The friendly act of this Government in expressing to the Government of +Italy its reprobation and abhorrence of the lynching of Italian subjects in +New Orleans by the payment of 125,000 francs, or $24,330.90, was accepted +by the King of Italy with every manifestation of gracious appreciation, and +the incident has been highly promotive of mutual respect and good will. + +In consequence of the action of the French Government in proclaiming a +protectorate over certain tribal districts of the west coast of Africa +eastward of the San Pedro River, which has long been regarded as the +southeastern boundary of Liberia, I have felt constrained to make protest +against this encroachment upon the territory of a Republic which was +rounded by citizens of the United States and toward which this country has +for many years held the intimate relation of a friendly counselor. + +The recent disturbances of the public peace by lawless foreign marauders on +the Mexican frontier have afforded this Government an opportunity to +testify its good will for Mexico and its earnest purpose to fulfill the +obligations of international friendship by pursuing and dispersing the evil +doers. The work of relocating the boundary of the treaty of Guadalupe +Hidalgo westward from El Paso is progressing favorably. + +Our intercourse with Spain continues on a friendly footing. I regret, +however, not to be able to report as yet the adjustment of the claims of +the American missionaries arising from the disorders at Ponape, in the +Caroline Islands, but I anticipate a satisfactory adjustment in view of +renewed and urgent representations to the Government at Madrid. + +The treatment of the religious and educational establishments of American +citizens in Turkey has of late called for a more than usual share of +attention. A tendency to curtail the toleration which has so beneficially +prevailed is discernible and has called forth the earnest remonstrance of +this Government. Harassing regulations in regard to schools and churches +have been attempted in certain localities, but not without due protest and +the assertion of the inherent and conventional rights of our countrymen. +Violations of domicile and search of the persons and effects of citizens of +the United States by apparently irresponsible officials in the Asiatic +vilayets have from time to time been reported. An aggravated instance of +injury to the property of an American missionary at Bourdour, in the +province of Konia, called forth an urgent claim for reparation, which I am +pleased to say was promptly heeded by the Government of the Porte. +Interference with the trading ventures of our citizens in Asia Minor is +also reported, and the lack of consular representation in that region is a +serious drawback to instant and effective protection. I can not believe +that these incidents represent a settled policy, and shall not cease to +urge the adoption of proper remedies. + +International copyright has been extended to Italy by proclamation in +conformity with the act of March 3, 1891, upon assurance being given that +Italian law permits to citizens of the United States the benefit of +copyright on substantially the same basis as to subjects of Italy. By a +special convention proclaimed January 15, 1892, reciprocal provisions of +copyright have been applied between the United States and Germany. +Negotiations are in progress with other countries to the same end. + +I repeat with great earnestness the recommendation which I have made in +several previous messages that prompt and adequate support be given to the +American company engaged in the construction of the Nicaragua ship canal. +It is impossible to overstate the value from every standpoint of this great +enterprise, and I hope that there may be time, even in this Congress, to +give to it an impetus that will insure the early completion of the canal +and secure to the United States its proper relation to it when completed. + +The Congress has been already advised that the invitations of this +Government for the assembling of an international monetary conference to +consider the question of an enlarged use of silver were accepted by the +nations to which they were addressed. The conference assembled at Brussels +on the 22d of November, and has entered upon the consideration of this +great question. I have not doubted, and have taken occasion to express that +belief as well in the invitations issued for this conference as in my +public messages, that the free coinage of silver upon an agreed +international ratio would greatly promote the interests of our people and +equally those of other nations. It is too early to predict what results may +be accomplished by the conference. If any temporary check or delay +intervenes, I believe that very soon commercial conditions will compel the +now reluctant governments to unite with us in this movement to secure the +enlargement of the volume of coined money needed for the transaction of the +business of the world. + +The report of the Secretary of the Treasury will attract especial interest +in view of the many misleading statements that have been made as to the +state of the public revenues. Three preliminary facts should not only be +stated but emphasized before looking into details: First, that the public +debt has been reduced since March 4, 1889, $259,074,200, and the annual +interest charge $11,684,469; second, that there have been paid out for +pensions during this Administration up to November 1, 1892, +$432,564,178.70, an excess of $114,466,386.09 over the sum expended during +the period from March 1, 1885, to March 1, 1889; and, third, that under the +existing tariff up to December 1 about $93,000,000 of revenue which would +have been collected upon imported sugars if the duty had been maintained +has gone into the pockets of the people, and not into the public Treasury, +as before. If there are any who still think that the surplus should have +been kept out of circulation by hoarding it in the Treasury, or deposited +in favored banks without interest while the Government continued to pay to +these very banks interest upon the bonds deposited as security for the +deposits, or who think that the extended pension legislation was a public +robbery, or that the duties upon sugar should have been maintained, I am +content to leave the argument where it now rests while we wait to see +whether these criticisms will take the form of legislation. + +The revenues for the fiscal year ending June 30, 1892, from all sources +were $425,868,260.22, and the expenditures for all purposes were +$415,953,806.56, leaving a balance of $9,914,453.66. There were paid during +the year upon the public debt $40,570,467.98. The surplus in the Treasury +and the bank redemption fund passed by the act of July 14, 1890, to the +general fund furnished in large part the cash available and used for the +payments made upon the public debt. Compared with the year 1891, our +receipts from customs duties fell off $42,069,241.08, while our receipts +from internal revenue increased $8,284,823.13, leaving the net loss of +revenue from these principal sources $33,784,417.95. The net loss of +revenue from all sources was $32,675,972.81. + +The revenues, estimated and actual, for the fiscal year ending June 30, +1893, are placed by the Secretary at $463,336,350.44, and the expenditures +at $461,336,350.44, showing a surplus of receipts over expenditures of +$2,000,000. The cash balance in the Treasury at the end of the fiscal year +it is estimated will be $20,992,377.03. So far as these figures are based +upon estimates of receipts and expenditures for the remaining months of the +current fiscal year, there are not only the usual elements of uncertainty, +but some added elements. New revenue legislation, or even the expectation +of it, may seriously reduce the public revenues during the period of +uncertainty and during the process of business adjustment to the new +conditions when they become known. But the Secretary has very wisely +refrained from guessing as to the effect of possible changes in our revenue +laws, since the scope of those changes and the time of their taking effect +can not in any degree be forecast or foretold by him. His estimates must be +based upon existing laws and upon a continuance of existing business +conditions, except so far as these conditions may be affected by causes +other than new legislation. + +The estimated receipts for the fiscal year ending June 30, 1894, are +$490,121,365.38, and the estimated appropriations $457,261,335.33, leaving +an estimated surplus of receipts over expenditures of $32,860,030.05. This +does not include any payment to the sinking fund. In the recommendation of +the Secretary that the sinking-fund law be repealed I concur. The +redemption of bonds since the passage of the law to June 30, 1892, has +already exceeded the requirements by the sum of $990,510,681.49. The +retirement of bonds in the future before maturity should be a matter of +convenience, not of compulsion. We should not collect revenue for that +purpose, but only use any casual surplus. To the balance of $32,860,030.05 +of receipts over expenditures for the year 1894 should be added the +estimated surplus at the beginning of the year, $20,992,377.03, and from +this aggregate there must be deducted, as stated by the Secretary, about +$44,000,000 of estimated unexpended appropriations. + +The public confidence in the purpose and ability of the Government to +maintain the parity of all of our money issues, whether coin or paper, must +remain unshaken. The demand for gold in Europe and the consequent calls +upon us are in a considerable degree the result of the efforts of some of +the European Governments to increase their gold reserves, and these efforts +should be met by appropriate legislation on our part. The conditions that +have created this drain of the Treasury gold are in an important degree +political, and not commercial. In view of the fact that a general revision +of our revenue laws in the near future seems to be probable, it would be +better that any changes should be a part of that revision rather than of a +temporary nature. + +During the last fiscal year the Secretary purchased under the act of July +14, 1890, 54,355,748 ounces of silver and issued in payment therefor +$51,106,608 in notes. The total purchases since the passage of the act have +been 120,479,981 ounces and the aggregate of notes issued $116,783,590. The +average price paid for silver during the year was 94 cents per ounce, the +highest price being $1.02 3/4 July 1, 1891, and the lowest 83 cents March +21, 1892. In view of the fact that the monetary conference is now sitting +and that no conclusion has yet been reached, I withhold any recommendation +as to legislation upon this subject. + +The report of the Secretary of War brings again to the attention of +Congress some important suggestions as to the reorganization of the +infantry and artillery arms of the service, which his predecessors have +before urgently presented. Our Army is small, but its organization should +all the more be put upon the most approved modern basis. The conditions +upon what we have called the "frontier" have heretofore required the +maintenance of many small posts, but now the policy of concentration is +obviously the right one. The new posts should have the proper strategic +relations to the only "frontiers" we now have--those of the seacoast and of +our northern and part of our southern boundary. I do not think that any +question of advantage to localities or to States should determine the +location of the new posts. The reorganization and enlargement of the Bureau +of Military Information which the Secretary has effected is a work the +usefulness of which will become every year more apparent. The work of +building heavy guns and the construction of coast defenses has been well +begun and should be carried on without check. + +The report of the Attorney-General is by law submitted directly to +Congress, but I can not refrain from saying that he has conducted the +increasing work of the Department of Justice with great professional skill. +He has in several directions secured from the courts decisions giving +increased protection to the officers of the United States and bringing some +classes of crime that escaped local cognizance and punishment into the +tribunals of the United States, where they could be tried with +impartiality. + +The numerous applications for Executive clemency presented in behalf of +persons convicted in United States courts and given penitentiary sentences +have called my attention to a fact referred to by the Attorney-General in +his report, namely, that a time allowance for good behavior for such +prisoners is prescribed by the Federal statutes only where the State in +which the penitentiary is located has made no such provision. Prisoners are +given the benefit of the provisions of the State law regulating the +penitentiary to which they may be sent. These are various, some perhaps too +liberal and some perhaps too illiberal. The result is that a sentence for +five years means one thing if the prisoner is sent to one State for +confinement and quite a different thing if he is sent to another. I +recommend that a uniform credit for good behavior be prescribed by +Congress. + +I have before expressed my concurrence in the recommendation of the +Attorney-General that degrees of murder should be recognized in the Federal +statutes, as they are, I believe, in all the States. These grades are +rounded on correct distinctions in crime. The recognition of them would +enable the courts to exercise some discretion in apportioning punishment +and would greatly relieve the Executive of what is coming to be a very +heavy burden--the examination of these cases on application for +commutation. + +The aggregate of claims pending against the Government in the Court of +Claims is enormous. Claims to the amount of nearly $400,000,000 for the +taking of or injury to the property of persons claiming to be loyal during +the war are now before that court for examination. When to these are added +the Indian depredation claims and the French spoliation claims, an +aggregate is reached that is indeed startling. In the defense of all these +cases the Government is at great disadvantage. The claimants have preserved +their evidence, whereas the agents of the Government are sent into the +field to rummage for what they can find. This difficulty is peculiarly +great where the fact to be established is the disloyalty of the claimant +during the war. If this great threat against our revenues is to have no +other check, certainly Congress should supply the Department of Justice +with appropriations sufficiently liberal to secure the best legal talent in +the defense of these claims and to pursue its vague search for evidence +effectively. + +The report of the Postmaster-General shows a most gratifying increase and a +most efficient and progressive management of the great business of that +Department. The remarkable increase in revenues, in the number of +post-offices, and in the miles of mail carriage furnishes further evidence +of the high state of prosperity which our people are enjoying. New offices +mean new hamlets and towns, new routes mean the extension of our border +settlements, and increased revenues mean an active commerce. The +Postmaster-General reviews the whole period of his administration of the +office and brings some of his statistics down to the month of November +last. The postal revenues have increased during the last year nearly +$5,000,000. The deficit for the year ending June 30, 1892, is $848,341 less +than the deficiency of the preceding year. The deficiency of the present +fiscal year it is estimated will be reduced to $1,552,423, which will not +only be extinguished during the next fiscal year but a surplus of nearly +$1,000,000 should then be shown. In these calculations the payments to be +made under the contracts for ocean mail service have not been included. +There have been added 1,590 new mail routes during the year, with a mileage +of 8,563 miles, and the total number of new miles of mail trips added +during the year is nearly 17,000,000. The number of miles of mail journeys +added during the last four years is about 76,000,000, this addition being +21,000,000 miles more than were in operation in the whole country in 1861. + +The number of post-offices has been increased by 2,790 during the year, and +during the past four years, and up to October 29 last, the total increase +in the number of offices has been nearly 9,000. The number of free-delivery +offices has been nearly doubled in the last four years, and the number of +money-order offices more than doubled within that time. + +For the three years ending June 30, 1892, the postal revenue amounted to +$197,744,359, which was an increase of $52,263,150 over the revenue for the +three years ending June 30, 1888, the increase during the last three years +being more than three and a half times as great as the increase during the +three years ending June 30, 1888. No such increase as that shown for these +three years has ever previously appeared in the revenues of the Department. +The Postmaster-General has extended to the post-offices in the larger +cities the merit system of promotion introduced by my direction into the +Departments here, and it has resulted there, as in the Departments, in a +larger volume of work and that better done. + +Ever since our merchant marine was driven from the sea by the rebel +cruisers during the War of the Rebellion the United States has been paying +an enormous annual tribute to foreign countries in the shape of freight and +passage moneys. Our grain and meats have been taken at our own docks and +our large imports there laid down by foreign shipmasters. An increasing +torrent of American travel to Europe has contributed a vast sum annually to +the dividends of foreign shipowners. The balance of trade shown by the +books of our custom-houses has been very largely reduced and in many years +altogether extinguished by this constant drain. In the year 1892 only 12.3 +per cent of our imports were brought in American vessels. These great +foreign steamships maintained by our traffic are many of them under +contracts with their respective Governments by which in time of war they +will become a part of their armed naval establishments. Profiting by our +commerce in peace, they will become the most formidable destroyers of our +commerce in time of war. I have felt, and have before expressed the +feeling, that this condition of things was both intolerable and +disgraceful. A wholesome change of policy, and one having in it much +promise, as it seems to me, was begun by the law of March 3, 1891. Under +this law contracts have been made by the Postmaster-General for eleven mail +routes. The expenditure involved by these contracts for the next fiscal +year approximates $954,123.33. As one of the results already reached +sixteen American steamships, of an aggregate tonnage of 57,400 tons, +costing $7,400,000, have been built or contracted to be built in American +shipyards. + +The estimated tonnage of all steamships required under existing contracts +is 165,802, and when the full service required by these contracts is +established there will be forty-one mail steamers under the American flag, +with the probability of further necessary additions in the Brazilian and +Argentine service. The contracts recently let for transatlantic service +will result in the construction of five ships of 10,000 tons each, costing +$9,000,000 to $10,000,000, and will add, with the City of New York and City +of Paris, to which the Treasury Department was authorized by legislation at +the last session to give American registry, seven of the swiftest vessels +upon the sea to our naval reserve. The contracts made with the lines +sailing to Central and South American ports have increased the frequency +and shortened the time of the trips, added new ports of call, and sustained +some lines that otherwise would almost certainly have been withdrawn. The +service to Buenos Ayres is the first to the Argentine Republic under the +American flag. The service to Southampton, Boulogne, and Antwerp is also +new, and is to be begun with the steamships City of New York and City of +Paris in February next. + +I earnestly urge the continuance of the policy inaugurated by this +legislation, and that the appropriations required to meet the obligations +of the Government under the contracts may be made promptly, so that the +lines that have entered into these engagements may not be embarrassed. We +have had, by reason of connections with the transcontinental railway lines +constructed through our own territory, some advantages in the ocean trade +of the Pacific that we did not possess on the Atlantic. The construction of +the Canadian Pacific Railway and the establishment under large subventions +from Canada and England of fast steamship service from Vancouver with Japan +and China seriously threaten our shipping interests in the Pacific. This +line of English steamers receives, as is stated by the Commissioner of +Navigation, a direct subsidy of $400,000 annually, or $30,767 per trip for +thirteen voyages, in addition to some further aid from the Admiralty in +connection with contracts under which the vessels may be used for naval +purposes. The competing American Pacific mail line under the act of March +3, 1891, receives only $6,389 per round trip. + +Efforts have been making within the last year, as I am informed, to +establish under similar conditions a line between Vancouver and some +Australian port, with a view of seizing there a trade in which we have had +a large interest. The Commissioner of Navigation states that a very large +per cent of our imports from Asia are now brought to us by English +steamships and their connecting railways in Canada. With a view of +promoting this trade, especially in tea, Canada has imposed a +discriminating duty of 10 per cent upon tea and coffee brought into the +Dominion from the United States. If this unequal contest between American +lines without subsidy, or with diminished subsidies, and the English +Canadian line to which I have referred is to continue, I think we should at +least see that the facilities for customs entry and transportation across +our territory are not such as to make the Canadian route a favored one, and +that the discrimination as to duties to which I have referred is met by a +like discrimination as to the importation of these articles from Canada. + +No subject, I think, more nearly touches the pride, the power, and the +prosperity of our country than this of the development of our merchant +marine upon the sea. If we could enter into conference with other +competitors and all would agree to withhold government aid, we could +perhaps take our chances with the rest; but our great competitors have +established and maintained their lines by government subsidies until they +now have practically excluded us from participation. In my opinion no +choice is left to us but to pursue, moderately at least, the same lines. + +The report of the Secretary of the Navy exhibits great progress in the +construction of our new Navy. When the present Secretary entered upon his +duties, only 3 modern steel vessels were in commission. The vessels since +put in commission and to be put in commission during the winter will make a +total of 19 during his administration of the Department. During the current +year 10 war vessels and 3 navy tugs have been launched, and during the four +years 25 vessels will have been launched. Two other large ships and a +torpedo boat are under contract and the work upon them well advanced, and +the 4 monitors are awaiting only the arrival of their armor, which has been +unexpectedly delayed, or they would have been before this in commission. + +Contracts have been let during this Administration, under the +appropriations for the increase of the Navy, including new vessels and +their appurtenances, to the amount of $35,000,000, and there has been +expended during the same period for labor at navy-yards upon similar work +$8,000,000 without the smallest scandal or charge of fraud or partiality. +The enthusiasm and interest of our naval officers, both of the staff and +line, have been greatly kindled. They have responded magnificently to the +confidence of Congress and have demonstrated to the world an unexcelled +capacity in construction, in ordnance, and in everything involved in the +building, equipping, and sailing of great war ships. + +At the beginning of Secretary Tracy's administration several difficult +problems remained to be grappled with and solved before the efficiency in +action of our ships could be secured. It is believed that as the result of +new processes in the construction of armor plate our later ships will be +clothed with defensive plates of higher resisting power than are found on +any war vessels afloat. We were without torpedoes. Tests have been made to +ascertain the relative efficiency of different constructions, a torpedo has +been adopted, and the work of construction is now being carried on +successfully. We were without armor-piercing shells and without a shop +instructed and equipped for the construction of them. We are now making +what is believed to be a projectile superior to any before in use. A +smokeless powder has been developed and a slow-burning powder for guns of +large caliber. A high explosive capable of use in shells fired from service +guns has been found, and the manufacture of gun cotton has been developed +so that the question of supply is no longer in doubt. + +The development of a naval militia, which has been organized in eight +States and brought into cordial and cooperative relations with the Navy, is +another important achievement. There are now enlisted in these +organizations 1,800 men, and they are likely to be greatly extended. I +recommend such legislation and appropriations as will encourage and develop +this movement. The recommendations of the Secretary will, I do not doubt, +receive the friendly consideration of Congress, for he has enjoyed, as he +has deserved, the confidence of all those interested in the development of +our Navy, without any division upon partisan lines. I earnestly express the +hope that a work which has made such noble progress may not now be stayed. +The wholesome influence for peace and the increased sense of security which +our citizens domiciled in other lands feel when these magnificent ships +under the American flag appear is already most gratefully apparent. The +ships from our Navy which will appear in the great naval parade next April +in the harbor of New York will be a convincing demonstration to the world +that the United States is again a naval power. + +The work of the Interior Department, always very burdensome, has been +larger than ever before during the administration of Secretary Noble. The +disability-pension law, the taking of the Eleventh Census, the opening of +vast areas of Indian lands to settlement, the organization of Oklahoma, and +the negotiations for the cession of Indian lands furnish some of the +particulars of the increased work, and the results achieved testify to the +ability, fidelity, and industry of the head of the Department and his +efficient assistants. + +Several important agreements for the cession of Indian lands negotiated by +the commission appointed under the act of March 2, 1889, are awaiting the +action of Congress. Perhaps the most important of these is that for the +cession of the Cherokee Strip. This region has been the source of great +vexation to the executive department and of great friction and unrest +between the settlers who desire to occupy it and the Indians who assert +title. The agreement which has been made by the commission is perhaps the +most satisfactory that could have been reached. It will be noticed that it +is conditioned upon its ratification by Congress before March 4, 1893. The +Secretary of the Interior, who has given the subject very careful thought, +recommends the ratification of the agreement, and I am inclined to follow +his recommendation. Certain it is that some action by which this +controversy shall be brought to an end and these lands opened to settlement +is urgent. + +The form of government provided by Congress on May 17, 1884, for Alaska was +in its frame and purpose temporary. The increase of population and the +development of some important mining and commercial interests make it +imperative that the law should be revised and better provision made for the +arrest and punishment of criminals. + +The report of the Secretary shows a very gratifying state of facts as to +the condition of the General Land Office. The work of issuing agricultural +patents, which seemed to be hopelessly in arrear when the present Secretary +undertook the duties of his office, has been so expedited that the bureau +is now upon current business. The relief thus afforded to honest and worthy +settlers upon the public lands by giving to them an assured title to their +entries has been of incalculable benefit in developing the new States and +the Territories. + +The Court of Private Land Claims, established by Congress for the promotion +of this policy of speedily settling contested land titles, is making +satisfactory progress in its work, and when the work is completed a great +impetus will be given to the development of those regions where unsettled +claims under Mexican grants have so long exercised their repressive +influence. When to these results are added the enormous cessions of Indian +lands which have been opened to settlement, aggregating during this +Administration nearly 26,000,000 acres, and the agreements negotiated and +now pending in Congress for ratification by which about 10,000,000 +additional acres will be opened to settlement, it will be seen how much has +been accomplished. + +The work in the Indian Bureau in the execution of the policy of recent +legislation has been largely directed to two chief purposes: First, the +allotment of lands in severalty to the Indians and the cession to the +United States of the surplus lands, and, secondly, to the work of educating +the Indian for his own protection in his closer contact with the white man +and for the intelligent exercise of his new citizenship. Allotments have +been made and patents issued to 5,900 Indians under the present Secretary +and Commissioner, and 7,600 additional allotments have been made for which +patents are now in process of preparation. The school attendance of Indian +children has been increased during that time over 13 per cent, the +enrollment for 1892 being nearly 20,000. A uniform system of school +text-books and of study has been adopted and the work in these national +schools brought as near as may be to the basis of the free common schools +of the States. These schools can be transferred and merged into the +common-school systems of the States when the Indian has fully assumed his +new relation to the organized civil community in which he resides and the +new States are able to assume the burden. I have several times been called +upon to remove Indian agents appointed by me, and have done so promptly +upon every sustained complaint of unfitness or misconduct. I believe, +however, that the Indian service at the agencies has been improved and is +now administered on the whole with a good degree of efficiency. If any +legislation is possible by which the selection of Indian agents can be +wholly removed from all partisan suggestions or considerations, I am sure +it would be a great relief to the Executive and a great benefit to the +service. The appropriation for the subsistence of the Cheyenne and Arapahoe +Indians made at the last session of Congress was inadequate. This smaller +appropriation was estimated for by the Commissioner upon the theory that +the large fund belonging to the tribe in the public Treasury could be and +ought to be used for their support. In view, however, of the pending +depredation claims against this fund and other considerations, the +Secretary of the Interior on the 12th of April last submitted a +supplemental estimate for $50,000. This appropriation was not made, as it +should have been, and the oversight ought to be remedied at the earliest +possible date. + +In a special message to this Congress at the last session, I stated the +reasons why I had not approved the deed for the release to the United +States by the Choctaws and Chickasaws of the lands formerly embraced in the +Cheyenne and Arapahoe Reservation and remaining after allotments to that +tribe. A resolution of the Senate expressing the opinion of that body that +notwithstanding the facts stated in my special message the deed should be +approved and the money, $2,991,450, paid over was presented to me May 10, +1892. My special message was intended to call the attention of Congress to +the subject, and in view of the fact that it is conceded that the +appropriation proceeded upon a false basis as to the amount of lands to be +paid for and is by $50,000 in excess of the amount they are entitled to +(even if their claim to the land is given full recognition at the rate +agreed upon), I have not felt willing to approve the deed, and shall not do +so, at least until both Houses of Congress have acted upon the subject. It +has been informally proposed by the claimants to release this sum of +$50,000, but I have no power to demand or accept such a release, and such +an agreement would be without consideration and void. + +I desire further to call the attention of Congress to the fact that the +recent agreement concluded with the Kiowas and Comanches relates to lands +which were a part of the "leased district," and to which the claim of the +Choctaws and Chickasaws is precisely that recognized by Congress in the +legislation I have referred to. The surplus lands to which this claim would +attach in the Kiowa and Comanche Reservation is 2,500,000 acres, and at the +same rate the Government will be called upon to pay to the Choctaws and +Chickasaws for these lands $3,125,000. This sum will be further augmented, +especially if the title of the Indians to the tract now Greet County, Tex., +is established. The duty devolved upon me in this connection was simply to +pass upon the form of the deed; but as in my opinion the facts mentioned in +my special message were not adequately brought to the attention of Congress +in connection with the legislation, I have felt that I would not be +justified in acting without some new expression of the legislative will. + +The report of the Commissioner of Pensions, to which extended notice is +given by the Secretary of the Interior in his report, will attract great +attention. Judged by the aggregate amount of work done, the last year has +been the greatest in the history of the office. I believe that the +organization of the office is efficient and that the work has been done +with fidelity. The passage of what is known as the disability bill has, as +was foreseen, very largely increased the annual disbursements to the +disabled veterans of the Civil War. The estimate for this fiscal year was +$144,956,000, and that amount was appropriated. A deficiency amounting to +$10,508,621 must be provided for at this session. The estimate for pensions +for the fiscal year ending June 30, 1894, is $165,000,000. The Commissioner +of Pensions believes that if the present legislation and methods are +maintained and further additions to the pension laws are not made the +maximum expenditure for pensions will be reached June 30, 1894, and will be +at the highest point $188,000,000 per annum. + +I adhere to the views expressed in previous messages that the care of the +disabled soldiers of the War of the Rebellion is a matter of national +concern and duty. Perhaps no emotion cools sooner than that of gratitude, +but I can not believe that this process has yet reached a point with our +people that would sustain the policy of remitting the care of these +disabled veterans to the inadequate agencies provided by local laws. The +parade on the 20th of September last upon the streets of this capital of +60,000 of the surviving Union veterans of the War of the Rebellion was a +most touching and thrilling episode, and the rich and gracious welcome +extended to them by the District of Columbia and the applause that greeted +their progress from tens of thousands of people from all the States did +much to revive the glorious recollections of the Grand Review when these +men and many thousand others now in their graves were welcomed with +grateful joy as victors in a struggle in which the national unity, honor, +and wealth were all at issue. + +In my last annual message I called attention to the fact that some +legislative action was necessary in order to protect the interests of the +Government in its relations with the Union Pacific Railway. The +Commissioner of Railroads has submitted a very full report, giving exact +information as to the debt, the liens upon the company's property, and its +resources. We must deal with the question as we find it and take that +course which will under existing conditions best secure the interests of +the United States. I recommended in my last annual message that a +commission be appointed to deal with this question, and I renew that +recommendation and suggest that the commission be given full power. + +The report of the Secretary of Agriculture contains not only a most +interesting statement of the progressive and valuable work done under the +administration of Secretary Rusk, but many suggestions for the enlarged +usefulness of this important Department. In the successful efforts to break +down the restrictions to the free introduction of our meat products in the +countries of Europe the Secretary has been untiring from the first, +stimulating and aiding all other Government officers at home and abroad +whose official duties enabled them to participate in the work. The total +trade in hog products with Europe in May, 1892, amounted to 82,000,000 +pounds, against 46,900,000 in the same month of 1891; in June, 1892, the +export aggregated 85,700,000 pounds, against 46,500,000 pounds in the same +month of the previous year; in July there was an increase of 41 per cent +and in August of 55 per cent over the corresponding months of 1891. Over +40,000,000 pounds of inspected pork have been exported since the law was +put into operation, and a comparison of the four months of May, June, July, +and August, 1892, with the same months of 1891 shows an increase in the +number of pounds of our export of pork products of 62 per cent and an +increase in value of 66 1/2 per cent. The exports of dressed beef increased +from 137,900,000 pounds in 1889 to 220,500,000 pounds in 1892 or about 60 +per cent. During the past year there have been exported 394,607 head of +live cattle, as against 205,786 exported in 1889. This increased +exportation has been largely promoted by the inspection authorized by law +and the faithful efforts of the Secretary and his efficient subordinates to +make that inspection thorough and to carefully exclude from all cargoes +diseased or suspected cattle. The requirement of the English regulations +that live cattle arriving from the United States must be slaughtered at the +docks had its origin in the claim that pleuro-pneumonia existed among +American cattle and that the existence of the disease could only certainly +be determined by a post mortem inspection. + +The Department of Agriculture has labored with great energy and +faithfulness to extirpate this disease, and on the 26th day of September +last a public announcement was made by the Secretary that the disease no +longer existed anywhere within the United States. He is entirely satisfied +after the most searching inquiry that this statement was justified, and +that by a continuance of the inspection and quarantine now required of +cattle brought into this country the disease can be prevented from again +getting any foothold. The value to the cattle industry of the United States +of this achievement can hardly be estimated. We can not, perhaps, at once +insist that this evidence shall be accepted as satisfactory by other +countries; but if the present exemption from the disease is maintained and +the inspection of our cattle arriving at foreign ports, in which our own +veterinarians participate, confirms it, we may justly expect that the +requirement that our cattle shall be slaughtered at the docks will be +revoked, as the sanitary restrictions upon our pork products have been. If +our cattle can be taken alive to the interior, the trade will be enormously +increased. + +Agricultural products constituted 78.1 per cent of our unprecedented +exports for the fiscal year which closed June 30, 1892, the total exports +being $1,030,278,030 and the value of the agricultural products +$793,717,676, which exceeds by more than $150,000,000 the shipment of +agricultural products in any previous year. + +An interesting and a promising work for the benefit of the American farmer +has been begun through agents of the Agricultural Department in Europe, and +consists in efforts to introduce the various products of Indian corn as +articles of human food. The high price of rye offered a favorable +opportunity for the experiment in Germany of combining corn meal with rye +to produce a cheaper bread. A fair degree of success has been attained, and +some mills for grinding corn for food have been introduced. The Secretary +is of the opinion that this new use of the products of corn has already +stimulated exportations, and that if diligently prosecuted large and +important markets can presently be opened for this great American product. + +The suggestions of the Secretary for an enlargement of the work of the +Department are commended to your favorable consideration. It may, I think, +be said without challenge that in no corresponding period has so much been +done as during the last four years for the benefit of American +agriculture. + +The subject of quarantine regulations, inspection, and control was brought +suddenly to my attention by the arrival at our ports in August last of +vessels infected with cholera. Quarantine regulations should be uniform at +all our ports. Under the Constitution they are plainly within the exclusive +Federal jurisdiction when and so far as Congress shall legislate. In my +opinion the whole subject should be taken into national control and +adequate power given to the Executive to protect our people against plague +invasions. On the 1st of September last I approved regulations establishing +a twenty-day quarantine for all vessels bringing immigrants from foreign +ports. This order will be continued in force. Some loss and suffering have +resulted to passengers, but a due care for the homes of our people +justifies in such cases the utmost precaution. There is danger that with +the coming of spring cholera will again appear, and a liberal appropriation +should be made at this session to enable our quarantine and port officers +to exclude the deadly plague. + +But the most careful and stringent quarantine regulations may not be +sufficient absolutely to exclude the disease. The progress of medical and +sanitary science has been such, however, that if approved precautions are +taken at once to put all of our cities and towns in the best sanitary +condition, and provision is made for isolating any sporadic cases and for a +thorough disinfection, an epidemic can, I am sure, be avoided. This work +appertains to the local authorities, and the responsibility and the penalty +will be appalling if it is neglected or unduly delayed. + +We are peculiarly subject in our great ports to the spread of infectious +diseases by reason of the fact that unrestricted immigration brings to us +out of European cities, in the overcrowded steerages of great steamships, a +large number of persons whose surroundings make them the easy victims of +the plague. This consideration, as well as those affecting the political, +moral, and industrial interests of our country, leads me to renew the +suggestion that admission to our country and to the high privileges of its +citizenship should be more restricted and more careful. We have, I think, a +right and owe a duty to our own people, and especially to our working +people, not only to keep out the vicious, the ignorant, the civil +disturber, the pauper, and the contract laborer, but to check the too great +flow of immigration now coming by further limitations. + +The report of the World's Columbian Exposition has not yet been submitted. +That of the board of management of the Government exhibit has been received +and is herewith transmitted. The work of construction and of preparation +for the opening of the exposition in May next has progressed most +satisfactorily and upon a scale of liberality and magnificence that will +worthily sustain the honor of the United States. + +The District of Columbia is left by a decision of the supreme court of the +District without any law regulating the liquor traffic. An old statute of +the legislature of the District relating to the licensing of various +vocations has hitherto been treated by the Commissioners as giving them +power to grant or refuse licenses to sell intoxicating liquors and as +subjecting those who sold without licenses to penalties; but in May last +the supreme court of the District held against this view of the powers of +the Commissioners. It is of urgent importance, therefore, that Congress +should supply, either by direct enactment or by conferring discretionary +powers upon the Commissioners, proper limitations and restraints upon the +liquor traffic in the District. The District has suffered in its reputation +by many crimes of violence, a large per cent of them resulting from +drunkenness and the liquor traffic. The capital of the nation should be +freed from this reproach by the enactment of stringent restrictions and +limitations upon the traffic. + +In renewing the recommendation which I have made in three preceding annual +messages that Congress should legislate for the protection of railroad +employees against the dangers incident to the old and inadequate methods of +braking and coupling which are still in use upon freight trains, I do so +with the hope that this Congress may take action upon the subject. +Statistics furnished by the Interstate Commerce Commission show that during +the year ending June 30, 1891, there were forty-seven different styles of +car couplers reported to be in use, and that during the same period there +were 2,660 employees killed and 26,140 injured. Nearly 16 per cent of the +deaths occurred in the coupling and uncoupling of cars and over 36 per cent +of the injuries had the same origin. + +The Civil Service Commission ask for an increased appropriation for needed +clerical assistance, which I think should be given. I extended the +classified service March 1, 1892, to include physicians, superintendents, +assistant superintendents, school-teachers, and matrons in the Indian +service, and have had under consideration the subject of some further +extensions, but have not as yet fully determined the lines upon which +extensions can most properly and usefully be made. + +I have in each of the three annual messages which it has been my duty to +submit to Congress called attention to the evils and dangers connected with +our election methods and practices as they are related to the choice of +officers of the National Government. In my last annual message I endeavored +to invoke serious attention to the evils of unfair apportionments for +Congress. I can not close this message without again calling attention to +these grave and threatening evils. I had hoped that it was possible to +secure a nonpartisan inquiry by means of a commission into evils the +existence of which is known to all, and that out of this might grow +legislation from which all thought of partisan advantage should be +eliminated and only the higher thought appear of maintaining the freedom +and purity of the ballot and the equality of the elector, without the +guaranty of which the Government could never have been formed and without +the continuance of which it can not continue to exist in peace and +prosperity. + +It is time that mutual charges of unfairness and fraud between the great +parties should cease and that the sincerity of those who profess a desire +for pure and honest elections should be brought to the test of their +willingness to free our legislation and our election methods from +everything that tends to impair the public confidence in the announced +result. The necessity for an inquiry and for legislation by Congress upon +this subject is emphasized by the fact that the tendency of the legislation +in some States in recent years has in some important particulars been away +from and not toward free and fair elections and equal apportionments. Is it +not time that we should come together upon the high plane of patriotism +while we devise methods that shall secure the right of every man qualified +by law to cast a free ballot and give to every such ballot an equal value +in choosing our public officers and in directing the policy of the +Government? + +Lawlessness is not less such, but more, where it usurps the functions of +the peace officer and of the courts. The frequent lynching of colored +people accused of crime is without the excuse, which has sometimes been +urged by mobs for a failure to pursue the appointed methods for the +punishment of crime, that the accused have an undue influence over courts +and juries. Such acts are a reproach to the community where they occur, and +so far as they can be made the subject of Federal jurisdiction the +strongest repressive legislation is demanded. A public sentiment that will +sustain the officers of the law in resisting mobs and in protecting accused +persons in their custody should be promoted by every possible means. The +officer who gives his life in the brave discharge of this duty is worthy of +special honor. No lesson needs to be so urgently impressed upon our people +as this, that no worthy end or cause can be promoted by lawlessness. + +This exhibit of the work of the Executive Departments is submitted to +Congress and to the public in the hope that there will be found in it a due +sense of responsibility and an earnest purpose to maintain the national +honor and to promote the happiness and prosperity of all our people, and +this brief exhibit of the growth and prosperity of the country will give us +a level from which to note the increase or decadence that new legislative +policies may bring to us. There is no reason why the national influence, +power, and prosperity should not observe the same rates of increase that +have characterized the past thirty years. We carry the great impulse and +increase of these years into the future. There is no reason why in many +lines of production we should not surpass all other nations, as we have +already done in some. There are no near frontiers to our possible +development. Retrogression would be a crime. + +BENJ. HARRISON + + + +*** END OF THE PROJECT GUTENBERG EBOOK OF ADDRESSES BY BENJAMIN HARRISON *** + +This file should be named suhar11.txt or suhar11.zip +Corrected EDITIONS of our eBooks get a new NUMBER, suhar12.txt +VERSIONS based on separate sources get new LETTER, suhar10a.txt + +Project Gutenberg eBooks are often created from several printed +editions, all of which are confirmed as Public Domain in the US +unless a copyright notice is included. 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