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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 Theodore Roosevelt + +Author: Theodore Roosevelt + +Release Date: February, 2004 [EBook #5032] +[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 THEODORE ROOSEVELT *** + + + + +This eBook was produced by James Linden. + +The addresses are separated by three asterisks: *** + +Dates of addresses by Theodore Roosevelt in this eBook: + December 3, 1901 + December 2, 1902 + December 7, 1903 + December 6, 1904 + December 5, 1905 + December 3, 1906 + December 3, 1907 + December 8, 1908 + + + +*** + +State of the Union Address +Theodore Roosevelt +December 3, 1901 + +To the Senate and House of Representatives: + +The Congress assembles this year under the shadow of a great calamity. On +the sixth of September, President McKinley was shot by an anarchist while +attending the Pan-American Exposition at Buffalo, and died in that city on +the fourteenth of that month. + +Of the last seven elected Presidents, he is the third who has been +murdered, and the bare recital of this fact is sufficient to justify grave +alarm among all loyal American citizens. Moreover, the circumstances of +this, the third assassination of an American President, have a peculiarly +sinister significance. Both President Lincoln and President Garfield were +killed by assassins of types unfortunately not uncommon in history; +President Lincoln falling a victim to the terrible passions aroused by four +years of civil war, and President Garfield to the revengeful vanity of a +disappointed office-seeker. President McKinley was killed by an utterly +depraved criminal belonging to that body of criminals who object to all +governments, good and bad alike, who are against any form of popular +liberty if it is guaranteed by even the most just and liberal laws, and who +are as hostile to the upright exponent of a free people's sober will as to +the tyrannical and irresponsible despot. + +It is not too much to say that at the time of President McKinley's death he +was the most widely loved man in all the United States; while we have never +had any public man of his position who has been so wholly free from the +bitter animosities incident to public life. His political opponents were +the first to bear the heartiest and most generous tribute to the broad +kindliness of nature, the sweetness and gentleness of character which so +endeared him to his close associates. To a standard of lofty integrity in +public life he united the tender affections and home virtues which are +all-important in the make-up of national character. A gallant soldier in +the great war for the Union, he also shone as an example to all our people +because of his conduct in the most sacred and intimate of home relations. +There could be no personal hatred of him, for he never acted with aught but +consideration for the welfare of others. No one could fail to respect him +who knew him in public or private life. The defenders of those murderous +criminals who seek to excuse their criminality by asserting that it is +exercised for political ends, inveigh against wealth and irresponsible +power. But for this assassination even this base apology cannot be urged. + +President McKinley was a man of moderate means, a man whose stock sprang +from the sturdy tillers of the soil, who had himself belonged among the +wage-workers, who had entered the Army as a private soldier. Wealth was not +struck at when the President was assassinated, but the honest toil which is +content with moderate gains after a lifetime of unremitting labor, largely +in the service of the public. Still less was power struck at in the sense +that power is irresponsible or centered in the hands of any one individual. +The blow was not aimed at tyranny or wealth. It was aimed at one of the +strongest champions the wage-worker has ever had; at one of the most +faithful representatives of the system of public rights and representative +government who has ever risen to public office. President McKinley filled +that political office for which the entire people vote, and no President +not even Lincoln himself--was ever more earnestly anxious to represent the +well thought-out wishes of the people; his one anxiety in every crisis was +to keep in closest touch with the people--to find out what they thought and +to endeavor to give expression to their thought, after having endeavored to +guide that thought aright. He had just been reelected to the Presidency +because the majority of our citizens, the majority of our farmers and +wage-workers, believed that he had faithfully upheld their interests for +four years. They felt themselves in close and intimate touch with him. They +felt that he represented so well and so honorably all their ideals and +aspirations that they wished him to continue for another four years to +represent them. + +And this was the man at whom the assassin struck That there might be +nothing lacking to complete the Judas-like infamy of his act, he took +advantage of an occasion when the President was meeting the people +generally; and advancing as if to take the hand out-stretched to him in +kindly and brotherly fellowship, he turned the noble and generous +confidence of the victim into an opportunity to strike the fatal blow. +There is no baser deed in all the annals of crime. + +The shock, the grief of the country, are bitter in the minds of all who saw +the dark days, while the President yet hovered between life and death. At +last the light was stilled in the kindly eyes and the breath went from the +lips that even in mortal agony uttered no words save of forgiveness to his +murderer, of love for his friends, and of faltering trust in the will of +the Most High. Such a death, crowning the glory of such a life, leaves us +with infinite sorrow, but with such pride in what he had accomplished and +in his own personal character, that we feel the blow not as struck at him, +but as struck at the Nation We mourn a good and great President who is +dead; but while we mourn we are lifted up by the splendid achievements of +his life and the grand heroism with which he met his death. + +When we turn from the man to the Nation, the harm done is so great as to +excite our gravest apprehensions and to demand our wisest and most resolute +action. This criminal was a professed anarchist, inflamed by the teachings +of professed anarchists, and probably also by the reckless utterances of +those who, on the stump and in the public press, appeal to the dark and +evil spirits of malice and greed, envy and sullen hatred. The wind is sowed +by the men who preach such doctrines, and they cannot escape their share of +responsibility for the whirlwind that is reaped. This applies alike to the +deliberate demagogue, to the exploiter of sensationalism, and to the crude +and foolish visionary who, for whatever reason, apologizes for crime or +excites aimless discontent. + +The blow was aimed not at this President, but at all Presidents; at every +symbol of government. President McKinley was as emphatically the embodiment +of the popular will of the Nation expressed through the forms of law as a +New England town meeting is in similar fashion the embodiment of the +law-abiding purpose and practice of the people of the town. On no +conceivable theory could the murder of the President be accepted as due to +protest against "inequalities in the social order," save as the murder of +all the freemen engaged in a town meeting could be accepted as a protest +against that social inequality which puts a malefactor in jail. Anarchy is +no more an expression of "social discontent" than picking pockets or +wife-beating. + +The anarchist, and especially the anarchist in the United States, is merely +one type of criminal, more dangerous than any other because he represents +the same depravity in a greater degree. The man who advocates anarchy +directly or indirectly, in any shape or fashion, or the man who apologizes +for anarchists and their deeds, makes himself morally accessory to murder +before the fact. The anarchist is a criminal whose perverted instincts lead +him to prefer confusion and chaos to the most beneficent form of social +order. His protest of concern for workingmen is outrageous in its impudent +falsity; for if the political institutions of this country do not afford +opportunity to every honest and intelligent son of toil, then the door of +hope is forever closed against him. The anarchist is everywhere not merely +the enemy of system and of progress, but the deadly foe of liberty. If ever +anarchy is triumphant, its triumph will last for but one red moment, to be +succeeded, for ages by the gloomy night of despotism. + +For the anarchist himself, whether he preaches or practices his doctrines, +we need not have one particle more concern than for any ordinary murderer. +He is not the victim of social or political injustice. There are no wrongs +to remedy in his case. The cause of his criminality is to be found in his +own evil passions and in the evil conduct of those who urge him on, not in +any failure by others or by the State to do justice to him or his. He is a +malefactor and nothing else. He is in no sense, in no shape or way, a +"product of social conditions," save as a highwayman is "produced" by the +fact than an unarmed man happens to have a purse. It is a travesty upon the +great and holy names of liberty and freedom to permit them to be invoked in +such a cause. No man or body of men preaching anarchistic doctrines should +be allowed at large any more than if preaching the murder of some specified +private individual. Anarchistic speeches, writings, and meetings are +essentially seditious and treasonable. + +I earnestly recommend to the Congress that in the exercise of its wise +discretion it should take into consideration the coming to this country of +anarchists or persons professing principles hostile to all government and +justifying the murder of those placed in authority. Such individuals as +those who not long ago gathered in open meeting to glorify the murder of +King Humbert of Italy perpetrate a crime, and the law should ensure their +rigorous punishment. They and those like them should be kept out of this +country; and if found here they should be promptly deported to the country +whence they came; and far-reaching. provision should be made for the +punishment of those who stay. No matter calls more urgently for the wisest +thought of the Congress. + +The Federal courts should be given jurisdiction over any man who kills or +attempts to kill the President or any man who by the Constitution or by law +is in line of succession for the Presidency, while the punishment for an +unsuccessful attempt should be proportioned to the enormity of the offense +against our institutions. + +Anarchy is a crime against the whole human race; and all mankind should +band against the anarchist. His crime should be made an offense against the +law of nations, like piracy and that form of man-stealing known as the +slave trade; for it is of far blacker infamy than either. It should be so +declared by treaties among all civilized powers. Such treaties would give +to the Federal Government the power of dealing with the crime. + +A grim commentary upon the folly of the anarchist position was afforded by +the attitude of the law toward this very criminal who had just taken the +life of the President. The people would have torn him limb from limb if it +had not been that the law he defied was at once invoked in his behalf. So +far from his deed being committed on behalf of the people against the +Government, the Government was obliged at once to exert its full police +power to save him from instant death at the hands of the people. Moreover, +his deed worked not the slightest dislocation in our governmental system, +and the danger of a recurrence of such deeds, no matter how great it might +grow, would work only in the direction of strengthening and giving +harshness to the forces of order. No man will ever be restrained from +becoming President by any fear as to his personal safety. If the risk to +the President's life became great, it would mean that the office would more +and more come to be filled by men of a spirit which would make them +resolute and merciless in dealing with every friend of disorder. This great +country will not fall into anarchy, and if anarchists should ever become a +serious menace to its institutions, they would not merely be stamped out, +but would involve in their own ruin every active or passive sympathizer +with their doctrines. The American people are slow to wrath, but when their +wrath is once kindled it burns like a consuming flame. + +During the last five years business confidence has been restored, and the +nation is to be congratulated because of its present abounding prosperity. +Such prosperity can never be created by law alone, although it is easy +enough to destroy it by mischievous laws. If the hand of the Lord is heavy +upon any country, if flood or drought comes, human wisdom is powerless to +avert the calamity. Moreover, no law can guard us against the consequences +of our own folly. The men who are idle or credulous, the men who seek gains +not by genuine work with head or hand but by gambling in any form, are +always a source of menace not only to themselves but to others. If the +business world loses its head, it loses what legislation cannot supply. +Fundamentally the welfare of each citizen, and therefore the welfare of the +aggregate of citizens which makes the nation, must rest upon individual +thrift and energy, resolution, and intelligence. Nothing can take the place +of this individual capacity; but wise legislation and honest and +intelligent administration can give it the fullest scope, the largest +opportunity to work to good effect. + +The tremendous and highly complex industrial development which went on with +ever accelerated rapidity during the latter half of the nineteenth century +brings us face to face, at the beginning of the twentieth, with very +serious social problems. The old laws, and the old customs which had almost +the binding force of law, were once quite sufficient to regulate the +accumulation and distribution of wealth. Since the industrial changes which +have so enormously increased the productive power of mankind, they are no +longer sufficient. + +The growth of cities has gone on beyond comparison faster than the growth +of the country, and the upbuilding of the great industrial centers has +meant a startling increase, not merely in the aggregate of wealth, but in +the number of very large individual, and especially of very large +corporate, fortunes. The creation of these great corporate fortunes has not +been due to the tariff nor to any other governmental action, but to natural +causes in the business world, operating in other countries as they operate +in our own. + +The process has aroused much antagonism, a great part of which is wholly +without warrant. It is not true that as the rich have grown richer the poor +have grown poorer. On the contrary, never before has the average man, the +wage-worker, the farmer, the small trader, been so well off as in this +country and at the present time. There have been abuses connected with the +accumulation of wealth; yet it remains true that a fortune accumulated in +legitimate business can be accumulated by the person specially benefited +only on condition of conferring immense incidental benefits upon others. +Successful enterprise, of the type which benefits all mankind, can only +exist if the conditions are such as to offer great prizes as the rewards of +success. + +The captains of industry who have driven the railway systems across this +continent, who have built up our commerce, who have developed our +manufactures, have on the whole done great good to our people. Without them +the material development of which we are so justly proud could never have +taken place. Moreover, we should recognize the immense importance of this +material development of leaving as unhampered as is compatible with the +public good the strong and forceful men upon whom the success of business +operations inevitably rests. The slightest study of business conditions +will satisfy anyone capable of forming a judgment that the personal +equation is the most important factor in a business operation; that the +business ability of the man at the head of any business concern, big or +little, is usually the factor which fixes the gulf between striking success +and hopeless failure. + +An additional reason for caution in dealing with corporations is to be +found in the international commercial conditions of to-day. The same +business conditions which have produced the great aggregations of corporate +and individual wealth have made them very potent factors in international +Commercial competition. Business concerns which have the largest means at +their disposal and are managed by the ablest men are naturally those which +take the lead in the strife for commercial supremacy among the nations of +the world. America has only just begun to assume that commanding position +in the international business world which we believe will more and more be +hers. It is of the utmost importance that this position be not jeoparded, +especially at a time when the overflowing abundance of our own natural +resources and the skill, business energy, and mechanical aptitude of our +people make foreign markets essential. Under such conditions it would be +most unwise to cramp or to fetter the youthful strength of our Nation. + +Moreover, it cannot too often be pointed out that to strike with ignorant +violence at the interests of one set of men almost inevitably endangers the +interests of all. The fundamental rule in our national life --the rule +which underlies all others--is that, on the whole, and in the long run, we +shall go up or down together. There are exceptions; and in times of +prosperity some will prosper far more, and in times of adversity, some will +suffer far more, than others; but speaking generally, a period of good +times means that all share more or less in them, and in a period of hard +times all feel the stress to a greater or less degree. It surely ought not +to be necessary to enter into any proof of this statement; the memory of +the lean years which began in 1893 is still vivid, and we can contrast them +with the conditions in this very year which is now closing. Disaster to +great business enterprises can never have its effects limited to the men at +the top. It spreads throughout, and while it is bad for everybody, it is +worst for those farthest down. The capitalist may be shorn of his luxuries; +but the wage-worker may be deprived of even bare necessities. + +The mechanism of modern business is so delicate that extreme care must be +taken not to interfere with it in a spirit of rashness or ignorance. Many +of those who have made it their vocation to denounce the great industrial +combinations which are popularly, although with technical inaccuracy, known +as "trusts," appeal especially to hatred and fear. These are precisely the +two emotions, particularly when combined with ignorance, which unfit men +for the exercise of cool and steady judgment. In facing new industrial +conditions, the whole history of the world shows that legislation will +generally be both unwise and ineffective unless undertaken after calm +inquiry and with sober self-restraint. Much of the legislation directed at +the trusts would have been exceedingly mischievous had it not also been +entirely ineffective. In accordance with a well-known sociological law, the +ignorant or reckless agitator has been the really effective friend of the +evils which he has been nominally opposing. In dealing with business +interests, for the Government to undertake by crude and ill-considered +legislation to do what may turn out to be bad, would be to incur the risk +of such far-reaching national disaster that it would be preferable to +undertake nothing at all. The men who demand the impossible or the +undesirable serve as the allies of the forces with which they are nominally +at war, for they hamper those who would endeavor to find out in rational +fashion what the wrongs really are and to what extent and in what manner it +is practicable to apply remedies. + +All this is true; and yet it is also true that there are real and grave +evils, one of the chief being over-capitalization because of its many +baleful consequences; and a resolute and practical effort must be made to +correct these evils. + +There is a widespread conviction in the minds of the American people that +the great corporations known as trusts are in certain of their features and +tendencies hurtful to the general welfare. This springs from no spirit of +envy or uncharitableness, nor lack of pride in the great industrial +achievements that have placed this country at the head of the nations +struggling for commercial supremacy. It does not rest upon a lack of +intelligent appreciation of the necessity of meeting changing and changed +conditions of trade with new methods, nor upon ignorance of the fact that +combination of capital in the effort to accomplish great things is +necessary when the world's progress demands that great things be done. It +is based upon sincere conviction that combination and concentration should +be, not prohibited, but supervised and within reasonable limits controlled; +and in my judgment this conviction is right. + +It is no limitation upon property rights or freedom of contract to require +that when men receive from Government the privilege of doing business under +corporate form, which frees them from individual responsibility, and +enables them to call into their enterprises the capital of the public, they +shall do so upon absolutely truthful representations as to the value of the +property in which the capital is to be invested. Corporations engaged in +interstate commerce should be regulated if they are found to exercise a +license working to the public injury. It should be as much the aim of those +who seek for social- betterment to rid the business world of crimes of +cunning as to rid the entire body politic of crimes of violence. Great +corporations exist only because they are created and safeguarded by our +institutions; and it is therefore our right and our duty to see that they +work in harmony with these institutions. + +The first essential in determining how to deal with the great industrial +combinations is knowledge of the facts--publicity. In the interest of the +public, the Government should have the right to inspect and examine the +workings of the great corporations engaged in interstate business. +Publicity is the only sure remedy which we can now invoke. What further +remedies are needed in the way of governmental regulation, or taxation, can +only be determined after publicity has been obtained, by process of law, +and in the course of administration. The first requisite is knowledge, full +and complete--knowledge which may be made public to the world. + +Artificial bodies, such as corporations and joint stock or other +associations, depending upon any statutory law for their existence or +privileges, should be subject to proper governmental supervision, and full +and accurate information as to their operations should be made public +regularly at reasonable intervals. + +The large corporations, commonly called trusts, though organized in one +State, always do business in many States, often doing very little business +in the State where they are incorporated. There is utter lack of uniformity +in the State laws about them; and as no State has any exclusive interest in +or power over their acts, it has in practice proved impossible to get +adequate regulation through State action. Therefore, in the interest of the +whole people, the Nation should, without interfering with the power of the +States in the matter itself, also assume power of supervision and +regulation over all corporations doing an interstate business. This is +especially true where the corporation derives a portion of its wealth from +the existence of some monopolistic element or tendency in its business. +There would be no hardship in such supervision; banks are subject to it, +and in their case it is now accepted as a simple matter of course. Indeed, +it is probable that supervision of corporations by the National Government +need not go so far as is now the case with the supervision exercised over +them by so conservative a State as Massachusetts, in order to produce +excellent results. + +When the Constitution was adopted, at the end of the eighteenth century, no +human wisdom could foretell the sweeping changes, alike in industrial and +political conditions, which were to take place by the beginning of the +twentieth century. At that time it was accepted as a matter of course that +the several States were the proper authorities to regulate, so far as was +then necessary, the comparatively insignificant and strictly localized +corporate bodies of the day. The conditions are now wholly different and +wholly different action is called for. I believe that a law can be framed +which will enable the National Government to exercise control along the +lines above indicated; profiting by the experience gained through the +passage and administration of the Interstate-Commerce Act. If, however, the +judgment of the Congress is that it lacks the constitutional power to pass +such an act, then a constitutional amendment should be submitted to confer +the power. + +There should be created a Cabinet officer, to be known as Secretary of +Commerce and Industries, as provided in the bill introduced at the last +session of the Congress. It should be his province to deal with commerce in +its broadest sense; including among many other things whatever concerns +labor and all matters affecting the great business corporations and our +merchant marine. + +The course proposed is one phase of what should be a comprehensive and +far-reaching scheme of constructive statesmanship for the purpose of +broadening our markets, securing our business interests on a safe basis, +and making firm our new position in the international industrial world; +while scrupulously safeguarding the rights of wage-worker and capitalist, +of investor and private citizen, so as to secure equity as between man and +man in this Republic. + +With the sole exception of the farming interest, no one matter is of such +vital moment to our whole people as the welfare of the wage-workers. If the +farmer and the wage-worker are well off, it is absolutely certain that all +others will be well off too. It is therefore a matter for hearty +congratulation that on the whole wages are higher to-day in the United +States than ever before in our history, and far higher than in any other +country. The standard of living is also higher than ever before. Every +effort of legislator and administrator should be bent to secure the +permanency of this condition of things and its improvement wherever +possible. Not only must our labor be protected by the tariff, but it should +also be protected so far as it is possible from the presence in this +country of any laborers brought over by contract, or of those who, coming +freely, yet represent a standard of living so depressed that they can +undersell our men in the labor market and drag them to a lower level. I +regard it as necessary, with this end in view, to re-enact immediately the +law excluding Chinese laborers and to strengthen it wherever necessary in +order to make its enforcement entirely effective. + +The National Government should demand the highest quality of service from +its employees; and in return it should be a good employer. If possible +legislation should be passed, in connection with the Interstate Commerce +Law, which will render effective the efforts of different States to do away +with the competition of convict contract labor in the open labor market. So +far as practicable under the conditions of Government work, provision +should be made to render the enforcement of the eight-hour law easy and +certain. In all industries carried on directly or indirectly for the United +States Government women and children should be protected from excessive +hours of labor, from night work, and from work under unsanitary conditions. +The Government should provide in its contracts that all work should be done +under "fair" conditions, and in addition to setting a high standard should +uphold it by proper inspection, extending if necessary to the +subcontractors. The Government should forbid all night work for women and +children, as well as excessive overtime. For the District of Columbia a +good factory law should be passed; and, as a powerful indirect aid to such +laws, provision should be made to turn the inhabited alleys, the existence +of which is a reproach to our Capital city, into minor streets, where the +inhabitants can live under conditions favorable to health and morals. + +American wage-workers work with their heads as well as their hands. +Moreover, they take a keen pride in what they are doing; so that, +independent of the reward, they wish to turn out a perfect job. This is the +great secret of our success in competition with the labor of foreign +countries. + +The most vital problem with which this country, and for that matter the +whole civilized world, has to deal, is the problem which has for one side +the betterment of social conditions, moral and physical, in large cities, +and for another side the effort to deal with that tangle of far-reaching +questions which we group together when we speak of "labor." The chief +factor in the success of each man--wage-worker, farmer, and capitalist +alike--must ever be the sum total of his own individual qualities and +abilities. Second only to this comes the power of acting in combination or +association with others. Very great good has been and will be accomplished +by associations or unions of wage-workers, when managed with forethought, +and when they combine insistence upon their own rights with law-abiding +respect for the rights of others. The display of these qualities in such +bodies is a duty to the nation no less than to the associations themselves. +Finally, there must also in many cases be action by the Government in order +to safeguard the rights and interests of all. Under our Constitution there +is much more scope for such action by the State and the municipality than +by the nation. But on points such as those touched on above the National +Government can act. + +When all is said and done, the rule of brotherhood remains as the +indispensable prerequisite to success in the kind of national life for +which we strive. Each man must work for himself, and unless he so works no +outside help can avail him; but each man must remember also that he is +indeed his brother's keeper, and that while no man who refuses to walk can +be carried with advantage to himself or anyone else, yet that each at times +stumbles or halts, that each at times needs to have the helping hand +outstretched to him. To be permanently effective, aid must always take the +form of helping a man to help himself; and we can all best help ourselves +by joining together in the work that is of common interest to all. + +Our present immigration laws are unsatisfactory. We need every honest and +efficient immigrant fitted to become an American citizen, every immigrant +who comes here to stay, who brings here a strong body, a stout heart, a +good head, and a resolute purpose to do his duty well in every way and to +bring up his children as law-abiding and God-fearing members of the +community. But there should be a comprehensive law enacted with the object +of working a threefold improvement over our present system. First, we +should aim to exclude absolutely not only all persons who are known to be +believers in anarchistic principles or members of anarchistic societies, +but also all persons who are of a low moral tendency or of unsavory +reputation. This means that we should require a more thorough system of +inspection abroad and a more rigid system of examination at our immigration +ports, the former being especially necessary. + +The second object of a proper immigration law ought to be to secure by a +careful and not merely perfunctory educational test some intelligent +capacity to appreciate American institutions and act sanely as American +citizens. This would not keep out all anarchists, for many of them belong +to the intelligent criminal class. But it would do what is also in point, +that is, tend to decrease the sum of ignorance, so potent in producing the +envy, suspicion, malignant passion, and hatred of order, out of which +anarchistic sentiment inevitably springs. Finally, all persons should be +excluded who are below a certain standard of economic fitness to enter our +industrial field as competitors with American labor. There should be proper +proof of personal capacity to earn an American living and enough money to +insure a decent start under American conditions. This would stop the influx +of cheap labor, and the resulting competition which gives rise to so much +of bitterness in American industrial life; and it would dry up the springs +of the pestilential social conditions in our great cities, where +anarchistic organizations have their greatest possibility of growth. + +Both the educational and economic tests in a wise immigration law should be +designed to protect and elevate the general body politic and social. A very +close supervision should be exercised over the steamship companies which +mainly bring over the immigrants, and they should be held to a strict +accountability for any infraction of the law. + +There is general acquiescence in our present tariff system as a national +policy. The first requisite to our prosperity is the continuity and +stability of this economic policy. Nothing could be more unwise than to +disturb the business interests of the country by any general tariff change +at this time. Doubt, apprehension, uncertainty are exactly what we most +wish to avoid in the interest of our commercial and material well-being. +Our experience in the past has shown that sweeping revisions of the tariff +are apt to produce conditions closely approaching panic in the business +world. Yet it is not only possible, but eminently desirable, to combine +with the stability of our economic system a supplementary system of +reciprocal benefit and obligation with other nations. Such reciprocity is +an incident and result of the firm establishment and preservation of our +present economic policy. It was specially provided for in the present +tariff law. + +Reciprocity must be treated as the handmaiden of protection. Our first duty +is to see that the protection granted by the tariff in every case where it +is needed is maintained, and that reciprocity be sought for so far as it +can safely be done without injury to our home industries. Just how far this +is must be determined according to the individual case, remembering always +that every application of our tariff policy to meet our shifting national +needs must be conditioned upon the cardinal fact that the duties must never +be reduced below the point that will cover the difference between the labor +cost here and abroad. The well-being of the wage-worker is a prime +consideration of our entire policy of economic legislation. + +Subject to this proviso of the proper protection necessary to our +industrial well-being at home, the principle of reciprocity must command +our hearty support. The phenomenal growth of our export trade emphasizes +the urgency of the need for wider markets and for a liberal policy in +dealing with foreign nations. Whatever is merely petty and vexatious in the +way of trade restrictions should be avoided. The customers to whom we +dispose of our surplus products in the long run, directly or indirectly, +purchase those surplus products by giving us something in return. Their +ability to purchase our products should as far as possible be secured by so +arranging our tariff as to enable us to take from them those products which +we can use without harm to our own industries and labor, or the use of +which will be of marked benefit to us. + +It is most important that we should maintain the high level of our present +prosperity. We have now reached the point in the development of our +interests where we are not only able to supply our own markets but to +produce a constantly growing surplus for which we must find markets abroad. +To secure these markets we can utilize existing duties in any case where +they are no longer needed for the purpose of protection, or in any case +where the article is not produced here and the duty is no longer necessary +for revenue, as giving us something to offer in exchange for what we ask. +The cordial relations with other nations which are so desirable will +naturally be promoted by the course thus required by our own interests. + +The natural line of development for a policy of reciprocity will be in +connection with those of our productions which no longer require all of the +support once needed to establish them upon a sound basis, and with those +others where either because of natural or of economic causes we are beyond +the reach of successful competition. + +I ask the attention of the Senate to the reciprocity treaties laid before +it by my predecessor. + +The condition of the American merchant marine is such as to call for +immediate remedial action by the Congress. It is discreditable to us as a +Nation that our merchant marine should be utterly insignificant in +comparison to that of other nations which we overtop in other forms of +business. We should not longer submit to conditions under which only a +trifling portion of our great commerce is carried in our own ships. To +remedy this state of things would not .merely serve to build up our +shipping interests, but it would also result in benefit to all who are +interested in the permanent establishment of a wider market for American +products, and would provide an auxiliary force for the Navy. Ships work for +their own countries just as railroads work for their terminal points. +Shipping lines, if established to the principal countries with which we +have dealings, would be of political as well as commercial benefit. From +every standpoint it is unwise for the United States to continue to rely +upon the ships of competing nations for the distribution of our goods. It +should be made advantageous to carry American goods in American-built +ships. + +At present American shipping is under certain great disadvantages when put +in competition with the shipping of foreign countries. Many of the fast +foreign steamships, at a speed of fourteen knots or above, are subsidized; +and all our ships, sailing vessels and steamers alike, cargo carriers of +slow speed and mail carriers of high speed, have to meet the fact that the +original cost of building American ships is greater than is the case +abroad; that the wages paid American officers and seamen are very much +higher than those paid the officers and seamen of foreign competing +countries; and that the standard of living on our ships is far superior to +the standard of living on the ships of our commercial rivals. + +Our Government should take such action as will remedy these inequalities. +The American merchant marine should be restored to the ocean. + +The Act of March 14, 1900, intended unequivocally to establish gold as the +standard money and to maintain at a parity therewith all forms of money +medium in use with us, has been shown to be timely and judicious. The price +of our Government bonds in the world's market, when compared with the price +of similar obligations issued by other nations, is a flattering tribute to +our public credit. This condition it is evidently desirable to maintain. + +In many respects the National Banking Law furnishes sufficient liberty for +the proper exercise of the banking function; but there seems to be need of +better safeguards against the deranging influence of commercial crises and +financial panics. Moreover, the currency of the country should be made +responsive to the demands of our domestic trade and commerce. + +The collections from duties on imports and internal taxes continue to +exceed the ordinary expenditures of the Government, thanks mainly to the +reduced army expenditures. The utmost care should be taken not to reduce +the revenues so that there will be any possibility of a deficit; but, after +providing against any such contingency, means should be adopted which will +bring the revenues more nearly within the limit of our actual needs. In his +report to the Congress the Secretary of the Treasury considers all these +questions at length, and I ask your attention to the report and +recommendations. + +I call special attention to the need of strict economy in expenditures. The +fact that our national needs forbid us to be niggardly in providing +whatever is actually necessary to our well-being, should make us doubly +careful to husband our national resources, as each of us husbands his +private resources, by scrupulous avoidance of anything like wasteful or +reckless expenditure. Only by avoidance of spending money on what is +needless or unjustifiable can we legitimately keep our income to the point +required to meet our needs that are genuine. + +In 1887 a measure was enacted for the regulation of interstate railways, +commonly known as the Interstate Commerce Act. The cardinal provisions of +that act were that railway rates should be just and reasonable and that all +shippers, localities, and commodities should be accorded equal treatment. A +commission was created and endowed with what were supposed to be the +necessary powers to execute the provisions of this act. That law was +largely an experiment. Experience has shown the wisdom of its purposes, but +has also shown, possibly that some of its requirements are wrong, certainly +that the means devised for the enforcement of its provisions are defective. +Those who complain of the management of the railways allege that +established rates are not maintained; that rebates and similar devices are +habitually resorted to; that these preferences are usually in favor of the +large shipper; that they drive out of business the smaller competitor; that +while many rates are too low, many others are excessive; and that gross +preferences are made, affecting both localities and commodities. Upon the +other hand, the railways assert that the law by its very terms tends to +produce many of these illegal practices by depriving carriers of that right +of concerted action which they claim is necessary to establish and maintain +non-discriminating rates. + +The act should be amended. The railway is a public servant. Its rates +should be just to and open to all shippers alike. The Government should see +to it that within its jurisdiction this is so and should provide a speedy, +inexpensive, and effective remedy to that end. At the same time it must not +be forgotten that our railways are the arteries through which the +commercial lifeblood of this Nation flows. Nothing could be more foolish +than the enactment of legislation which would unnecessarily interfere with +the development and operation of these commercial agencies. The subject is +one of great importance and calls for the earnest attention of the +Congress. + +The Department of Agriculture during the past fifteen years has steadily +broadened its work on economic lines, and has accomplished results of real +value in upbuilding domestic and foreign trade. It has gone into new fields +until it is now in touch with all sections of our country and with two of +the island groups that have lately come under our jurisdiction, whose +people must look to agriculture as a livelihood. It is searching the world +for grains, grasses, fruits, and vegetables specially fitted for +introduction into localities in the several States and Territories where +they may add materially to our resources. By scientific attention to soil +survey and possible new crops, to breeding of new varieties of plants, to +experimental shipments, to animal industry and applied chemistry, very +practical aid has been given our farming and stock-growing interests. The +products of the farm have taken an unprecedented place in our export trade +during the year that has just closed. + +Public opinion throughout the United States has moved steadily toward a +just appreciation of the value of forests, whether planted or of natural +growth. The great part played by them in the creation and maintenance of +the national wealth is now more fully realized than ever before. + +Wise forest protection does not mean the withdrawal of forest resources, +whether of wood, water, or grass, from contributing their full share to the +welfare of the people, but, on the contrary, gives the assurance of larger +and more certain supplies. The fundamental idea of forestry is the +perpetuation of forests by use. Forest protection is not an end of itself; +it is a means to increase and sustain the resources of our country and the +industries which depend upon them. The preservation of our forests is an +imperative business necessity. We have come to see clearly that whatever +destroys the forest, except to make way for agriculture, threatens our well +being. + +The practical usefulness of the national forest reserves to the mining, +grazing, irrigation, and other interests of the regions in which the +reserves lie has led to a widespread demand by the people of the West for +their protection and extension. The forest reserves will inevitably be of +still greater use in the future than in the past. Additions should be made +to them whenever practicable, and their usefulness should be increased by a +thoroughly business-like management. + +At present the protection of the forest reserves rests with the General +Land Office, the mapping and description of their timber with the United +States Geological Survey, and the preparation of plans for their +conservative use with the Bureau of Forestry, which is also charged with +the general advancement of practical forestry in the United States. These +various functions should be united in the Bureau of Forestry, to which they +properly belong. The present diffusion of responsibility is bad from every +standpoint. It prevents that effective co-operation between the Government +and the men who utilize the resources of the reserves, without which the +interests of both must suffer. The scientific bureaus generally should be +put under the Department of Agriculture. The President should have by law +the power of transferring lands for use as forest reserves to the +Department of Agriculture. He already has such power in the case of lands +needed by the Departments of War and the Navy. + +The wise administration of the forest reserves will be not less helpful to +the interests which depend on water than to those which depend on wood and +grass. The water supply itself depends upon the forest. In the arid region +it is water, not land, which measures production. The western half of the +United States would sustain a population greater than that of our whole +country to-day if the waters that now run to waste were saved and used for +irrigation. The forest and water problems are perhaps the most vital +internal questions of the United States. + +Certain of the forest reserves should also be made preserves for the wild +forest creatures. All of the reserves should be better protected from +fires. Many of them need special protection because of the great injury +done by live stock, above all by sheep. The increase in deer, elk, and +other animals in the Yellowstone Park shows what may be expected when other +mountain forests are properly protected by law and properly guarded. Some +of these areas have been so denuded of surface vegetation by overgrazing +that the ground breeding birds, including grouse and quail, and many +mammals, including deer, have been exterminated or driven away. At the same +time the water-storing capacity of the surface has been decreased or +destroyed, thus promoting floods in times of rain and diminishing the flow +of streams between rains. + +In cases where natural conditions have been restored for a few years, +vegetation has again carpeted the ground, birds and deer are coming back, +and hundreds of persons, especially from the immediate neighborhood, come +each summer to enjoy the privilege of camping. Some at least of the forest +reserves should afford perpetual protection to the native fauna and flora, +safe havens of refuge to our rapidly diminishing wild animals of the larger +kinds, and free camping grounds for the ever-increasing numbers of men and +women who have learned to find rest, health, and recreation in the splendid +forests and flower-clad meadows of our mountains. The forest reserves +should be set apart forever for the use and benefit of our people as a +whole and not sacrificed to the shortsighted greed of a few. + +The forests are natural reservoirs. By restraining the streams in flood and +replenishing them in drought they make possible the use of waters otherwise +wasted. They prevent the soil from washing, and so protect the storage +reservoirs from filling up with silt. Forest conservation is therefore an +essential condition of water conservation. + +The forests alone cannot, however, fully regulate and conserve the waters +of the arid region. Great storage works are necessary to equalize the flow +of streams and to save the flood waters. Their construction has been +conclusively shown to be an undertaking too vast for private effort. Nor +can it be best accomplished by the individual States acting alone. +Far-reaching interstate problems are involved; and the resources of single +States would often be inadequate. It is properly a national function, at +least in some of its features. It is as right for the National Government +to make the streams and rivers of the arid region useful by engineering +works for water storage as to make useful the rivers and harbors of the +humid region by engineering works of another kind. The storing of the +floods in reservoirs at the headwaters of our rivers is but an enlargement +of our present policy of river control, under which levees are built on the +lower reaches of the same streams. + +The Government should construct and maintain these reservoirs as it does +other public works. Where their purpose is to regulate the flow of streams, +the water should be turned freely into the channels in the dry season to +take the same course under the same laws as the natural flow. + +The reclamation of the unsettled arid public lands presents a different +problem. Here it is not enough to regulate the flow of streams. The object +of the Government is to dispose of the land to settlers who will build +homes upon it. To accomplish this object water must be brought within their +reach. + +The pioneer settlers on the arid public domain chose their homes along +streams from which they could themselves divert the water to reclaim their +holdings. Such opportunities are practically gone. There remain, however, +vast areas of public land which can be made available for homestead +settlement, but only by reservoirs and main-line canals impracticable for +private enterprise. These irrigation works should be built by the National +Government. The lands reclaimed by them should be reserved by the +Government for actual settlers, and the cost of construction should so far +as possible be repaid by the land reclaimed. The distribution of the water, +the division of the streams among irrigators, should be left to the +settlers themselves in conformity with State laws and without interference +with those laws or with vested fights. The policy of the National +Government should be to aid irrigation in the several States and +Territories in such manner as will enable the people in the local +communities to help themselves, and as will stimulate needed reforms in the +State laws and regulations governing irrigation. + +The reclamation and settlement of the arid lands will enrich every portion +of our country, just as the settlement of the Ohio and Mississippi valleys +brought prosperity to the Atlantic States. The increased demand for +manufactured articles will stimulate industrial production, while wider +home markets and the trade of Asia will consume the larger food supplies +and effectually prevent Western competition with Eastern agriculture. +Indeed, the products of irrigation will be consumed chiefly in upbuilding +local centers of mining and other industries, which would otherwise not +come into existence at all. Our people as a whole will profit, for +successful home-making is but another name for the upbuilding of the +nation. + +The necessary foundation has already been laid for the inauguration of the +policy just described. It would be unwise to begin by doing too much, for a +great deal will doubtless be learned, both as to what can and what cannot +be safely attempted, by the early efforts, which must of necessity be +partly experimental in character. At the very beginning the Government +should make clear, beyond shadow of doubt, its intention to pursue this +policy on lines of the broadest public interest. No reservoir or canal +should ever be built to satisfy selfish personal or local interests; but +only in accordance with the advice of trained experts, after long +investigation has shown the locality where all the conditions combine to +make the work most needed and fraught with the greatest usefulness to the +community as a whole. There should be no extravagance, and the believers in +the need of irrigation will most benefit their cause by seeing to it that +it is free from the least taint of excessive or reckless expenditure of the +public moneys. + +Whatever the nation does for the extension of irrigation should harmonize +with, and tend to improve, the condition of those now living on irrigated +land. We are not at the starting point of this development. Over two +hundred millions of private capital has already been expended in the +construction of irrigation works, and many million acres of arid land +reclaimed. A high degree of enterprise and ability has been shown in the +work itself; but as much cannot be said in reference to the laws relating +thereto. The security and value of the homes created depend largely on the +stability of titles to water; but the majority of these rest on the +uncertain foundation of court decisions rendered in ordinary suits at law. +With a few creditable exceptions, the arid States have failed to provide +for the certain and just division of streams in times of scarcity. Lax and +uncertain laws have made it possible to establish rights to water in excess +of actual uses or necessities, and many streams have already passed into +private ownership, or a control equivalent to ownership. + +Whoever controls a stream practically controls the land it renders +productive, and the doctrine of private ownership of water apart from land +cannot prevail without causing enduring wrong. The recognition of such +ownership, which has been permitted to grow up in the arid regions, should +give way to a more enlightened and larger recognition of the rights of the +public in the control and disposal of the public water supplies. Laws +founded upon conditions obtaining in humid regions, where water is too +abundant to justify hoarding it, have no proper application in a dry +country. + +In the arid States the only right to water which should be recognized is +that of use. In irrigation this right should attach to the land reclaimed +and be inseparable therefrom. Granting perpetual water rights to others +than users, without compensation to the public, is open to all the +objections which apply to giving away perpetual franchises to the public +utilities of cities. A few of the Western States have already recognized +this, and have incorporated in their constitutions the doctrine of +perpetual State ownership of water. + +The benefits which have followed the unaided development of the past +justify the nation's aid and co-operation in the more difficult and +important work yet to be accomplished. Laws so vitally affecting homes as +those which control the water supply will only be effective when they have +the sanction of the irrigators; reforms can only be final and satisfactory +when they come through the enlightenment of the people most concerned. The +larger development which national aid insures should, however, awaken in +every arid State the determination to make its irrigation system equal in +justice and effectiveness that of any country in the civilized world. +Nothing could be more unwise than for isolated communities to continue to +learn everything experimentally, instead of profiting by what is already +known elsewhere. We are dealing with a new and momentous question, in the +pregnant years while institutions are forming, and what we do will affect +not only the present but future generations. + +Our aim should be not simply to reclaim the largest area of land and +provide homes for the largest number of people, but to create for this new +industry the best possible social and industrial conditions; and this +requires that we not only understand the existing situation, but avail +ourselves of the best experience of the time in the solution of its +problems. A careful study should be made, both by the Nation and the +States, of the irrigation laws and conditions here and abroad. Ultimately +it will probably be necessary for the Nation to co-operate with the several +arid States in proportion as these States by their legislation and +administration show themselves fit to receive it. + +In Hawaii our aim must be to develop the Territory on the traditional +American lines. We do not wish a region of large estates tilled by cheap +labor; we wish a healthy American community of men who themselves till the +farms they own. All our legislation for the islands should be shaped with +this end in view; the well-being of the average home-maker must afford the +true test of the healthy development of the islands. The land policy should +as nearly as possible be modeled on our homestead system. + +It is a pleasure to say that it is hardly more necessary to report as to +Puerto Rico than as to any State or Territory within our continental +limits. The island is thriving as never before, and it is being +administered efficiently and honestly. Its people are now enjoying liberty +and order under the protection of the United States, and upon this fact we +congratulate them and ourselves. Their material welfare must be as +carefully and jealously considered as the welfare of any other portion of +our country. We have given them the great gift of free access for their +products to the markets of the United States. I ask the attention of the +Congress to the need of legislation concerning the public lands of Puerto +Rico. + +In Cuba such progress has been made toward putting the independent +government of the island upon a firm footing that before the present +session of the Congress closes this will be an accomplished fact. Cuba will +then start as her own mistress; and to the beautiful Queen of the Antilles, +as she unfolds this new page of her destiny, we extend our heartiest +greetings and good wishes. Elsewhere I have discussed the question of +reciprocity. In the case of Cuba, however, there are weighty reasons of +morality and of national interest why the policy should be held to have a +peculiar application, and I most earnestly ask your attention to the +wisdom, indeed to the vital need, of providing for a substantial reduction +in the tariff duties on Cuban imports into the United States. Cuba has in +her constitution affirmed what we desired. that she should stand, in +international matters, in closer and more friendly relations with us than +with any other power; and we are bound by every consideration of honor and +expediency to pass commercial measures in the interest of her material +well-being. + +In the Philippines our problem is larger. They are very rich tropical +islands, inhabited by many varying tribes, representing widely different +stages of progress toward civilization. Our earnest effort is to help these +people upward along the stony and difficult path that leads to +self-government. We hope to make our administration of the islands +honorable to our Nation by making it of the highest benefit to the +Filipinos themselves; and as an earnest of what we intend to do, we point +to what we have done. Already a greater measure of material prosperity and +of governmental honesty and efficiency has been attained in the Philippines +than ever before in their history. + +It is no light task for a nation to achieve the temperamental qualities +without which the institutions of free government are but an empty mockery. +Our people are now successfully governing themselves, because for more than +a thousand years they have been slowly fitting themselves, sometimes +consciously, sometimes unconsciously, toward this end. What has taken us +thirty generations to achieve, we cannot expect to have another race +accomplish out of hand, especially when large portions of that race start +very far behind the point which our ancestors had reached even thirty +generations ago. In dealing with the Philippine people we must show both +patience and strength, forbearance and steadfast resolution. Our aim is +high. We do not desire to do for the islanders merely what has elsewhere +been done for tropic peoples by even the best foreign governments. We hope +to do for them what has never before been done for any people of the +tropics--to make them fit for self-government after the fashion of the +really free nations. + +History may safely be challenged to show a single instance in which a +masterful race such as ours, having been forced by the exigencies of war to +take possession of an alien land, has behaved to its inhabitants with the +disinterested zeal for their progress that our people have shown in the +Philippines. To leave the islands at this time would mean that they would +fall into a welter of murderous anarchy. Such desertion of duty on our part +would be a crime against humanity. The character of Governor Taft and of +his associates and subordinates is a proof, if such be needed, of the +sincerity of our effort to give the islanders a constantly increasing +measure of self-government, exactly as fast as they show themselves fit to +exercise it. Since the civil government was established not an appointment +has been made in the islands with any reference to considerations of +political influence, or to aught else Save the fitness of the man and the +needs of the service. + +In our anxiety for the welfare and progress of the Philippines, may be that +here and there we have gone too rapidly in giving them local +self-government. It is on this side that our error, if any, has been +committed. No competent observer, sincerely desirous of finding out the +facts and influenced only by a desire for the welfare of the natives, can +assert that we have not gone far enough. We have gone to the very verge of +safety in hastening the process. To have taken a single step farther or +faster in advance would have been folly and weakness, and might well have +been crime. We are extremely anxious that the natives shall show the power +of governing themselves. We are anxious, first for their sakes, and next, +because it relieves us of a great burden. There need not be the slightest +fear of our not continuing to give them all the liberty for which they are +fit. + +The only fear is test in our overanxiety we give them a degree of +independence for which they are unfit, thereby inviting reaction and +disaster. As fast as there is any reasonable hope that in a given district +the people can govern themselves, self-government has been given in that +district. There is not a locality fitted for self-government which has not +received it. But it may well be that in certain cases it will have to be +withdrawn because the inhabitants show themselves unfit to exercise it; +such instances have already occurred. In other words, there is not the +slightest chance of our failing to show a sufficiently humanitarian spirit. +The danger comes in the opposite direction. + +There are still troubles ahead in the islands. The insurrection has become +an affair of local banditti and marauders, who deserve no higher regard +than the brigands of portions of the Old World. Encouragement, direct or +indirect, to these insurrectors stands on the same footing as encouragement +to hostile Indians in the days when we still had Indian wars. Exactly as +our aim is to give to the Indian who remains peaceful the fullest and +amplest consideration, but to have it understood that we will show no +weakness if he goes on the warpath, so we must make it evident, unless we +are false to our own traditions and to the demands of civilization and +humanity, that while we will do everything in our power for the Filipino +who is peaceful, we will take the sternest measures with the Filipino who +follows the path of the insurrecto and the ladrone. + +The heartiest praise is due to large numbers of the natives of the islands +for their steadfast loyalty. The Macabebes have been conspicuous for their +courage and devotion to the flag. I recommend that the Secretary of War be +empowered to take some systematic action in the way of aiding those of +these men who are crippled in the service and the families of those who are +killed. + +The time has come when there should be additional legislation for the +Philippines. Nothing better can be done for the islands than to introduce +industrial enterprises. Nothing would benefit them so much as throwing them +open to industrial development. The connection between idleness and +mischief is proverbial, and the opportunity to do remunerative work is one +of the surest preventatives of war. Of course no business man will go into +the Philippines unless it is to his interest to do so; and it is immensely +to the interest of the islands that he should go in. It is therefore +necessary that the Congress should pass laws by which the resources of the +islands can be developed; so that franchises (for limited terms of years) +can be granted to companies doing business in them, and every encouragement +be given to the incoming of business men of every kind. + +Not to permit this is to do a wrong to the Philippines. The franchises must +be granted and the business permitted only under regulations which will +guarantee the islands against any kind of improper exploitation. But the +vast natural wealth of the islands must be developed, and the capital +willing to develop it must be given the opportunity. The field must be +thrown open to individual enterprise, which has been the real factor in the +development of every region over which our flag has flown. It is urgently +necessary to enact suitable laws dealing with general transportation, +mining, banking, currency, homesteads, and the use and ownership of the +lands and timber. These laws will give free play to industrial enterprise; +and the commercial development which will surely follow will accord to the +people of the islands the best proofs of the sincerity of our desire to aid +them. + +I call your attention most earnestly to the crying need of a cable to +Hawaii and the Philippines, to be continued from the Philippines to points +in Asia. We should not defer a day longer than necessary the construction +of such a cable. It is demanded not merely for commercial but for political +and military considerations. + +Either the Congress should immediately provide for the construction of a +Government cable, or else an arrangement should be made by which like +advantages to those accruing from a Government cable may be secured to the +Government by contract with a private cable company. + +No single great material work which remains to be undertaken on this +continent is of such consequence to the American people as the building of +a canal across the Isthmus connecting North and South America. Its +importance to the Nation is by no means limited merely to its material +effects upon our business prosperity; and yet with view to these effects +alone it would be to the last degree important for us immediately to begin +it. While its beneficial effects would perhaps be most marked upon the +Pacific Coast and the Gulf and South Atlantic States, it would also greatly +benefit other sections. It is emphatically a work which it is for the +interest of the entire country to begin and complete as soon as possible; +it is one of those great works which only a great nation can undertake with +prospects of success, and which when done are not only permanent assets in +the nation's material interests, but standing monuments to its constructive +ability. + +I am glad to be able to announce to you that our negotiations on this +subject with Great Britain, conducted on both sides in a spirit of +friendliness and mutual good will and respect, have resulted in my being +able to lay before the Senate a treaty which if ratified will enable us to +begin preparations for an Isthmian canal at any time, and which guarantees +to this Nation every right that it has ever asked in connection with the +canal. In this treaty, the old Clayton-Bulwer treaty, so long recognized as +inadequate to supply the base for the construction and maintenance of a +necessarily American ship canal, is abrogated. It specifically provides +that the United States alone shall do the work of building and assume the +responsibility of safeguarding the canal and shall regulate its neutral use +by all nations on terms of equality without the guaranty or interference of +any outside nation from any quarter. The signed treaty will at once be laid +before the Senate, and if approved the Congress can then proceed to give +effect to the advantages it secures us by providing for the building of the +canal. + +The true end of every great and free people should be self-respecting +peace; and this Nation most earnestly desires sincere and cordial +friendship with all others. Over the entire world, of recent years, wars +between the great civilized powers have become less and less frequent. Wars +with barbarous or semi-barbarous peoples come in an entirely different +category, being merely a most regrettable but necessary international +police duty which must be performed for the sake of the welfare of mankind. +Peace can only be kept with certainty where both sides wish to keep it; but +more and more the civilized peoples are realizing the wicked folly of war +and are attaining that condition of just and intelligent regard for the +rights of others which will in the end, as we hope and believe, make +world-wide peace possible. The peace conference at The Hague gave definite +expression to this hope and belief and marked a stride toward their +attainment. + +This same peace conference acquiesced in our statement of the Monroe +Doctrine as compatible with the purposes and aims of the conference. + +The Monroe Doctrine should be the cardinal feature of the foreign policy of +all the nations of the two Americas, as it is of the United States. Just +seventy-eight years have passed since President Monroe in his Annual +Message announced that "The American continents are henceforth not to be +considered as subjects for future colonization by any European power." In +other words, the Monroe Doctrine is a declaration that there must be no +territorial aggrandizement by any non-American power at the expense of any +American power on American soil. It is in no wise intended as hostile to +any nation in the Old World. Still less is it intended to give cover to any +aggression by one New World power at the expense of any other. It is simply +a step, and a long step, toward assuring the universal peace of the world +by securing the possibility of permanent peace on this hemisphere. + +During the past century other influences have established the permanence +and independence of the smaller states of Europe. Through the Monroe +Doctrine we hope to be able to safeguard like independence and secure like +permanence for the lesser among the New World nations. + +This doctrine has nothing to do with the commercial relations of any +American power, save that it in truth allows each of them to form such as +it desires. In other words, it is really a guaranty of the commercial +independence of the Americas. We do not ask under this doctrine for any +exclusive commercial dealings with any other American state. We do not +guarantee any state against punishment if it misconducts itself, provided +that punishment does not take the form of the acquisition of territory by +any non-American power. + +Our attitude in Cuba is a sufficient guaranty of our own good faith. We +have not the slightest desire to secure any territory at the expense of any +of our neighbors. We wish to work with them hand in hand, so that all of us +may be uplifted together, and we rejoice over the good fortune of any of +them, we gladly hail their material prosperity and political stability, and +are concerned and alarmed if any of them fall into industrial or political +chaos. We do not wish to see any Old World military power grow up on this +continent, or to be compelled to become a military power ourselves. The +peoples of the Americas can prosper best if left to work out their own +salvation in their own way. + +The work of upbuilding the Navy must be steadily continued. No one point of +our policy, foreign or domestic, is more important than this to the honor +and material welfare, and above all to the peace, of our nation in the +future. Whether we desire it or not, we must henceforth recognize that we +have international duties no less than international rights. Even if our +flag were hauled down in the Philippines and Puerto Rico, even if we +decided not to build the Isthmian Canal, we should need a thoroughly +trained Navy of adequate size, or else be prepared definitely and for all +time to abandon the idea that our nation is among those whose sons go down +to the sea in ships. Unless our commerce is always to be carried in foreign +bottoms, we must have war craft to protect it. + +Inasmuch, however, as the American people have no thought of abandoning the +path upon which they have entered, and especially in view of the fact that +the building of the Isthmian Canal is fast becoming one of the matters +which the whole people are united in demanding, it is imperative that our +Navy should be put and kept in the highest state of efficiency, and should +be made to answer to our growing needs. So far from being in any way a +provocation to war, an adequate and highly trained navy is the best +guaranty against war, the cheapest and most effective peace insurance. The +cost of building and maintaining such a navy represents the very lightest +premium for insuring peace which this nation can possibly pay. + +Probably no other great nation in the world is so anxious for peace as we +are. There is not a single civilized power which has anything whatever to +fear from aggressiveness on our part. All we want is peace; and toward this +end we wish to be able to secure the same respect for our rights from +others which we are eager and anxious to extend to their rights in return, +to insure fair treatment to us commercially, and to guarantee the safety of +the American people. + +Our people intend to abide by the Monroe Doctrine and to insist upon it as +the one sure means of securing the peace of the Western Hemisphere. The +Navy offers us the only means of making our insistence upon the Monroe +Doctrine anything but a subject of derision to whatever nation chooses to +disregard it. We desire the peace which comes as of right to the just man +armed; not the peace granted on terms of ignominy to the craven and the +weakling. + +It is not possible to improvise a navy after war breaks out. The ships must +be built and the men trained long in advance. Some auxiliary vessels can be +turned into makeshifts which will do in default of any better for the minor +work, and a proportion of raw men can be mixed with the highly trained, +their shortcomings being made good by the skill of their fellows; but the +efficient fighting force of the Navy when pitted against an equal opponent +will be found almost exclusively in the war ships that have been regularly +built and in the officers and men who through years of faithful performance +of sea duty have been trained to handle their formidable but complex and +delicate weapons with the highest efficiency. In the late war with Spain +the ships that dealt the decisive blows at Manila and Santiago had been +launched from two to fourteen years, and they were able to do as they did +because the men in the conning towers, the gun turrets, and the +engine-rooms had through long years of practice at sea learned how to do +their duty. + +Our present Navy was begun in 1882. At that period our Navy consisted of a +collection of antiquated wooden ships, already almost as out of place +against modern war vessels as the galleys of Alcibiades and +Hamilcar--certainly as the ships of Tromp and Blake. Nor at that time did +we have men fit to handle a modern man-of-war. Under the wise legislation +of the Congress and the successful administration of a succession of +patriotic Secretaries of the Navy, belonging to both political parties, the +work of upbuilding the Navy went on, and ships equal to any in the world of +their kind were continually added; and what was even more important, these +ships were exercised at sea singly and in squadrons until the men aboard +them were able to get the best possible service out of them. The result was +seen in the short war with Spain, which was decided with such rapidity +because of the infinitely greater preparedness of our Navy than of the +Spanish Navy. + +While awarding the fullest honor to the men who actually commanded and +manned the ships which destroyed the Spanish sea forces in the Philippines +and in Cuba, we must not forget that an equal meed of praise belongs to +those without whom neither blow could have been struck. The Congressmen who +voted years in advance the money to lay down the ships, to build the guns, +to buy the armor-plate; the Department officials and the business men and +wage-workers who furnished what the Congress had authorized; the +Secretaries of the Navy who asked for and expended the appropriations; and +finally the officers who, in fair weather and foul, on actual sea service, +trained and disciplined the crews of the ships when there was no war in +sight--all are entitled to a full share in the glory of Manila and +Santiago, and the respect accorded by every true American to those who +wrought such signal triumph for our country. It was forethought and +preparation which secured us the overwhelming triumph of 1898. If we fail +to show forethought and preparation now, there may come a time when +disaster will befall us instead of triumph; and should this time come, the +fault will rest primarily, not upon those whom the accident of events puts +in supreme command at the moment, but upon those who have failed to prepare +in advance. + +There should be no cessation in the work of completing our Navy. So far +ingenuity has been wholly unable to devise a substitute for the great war +craft whose hammering guns beat out the mastery of the high seas. It is +unsafe and unwise not to provide this year for several additional Battle +ships and heavy armored cruisers, with auxiliary and lighter craft in +proportion; for the exact numbers and character I refer you to the report +of the Secretary of the Navy. But there is something we need even more than +additional ships, and this is additional officers and men. To provide +battle ships and cruisers and then lay them up, with the expectation of +leaving them unmanned until they are needed in actual war, would be worse +than folly; it would be a crime against the Nation. + +To send any war ship against a competent enemy unless those aboard it have +been trained by years of actual sea service, including incessant gunnery +practice, would be to invite not merely disaster, but the bitterest shame +and humiliation. Four thousand additional seamen and one thousand +additional marines should be provided; and an increase in the officers +should be provided by making a large addition to the classes at Annapolis. +There is one small matter which should be mentioned in connection with +Annapolis. The pretentious and unmeaning title of "naval cadet" should be +abolished; the title of "midshipman," full of historic association, should +be restored. + +Even in time of peace a war ship should be used until it wears out, for +only so can it be kept fit to respond to any emergency. The officers and +men alike should be kept as much as possible on blue water, for it is there +only they can learn their duties as they should be learned. The big vessels +should be manoeuvred in squadrons containing not merely battle ships, but +the necessary proportion of cruisers and scouts. The torpedo boats should +be handled by the younger officers in such manner as will best fit the +latter to take responsibility and meet the emergencies of actual warfare. + +Every detail ashore which can be performed by a civilian should be so +performed, the officer being kept for his special duty in the sea service. +Above all, gunnery practice should be unceasing. It is important to have +our Navy of adequate size, but it is even more important that ship for ship +it should equal in efficiency any navy in the world. This is possible only +with highly drilled crews and officers, and this in turn imperatively +demands continuous and progressive instruction in target practice, ship +handling, squadron tactics, and general discipline. Our ships must be +assembled in squadrons actively cruising away from harbors and never long +at anchor. The resulting wear upon engines and hulls must be endured; a +battle ship worn out in long training of officers and men is well paid for +by the results, while, on the other hand, no matter in how excellent +condition, it is useless if the crew be not expert. + +We now have seventeen battle ships appropriated for, of which nine are +completed and have been commissioned for actual service. The remaining +eight will be ready in from two to four years, but it will take at least +that time to recruit and train the men to fight them. It is of vast concern +that we have trained crews ready for the vessels by the time they are +commissioned. Good ships and good guns are simply good weapons, and the +best weapons are useless save in the hands of men who know how to fight +with them. The men must be trained and drilled under a thorough and +well-planned system of progressive instruction, while the recruiting must +be carried on with still greater vigor. Every effort must be made to exalt +the main function of the officer--the command of men. The leading graduates +of the Naval Academy should be assigned to the combatant branches, the line +and marines. + +Many of the essentials of success are already recognized by the General +Board, which, as the central office of a growing staff, is moving steadily +toward a proper war efficiency and a proper efficiency of the whole Navy, +under the Secretary. This General Board, by fostering the creation of a +general staff, is providing for the official and then the general +recognition of our altered conditions as a Nation and of the true meaning +of a great war fleet, which meaning is, first, the best men, and, second, +the best ships. + +Messages and Papers of the Presidents, Theodore Roosevelt, vol. 9, p.6667 + +The Naval Militia forces are State organizations, and are trained for coast +service, and in event of war they will constitute the inner line of +defense. They should receive hearty encouragement from the General +Government. + +But in addition we should at once provide for a National Naval Reserve, +organized and trained under the direction of the Navy Department, and +subject to the call of the Chief Executive whenever war becomes imminent. +It should be a real auxiliary to the naval seagoing peace establishment, +and offer material to be drawn on at once for manning our ships in time of +war. It should be composed of graduates of the Naval Academy, graduates of +the Naval Militia, officers and crews of coast-line steamers, longshore +schooners, fishing vessels, and steam yachts, together with the coast +population about such centers as lifesaving stations and light-houses. + +The American people must either build and maintain an adequate navy or else +make up their minds definitely to accept a secondary position in +international affairs, not merely in political, but in commercial, matters. +It has been well said that there is no surer way of courting national +disaster than to be "opulent, aggressive, and unarmed." + +It is not necessary to increase our Army beyond its present size at this +time. But it is necessary to keep it at the highest point of efficiency. +The individual units who as officers and enlisted men compose this Army, +are, we have good reason to believe, at least as efficient as those of any +other army in the entire world. It is our duty to see that their training +is of a kind to insure the highest possible expression of power to these +units when acting in combination. + +The conditions of modern war are such as to make an infinitely heavier +demand than ever before upon the individual character and capacity of the +officer and the enlisted man, and to make it far more difficult for men to +act together with effect. At present the fighting must be done in extended +order, which means that each man must act for himself and at the same time +act in combination with others with whom he is no longer in the +old-fashioned elbow-to-elbow touch. Under such conditions a few men of the +highest excellence are worth more than many men without the special skill +which is only found as the result of special training applied to men of +exceptional physique and morale. But nowadays the most valuable fighting +man and the most difficult to perfect is the rifleman who is also a +skillful and daring rider. + +The proportion of our cavalry regiments has wisely been increased. The +American cavalryman, trained to manoeuvre and fight with equal facility on +foot and on horseback, is the best type of soldier for general purposes now +to be found in the world. The ideal cavalryman of the present day is a man +who can fight on foot as effectively as the best infantryman, and who is in +addition unsurpassed in the care and management of his horse and in his +ability to fight on horseback. + +A general staff should be created. As for the present staff and supply +departments, they should be filled by details from the line, the men so +detailed returning after a while to their line duties. It is very +undesirable to have the senior grades of the Army composed of men who have +come to fill the positions by the mere fact of seniority. A system should +be adopted by which there shall be an elimination grade by grade of those +who seem unfit to render the best service in the next grade. Justice to the +veterans of the Civil War who are still in the Army would seem to require +that in the matter of retirements they be given by law the same privileges +accorded to their comrades in the Navy. + +The process of elimination of the least fit should be conducted in a manner +that would render it practically impossible to apply political or social +pressure on behalf of any candidate, so that each man may be judged purely +on his own merits. Pressure for the promotion of civil officials for +political reasons is bad enough, but it is tenfold worse where applied on +behalf of officers of the Army or Navy. Every promotion and every detail +under the War Department must be made solely with regard to the good of the +service and to the capacity and merit of the man himself. No pressure, +political, social, or personal, of any kind, will be permitted to exercise +the least effect in any question of promotion or detail; and if there is +reason to believe that such pressure is exercised at the instigation of the +officer concerned, it will be held to militate against him. In our Army we +cannot afford to have rewards or duties distributed save on the simple +ground that those who by their own merits are entitled to the rewards get +them, and that those who are peculiarly fit to do the duties are chosen to +perform them. + +Every effort should be made to bring the Army to a constantly increasing +state of efficiency. When on actual service no work save that directly in +the line of such service should be required. The paper work in the Army, as +in the Navy, should be greatly reduced. What is needed is proved power of +command and capacity to work well in the field. Constant care is necessary +to prevent dry rot in the transportation and commissary departments. + +Our Army is so small and so much scattered that it is very difficult to +give the higher officers (as well as the lower officers and the enlisted +men) a chance to practice manoeuvres in mass and on a comparatively large +scale. In time of need no amount of individual excellence would avail +against the paralysis which would follow inability to work as a coherent +whole, under skillful and daring leadership. The Congress should provide +means whereby it will be possible to have field exercises by at least a +division of regulars, and if possible also a division of national +guardsmen, once a year. These exercises might take the form of field +manoeuvres; or, if on the Gulf Coast or the Pacific or Atlantic Sea- board, +or in the region of the Great Lakes, the army corps when assembled could be +marched from some inland point to some point on the water, there embarked, +disembarked after a couple of days' journey at some other point, and again +marched inland. Only by actual handling and providing for men in masses +while they are marching, camping, embarking, and disembarking, will it be +possible to train the higher officers to perform their duties well and +smoothly. + +A great debt is owing from the public to the men of the Army and Navy. They +should be so treated as to enable them to reach the highest point of +efficiency, so that they may be able to respond instantly to any demand +made upon them to sustain the interests of the Nation and the honor of the +flag. The individual American enlisted man is probably on the whole a more +formidable fighting man than the regular of any other army. Every +consideration should be shown him, and in return the highest standard of +usefulness should be exacted from him. It is well worth while for the +Congress to consider whether the pay of enlisted men upon second and +subsequent enlistments should not be increased to correspond with the +increased value of the veteran soldier. + +Much good has already come from the act reorganizing the Army, passed early +in the present year. The three prime reforms, all of them of literally +inestimable value, are, first, the substitution of four-year details from +the line for permanent appointments in the so-called staff divisions; +second, the establishment of a corps of artillery with a chief at the head; +third, the establishment of a maximum and minimum limit for the Army. It +would be difficult to overestimate the improvement in the efficiency of our +Army which these three reforms are making, and have in part already +effected. + +The reorganization provided for by the act has been substantially +accomplished. The improved conditions in the Philippines have enabled the +War Department materially to reduce the military charge upon our revenue +and to arrange the number of soldiers so as to bring this number much +nearer to the minimum than to the maximum limit established by law. There +is, however, need of supplementary legislation. Thorough military education +must be provided, and in addition to the regulars the advantages of this +education should be given to the officers of the National Guard and others +in civil life who desire intelligently to fit themselves for possible +military duty. The officers should be given the chance to perfect +themselves by study in the higher branches of this art. At West Point the +education should be of the kind most apt to turn out men who are good in +actual field service; too much stress should not be laid on mathematics, +nor should proficiency therein be held to establish the right of entry to a +corps d'elite. The typical American officer of the best kind need not be a +good mathematician; but he must be able to master himself, to control +others, and to show boldness and fertility of resource in every emergency. + +Action should be taken in reference to the militia and to the raising of +volunteer forces. Our militia law is obsolete and worthless. The +organization and armament of the National Guard of the several States, +which are treated as militia in the appropriations by the Congress, should +be made identical with those provided for the regular forces. The +obligations and duties of the Guard in time of war should be carefully +defined, and a system established by law under which the method of +procedure of raising volunteer forces should be prescribed in advance. It +is utterly impossible in the excitement and haste of impending war to do +this satisfactorily if the arrangements have not been made long beforehand. +Provision should be made for utilizing in the first volunteer organizations +called out the training of those citizens who have already had experience +under arms, and especially for the selection in advance of the officers of +any force which may be raised; for careful selection of the kind necessary +is impossible after the outbreak of war. + +That the Army is not at all a mere instrument of destruction has been shown +during the last three years. In the Philippines, Cuba, and Puerto Rico it +has proved itself a great constructive force, a most potent implement for +the upbuilding of a peaceful civilization. + +No other citizens deserve so well of the Republic as the veterans, the +survivors of those who saved the Union. They did the one deed which if left +undone would have meant that all else in our history went for nothing. But +for their steadfast prowess in the greatest crisis of our history, all our +annals would be meaningless, and our great experiment in popular freedom +and self-government a gloomy failure. Moreover, they not only left us a +united Nation, but they left us also as a heritage the memory of the mighty +deeds by which the Nation was kept united. We are now indeed one Nation, +one in fact as well as in name; we are united in our devotion to the flag +which is the symbol of national greatness and unity; and the very +completeness of our union enables us all, in every part of the country, to +glory in the valor shown alike by the sons of the North and the sons of the +South in the times that tried men's souls. + +The men who in the last three years have done so well in the East and the +West Indies and on the mainland of Asia have shown that this remembrance is +not lost. In any serious crisis the United States must rely for the great +mass of its fighting men upon the volunteer soldiery who do not make a +permanent profession of the military career; and whenever such a crisis +arises the deathless memories of the Civil War will give to Americans the +lift of lofty purpose which comes to those whose fathers have stood +valiantly in the forefront of the battle. + +The merit system of making appointments is in its essence as democratic and +American as the common school system itself. It simply means that in +clerical and other positions where the duties are entirely non-political, +all applicants should have a fair field and no favor, each standing on his +merits as he is able to show them by practical test. Written competitive +examinations offer the only available means in many cases for applying this +system. In other cases, as where laborers are employed, a system of +registration undoubtedly can be widely extended. There are, of course, +places where the written competitive examination cannot be applied, and +others where it offers by no means an ideal solution, but where under +existing political conditions it is, though an imperfect means, yet the +best present means of getting satisfactory results. + +Wherever the conditions have permitted the application of the merit system +in its fullest and widest sense, the gain to the Government has been +immense. The navy-yards and postal service illustrate, probably better than +any other branches of the Government, the great gain in economy, +efficiency, and honesty due to the enforcement of this principle. + +I recommend the passage of a law which will extend the classified service +to the District of Columbia, or will at least enable the President thus to +extend it. In my judgment all laws providing for the temporary employment +of clerks should hereafter contain a provision that they be selected under +the Civil Service Law. + +It is important to have this system obtain at home, but it is even more +important to have it applied rigidly in our insular possessions. Not an +office should be filled in the Philippines or Puerto Rico with any regard +to the man's partisan affiliations or services, with any regard to the +political, social, or personal influence which he may have at his command; +in short, heed should be paid to absolutely nothing save the man's own +character and capacity and the needs of the service. + +The administration of these islands should be as wholly free from the +suspicion of partisan politics as the administration of the Army and Navy. +All that we ask from the public servant in the Philippines or Puerto Rico +is that he reflect honor on his country by the way in which he makes that +country's rule a benefit to the peoples who have come under it. This is all +that we should ask, and we cannot afford to be content with less. + +The merit system is simply one method of securing honest and efficient +administration of the Government; and in the long run the sole +justification of any type of government lies in its proving itself both +honest and efficient. + +The consular service is now organized under the provisions of a law passed +in 1856, which is entirely inadequate to existing conditions. The interest +shown by so many commercial bodies throughout the country in the +reorganization of the service is heartily commended to your attention. +Several bills providing for a new consular service have in recent years +been submitted to the Congress. They are based upon the just principle that +appointments to the service should be made only after a practical test of +the applicant's fitness, that promotions should be governed by +trustworthiness, adaptability, and zeal in the performance of duty, and +that the tenure of office should be unaffected by partisan considerations. + +The guardianship and fostering of our rapidly expanding foreign commerce, +the protection of American citizens resorting to foreign countries in +lawful pursuit of their affairs, and the maintenance of the dignity of the +nation abroad, combine to make it essential that our consuls should be men +of character, knowledge and enterprise. It is true that the service is now, +in the main, efficient, but a standard of excellence cannot be permanently +maintained until the principles set forth in the bills heretofore submitted +to the Congress on this subject are enacted into law. + +In my judgment the time has arrived when we should definitely make up our +minds to recognize the Indian as an individual and not as a member of a +tribe. The General Allotment Act is a mighty pulverizing engine to break up +the tribal mass. It acts directly upon the family and the individual. Under +its provisions some sixty thousand Indians have already become citizens of +the United States. We should now break up the tribal funds, doing for them +what allotment does for the tribal lands; that is, they should be divided +into individual holdings. There will be a transition period during which +the funds will in many cases have to be held in trust. This is the case +also with the lands. A stop should be put upon the indiscriminate +permission to Indians to lease their allotments. The effort should be +steadily to make the Indian work like any other man on his own ground. The +marriage laws of the Indians should be made the same as those of the +whites. + +In the schools the education should be elementary and largely industrial. +The need of higher education among the Indians is very, very limited. On +the reservations care should be taken to try to suit the teaching to the +needs of the particular Indian. There is no use in attempting to induce +agriculture in a country suited only for cattle raising, where the Indian +should be made a stock grower. The ration system, which is merely the +corral and the reservation system, is highly detrimental to the Indians. It +promotes beggary, perpetuates pauperism, and stifles industry. It is an +effectual barrier to progress. It must continue to a greater or less degree +as long as tribes are herded on reservations and have everything in common. +The Indian should be treated as an individual--like the white man. During +the change of treatment inevitable hardships will occur; every effort +should be made to minimize these hardships; but we should not because of +them hesitate to make the change. There should be a continuous reduction in +the number of agencies. + +In dealing with the aboriginal races few things are more important than to +preserve them from the terrible physical and moral degradation resulting +from the liquor traffic. We are doing all we can to save our own Indian +tribes from this evil. Wherever by international agreement this same end +can be attained as regards races where we do not possess exclusive control, +every effort should be made to bring it about. + +I bespeak the most cordial support from the Congress and the people for the +St. Louis Exposition to commemorate the One Hundredth Anniversary of the +Louisiana Purchase. This purchase was the greatest instance of expansion in +our history. It definitely decided that we were to become a great +continental republic, by far the foremost power in the Western Hemisphere. +It is one of three or four great landmarks in our history--the great +turning points in our development. It is eminently fitting that all our +people should join with heartiest good will in commemorating it, and the +citizens of St. Louis, of Missouri, of all the adjacent region, are +entitled to every aid in making the celebration a noteworthy event in our +annals. We earnestly hope that foreign nations will appreciate the deep +interest our country takes in this Exposition, and our view of its +importance from every standpoint, and that they will participate in +securing its success. The National Government should be represented by a +full and complete set of exhibits. + +The people of Charleston, with great energy and civic spirit, are carrying +on an Exposition which will continue throughout most of the present session +of the Congress. I heartily commend this Exposition to the good will of the +people. It deserves all the encouragement that can be given it. The +managers of the Charleston Exposition have requested the Cabinet officers +to place thereat the Government exhibits which have been at Buffalo, +promising to pay the necessary expenses. I have taken the responsibility of +directing that this be done, for I feel that it is due to Charleston to +help her in her praiseworthy effort. In my opinion the management should +not be required to pay all these expenses. I earnestly recommend that the +Congress appropriate at once the small sum necessary for this purpose. + +The Pan-American Exposition at Buffalo has just closed. Both from the +industrial and the artistic standpoint this Exposition has been in a high +degree creditable and useful, not merely to Buffalo but to the United +States. The terrible tragedy of the President's assassination interfered +materially with its being a financial success. The Exposition was +peculiarly in harmony with the trend of our public policy, because it +represented an effort to bring into closer touch all the peoples of the +Western Hemisphere, and give them an increasing sense of unity. Such an +effort was a genuine service to the entire American public. + +The advancement of the highest interests of national science and learning +and the custody of objects of art and of the valuable results of scientific +expeditions conducted by the United States have been committed to the +Smithsonian Institution. In furtherance of its declared purpose--for the +"increase and diffusion of knowledge among men" --the Congress has from +time to time given it other important functions. Such trusts have been +executed by the Institution with notable fidelity. There should be no halt +in the work of the Institution, in accordance with the plans which its +Secretary has presented, for the preservation of the vanishing races of +great North American animals in the National Zoological Park. The urgent +needs of the National Museum are recommended to the favorable consideration +of the Congress. + +Perhaps the most characteristic educational movement of the past fifty +years is that which has created the modern public library and developed it +into broad and active service. There are now over five thousand public +libraries in the United States, the product of this period. In addition to +accumulating material, they are also striving by organization, by +improvement in method, and by co-operation, to give greater efficiency to +the material they hold, to make it more widely useful, and by avoidance of +unnecessary duplication in process to reduce the cost of its +administration. + +In these efforts they naturally look for assistance to the Federal library, +which, though still the Library of Congress, and so entitled, is the one +national library of the United States. Already the largest single +collection of books on the Western Hemisphere, and certain to increase more +rapidly than any other through purchase, exchange, and the operation of the +copyright law, this library has a unique opportunity to render to the +libraries of this country--to American scholarship--service of the highest +importance. It is housed in a building which is the largest and most +magnificent yet erected for library uses. Resources are now being provided +which will develop the collection properly, equip it with the apparatus and +service necessary to its effective use, render its bibliographic work +widely available, and enable it to become, not merely a center of research, +but the chief factor in great co-operative efforts for the diffusion of +knowledge and the advancement of learning. + +For the sake of good administration, sound economy, and the advancement of +science, the Census Office as now constituted should be made a permanent +Government bureau. This would insure better, cheaper, and more satisfactory +work, in the interest not only of our business but of statistic, economic, +and social science. + +The remarkable growth of the postal service is shown in the fact that its +revenues have doubled and its expenditures have nearly doubled within +twelve years. Its progressive development compels constantly increasing +outlay, but in this period of business energy and prosperity its receipts +grow so much faster than its expenses that the annual deficit has been +steadily reduced from $11,411,779 in 1897 to $3,923,727 in 1901. Among +recent postal advances the success of rural free delivery wherever +established has been so marked, and actual experience has made its benefits +so plain, that the demand for its extension is general and urgent. + +It is just that the great agricultural population should share in the +improvement of the service. The number of rural routes now in operation is +6,009, practically all established within three years, and there are 6,000 +applications awaiting action. It is expected that the number in operation +at the close of the current fiscal year will reach 8,600. The mail will +then be daily carried to the doors of 5,700,000 of our people who have +heretofore been dependent upon distant offices, and one-third of all that +portion of the country which is adapted to it will be covered by this kind +of service. + +The full measure of postal progress which might be realized has long been +hampered and obstructed by the heavy burden imposed on the Government +through the intrenched and well-understood abuses which have grown up in +connection with second-class mail matter. The extent of this burden appears +when it is stated that while the second-class matter makes nearly +three-fifths of the weight of all the mail, it paid for the last fiscal +year only $4,294,445 of the aggregate postal revenue of $111,631,193. If +the pound rate of postage, which produces the large loss thus entailed, and +which was fixed by the Congress with the purpose of encouraging the +dissemination of public information, were limited to the legitimate +newspapers and periodicals actually contemplated by the law, no just +exception could be taken. That expense would be the recognized and accepted +cost of a liberal public policy deliberately adopted for a justifiable end. +But much of the matter which enjoys the privileged rate is wholly outside +of the intent of the law, and has secured admission only through an evasion +of its require. merits or through lax construction. The proportion of such +wrongly included matter is estimated by postal experts to be one-half of +the whole volume of second-class mail. If it be only one-third or +one-quarter, the magnitude of the burden is apparent. The Post-Office +Department has now undertaken to remove the abuses so far as is possible by +a stricter application of the law; and it should be sustained in its +effort. + +Owing to the rapid growth of our power and our interests on the Pacific, +whatever happens in China must be of the keenest national concern to us. + +The general terms of the settlement of the questions growing out of the +antiforeign uprisings in China of 1900, having been formulated in a joint +note addressed to China by the representatives of the injured powers in +December last, were promptly accepted by the Chinese Government. After +protracted conferences the plenipotentiaries of the several powers were +able to sign a final protocol with the Chinese plenipotentiaries on the 7th +of last September, setting forth the measures taken by China in compliance +with the demands of the joint note, and expressing their satisfaction +therewith. It will be laid before the Congress, with a report of the +plenipotentiary on behalf of the United States, Mr. William Woodville +Rockhill, to whom high praise is due for the tact, good judgment, and +energy he has displayed in performing an exceptionally difficult and +delicate task. + +The agreement reached disposes in a manner satisfactory to the powers of +the various grounds of complaint, and will contribute materially to better +future relations between China and the powers. Reparation has been made by +China for the murder of foreigners during the uprising and punishment has +been inflicted on the officials, however high in rank, recognized as +responsible for or having participated in the outbreak. Official +examinations have been forbidden for a period of five years in all cities +in which foreigners have been murdered or cruelly treated, and edicts have +been issued making all officials directly responsible for the future safety +of foreigners and for the suppression of violence against them. + +Provisions have been made for insuring the future safety of the foreign +representatives in Peking by setting aside for their exclusive use a +quarter of the city which the powers can make defensible and in which they +can if necessary maintain permanent military guards; by dismantling the +military works between the capital and the sea; and by allowing the +temporary maintenance of foreign military posts along this line. An edict +has been issued by the Emperor of China prohibiting for two years the +importation of arms and ammunition into China. China has agreed to pay +adequate indemnities to the states, societies, and individuals for the +losses sustained by them and for the expenses of the military expeditions +sent by the various powers to protect life and restore order. + +Under the provisions of the joint note of December, 1900, China has agreed +to revise the treaties of commerce and navigation and to take such other +steps for the purpose of facilitating foreign trade as the foreign powers +may decide to be needed. + +The Chinese Government has agreed to participate financially in the work of +bettering the water approaches to Shanghai and to Tientsin, the centers of +foreign trade in central and northern China, and an international +conservancy board, in which the Chinese Government is largely represented, +has been provided for the improvement of the Shanghai River and the control +of its navigation. In the same line of commercial advantages a revision of +the present tariff on imports has been assented to for the purpose of +substituting specific for ad valorem duties, and an expert has been sent +abroad on the part of the United States to assist in this work. A list of +articles to remain free of duty, including flour, cereals, and rice, gold +and silver coin and bullion, has also been agreed upon in the settlement. + +During these troubles our Government has unswervingly advocated moderation, +and has materially aided in bringing about an adjustment which tends to +enhance the welfare of China and to lead to a more beneficial intercourse +between the Empire and the modern world; while in the critical period of +revolt and massacre we did our full share in safe-guarding life and +property, restoring order, and vindicating the national interest and honor. +It behooves us to continue in these paths, doing what lies in our power to +foster feelings of good will, and leaving no effort untried to work out the +great policy of full and fair intercourse between China and the nations, on +a footing of equal rights and advantages to all. We advocate the "open +door" with all that it implies; not merely the procurement of enlarged +commercial opportunities on the coasts, but access to the interior by the +waterways with which China has been so extraordinarily favored. Only by +bringing the people of China into peaceful and friendly community of trade +with all the peoples of the earth can the work now auspiciously begun be +carried to fruition. In the attainment of this purpose we necessarily claim +parity of treatment, under the conventions, throughout the Empire for our +trade and our citizens with those of all other powers. + +We view with lively interest and keen hopes of beneficial results the +proceedings of the Pan-American Congress, convoked at the invitation of +Mexico, and now sitting at the Mexican capital. The delegates of the United +States are under the most liberal instructions to cooperate with their +colleagues in all matters promising advantage to the great family of +American commonwealths, as well in their relations among themselves as in +their domestic advancement and in their intercourse with the world at +large. + +My predecessor communicated to the Congress the fact that the Weil and La +Abra awards against Mexico have been adjudged by the highest courts of our +country to have been obtained through fraud and perjury on the part of the +claimants, and that in accordance with the acts of the Congress the money +remaining in the hands of the Secretary of State on these awards has been +returned to Mexico. A considerable portion of the money received from +Mexico on these awards had been paid by this Government to the claimants +before the decision of the courts was rendered. My judgment is that the +Congress should return to Mexico an amount equal to the sums thus already +paid to the claimants. + +The death of Queen Victoria caused the people of the United States deep and +heartfelt sorrow, to which the Government gave full expression. When +President McKinley died, our Nation in turn received from every quarter of +the British Empire expressions of grief and sympathy no less sincere. The +death of the Empress Dowager Frederick of Germany also aroused the genuine +sympathy of the American people; and this sympathy was cordially +reciprocated by Germany when the President was assassinated. Indeed, from +every quarter of the civilized world we received, at' the time of the +President's death, assurances of such grief and regard as to touch the +hearts of our people. In the midst of our affliction we reverently thank +the Almighty that we are at peace with the nations of mankind; and we +firmly intend that our policy shall be such as to continue unbroken these +international relations of mutual respect and good will. + +*** + +State of the Union Address +Theodore Roosevelt +December 2, 1902 + +To the Senate and House of Representatives: + +We still continue in a period of unbounded prosperity. This prosperity is +not the creature of law, but undoubtedly the laws under which we work have +been instrumental in creating the conditions which made it possible, and by +unwise legislation it would be easy enough to destroy it. There will +undoubtedly be periods of depression. The wave will recede; but the tide +will advance. This Nation is seated on a continent flanked by two great +oceans. It is composed of men the descendants of pioneers, or, in a sense, +pioneers themselves; of men winnowed out from among the nations of the Old +World by the energy, boldness, and love of adventure found in their own +eager hearts. Such a Nation, so placed, will surely wrest success from +fortune. + +As a people we have played a large part in the world, and we are bent upon +making our future even larger than the past. In particular, the events of +the last four years have definitely decided that, for woe or for weal, our +place must be great among the nations. We may either fall greatly or +succeed greatly; but we can not avoid the endeavor from which either great +failure or great success must come. Even if we would, we can not play a +small part. If we should try, all that would follow would be that we should +play a large part ignobly and shamefully. + +But our people, the sons of the men of the Civil War, the sons of the men +who had iron in their blood, rejoice in the present and face the future +high of heart and resolute of will. Ours is not the creed of the weakling +and the coward; ours is the gospel of hope and of triumphant endeavor. We +do not shrink from the struggle before us. There are many problems for us +to face at the outset of the twentieth century--grave problems abroad and +still graver at home; but we know that we can solve them and solve them +well, provided only that we bring to the solution the qualities of head and +heart which were shown by the men who, in the days of Washington, rounded +this Government, and, in the days of Lincoln, preserved it. + +No country has ever occupied a higher plane of material well-being than +ours at the present moment. This well-being is due to no sudden or +accidental causes, but to the play of the economic forces in this country +for over a century; to our laws, our sustained and continuous policies; +above all, to the high individual average of our citizenship. Great +fortunes have been won by those who have taken the lead in this phenomenal +industrial development, and most of these fortunes have been won not by +doing evil, but as an incident to action which has benefited the community +as a whole. Never before has material well-being been so widely diffused +among our people. Great fortunes have been accumulated, and yet in the +aggregate these fortunes are small Indeed when compared to the wealth of +the people as a whole. The plain people are better off than they have ever +been before. The insurance companies, which are practically mutual benefit +societies--especially helpful to men of moderate means--represent +accumulations of capital which are among the largest in this country. There +are more deposits in the savings banks, more owners of farms, more +well-paid wage-workers in this country now than ever before in our history. +Of course, when the conditions have favored the growth of so much that was +good, they have also favored somewhat the growth of what was evil. It is +eminently necessary that we should endeavor to cut out this evil, but let +us keep a due sense of proportion; let us not in fixing our gaze upon the +lesser evil forget the greater good. The evils are real and some of them +are menacing, but they are the outgrowth, not of misery or decadence, but +of prosperity--of the progress of our gigantic industrial development. This +industrial development must not be checked, but side by side with it should +go such progressive regulation as will diminish the evils. We should fail +in our duty if we did not try to remedy the evils, but we shall succeed +only if we proceed patiently, with practical common sense as well as +resolution, separating the good from the bad and holding on to the former +while endeavoring to get rid of the latter. + +In my Message to the present Congress at its first session I discussed at +length the question of the regulation of those big corporations commonly +doing an interstate business, often with some tendency to monopoly, which +are popularly known as trusts. The experience of the past year has +emphasized, in my opinion, the desirability of the steps I then proposed. A +fundamental requisite of social efficiency is a high standard of individual +energy and excellence; but this is in no wise inconsistent with power to +act in combination for aims which can not so well be achieved by the +individual acting alone. A fundamental base of civilization is the +inviolability of property; but this is in no wise inconsistent with the +right of society to regulate the exercise of the artificial powers which it +confers upon the owners of property, under the name of corporate +franchises, in such a way as to prevent the misuse of these powers. +Corporations, and especially combinations of corporations, should be +managed under public regulation. Experience has shown that under our system +of government the necessary supervision can not be obtained by State +action. It must therefore be achieved by national action. Our aim is not to +do away with corporations; on the contrary, these big aggregations are an +inevitable development of modern industrialism, and the effort to destroy +them would be futile unless accomplished in ways that would work the utmost +mischief to the entire body politic. We can do nothing of good in the way +of regulating and supervising these corporations until we fix clearly in +our minds that we are not attacking the corporations, but endeavoring to do +away with any evil in them. We are not hostile to them; we are merely +determined that they shall be so handled as to subserve the public good. We +draw the line against misconduct, not against wealth. The capitalist who, +alone or in conjunction with his fellows, performs some great industrial +feat by which he wins money is a welldoer, not a wrongdoer, provided only +he works in proper and legitimate lines. We wish to favor such a man when +he does well. We wish to supervise and control his actions only to prevent +him from doing ill. Publicity can do no harm to the honest corporation; and +we need not be over tender about sparing the dishonest corporation. + +In curbing and regulating the combinations of capital which are, or may +become, injurious to the public we must be careful not to stop the great +enterprises which have legitimately reduced the cost of production, not to +abandon the place which our country has won in the leadership of the +international industrial world, not to strike down wealth with the result +of closing factories and mines, of turning the wage-worker idle in the +streets and leaving the farmer without a market for what he grows. +Insistence upon the impossible means delay in achieving the possible, +exactly as, on the other hand, the stubborn defense alike of what is good +and what is bad in the existing system, the resolute effort to obstruct any +attempt at betterment, betrays blindness to the historic truth that wise +evolution is the sure safeguard against revolution. + +No more important subject can come before the Congress than this of the +regulation of interstate business. This country can not afford to sit +supine on the plea that under our peculiar system of government we are +helpless in the presence of the new conditions, and unable to grapple with +them or to cut out whatever of evil has arisen in connection with them. The +power of the Congress to regulate interstate commerce is an absolute and +unqualified grant, and without limitations other than those prescribed by +the Constitution. The Congress has constitutional authority to make all +laws necessary and proper for executing this power, and I am satisfied that +this power has not been exhausted by any legislation now on the statute +books. It is evident, therefore, that evils restrictive of commercial +freedom and entailing restraint upon national commerce fall within the +regulative power of the Congress, and that a wise and reasonable law would +be a necessary and proper exercise of Congressional authority to the end +that such evils should be eradicated. + +I believe that monopolies, unjust discriminations, which prevent or cripple +competition, fraudulent overcapitalization, and other evils in trust +organizations and practices which injuriously affect interstate trade can +be prevented under the power of the Congress to "regulate commerce with +foreign nations and among the several States" through regulations and +requirements operating directly upon such commerce, the instrumentalities +thereof, and those engaged therein. + +I earnestly recommend this subject to the consideration of the Congress +with a view to the passage of a law reasonable in its provisions and +effective in its operations, upon which the questions can be finally +adjudicated that now raise doubts as to the necessity of constitutional +amendment. If it prove impossible to accomplish the purposes above set +forth by such a law, then, assuredly, we should not shrink from amending +the Constitution so as to secure beyond peradventure the power sought. + +The Congress has not heretofore made any appropriation for the better +enforcement of the antitrust law as it now stands. Very much has been done +by the Department of Justice in securing the enforcement of this law, but +much more could be done if the Congress would make a special appropriation +for this purpose, to be expended under the direction of the +Attorney-General. + +One proposition advocated has been the reduction of the tariff as a means +of reaching the evils of the trusts which fall within the category I have +described. Not merely would this be wholly ineffective, but the diversion +of our efforts in such a direction would mean the abandonment of all +intelligent attempt to do away with these evils. Many of the largest +corporations, many of those which should certainly be included in any +proper scheme of regulation, would not be affected in the slightest degree +by a change in the tariff, save as such change interfered with the general +prosperity of the country. The only relation of the tariff to big +corporations as a whole is that the tariff makes manufactures profitable, +and the tariff remedy proposed would be in effect simply to make +manufactures unprofitable. To remove the tariff as a punitive measure +directed against trusts would inevitably result in ruin to the weaker +competitors who are struggling against them. Our aim should be not by +unwise tariff changes to give foreign products the advantage over domestic +products, but by proper regulation to give domestic competition a fair +chance; and this end can not be reached by any tariff changes which would +affect unfavorably all domestic competitors, good and bad alike. The +question of regulation of the trusts stands apart from the question of +tariff revision. + +Stability of economic policy must always be the prime economic need of this +country. This stability should not be fossilization. The country has +acquiesced in the wisdom of the protective-tariff principle. It is +exceedingly undesirable that this system should be destroyed or that there +should be violent and radical changes therein. Our past experience shows +that great prosperity in this country has always come under a protective +tariff; and that the country can not prosper under fitful tariff changes at +short intervals. Moreover, if the tariff laws as a whole work well, and if +business has prospered under them and is prospering, it is better to endure +for a time slight inconveniences and inequalities in some schedules than to +upset business by too quick and too radical changes. It is most earnestly +to be wished that we could treat the tariff from the standpoint solely of +our business needs. It is, perhaps, too much to hope that partisanship may +be entirely excluded from consideration of the subject, but at least it can +be made secondary to the business interests of the country--that is, to the +interests of our people as a whole. Unquestionably these business interests +will best be served if together with fixity of principle as regards the +tariff we combine a system which will permit us from time to time to make +the necessary reapplication of the principle to the shifting national +needs. We must take scrupulous care that the reapplication shall be made in +such a way that it will not amount to a dislocation of our system, the mere +threat of which (not to speak of the performance) would produce paralysis +in the business energies of the community. The first consideration in +making these changes would, of course, be to preserve the principle which +underlies our whole tariff system--that is, the principle of putting +American business interests at least on a full equality with interests +abroad, and of always allowing a sufficient rate of duty to more than cover +the difference between the labor cost here and abroad. The well-being of +the wage-worker, like the well-being of the tiller of the soil, should be +treated as an essential in shaping our whole economic policy. There must +never be any change which will jeopardize the standard of comfort, the +standard of wages of the American wage-worker. + +One way in which the readjustment sought can be reached is by reciprocity +treaties. It is greatly to be desired that such treaties may be adopted. +They can be used to widen our markets and to give a greater field for the +activities of our producers on the one hand, and on the other hand to +secure in practical shape the lowering of duties when they are no longer +needed for protection among our own people, or when the minimum of damage +done may be disregarded for the sake of the maximum of good accomplished. +If it prove impossible to ratify the pending treaties, and if there seem to +be no warrant for the endeavor to execute others, or to amend the pending +treaties so that they can be ratified, then the same end--to secure +reciprocity--should be met by direct legislation. + +Wherever the tariff conditions are such that a needed change can not with +advantage be made by the application of the reciprocity idea, then it can +be made outright by a lowering of duties on a given product. If possible, +such change should be made only after the fullest consideration by +practical experts, who should approach the subject from a business +standpoint, having in view both the particular interests affected and the +commercial well-being of the people as a whole. The machinery for providing +such careful investigation can readily be supplied. The executive +department has already at its disposal methods of collecting facts and +figures; and if the Congress desires additional consideration to that which +will be given the subject by its own committees, then a commission of +business experts can be appointed whose duty it should be to recommend +action by the Congress after a deliberate and scientific examination of the +various schedules as they are affected by the changed and changing +conditions. The unhurried and unbiased report of this commission would show +what changes should be made in the various schedules, and how far these +changes could go without also changing the great prosperity which this +country is now enjoying, or upsetting its fixed economic policy. + +The cases in which the tariff can produce a monopoly are so few as to +constitute an inconsiderable factor in the question; but of course if in +any case it be found that a given rate of duty does promote a monopoly +which works ill, no protectionist would object to such reduction of the +duty as would equalize competition. + +In my judgment, the tariff on anthracite coal should be removed, and +anthracite put actually, where it now is nominally, on the free list. This +would have no effect at all save in crises; but in crises it might be of +service to the people. + +Interest rates are a potent factor in business activity, and in order that +these rates may be equalized to meet the varying needs of the seasons and +of widely separated communities, and to prevent the recurrence of financial +stringencies which injuriously affect legitimate business, it is necessary +that there should be an element of elasticity in our monetary system. Banks +are the natural servants of commerce, and upon them should be placed, as +far as practicable, the burden of furnishing and maintaining a circulation +adequate to supply the needs of our diversified industries and of our +domestic and foreign commerce; and the issue of this should be so regulated +that a sufficient supply should be always available for the business +interests of the country. + +It would be both unwise and unnecessary at this time to attempt to +reconstruct our financial system, which has been the growth of a century; +but some additional legislation is, I think, desirable. The mere outline of +any plan sufficiently comprehensive to meet these requirements would +transgress the appropriate limits of this communication. It is suggested, +however, that all future legislation on the subject should be with the view +of encouraging the use of such instrumentalities as will automatically +supply every legitimate demand of productive industries and of commerce, +not only in the amount, but in the character of circulation; and of making +all kinds of money interchangeable, and, at the will of the holder, +convertible into the established gold standard. + +I again call your attention to the need of passing a proper immigration +law, covering the points outlined in my Message to you at the first session +of the present Congress; substantially such a bill has already passed the +House. + +How to secure fair treatment alike for labor and for capital, how to hold +in check the unscrupulous man, whether employer or employee, without +weakening individual initiative, without hampering and cramping the +industrial development of the country, is a problem fraught with great +difficulties and one which it is of the highest importance to solve on +lines of sanity and far-sighted common sense as well as of devotion to the +right. This is an era of federation and combination. Exactly as business +men find they must often work through corporations, and as it is a constant +tendency of these corporations to grow larger, so it is often necessary for +laboring men to work in federations, and these have become important +factors of modern industrial life. Both kinds of federation, capitalistic +and labor, can do much good, and as a necessary corollary they can both do +evil. Opposition to each kind of organization should take the form of +opposition to whatever is bad in the conduct of any given corporation or +union--not of attacks upon corporations as such nor upon unions as such; +for some of the most far-reaching beneficent work for our people has been +accomplished through both corporations and unions. Each must refrain from +arbitrary or tyrannous interference with the rights of others. Organized +capital and organized labor alike should remember that in the long run the +interest of each must be brought into harmony with the interest of the +general public; and the conduct of each must conform to the fundamental +rules of obedience to the law, of individual freedom, and of justice and +fair dealing toward all. Each should remember that in addition to power it +must strive after the realization of healthy, lofty, and generous ideals. +Every employer, every wage-worker, must be guaranteed his liberty and his +right to do as he likes with his property or his labor so long as he does +not infringe upon the rights of others. It is of the highest importance +that employer and employee alike should endeavor to appreciate each the +viewpoint of the other and the sure disaster that will come upon both in +the long run if either grows to take as habitual an attitude of sour +hostility and distrust toward the other. Few people deserve better of the +country than those representatives both of capital and labor--and there are +many such--who work continually to bring about a good understanding of this +kind, based upon wisdom and upon broad and kindly sympathy between +employers and employed. Above all, we need to remember that any kind of +class animosity in the political world is, if possible, even more wicked, +even more destructive to national welfare, than sectional, race, or +religious animosity. We can get good government only upon condition that we +keep true to the principles upon which this Nation was founded, and judge +each man not as a part of a class, but upon his individual merits. All that +we have a right to ask of any man, rich or poor, whatever his creed, his +occupation, his birthplace, or his residence, is that he shall act well and +honorably by his neighbor and by, his country. We are neither for the rich +man as such nor for the poor man as such; we are for the upright man, rich +or poor. So far as the constitutional powers of the National Government +touch these matters of general and vital moment to the Nation, they should +be exercised in conformity with the principles above set forth. + +It is earnestly hoped that a secretary of commerce may be created, with a +seat in the Cabinet. The rapid multiplication of questions affecting labor +and capital, the growth and complexity of the organizations through which +both labor and capital now find expression, the steady tendency toward the +employment of capital in huge corporations, and the wonderful strides of +this country toward leadership in the international business world justify +an urgent demand for the creation of such a position. Substantially all the +leading commercial bodies in this country have united in requesting its +creation. It is desirable that some such measure as that which has already +passed the Senate be enacted into law. The creation of such a department +would in itself be an advance toward dealing with and exercising +supervision over the whole subject of the great corporations doing an +interstate business; and with this end in view, the Congress should endow +the department with large powers, which could be increased as experience +might show the need. + +I hope soon to submit to the Senate a reciprocity treaty with Cuba. On May +20 last the United States kept its promise to the island by formally +vacating Cuban soil and turning Cuba over to those whom her own people had +chosen as the first officials of the new Republic. + +Cuba lies at our doors, and whatever affects her for good or for ill +affects us also. So much have our people felt this that in the Platt +amendment we definitely took the ground that Cuba must hereafter have +closer political relations with us than with any other power. Thus in a +sense Cuba has become a part of our international political system. This +makes it necessary that in return she should be given some of the benefits +of becoming part of our economic system. It is, from our own standpoint, a +short-sighted and mischievous policy to fail to recognize this need. +Moreover, it is unworthy of a mighty and generous nation, itself the +greatest and most successful republic in history, to refuse to stretch out +a helping hand to a young and weak sister republic just entering upon its +career of independence. We should always fearlessly insist upon our rights +in the face of the strong, and we should with ungrudging hand do our +generous duty by the weak. I urge the adoption of reciprocity with Cuba not +only because it is eminently for our own interests to control the Cuban +market and by every means to foster our supremacy in the tropical lands and +waters south of us, but also because we, of of the giant republic of the +north, should make all our sister nations of the American Continent feel +that whenever they will permit it we desire to show ourselves +disinterestedly and effectively their friend. + +A convention with Great Britain has been concluded, which will be at once +laid before the Senate for ratification, providing for reciprocal trade +arrangements between the United States and Newfoundland on substantially +the lines of the convention formerly negotiated by the Secretary of State, +Mr. Blaine. I believe reciprocal trade relations will be greatly to the +advantage of both countries. + +As civilization grows warfare becomes less and less the normal condition of +foreign relations. The last century has seen a marked diminution of wars +between civilized powers; wars with uncivilized powers are largely mere +matters of international police duty, essential for, the welfare of the +world. Wherever possible, arbitration or some similar method should be +employed in lieu of war to settle difficulties between civilized nations, +although as yet the world has not progressed sufficiently to render it +possible, or necessarily desirable, to invoke arbitration in every case. +The formation of the international tribunal which sits at The Hague is an +event of good omen from which great consequences for the welfare of all +mankind may flow. It is far better, where possible, to invoke such a +permanent tribunal than to create special arbitrators for a given purpose. + +It is a matter of sincere congratulation to our country that the United +States and Mexico should have been the first to use the good offices of The +Hague Court. This was done last summer with most satisfactory results in +the case of a claim at issue between us and our sister Republic. It is +earnestly to be hoped that this first case will serve as a precedent for +others, in which not only the United States but foreign nations may take +advantage of the machinery already in existence at The Hague. + +I commend to the favorable consideration of the Congress the Hawaiian fire +claims, which were the subject of careful investigation during the last +session. + +The Congress has wisely provided that we shall build at once an isthmian +canal, if possible at Panama. The Attorney-General reports that we can +undoubtedly acquire good title from the French Panama Canal Company. +Negotiations are now pending with Colombia to secure her assent to our +building the canal. This canal will be one of the greatest engineering +feats of the twentieth century; a greater engineering feat than has yet +been accomplished during the history of mankind. The work should be carried +out as a continuing policy without regard to change of Administration; and +it should be begun under circumstances which will make it a matter of pride +for all Administrations to continue the policy. + +The canal will be of great benefit to America, and of importance to all the +world. It will be of advantage to us industrially and also as improving our +military position. It will be of advantage to the countries of tropical +America. It is earnestly to be hoped that all of these countries will do as +some of them have already done with signal success, and will invite to +their shores commerce and improve their material conditions by recognizing +that stability and order are the prerequisites of successful development. +No independent nation in America need have the slightest fear of aggression +from the United States. It behoves each one to maintain order within its +own borders and to discharge its just obligations to foreigners. When this +is done, they can rest assured that, be they strong or weak, they have +nothing to dread from outside interference. More and more the increasing +interdependence and complexity of international political and economic +relations render it incumbent on all civilized and orderly powers to insist +on the proper policing of the world. + +During the fall of 1901 a communication was addressed to the Secretary of +State, asking whether permission would be granted by the President to a +corporation to lay a cable from a point on the California coast to the +Philippine Islands by way of Hawaii. A statement of conditions or terms +upon which such corporation would undertake to lay and operate a cable was +volunteered. + +Inasmuch as the Congress was shortly to convene, and Pacific-cable +legislation had been the subject of consideration by the Congress for +several years, it seemed to me wise to defer action upon the application +until the Congress had first an opportunity to act. The Congress adjourned +without taking any action, leaving the matter in exactly the same condition +in which it stood when the Congress convened. + +Meanwhile it appears that the Commercial Pacific Cable Company had promptly +proceeded with preparations for laying its cable. It also made application +to the President for access to and use of soundings taken by the U. S. S. +Nero, for the purpose of discovering a practicable route for a +trans-Pacific cable, the company urging that with access to these soundings +it could complete its cable much sooner than if it were required to take +soundings upon its own account. Pending consideration of this subject, it +appeared important and desirable to attach certain conditions to the +permission to examine and use the soundings, if it should be granted. + +In consequence of this solicitation of the cable company, certain +conditions were formulated, upon which the President was willing to allow +access to these soundings and to consent to the landing and laying of the +cable, subject to any alterations or additions thereto imposed by the +Congress. This was deemed proper, especially as it was clear that a cable +connection of some kind with China, a foreign country, was a part of the +company's plan. This course was, moreover, in accordance with a line of +precedents, including President Grant's action in the case of the first +French cable, explained to the Congress in his Annual Message of December, +1875, and the instance occurring in 1879 of the second French cable from +Brest to St. Pierre, with a branch to Cape Cod. + +These conditions prescribed, among other things, a maximum rate for +commercial messages and that the company should construct a line from the +Philippine Islands to China, there being at present, as is well known, a +British line from Manila to Hongkong. + +The representatives of the cable company kept these conditions long under +consideration, continuing, in the meantime, to prepare for laying the +cable. They have, however, at length acceded to them, and an all-American +line between our Pacific coast and the Chinese Empire, by way of Honolulu +and the Philippine Islands, is thus provided for, and is expected within a +few months to be ready for business. + +Among the conditions is one reserving the power of the Congress to modify +or repeal any or all of them. A copy of the conditions is herewith +transmitted. + +Of Porto Rico it is only necessary to say that the prosperity of the island +and the wisdom with which it has been governed have been such as to make it +serve as an example of all that is best in insular administration. + +On July 4 last, on the one hundred and twenty-sixth anniversary of the +declaration of our independence, peace and amnesty were promulgated in the +Philippine Islands. Some trouble has since from time to time threatened +with the Mohammedan Moros, but with the late insurrectionary Filipinos the +war has entirely ceased. Civil government has now been introduced. Not only +does each Filipino enjoy such rights to life, liberty, and the pursuit of +happiness as he has never before known during the recorded history of the +islands, but the people taken as a whole now enjoy a measure of +self-government greater than that granted to any other Orientals by any +foreign power and greater than that enjoyed by any other Orientals under +their own governments, save the Japanese alone. We have not gone too far in +granting these rights of liberty and self-government; but we have certainly +gone to the limit that in the interests of the Philippine people themselves +it was wise or just to go. To hurry matters, to go faster than we are now +going, would entail calamity on the people of the islands. No policy ever +entered into by the American people has vindicated itself in more signal +manner than the policy of holding the Philippines. The triumph of our arms, +above all the triumph of our laws and principles, has come sooner than we +had any right to expect. Too much praise can not be given to the Army for +what it has done in the Philippines both in warfare and from an +administrative standpoint in preparing the way for civil government; and +similar credit belongs to the civil authorities for the way in which they +have planted the seeds of self-government in the ground thus made ready for +them. The courage, the unflinching endurance, the high soldierly +efficiency; and the general kind-heartedness and humanity of our troops +have been strikingly manifested. There now remain only some fifteen +thousand troops in the islands. All told, over one hundred thousand have +been sent there. Of course, there have been individual instances of +wrongdoing among them. They warred under fearful difficulties of climate +and surroundings; and under the strain of the terrible provocations which +they continually received from their foes, occasional instances of cruel +retaliation occurred. Every effort has been made to prevent such cruelties, +and finally these efforts have been completely successful. Every effort has +also been made to detect and punish the wrongdoers. After making all +allowance for these misdeeds, it remains true that few indeed have been the +instances in which war has been waged by a civilized power against +semicivilized or barbarous forces where there has been so little wrongdoing +by the victors as in the Philippine Islands. On the other hand, the amount +of difficult, important, and beneficent work which has been done is +well-nigh incalculable. + +Taking the work of the Army and the civil authorities together, it may be +questioned whether anywhere else in modern times the world has seen a +better example of real constructive statesmanship than our people have +given in the Philippine Islands. High praise should also be given those +Filipinos, in the aggregate very numerous, who have accepted the new +conditions and joined with our representatives to work with hearty good +will for the welfare of the islands. + +The Army has been reduced to the minimum allowed by law. It is very small +for the size of the Nation, and most certainly should be kept at the +highest point of efficiency. The senior officers are given scant chance +under ordinary conditions to exercise commands commensurate with their +rank, under circumstances which would fit them to do their duty in time of +actual war. A system of maneuvering our Army in bodies of some little size +has been begun and should be steadily continued. Without such maneuvers it +is folly to expect that in the event of hostilities with any serious foe +even a small army corps could be handled to advantage. Both our officers +and enlisted men are such that we can take hearty pride in them. No better +material can be found. But they must be thoroughly trained, both as +individuals and in the mass. The marksmanship of the men must receive +special attention. In the circumstances of modern warfare the man must act +far more on his own individual responsibility than ever before, and the +high individual efficiency of the unit is of the utmost importance. +Formerly this unit was the regiment; it is now not the regiment, not even +the troop or company; it is the individual soldier. Every effort must be +made to develop every workmanlike and soldierly quality in both the officer +and the enlisted man. + +I urgently call your attention to the need of passing a bill providing for +a general staff and for the reorganization of the supply departments on the +lines of the bill proposed by the Secretary of War last year. When the +young officers enter the Army from West Point they probably stand above +their compeers in any other military service. Every effort should be made, +by training, by reward of merit, by scrutiny into their careers and +capacity, to keep them of the same high relative excellence throughout +their careers. + +Messages and Papers of the Presidents, Theodore Roosevelt, vol. 9, p.6761 - +p.6762 + +The measure providing for the reorganization of the militia system and for +securing the highest efficiency in the National Guard, which has already +passed the House, should receive prompt attention and action. It is of +great importance that the relation of the National Guard to the militia and +volunteer forces of the United States should be defined, and that in place +of our present obsolete laws a practical and efficient system should be +adopted. + +Provision should be made to enable the Secretary of War to keep cavalry and +artillery horses, worn-out in long performance of duty. Such horses fetch +but a trifle when sold; and rather than turn them out to the misery +awaiting them when thus disposed of, it would be better to employ them at +light work around the posts, and when necessary to put them painlessly to +death. + +For the first time in our history naval maneuvers on a large scale are +being held under the immediate command of the Admiral of the Navy. +Constantly increasing attention is being paid to the gunnery of the Navy, +but it is yet far from what it should be. I earnestly urge that the +increase asked for by the Secretary of the Navy in the appropriation for +improving the markmanship be granted. In battle the only shots that count +are the shots that hit. It is necessary to provide ample funds for practice +with the great guns in time of peace. These funds must provide not only for +the purchase of projectiles, but for allowances for prizes to encourage the +gun crews, and especially the gun pointers, and for perfecting an +intelligent system under which alone it is possible to get good practice. + +There should be no halt in the work of building up the Navy, providing +every year additional fighting craft. We are a very rich country, vast in +extent of territory and great in population; a country, moreover, which has +an Army diminutive indeed when compared with that of any other first-class +power. We have deliberately made our own certain foreign policies which +demand the possession of a first-class navy. The isthmian canal will +greatly increase the efficiency of our Navy if the Navy is of sufficient +size; but if we have an inadequate navy, then the building of the canal +would be merely giving a hostage to any power of superior strength. The +Monroe Doctrine should be treated as the cardinal feature of American +foreign policy; but it would be worse than idle to assert it unless we +intended to back it up, and it can be backed up only by a thoroughly good +navy. A good navy is not a provocative of war. It is the surest guaranty of +peace. + +Each individual unit of our Navy should be the most efficient of its kind +as regards both material and personnel that is to be found in the world. I +call your special attention to the need of providing for the manning of the +ships. Serious trouble threatens us if we can not do better than we are now +doing as regards securing the services of a sufficient number of the +highest type of sailormen, of sea mechanics. The veteran seamen of our war +ships are of as high a type as can be found in any navy which rides the +waters of the world; they are unsurpassed in daring, in resolution, in +readiness, in thorough knowledge of their profession. They deserve every +consideration that can be shown them. But there are not enough of them. It +is no more possible to improvise a crew than it is possible to improvise a +war ship. To build the finest ship, with the deadliest battery, and to send +it afloat with a raw crew, no matter how brave they were individually, +would be to insure disaster if a foe of average capacity were encountered. +Neither ships nor men can be improvised when war has begun. + +We need a thousand additional officers in order to properly man the ships +now provided for and under construction. The classes at the Naval School at +Annapolis should be greatly enlarged. At the same time that we thus add the +officers where we need them, we should facilitate the retirement of those +at the head of the list whose usefulness has become impaired. Promotion +must be fostered if the service is to be kept efficient. + +The lamentable scarcity of officers, and the large number of recruits and +of unskilled men necessarily put aboard the new vessels as they have been +commissioned, has thrown upon our officers, and especially on the +lieutenants and junior grades, unusual labor and fatigue and has gravely +strained their powers of endurance. Nor is there sign of any immediate +let-up in this strain. It must continue for some time longer, until more +officers are graduated from Annapolis, and until the recruits become +trained and skillful in their duties. In these difficulties incident upon +the development of our war fleet the conduct of all our officers has been +creditable to the service, and the lieutenants and junior grades in +particular have displayed an ability and a steadfast cheerfulness which +entitles them to the ungrudging thanks of all who realize the disheartening +trials and fatigues to which they are of necessity subjected. + +There is not a cloud on the horizon at present. There seems not the +slightest chance of trouble with a foreign power. We most earnestly hope +that this state of things may continue; and the way to insure its +continuance is to provide for a thoroughly efficient navy. The refusal to +maintain such a navy would invite trouble, and if trouble came would insure +disaster. Fatuous self-complacency or vanity, or short-sightedness in +refusing to prepare for danger, is both foolish and wicked in such a nation +as ours; and past experience has shown that such fatuity in refusing to +recognize or prepare for any crisis in advance is usually succeeded by a +mad panic of hysterical fear once the crisis has actually arrived. + +The striking increase in the revenues of the Post-Office Department shows +clearly the prosperity of our people and the increasing activity of the +business of the country. + +The receipts of the Post-Office Department for the fiscal year ending June +30 last amounted to $121,848,047.26, an increase of $10,216,853.87 over the +preceding year, the largest increase known in the history of the postal +service. The magnitude of this increase will best appear from the fact that +the entire postal receipts for the year 1860 amounted to but $8,518,067. + +Rural free-delivery service is no longer in the experimental stage; it has +become a fixed policy. The results following its introduction have fully +justified the Congress in the large appropriations made for its +establishment and extension. The average yearly increase in post-office +receipts in the rural districts of the country is about two per cent. We +are now able, by actual results, to show that where rural free-delivery +service has been established to such an extent as to enable us to make +comparisons the yearly increase has been upward of ten per cent. + +On November 1, 1902, 11,650 rural free-delivery routes had been established +and were in operation, covering about one-third of the territory of the +United States available for rural free-delivery service. There are now +awaiting the action of the Department petitions and applications for the +establishment of 10,748 additional routes. This shows conclusively the want +which the establishment of the service has met and the need of further +extending it as rapidly as possible. It is justified both by the financial +results and by the practical benefits to our rural population; it brings +the men who live on the soil into close relations with the active business +world; it keeps the farmer in daily touch with the markets; it is a +potential educational force; it enhances the value of farm property, makes +farm life far pleasanter and less isolated, and will do much to check the +undesirable current from country to city. + +It is to be hoped that the Congress will make liberal appropriations for +the continuance of the service already established and for its further +extension. + +Few subjects of more importance have been taken up by the Congress in +recent years than the inauguration of the system of nationally-aided +irrigation for the arid regions of the far West. A good beginning therein +has been made. Now that this policy of national irrigation has been +adopted, the need of thorough and scientific forest protection will grow +more rapidly than ever throughout the public-land States. + +Legislation should be provided for the protection of the game, and the wild +creatures generally, on the forest reserves. The senseless slaughter of +game, which can by judicious protection be permanently preserved on our +national reserves for the people as a whole, should be stopped at once. It +is, for instance, a serious count against our national good sense to permit +the present practice of butchering off such a stately and beautiful +creature as the elk for its antlers or tusks. + +So far as they are available for agriculture, and to whatever extent they +may be reclaimed under the national irrigation law, the remaining public +lands should be held rigidly for the home builder, the settler who lives on +his land, and for no one else. In their actual use the desert-land law, the +timber and stone law, and the commutation clause of the homestead law have +been so perverted from the intention with which they were enacted as to +permit the acquisition of large areas of the public domain for other than +actual settlers and the consequent prevention of settlement. Moreover, the +approaching exhaustion of the public ranges has of late led to much +discussion as to the best manner of using these public lands in the West +which are suitable chiefly or only for grazing. The sound and steady +development of the West depends upon the building up of homes therein. Much +of our prosperity as a nation has been due to the operation of the +homestead law. On the other hand, we should recognize the fact that in the +grazing region the man who corresponds to the homesteader may be unable to +settle permanently if only allowed to use the same amount of pasture land +that his brother, the homesteader, is allowed to use of arable land. One +hundred and sixty acres of fairly rich and well-watered soil, or a much +smaller amount of irrigated land, may keep a family in plenty, whereas no +one could get a living from one hundred and sixty acres of dry pasture land +capable of supporting at the outside only one head of cattle to every ten +acres. In the past great tracts of the public domain have been fenced in by +persons having no title thereto, in direct defiance of the law forbidding +the maintenance or construction of any such unlawful inclosure of public +land. For various reasons there has been little interference with such +inclosures in the past, but ample notice has now been given the +trespassers, and all the resources at the command of the Government will +hereafter be used to put a stop to such trespassing. + +In view of the capital importance of these matters, I commend them to the +earnest consideration of the Congress, and if the Congress finds difficulty +in dealing with them from lack of thorough knowledge of the subject, I +recommend that provision be made for a commission of experts specially to +investigate and report upon the complicated questions involved. + +I especially urge upon the Congress the need of wise legislation for +Alaska. It is not to our credit as a nation that Alaska, which has been +ours for thirty-five years, should still have as poor a system Of laws as +is the case. No country has a more valuable possession-- in mineral wealth, +in fisheries, furs, forests, and also in land available for certain kinds +of farming and stockgrowing. It is a territory of great size and varied +resources, well fitted to support a large permanent population. Alaska +needs a good land law and such provisions for homesteads and pre-emptions +as will encourage permanent settlement. We should shape legislation with a +view not to the exploiting and abandoning of the territory, but to the +building up of homes therein. The land laws should be liberal in type, so +as to hold out inducements to the actual settler whom we most desire to see +take possession of the country. The forests of Alaska should be protected, +and, as a secondary but still important matter, the game also, and at the +same time it is imperative that the settlers should be allowed to cut +timber, under proper regulations, for their own use. Laws should be enacted +to protect the Alaskan salmon fisheries against the greed which would +destroy them. They should be preserved as a permanent industry and food +supply. Their management and control should be turned over to the +Commission of Fish and Fisheries. Alaska should have a Delegate in the +Congress. It would be well if a Congressional committee could visit Alaska +and investigate its needs on the ground. + +In dealing with the Indians our aim should be their ultimate absorption +into the body of our people. But in many cases this absorption must and +should be very slow. In portions of the Indian Territory the mixture of +blood has gone on at the same time with progress in wealth and education, +so that there are plenty of men with varying degrees of purity of Indian +blood who are absolutely indistinguishable in point of social, political, +and economic ability from their white associates. There are other tribes +which have as yet made no perceptible advance toward such equality. To try +to force such tribes too fast is to prevent their going forward at all. +Moreover, the tribes live under widely different conditions. Where a tribe +has made considerable advance and lives on fertile farming soil it is +possible to allot the members lands in severalty much as is the case with +white settlers. There are other tribes where such a course is not +desirable. On the arid prairie lands the effort should be to induce the +Indians to lead pastoral rather than agricultural lives, and to permit them +to settle in villages rather than to force them into isolation. + +The large Indian schools situated remote from any Indian reservation do a +special and peculiar work of great importance. But, excellent though these +are, an immense amount of additional work must be done on the reservations +themselves among the old, and above all among the young, Indians. + +The first and most important step toward the absorption of the Indian is to +teach him to earn his living; yet it is not necessarily to be assumed that +in each community all Indians must become either tillers of the soil or +stock raisers. Their industries may properly be diversified, and those who +show special desire or adaptability for industrial or even commercial +pursuits should be encouraged so far as practicable to follow out each his +own bent. + +Every effort should be made to develop the Indian along the lines of +natural aptitude, and to encourage the existing native industries peculiar +to certain tribes, such as the various kinds of basket weaving, canoe +building, smith work, and blanket work. Above all, the Indian boys and +girls should be given confident command of colloquial English, and should +ordinarily be prepared for a vigorous struggle with the conditions under +which their people live, rather than for immediate absorption into some +more highly developed community. + +The officials who represent the Government in dealing with the Indians work +under hard conditions, and also under conditions which render it easy to do +wrong and very difficult to detect wrong. Consequently they should be amply +paid on the one hand, and on the other hand a particularly high standard of +conduct should be demanded from them, and where misconduct can be proved +the punishment should be exemplary. + +In no department of governmental work in recent years has there been +greater success than in that of giving scientific aid to the farming +population, thereby showing them how most efficiently to help themselves. +There is no need of insisting upon its importance, for the welfare of the +farmer is fundamentally necessary to the welfare of the Republic as a +whole. In addition to such work as quarantine against animal and vegetable +plagues, and warring against them when here introduced, much efficient help +has been rendered to the farmer by the introduction of new plants specially +fitted for cultivation under the peculiar conditions existing in different +portions of the country. New cereals have been established in the semi-arid +West. For instance, the practicability of producing the best types of +macaroni wheats in regions of an annual rainfall of only ten inches or +thereabouts has been conclusively demonstrated. Through the introduction of +new rices in Louisiana and Texas the production of rice in this country has +been made to about equal the home demand. In the South-west the possibility +of regrassing overstocked range lands has been demonstrated; in the North +many new forage crops have been introduced, while in the East it has been +shown that some of our choicest fruits can be stored and shipped in such a +way as to find a profitable market abroad. + +I again recommend to the favorable consideration of the Congress the plans +of the Smithsonian Institution for making the Museum under its charge +worthy of the Nation, and for preserving at the National Capital not only +records of the vanishing races of men but of the animals of this continent +which, like the buffalo, will soon become extinct unless specimens from +which their representatives may be renewed are sought in their native +regions and maintained there in safety. + +The District of Columbia is the only part of our territory in which the +National Government exercises local or municipal functions, and where in +consequence the Government has a free hand in reference to certain types of +social and economic legislation which must be essentially local or +municipal in their character. The Government should see to it, for +instance, that the hygienic and sanitary legislation affecting Washington +is of a high character. The evils of slum dwellings, whether in the shape +of crowded and congested tenement-house districts or of the back-alley +type, should never be permitted to grow up in Washington. The city should +be a model in every respect for all the cities of the country. The +charitable and correctional systems of the District should receive +consideration at the hands of the Congress to the end that they may embody +the results of the most advanced thought in these fields. Moreover, while +Washington is not a great industrial city, there is some industrialism +here, and our labor legislation, while it would not be important in itself, +might be made a model for the rest of the Nation. We should pass, for +instance, a wise employer's-liability act for the District of Columbia, and +we need such an act in our navy-yards. Railroad companies in the District +ought to be required by law to block their frogs. + +The safety-appliance law, for the better protection of the lives and limbs +of railway employees, which was passed in 1893, went into full effect on +August 1, 1901. It has resulted in averting thousands of casualties. +Experience shows, however, the necessity of additional legislation to +perfect this law. A bill to provide for this passed the Senate at the last +session. It is to be hoped that some such measure may now be enacted into +law. + +There is a growing tendency to provide for the publication of masses of +documents for which there is no public demand and for the printing of which +there is no real necessity. Large numbers of volumes are turned out by the +Government printing presses for which there is no justification. Nothing +should be printed by any of the Departments unless it contains something of +permanent value, and the Congress could with advantage cut down very +materially on all the printing which it has now become customary to +provide. The excessive cost of Government printing is a strong argument +against the position of those who are inclined on abstract grounds to +advocate the Government's doing any work which can with propriety be left +in private hands. + +Gratifying progress has been made during the year in the extension of the +merit system of making appointments in the Government service. It should be +extended by law to the District of Columbia. It is much to be desired that +our consular system be established by law on a basis providing for +appointment and promotion only in consequence of proved fitness. + +Through a wise provision of the Congress at its last session the White +House, which had become disfigured by incongruous additions and changes, +has now been restored to what it was planned to be by Washington. In making +the restorations the utmost care has been exercised to come as near as +possible to the early plans and to supplement these plans by a careful +study of such buildings as that of the University of Virginia, which was +built by Jefferson. The White House is the property of the Nation, and so +far as is compatible with living therein it should be kept as it originally +was, for the same. reasons that we keep Mount Vernon as it originally was. +The stately simplicity of its architecture is an expression of the +character of the period in which it was built, and is in accord with the +purposes it was designed to serve. It is a good thing to preserve such +buildings as historic monuments which keep alive our sense of continuity +with the Nation's past. + +The reports of the several Executive Departments are submitted to the +Congress with this communication. + +*** + +State of the Union Address +Theodore Roosevelt +December 7, 1903 + +To the Senate and House of Representatives: + +The country is to be congratulated on the amount of substantial achievement +which has marked the past year both as regards our foreign and as regards +our domestic policy. + +With a nation as with a man the most important things are those of the +household, and therefore the country is especially to be congratulated on +what has been accomplished in the direction of providing for the exercise +of supervision over the great corporations and combinations of corporations +engaged in interstate commerce. The Congress has created the Department of +Commerce and Labor, including the Bureau of Corporations, with for the +first time authority to secure proper publicity of such proceedings of +these great corporations as the public has the right to know. It has +provided for the expediting of suits for the enforcement of the Federal +anti-trust law; and by another law it has secured equal treatment to all +producers in the transportation of their goods, thus taking a long stride +forward in making effective the work of the Interstate Commerce +Commission. + +The establishment of the Department of Commerce and Labor, with the Bureau +of Corporations thereunder, marks a real advance in the direction of doing +all that is possible for the solution of the questions vitally affecting +capitalists and wage-workers. The act creating Department was approved on +February 14, 1903, and two days later the head of the Department was +nominated and confirmed by the Senate. Since then the work of organization +has been pushed as rapidly as the initial appropriations permitted, and +with due regard to thoroughness and the broad purposes which the Department +is designed to serve. After the transfer of the various bureaus and +branches to the Department at the beginning of the current fiscal year, as +provided for in the act, the personnel comprised 1,289 employees in +Washington and 8,836 in the country at large. The scope of the Department's +duty and authority embraces the commercial and industrial interests of the +Nation. It is not designed to restrict or control the fullest liberty of +legitimate business action, but to secure exact and authentic information +which will aid the Executive in enforcing existing laws, and which will +enable the Congress to enact additional legislation, if any should be found +necessary, in order to prevent the few from obtaining privileges at the +expense of diminished opportunities for the many. + +The preliminary work of the Bureau of Corporations in the Department has +shown the wisdom of its creation. Publicity in corporate affairs will tend +to do away with ignorance, and will afford facts upon which intelligent +action may be taken. Systematic, intelligent investigation is already +developing facts the knowledge of which is essential to a right +understanding of the needs and duties of the business world. The +corporation which is honestly and fairly organized, whose managers in the +conduct of its business recognize their obligation to deal squarely with +their stockholders, their competitors, and the public, has nothing to fear +from such supervision. The purpose of this Bureau is not to embarrass or +assail legitimate business, but to aid in bringing about a better +industrial condition--a condition under which there shall be obedience to +law and recognition of public obligation by all corporations, great or +small. The Department of Commerce and Labor will be not only the clearing +house for information regarding the business transactions of the Nation, +but the executive arm of the Government to aid in strengthening our +domestic and foreign markets, in perfecting our transportation facilities, +in building up our merchant marine, in preventing the entrance of +undesirable immigrants, in improving commercial and industrial conditions, +and in bringing together on common ground those necessary partners in +industrial progress--capital and labor. Commerce between the nations is +steadily growing in volume, and the tendency of the times is toward closer +trade relations. Constant watchfulness is needed to secure to Americans the +chance to participate to the best advantage in foreign trade; and we may +confidently expect that the new Department will justify the expectation of +its creators by the exercise of this watchfulness, as well as by the +businesslike administration of such laws relating to our internal affairs +as are intrusted to its care. + +In enacting the laws above enumerated the Congress proceeded on sane and +conservative lines. Nothing revolutionary was attempted; but a common-sense +and successful effort was made in the direction of seeing that corporations +are so handled as to subserve the public good. The legislation was +moderate. It was characterized throughout by the idea that we were not +attacking corporations, but endeavoring to provide for doing away with any +evil in them; that we drew the line against misconduct, not against wealth; +gladly recognizing the great good done by the capitalist who alone, or in +conjunction with his fellows, does his work along proper and legitimate +lines. The purpose of the legislation, which purpose will undoubtedly be +fulfilled, was to favor such a man when he does well, and to supervise his +action only to prevent him from doing ill. Publicity can do no harm to the +honest corporation. The only corporation that has cause to dread it is the +corporation which shrinks from the light, and about the welfare of such +corporations we need not be oversensitive. The work of the Department of +Commerce and Labor has been conditioned upon this theory, of securing fair +treatment alike for labor and for capital. + +The consistent policy of the National Government, so far as it has the +power, is to hold in check the unscrupulous man, whether employer or +employee; but to refuse to weaken individual initiative or to hamper or +cramp the industrial development of the country. We recognize that this is +an era of federation and combination, in which great capitalistic +corporations and labor unions have become factors of tremendous importance +in all industrial centers. Hearty recognition is given the far-reaching, +beneficent work which has been accomplished through both corporations and +unions, and the line as between different corporations, as between +different unions, is drawn as it is between different individuals; that is, +it is drawn on conduct, the effort being to treat both organized capital +and organized labor alike; asking nothing save that the interest of each +shall be brought into harmony with the interest of the general public, and +that the conduct of each shall conform to the fundamental rules of +obedience to law, of individual freedom, and of justice and fair dealing +towards all. Whenever either corporation, labor union, or individual +disregards the law or acts in a spirit of arbitrary and tyrannous +interference with the rights of others, whether corporations or +individuals, then where the Federal Government has jurisdiction, it will +see to it that the misconduct is stopped, paying not the slightest heed to +the position or power of the corporation, the union or the individual, but +only to one vital fact--that is, the question whether or not the conduct of +the individual or aggregate of individuals is in accordance with the law of +the land. Every man must be guaranteed his liberty and his right to do as +he likes with his property or his labor, so long as he does not infringe +the rights of others. No man is above the law and no man is below it; nor +do we ask any man's permission when we require him to obey it. Obedience to +the law is demanded as a right; not asked as a favor. + +We have cause as a nation to be thankful for the steps that have been so +successfully taken to put these principles into effect. The progress has +been by evolution, not by revolution. Nothing radical has been done; the +action has been both moderate and resolute. Therefore the work will stand. +There shall be no backward step. If in the working of the laws it proves +desirable that they shall at any point be expanded or amplified, the +amendment can be made as its desirability is shown. Meanwhile they are +being administered with judgment, but with insistence upon obedience to +them, and their need has been emphasized in signal fashion by the events of +the past year. + +From all sources, exclusive of the postal service, the receipts of the +Government for the last fiscal year aggregated $560,396,674. The +expenditures for the same period were $506,099,007, the surplus for the +fiscal year being $54,297,667. The indications are that the surplus for the +present fiscal year will be very small, if indeed there be any surplus. +From July to November the receipts from customs were, approximately, nine +million dollars less than the receipts from the same source for a +corresponding portion of last year. Should this decrease continue at the +same ratio throughout the fiscal year, the surplus would be reduced by, +approximately, thirty million dollars. Should the revenue from customs +suffer much further decrease during the fiscal year, the surplus would +vanish. A large surplus is certainly undesirable. Two years ago the war +taxes were taken off with the express intention of equalizing the +governmental receipts and expenditures, and though the first year +thereafter still showed a surplus, it now seems likely that a substantial +equality of revenue and expenditure will be attained. Such being the case +it is of great moment both to exercise care and economy in appropriations, +and to scan sharply any change in our fiscal revenue system which may +reduce our income. The need of strict economy in our expenditures is +emphasized by the fact that we can not afford to be parsimonious in +providing for what is essential to our national well-being. Careful economy +wherever possible will alone prevent our income from falling below the +point required in order to meet our genuine needs. + +The integrity of our currency is beyond question, and under present +conditions it would be unwise and unnecessary to attempt a reconstruction +of our entire monetary system. The same liberty should be granted the +Secretary of the Treasury to deposit customs receipts as is granted him in +the deposit of receipts from other sources. In my Message of December 2, +1902, I called attention to certain needs of the financial situation, and I +again ask the consideration of the Congress for these questions. + +During the last session of the Congress at the suggestion of a joint note +from the Republic of Mexico and the Imperial Government of China, and in +harmony with an act of the Congress appropriating $25,000 to pay the +expenses thereof, a commission was appointed to confer with the principal +European countries in the hope that some plan might be devised whereby a +fixed rate of exchange could be assured between the gold-standard countries +and the silver-standard countries. This commission has filed its +preliminary report, which has been made public. I deem it important that +the commission be continued, and that a sum of money be appropriated +sufficient to pay the expenses of its further labors. + +A majority of our people desire that steps be taken in the interests of +American shipping, so that we may once more resume our former position in +the ocean carrying trade. But hitherto the differences of opinion as to the +proper method of reaching this end have been so wide that it has proved +impossible to secure the adoption of any particular scheme. Having in view +these facts, I recommend that the Congress direct the Secretary of the +Navy, the Postmaster-General, and the Secretary of Commerce and Labor, +associated with such a representation from the Senate and House of +Representatives as the Congress in its wisdom may designate, to serve as a +commission for the purpose of investigating and reporting to the Congress +at its next session what legislation is desirable or necessary for the +development of the American merchant marine and American commerce, and +incidentally of a national ocean mail service of adequate auxiliary naval +crusiers and naval reserves. While such a measure is desirable in any +event, it is especially desirable at this time, in view of the fact that +our present governmental contract for ocean mail with the American Line +will expire in 1905. Our ocean mail act was passed in 1891. In 1895 our +20-knot transatlantic mail line was equal to any foreign line. Since then +the Germans have put on 23-knot, steamers, and the British have contracted +for 24-knot steamers. Our service should equal the best. If it does not, +the commercial public will abandon it. If we are to stay in the business it +ought to be with a full understanding of the advantages to the country on +one hand, and on the other with exact knowledge of the cost and proper +methods of carrying it on. Moreover, lines of cargo ships are of even more +importance than fast mail lines; save so far as the latter can be depended +upon to furnish swift auxiliary cruisers in time of war. The establishment +of new lines of cargo ships to South America, to Asia, and elsewhere would +be much in the interest of our commercial expansion. + +We can not have too much immigration of the right kind, and we should have +none at all of the wrong kind. The need is to devise some system by which +undesirable immigrants shall be kept out entirely, while desirable +immigrants are properly distributed throughout the country. At present some +districts which need immigrants have none; and in others, where the +population is already congested, immigrants come in such numbers as to +depress the conditions of life for those already there. During the last two +years the immigration service at New York has been greatly improved, and +the corruption and inefficiency which formerly obtained there have been +eradicated. This service has just been investigated by a committee of New +York citizens of high standing, Messrs. Arthur V. Briesen, Lee K. Frankel, +Eugene A. Philbin, Thomas W. Hynes, and Ralph Trautman. Their report deals +with the whole situation at length, and concludes with certain +recommendations for administrative and legislative action. It is now +receiving the attention of the Secretary of Commerce and Labor. + +The special investigation of the subject of naturalization under the +direction of the Attorney-General, and the consequent prosecutions reveal a +condition of affairs calling for the immediate attention of the Congress. +Forgeries and perjuries of shameless and flagrant character have been +perpetrated, not only in the dense centers of population, but throughout +the country; and it is established beyond doubt that very many so-called +citizens of the United States have no title whatever to that right, and are +asserting and enjoying the benefits of the same through the grossest +frauds. It is never to be forgotten that citizenship is, to quote the words +recently used by the Supreme Court of the United States, an "inestimable +heritage," whether it proceeds from birth within the country or is obtained +by naturalization; and we poison the sources of our national character and +strength at the fountain, if the privilege is claimed and exercised without +right, and by means of fraud and corruption. The body politic can not be +sound and healthy if many of its constituent members claim their standing +through the prostitution of the high right and calling of citizenship. It +should mean something to become a citizen of the United States; and in the +process no loophole whatever should be left open to fraud. + +The methods by which these frauds--now under full investigation with a view +to meting out punishment and providing adequate remedies--are perpetrated, +include many variations of procedure by which false certificates of +citizenship are forged in their entirety; or genuine certificates +fraudulently or collusively obtained in blank are filled in by the criminal +conspirators; or certificates are obtained on fraudulent statements as to +the time of arrival and residence in this country; or imposition and +substitution of another party for the real petitioner occur in court; or +certificates are made the subject of barter and sale and transferred from +the rightful holder to those not entitled to them; or certificates are +forged by erasure of the original names and the insertion of the names of +other persons not entitled to the same. + +It is not necessary for me to refer here at large to the causes leading to +this state of affairs. The desire for naturalization is heartily to be +commended where it springs from a sincere and permanent intention to become +citizens, and a real appreciation of the privilege. But it is a source of +untold evil and trouble where it is traceable to selfish and dishonest +motives, such as the effort by artificial and improper means, in wholesale +fashion to create voters who are ready-made tools of corrupt politicians, +or the desire to evade certain labor laws creating discriminations against +alien labor. All good citizens, whether naturalized or native born, are +equally interested in protecting our citizenship against fraud in any form, +and, on the other hand, in affording every facility for naturalization to +those who in good faith desire to share alike our privileges and our +responsibilities. + +The Federal grand jury lately in session in New York City dealt with this +subject and made a presentment which states the situation briefly and +forcibly and contains important suggestions for the consideration of the +Congress. This presentment is included as an appendix to the report of the +Attorney-General. + +In my last annual Message, in connection with the subject of the due +regulation of combinations of capital which are or may become injurious to +the public, I recommend a special appropriation for the better enforcement +of the antitrust law as it now stands, to be extended under the direction +of the Attorney-General. Accordingly (by the legislative, executive, and +judicial appropriation act of February 25, 1903, 32 Stat., 854, 904), the +Congress appropriated, for the purpose of enforcing the various Federal +trust and interstate-commerce laws, the sum of five hundred thousand +dollars, to be expended under the direction of the Attorney-General in the +employment of special counsel and agents in the Department of Justice to +conduct proceedings and prosecutions under said laws in the courts of the +United States. I now recommend, as a matter of the utmost importance and +urgency, the extension of the purposes of this appropriation, so that it +may be available, under the direction of the Attorney-General, and until +used, for the due enforcement of the laws of the United States in general +and especially of the civil and criminal laws relating to public lands and +the laws relating to postal crimes and offenses and the subject of +naturalization. Recent investigations have shown a deplorable state of +affairs in these three matters of vital concern. By various frauds and by +forgeries and perjuries, thousands of acres of the public domain, embracing +lands of different character and extending through various sections of the +country, have been dishonestly acquired. It is hardly necessary to urge the +importance of recovering these dishonest acquisitions, stolen from the +people, and of promptly and duly punishing the offenders. I speak in +another part of this Message of the widespread crimes by which the sacred +right of citizenship is falsely asserted and that "inestimable heritage" +perverted to base ends. By similar means--that is, through frauds, +forgeries, and perjuries, and by shameless briberies--the laws relating to +the proper conduct of the public service in general and to the due +administration of the Post-Office Department have been notoriously +violated, and many indictments have been found, and the consequent +prosecutions are in course of hearing or on the eve thereof. For the +reasons thus indicated, and so that the Government may be prepared to +enforce promptly and with the greatest effect the due penalties for such +violations of law, and to this end may be furnished with sufficient +instrumentalities and competent legal assistance for the investigations and +trials which will be necessary at many different points of the country, I +urge upon the Congress the necessity of making the said appropriation +available for immediate use for all such purposes, to be expended under the +direction of the Attorney-General. + +Steps have been taken by the State Department looking to the making of +bribery an extraditable offense with foreign powers. The need of more +effective treaties covering this crime is manifest. The exposures and +prosecutions of official corruption in St. Louis, Mo., and other cities and +States have resulted in a number of givers and takers of bribes becoming +fugitives in foreign lands. Bribery has not been included in extradition +treaties heretofore, as the necessity for it has not arisen. While there +may have been as much official corruption in former years, there has been +more developed and brought to light in the immediate past than in the +preceding century of our country's history. It should be the policy of the +United States to leave no place on earth where a corrupt man fleeing from +this country can rest in peace. There is no reason why bribery should not +be included in all treaties as extraditable. The recent amended treaty with +Mexico, whereby this crime was put in the list of extraditable offenses, +has established a salutary precedent in this regard. Under this treaty the +State Department has asked, and Mexico has granted, the extradition of one +of the St. Louis bribe givers. + +There can be no crime more serious than bribery. Other offenses violate one +law while corruption strikes at the foundation of all law. Under our form +of Government all authority is vested in the people and by them delegated +to those who represent them in official capacity. There can be no offense +heavier than that of him in whom such a sacred trust has been reposed, who +sells it for his own gain and enrichment; and no less heavy is the offense +of the bribe giver. He is worse than the thief, for the thief robs the +individual, while the corrupt official plunders an entire city or State. He +is as wicked as the murderer, for the murderer may only take one life +against the law, while the corrupt official and the man who corrupts the +official alike aim at the assassination of the commonwealth itself. +Government of the people, by the people, for the people will perish from +the face of the earth if bribery is tolerated. The givers and takers of +bribes stand on an evil pre-eminence of infamy. The exposure and punishment +of public corruption is an honor to a nation, not a disgrace. The shame +lies in toleration, not in correction. No city or State, still less the +Nation, can be injured by the enforcement of law. As long as public +plunderers when detected can find a haven of refuge in any foreign land and +avoid punishment, just so long encouragement is given them to continue +their practices. If we fail to do all that in us lies to stamp out +corruption we can not escape our share of responsibility for the guilt. The +first requisite of successful self-government is unflinching enforcement of +the law and the cutting out of corruption. + +For several years past the rapid development of Alaska and the +establishment of growing American interests in regions theretofore +unsurveyed and imperfectly known brought into prominence the urgent +necessity of a practical demarcation of the boundaries between the +jurisdictions of the United States and Great Britain. Although the treaty +of 1825 between Great Britain and Russia, the provisions of which were +copied in the treaty of 1867, whereby Russia conveyed Alaska to the United +States, was positive as to the control, first by Russia and later by the +United States, of a strip of territory along the continental mainland from +the western shore of Portland Canal to Mount St. Elias, following and +surrounding the indentations of the coast and including the islands to the +westward, its description of the landward margin of the strip was +indefinite, resting on the supposed existence of a continuous ridge or +range of mountains skirting the coast, as figured in the charts of the +early navigators. It had at no time been possible for either party in +interest to lay down, under the authority of the treaty, a line so +obviously exact according to its provisions as to command the assent of the +other. For nearly three-fourths of a century the absence of tangible local +interests demanding the exercise of positive jurisdiction on either side of +the border left the question dormant. In 1878 questions of revenue +administration on the Stikine River led to the establishment of a +provisional demarcation, crossing the channel between two high peaks on +either side about twenty-four miles above the river mouth. In 1899 similar +questions growing out of the extraordinary development of mining interests +in the region about the head of Lynn Canal brought about a temporary modus +vivendi, by which a convenient separation was made at the watershed divides +of the White and Chilkoot passes and to the north of Klukwan, on the +Klehini River. These partial and tentative adjustments could not, in the +very nature of things, be satisfactory or lasting. A permanent disposition +of the matter became imperative. + +After unavailing attempts to reach an understanding through a Joint High +Commission, followed by prolonged negotiations, conducted in an amicable +spirit, a convention between the United States and Great Britain was +signed, January 24, 1903, providing for an examination of the subject by a +mixed tribunal of six members, three on a side, with a view to its final +disposition. Ratifications were exchanged on March 3 last, whereupon the +two Governments appointed their respective members. Those on behalf of the +United States were Elihu Root, Secretary of War, Henry Cabot Lodge, a +Senator of the United States, and George Turner, an ex-Senator of the +United States, while Great Britain named the Right Honourable Lord +Alverstone, Lord Chief Justice of England, Sir Louis Amable Jette, K. C. M. +G., retired judge of the Supreme Court of Quebec, and A. B. Aylesworth, K. +C., of Toronto. This Tribunal met in London on September 3, under the +Presidency of Lord Alverstone. The proceedings were expeditious, and marked +by a friendly and conscientious spirit. The respective cases, counter +cases, and arguments presented the issues clearly and fully. On the 20th of +October a majority of the Tribunal reached and signed an agreement on all +the questions submitted by the terms of the Convention. By this award the +right of the United States to the control of a continuous strip or border +of the mainland shore, skirting all the tide-water inlets and sinuosities +of the coast, is confirmed; the entrance to Portland Canal (concerning +which legitimate doubt appeared) is defined as passing by Tongass Inlet and +to the northwestward of Wales and Pearse islands; a line is drawn from the +head of Portland Canal to the fifty-sixth degree of north latitude; and the +interior border line of the strip is fixed by lines connecting certain +mountain summits lying between Portland Canal and Mount St. Elias, and +running along the crest of the divide separating the coast slope from the +inland watershed at the only part of the frontier where the drainage ridge +approaches the coast within the distance of ten marine leagues stipulated +by the treaty as the extreme width of the strip around the heads of Lynn +Canal and its branches. + +While the line so traced follows the provisional demarcation of 1878 at the +crossing of the Stikine River, and that of 1899 at the summits of the White +and Chilkoot passes, it runs much farther inland from the Klehini than the +temporary line of the later modus vivendi, and leaves the entire mining +district of the Porcupine River and Glacier Creek within the jurisdiction +of the United States. + +The result is satisfactory in every way. It is of great material advantage +to our people in the Far Northwest. It has removed from the field of +discussion and possible danger a question liable to become more acutely +accentuated with each passing year. Finally, it has furnished a signal +proof of the fairness and good will with which two friendly nations can +approach and determine issues involving national sovereignty and by their +nature incapable of submission to a third power for adjudication. + +The award is self-executing on the vital points. To make it effective as +regards the others it only remains for the two Governments to appoint, each +on its own behalf, one or more scientific experts, who shall, with all +convenient speed, proceed together to lay down the boundary line in +accordance with the decision of the majority of the Tribunal. I recommend +that the Congress make adequate provision for the appointment, +compensation, and expenses of the members to serve on this joint boundary +commission on the part of the United States. + +It will be remembered that during the second session of the last Congress +Great Britain, Germany, and Italy formed an alliance for the purpose of +blockading the ports of Venezuela and using such other means of pressure as +would secure a settlement of claims due, as they alleged, to certain of +their subjects. Their employment of force for the collection of these +claims was terminated by an agreement brought about through the offices of +the diplomatic representatives of the United States at Caracas and the +Government at Washington, thereby ending a situation which was bound to +cause increasing friction, and which jeoparded the peace of the continent. +Under this agreement Venezuela agreed to set apart a certain percentage of +the customs receipts of two of her ports to be applied to the payment of +whatever obligations might be ascertained by mixed commissions appointed +for that purpose to be due from her, not only to the three powers already +mentioned, whose proceedings against her had resulted in a state of war, +but also to the United States, France, Spain, Belgium, the Netherland +Sweden and Norway, and Mexico, who had not employed force for the +collection of the claims alleged to be due to certain of their citizens. + +A demand was then made by the so-called blockading powers that the sums +ascertained to be due to their citizens by such mixed commissions should be +accorded payment in full before anything was paid upon the claims of any of +the so-called peace powers. Venezuela, on the other hand, insisted that all +her creditors should be paid upon a basis of exact equality. During the +efforts to adjust this dispute it was suggested by the powers in interest +that it should be referred to me for decision, but I was clearly of the +opinion that a far wiser course would be to submit the question to the +Permanent Court of Arbitration at The Hague. It seemed to me to offer an +admirable opportunity to advance the practice of the peaceful settlement of +disputes between nations and to secure for the Hague Tribunal a memorable +increase of its practical importance. The nations interested in the +controversy were so numerous and in many instances so powerful as to make +it evident that beneficent results would follow from their appearance at +the same time before the bar of that august tribunal of peace. + +Our hopes in that regard have been realized. Russia and Austria are +represented in the persons of the learned and distinguished jurists who +compose the Tribunal, while Great Britain, Germany, France, Spain, Italy, +Belgium, the Netherlands, Sweden and Norway, Mexico, the United States, and +Venezuela are represented by their respective agents and counsel. Such an +imposing concourse of nations presenting their arguments to and invoking +the decision of that high court of international justice and international +peace can hardly fail to secure a like submission of many future +controversies. The nations now appearing there will find it far easier to +appear there a second time, while no nation can imagine its just pride will +be lessened by following the example now presented. This triumph of the +principle of international arbitration is a subject of warm congratulation +and offers a happy augury for the peace of the world. + +There seems good ground for the belief that there has been a real growth +among the civilized nations of a sentiment which will permit a gradual +substitution of other methods than the method of war in the settlement of +disputes. It is not pretended that as yet we are near a position in which +it will be possible wholly to prevent war, or that a just regard for +national interest and honor will in all cases permit of the settlement of +international disputes by arbitration ;. but by a mixture of prudence and +firmness with wisdom we think it is possible to do away with much of the +provocation and excuse for war, and at least in many cases to substitute +some other and more rational method for the settlement of disputes. The +Hague Court offers so good an example of what can be done in the direction +of such settlement that it should be encouraged in every way. + +Further steps should be taken. In President McKinley's annual Message of +December 5, 1898, he made the following recommendation: + +"The experiences of the last year bring forcibly home to us a sense of the +burdens and the waste of war. We desire in common with most civilized +nations, to reduce to the lowest possible point the damage sustained in +time of war by peaceable trade and commerce. It is true we may suffer in +such cases less than other communities, but all nations are damaged more or +less by the state of uneasiness and apprehension into which an outbreak of +hostilities throws the entire commercial world. It should be our object, +therefore, to minimize, so far as practicable, this inevitable loss and +disturbance. This purpose can probably best be accomplished by an +international agreement to regard all private property at sea as exempt +from capture or destruction by the forces of belligerent powers. The United +States Government has for many years advocated this humane and beneficent +principle, and is now in a position to recommend it to other powers without +the imputation of selfish motives. I therefore suggest for your +consideration that the Executive be authorized to correspond with the +governments of the principal maritime powers with a view of incorporating +into the permanent law of civilized nations the principle of the exemption +of all private property at sea, not contraband of war, from capture or +destruction by belligerent powers." + +I cordially renew this recommendation. + +The Supreme Court, speaking on December 11. 1899, through Peckham, J., +said: + +"It is, we think, historically accurate to say that this Government has +always been, in its views, among the most advanced of the governments of +the world in favor of mitigating, as to all non-combatants, the hardships +and horrors of war. To accomplish that object it has always advocated those +rules which would in most cases do away with the right to capture the +private property of an enemy on the high seas." + +I advocate this as a matter of humanity and morals. It is anachronistic +when private property is respected on land that it should not be respected +at sea. Moreover, it should be borne in mind that shipping represents, +internationally speaking, a much more generalized species of private +property than is the case with ordinary property on land--that is, property +found at sea is much less apt than is the case with property found on land +really to belong to any one nation. Under the modern system of corporate +ownership the flag of a vessel often differs from the flag which would mark +the nationality of the real ownership and money control of the vessel; and +the cargo may belong to individuals of yet a different nationality. Much +American capital is now invested in foreign ships; and among foreign +nations it often happens that the capital of one is largely invested in the +shipping of another. Furthermore, as a practical matter, it may be +mentioned that while commerce destroying may cause serious loss and great +annoyance, it can never be more than a subsidiary factor in bringing to +terms a resolute foe. This is now well recognized by all of our naval +experts. The fighting ship, not the commerce destroyer, is the vessel whose +feats add renown to a nation's history, and establish her place among the +great powers of the world. + +Last year the Interparliamentary Union for International Arbitration met at +Vienna, six hundred members of the different legislatures of civilized +countries attending. It was provided that the next meeting should be in +1904 at St. Louis, subject to our Congress extending an invitation. Like +the Hague Tribunal, this Interparliamentary Union is one of the forces +tending towards peace among the nations of the earth, and it is entitled to +our support. I trust the invitation can be extended. + +Early in July, having received intelligence, which happily turned out to be +erroneous, of the assassination of our vice-consul at Beirut, I dispatched +a small squadron to that port for such service as might be found necessary +on arrival. Although the attempt on the life of our vice-consul had not +been successful, yet the outrage was symptomatic of a state of excitement +and disorder which demanded immediate attention. The arrival of the vessels +had the happiest result. A feeling of security at once took the place of +the former alarm and disquiet; our officers were cordially welcomed by the +consular body and the leading merchants, and ordinary business resumed its +activity. The Government of the Sultan gave a considerate hearing to the +representations of our minister; the official who was regarded as +responsible for the disturbed condition of affairs was removed. Our +relations with the Turkish Government remain friendly; our claims rounded +on inequitable treatment of some of our schools and missions appear to be +in process of amicable adjustment. + +The signing of a new commercial treaty with China, which took place at +Shanghai on the 8th of October, is a cause for satisfaction. This act, the +result of long discussion and negotiation, places our commercial relations +with the great Oriental Empire on a more satisfactory footing than they +have ever heretofore enjoyed. It provides not only for the ordinary rights +and privileges of diplomatic and consular officers, but also for an +important extension of our commerce by increased facility of access to +Chinese ports, and for the relief of trade by the removal of some of the +obstacles which have embarrassed it in the past. The Chinese Government +engages, on fair and equitable conditions, which will probably be accepted +by the principal commercial nations, to abandon the levy of "liken" and +other transit dues throughout the Empire, and to introduce other desirable +administrative reforms. Larger facilities are to be given to our citizens +who desire to carry on mining enterprises in China. We have secured for our +missionaries a valuable privilege, the recognition of their right to rent +and lease in perpetuity such property as their religious societies may need +in all parts of the Empire. And, what was an indispensable condition for +the advance and development of our commerce in Manchuria, China, by treaty +with us, has opened to foreign commerce the cities of Mukden, the capital +of the province of Manchuria, and An-tung, an important port on the Yalu +River, on the road to Korea. The full measure of development which our +commerce may rightfully expect can hardly be looked for until the +settlement of the present abnormal state of things in the Empire; but the +foundation for such development has at last been laid. + +I call your attention to the reduced cost in maintaining the consular +service for the fiscal year ending June 30, 1903, as shown in the annual +report of the Auditor for the State and other Departments, as compared with +the year previous. For the year under consideration the excess of +expenditures over receipts on account of the consular service amounted to +$26,125.12, as against $96,972.50 for the year ending June 30, 1902, and +$147,040.16 for the year ending June 30, 1901. This is the best showing in +this respect for the consular service for the past fourteen years, and the +reduction in the cost of the service to the Government has been made in +spite of the fact that the expenditures for the year in question were more +than $20,000 greater than for the previous year. + +The rural free-delivery service has been steadily extended. The attention +of the Congress is asked to the question of the compensation of the letter +carriers and clerks engaged in the postal service, especially on the new +rural free-delivery routes. More routes have been installed since the first +of July last than in any like period in the Department's history. While a +due regard to economy must be kept in mind in the establishment of new +routes, yet the extension of the rural free-delivery system must be +continued, for reasons of sound public policy. No governmental movement of +recent years has resulted in greater immediate benefit to the people of the +country districts. Rural free delivery, taken in connection with the +telephone, the bicycle, and the trolley, accomplishes much toward lessening +the isolation of farm life and making it brighter and more attractive. In +the immediate past the lack of just such facilities as these has driven +many of the more active and restless young men and women from the farms to +the cities; for they rebelled at loneliness and lack of mental +companionship. It is unhealthy and undesirable for the cities to grow at +the expense of the country; and rural free delivery is not only a good +thing in itself, but is good because it is one of the causes which check +this unwholesome tendency towards the urban concentration of our population +at the expense of the country districts. It is for the same reason that we +sympathize with and approve of the policy of building good roads. The +movement for good roads is one fraught with the greatest benefit to the +country districts. + +I trust that the Congress will continue to favor in all proper ways the +Louisiana Purchase Exposition. This Exposition commemorates the Louisiana +purchase, which was the first great step in the expansion which made us a +continental nation. The expedition of Lewis and Clark across the continent +followed thereon, and marked the beginning of the process of exploration +and colonization which thrust our national boundaries to the Pacific. The +acquisition of the Oregon country, including the present States of Oregon +and Washington, was a fact of immense importance in our history; first +giving us our place on the Pacific seaboard, and making ready the way for +our ascendency in the commerce of the greatest of the oceans. The +centennial of our establishment upon the western coast by the expedition of +Lewis and Clark is to be celebrated at Portland, Oregon, by an exposition +in the summer of 1905, and this event should receive recognition and +support from the National Government. + +I call your special attention to the Territory of Alaska. The country is +developing rapidly, and it has an assured future. The mineral wealth is +great and has as yet hardly been tapped. The fisheries, if wisely handled +and kept under national control, will be a business as permanent as any +other, and of the utmost importance to the people. The forests if properly +guarded will form another great source of wealth. Portions of Alaska are +fitted for farming and stock raising, although the methods must be adapted +to the peculiar conditions of the country. Alaska is situated in the far +north; but so are Norway and Sweden and Finland; and Alaska can prosper and +play its part in the New World just as those nations have prospered and +played their parts in the Old World. Proper land laws should be enacted; +and the survey of the public lands immediately begun. Coal-land laws should +be provided whereby the coal-land entryman may make his location and secure +patent under methods kindred to those now prescribed for homestead and +mineral entrymen. Salmon hatcheries, exclusively under Government control, +should be established. The cable should be extended from Sitka westward. +Wagon roads and trails should be built, and the building of railroads +promoted in all legitimate ways. Light-houses should be built along the +coast. Attention should be paid to the needs of the Alaska Indians; +provision should be made for an officer, with deputies, to study their +needs, relieve their immediate wants, and help them adapt themselves to the +new conditions. + +The commission appointed to investigate, during the season of 1903, the +condition and needs of the Alaskan salmon fisheries, has finished its work +in the field, and is preparing a detailed report thereon. A preliminary +report reciting the measures immediately required for the protection and +preservation of the salmon industry has already been submitted to the +Secretary of Commerce and Labor for his attention and for the needed +action. + +I recommend that an appropriation be made for building light-houses in +Hawaii, and taking possession of those already built. The Territory should +be reimbursed for whatever amounts it has already expended for +light-houses. The governor should be empowered to suspend or remove any +official appointed by him, without submitting the matter to the +legislature. + +Of our insular possessions the Philippines and Porto Rico it is gratifying +to say that their steady progress has been such as to make it unnecessary +to spend much time in discussing them. Yet the Congress should ever keep in +mind that a peculiar obligation rests upon us to further in every way the +welfare of these communities. The Philippines should be knit closer to us +by tariff arrangements. It would, of course, be impossible suddenly to +raise the people of the islands to the high pitch of industrial prosperity +and of governmental efficiency to which they will in the end by degrees +attain; and the caution and moderation shown in developing them have been +among the main reasons why this development has hitherto gone on so +smoothly. Scrupulous care has been taken in the choice of governmental +agents, and the entire elimination of partisan politics from the public +service. The condition of the islanders is in material things far better +than ever before, while their governmental, intellectual, and moral advance +has kept pace with their material advance. No one people ever benefited +another people more than we have benefited the Filipinos by taking +possession of the islands. + +The cash receipts of the General Land Office for the last fiscal year were +$11,024,743.65, an increase of $4,762,816.47 over the preceding year. Of +this sum, approximately, $8,461,493 will go to the credit of the fund for +the reclamation of arid land, making the total of this fund, up to the 30th +of June, 1903, approximately, $16,191,836. + +A gratifying disposition has been evinced by those having unlawful +inclosures of public land to remove their fences. Nearly two million acres +so inclosed have been thrown open on demand. In but comparatively few cases +has it been necessary to go into court to accomplish this purpose. This +work will be vigorously prosecuted until all unlawful inclosures have been +removed. + +Experience has shown that in the western States themselves, as well as in +the rest of the country, there is widespread conviction that certain of the +public-land laws and the resulting administrative practice no longer meet +the present needs. The character and uses of the remaining public lands +differ widely from those of the public lands which Congress had especially +in view when these laws were passed. The rapidly increasing rate of +disposal of the public lands is not followed by a corresponding increase in +home building. There is a tendency to mass in large holdings public lands, +especially timber and grazing lands, and thereby to retard settlement. I +renew and emphasize my recommendation of last year that so far as they are +available for agriculture in its broadest sense, and to whatever extent +they may be reclaimed under the national irrigation law, the remaining +public lands should be held rigidly for the home builder. The attention of +the Congress is especially directed to the timber and stone law, the +desert-land law, and the commutation clause of the homestead law, which in +their operation have in many respects conflicted with wise public-land +policy. The discussions in the Congress and elsewhere have made it evident +that there is a wide divergence of opinions between those holding opposite +views on these subjects; and that the opposing sides have strong and +convinced representatives of weight both within and without the Congress; +the differences being not only as to matters of opinion but as to matters +of fact. In order that definite information may be available for the use of +the Congress, I have appointed a commission composed of W. A. Richards, +Commissioner of the General Land Office; Gifford Pinchot, Chief of the +Bureau of Forestry of the Department of Agriculture, and F. H. Newell, +Chief Hydrographer of the Geological Survey, to report at the earliest +practicable moment upon the condition, operation, and effect of the present +land laws and on the use, condition, disposal, and settlement of the public +lands. The commission will report especially what changes in organization, +laws, regulations, and practice affecting the public lands are needed to +effect the largest practicable disposition of the public lands to actual +settlers who will build permanent homes upon them, and to secure in +permanence the fullest and most effective use of the resources of the +public lands; and it will make such other reports and recommendations as +its study of these questions may suggest. The commission is to report +immediately upon those points concerning which its judgment is clear; on +any point upon which it has doubt it will take the time necessary to make +investigation and reach a final judgment. + +The work of reclamation of the arid lands of the West is progressing +steadily and satisfactorily under the terms of the law setting aside the +proceeds from the disposal of public lands. The corps of engineers known as +the Reclamation Service, which is conducting the surveys and examinations, +has been thoroughly organized, especial pains being taken to secure under +the civil-service rules a body of skilled, experienced, and efficient men. +Surveys and examinations are progressing throughout the arid States and +Territories, plans for reclaiming works being prepared and passed upon by +boards of engineers before approval by the Secretary of the Interior. In +Arizona and Nevada, in localities where such work is pre-eminently needed, +construction has already been begun. In other parts of the arid West +various projects are well advanced towards the drawing up of contracts, +these being delayed in part by necessities of reaching agreements or +understanding as regards rights of way or acquisition of real estate. Most +of the works contemplated for construction are of national importance, +involving interstate questions or the securing of stable, self-supporting +communities in the midst of vast tracts of vacant land. The Nation as a +whole is of course the gainer by the creation of these homes, adding as +they do to the wealth and stability of the country, and furnishing a home +market for the products of the East and South. The reclamation law, while +perhaps not ideal, appears at present to answer the larger needs for which +it is designed. Further legislation is not recommended until the +necessities of change are more apparent. + +The study of the opportunities of reclamation of the vast extent of arid +land shows that whether this reclamation is done by individuals, +corporations, or the State, the sources of water supply must be effectively +protected and the reservoirs guarded by the preservation of the forests at +the headwaters of the streams. The engineers making the preliminary +examinations continually emphasize this need and urge that the remaining +public lands at the headwaters of the important streams of the West be +reserved to insure permanency of water supply for irrigation. Much progress +in forestry has been made during the past year. The necessity for +perpetuating our forest resources, whether in public or private hands, is +recognized now as never before. The demand for forest reserves has become +insistent in the West, because the West must use the water, wood, and +summer range which only such reserves can supply. Progressive lumbermen are +striving, through forestry, to give their business permanence. Other great +business interests are awakening to the need of forest preservation as a +business matter. The Government's forest work should receive from the +Congress hearty support, and especially support adequate for the protection +of the forest reserves against fire. The forest-reserve policy of the +Government has passed beyond the experimental stage and has reached a +condition where scientific methods are essential to its successful +prosecution. The administrative features of forest reserves are at present +unsatisfactory, being divided between three Bureaus of two Departments. It +is therefore recommended that all matters pertaining to forest reserves, +except those involving or pertaining to land titles, be consolidated in the +Bureau of Forestry of the Department of Agriculture. + +The cotton-growing States have recently been invaded by a weevil that has +done much damage and threatens the entire cotton industry. I suggest to the +Congress the prompt enactment of such remedial legislation as its judgment +may approve. + +In granting patents to foreigners the proper course for this country to +follow is to give the same advantages to foreigners here that the countries +in which these foreigners dwell extend in return to our citizens; that is, +to extend the benefits of our patent laws on inventions and the like where +in return the articles would be patentable in the foreign countries +concerned--where an American could get a corresponding patent in such +countries. + +The Indian agents should not be dependent for their appointment or tenure +of office upon considerations of partisan politics; the practice of +appointing, when possible, ex-army officers or bonded superintendents to +the vacancies that occur is working well. Attention is invited to the +widespread illiteracy due to lack of public schools in the Indian +Territory. Prompt heed should be paid to the need of education for the +children in this Territory. + +In my last annual Message the attention of the Congress was called to the +necessity of enlarging the safety-appliance law, and it is gratifying to +note that this law was amended in important respects. With the increasing +railway mileage of the country, the greater number of men employed, and the +use of larger and heavier equipment, the urgency for renewed effort to +prevent the loss of life and limb upon the railroads of the country, +particularly to employees, is apparent. For the inspection of water craft +and the Life-Saving Service upon the water the Congress has built up an +elaborate body of protective legislation and a thorough method of +inspection and is annually spending large sums of money. It is encouraging +to observe that the Congress is alive to the interests of those who are +employed upon our wonderful arteries of commerce--the railroads--who so +safely transport millions of passengers and billions of tons of freight. +The Federal inspection, of safety appliances, for which the Congress is now +making appropriations, is a service analogous to that which the Government +has upheld for generations in regard to vessels, and it is believed will +prove of great practical benefit, both to railroad employees and the +traveling public. As the greater part of commerce is interstate and +exclusively under the control of the Congress the needed safety and +uniformity must be secured by national legislation. + +No other class of our citizens deserves so well of the Nation as those to +whom the Nation owes its very being, the veterans of the civil war. Special +attention is asked to the excellent work of the Pension Bureau in +expediting and disposing of pension claims. During the fiscal year ending +July 1, 1903, the Bureau settled 251,982 claims, an average of 825 claims +for each working day of the year. The number of settlements since July 1, +1903, has been in excess of last year's average, approaching 1,000 claims +for each working day, and it is believed that the work of the Bureau will +be current at the close of the present fiscal year. + +During the year ended June 30 last 25,566 persons were appointed through +competitive examinations under the civil-service rules. This was 12,672 +more than during the preceding year, and 40 per cent of those who passed +the examinations. This abnormal growth was largely occasioned by the +extension of classification to the rural free-delivery service and the +appointment last year of over 9,000 rural carriers. A revision of the +civil-service rules took effect on April 15 last, which has greatly +improved their operation. The completion of the reform of the civil service +is recognized by good citizens everywhere as a matter of the highest public +importance, and the success of the merit system largely depends upon the +effectiveness of the rules and the machinery provided for their +enforcement. A very gratifying spirit of friendly co-operation exists in +all the Departments of the Government in the enforcement and uniform +observance of both the letter and spirit of the civil-service act. +Executive orders of July 3, 1902; March 26, 1903, and July 8, 1903, require +that appointments of all unclassified laborers, both in the Departments at +Washington and in the field service, shall be made with the assistance of +the United States Civil Service Commission, under a system of registration +to test the relative fitness of applicants for appointment or employment. +This system is competitive, and is open to all citizens of the United +States qualified in respect to age, physical ability, moral character, +industry, and adaptability for manual labor; except that in case of +veterans of the Civil War the element of age is omitted. This system of +appointment is distinct from the classified service and does not classify +positions of mere laborer under the civil-service act and rules. +Regulations in aid thereof have been put in operation in several of the +Departments and are being gradually extended in other parts of the service. +The results have been very satisfactory, as extravagance has been checked +by decreasing the number of unnecessary positions and by increasing the +efficiency of the employees remaining. + +The Congress, as the result of a thorough investigation of the charities +and reformatory institutions in the District of Columbia, by a joint select +committee of the two Houses which made its report in March, 1898, created +in the act approved June 6, 1900, a board of charities for the District of +Columbia, to consist of five residents of the District, appointed by the +President of the United States, by and with the advice and consent of the +Senate, each for a term of three years, to serve without compensation. +President McKinley appointed five men who had been active and prominent in +the public charities in Washington, all of whom upon taking office July 1, +1900, resigned from the different charities with which they had been +connected. The members of the board have been reappointed in successive +years. The board serves under the Commissioners of the District of +Columbia. The board gave its first year to a careful and impartial study of +the special problems before it, and has continued that study every year in +the light of the best practice in public charities elsewhere. Its +recommendations in its annual reports to the Congress through the +Commissioners of the District of Columbia "for the economical and efficient +administration of the charities and reformatories of the District of +Columbia," as required by the act creating it, have been based upon the +principles commended by the joint select committee of the Congress in its +report of March, 1898, and approved by the best administrators of public +charities, and make for the desired systematization and improvement of the +affairs under its supervision. They are worthy of favorable consideration +by the Congress. + +The effect of the laws providing a General Staff for the Army and for the +more effective use of the National Guard has been excellent. Great +improvement has been made in the efficiency of our Army in recent years. +Such schools as those erected at Fort Leavenworth and Fort Riley and the +institution of fall maneuver work accomplish satisfactory results. The good +effect of these maneuvers upon the National Guard is marked, and ample +appropriation should be made to enable the guardsmen of the several States +to share in the benefit. The Government should as soon as possible secure +suitable permanent camp sites for military maneuvers in the various +sections of the country. The service thereby rendered not only to the +Regular Army, but to the National Guard of the several States, will be so +great as to repay many times over the relatively small expense. We should +not rest satisfied with what has been done, however. The only people who +are contented with a system of promotion by mere seniority are those who +are contented with the triumph of mediocrity over excellence. On the other +hand, a system which encouraged the exercise of social or political +favoritism in promotions would be even worse. But it would surely be easy +to devise a method of promotion from grade to grade in which the opinion of +the higher officers of the service upon the candidates should be decisive +upon the standing and promotion of the latter. Just such a system now +obtains at West Point. The quality of each year's work determines the +standing of that year's class, the man being dropped or graduated into the +next class in the relative position which his military superiors decide to +be warranted by his merit. In other words, ability, energy, fidelity, and +all other similar qualities determine the rank of a man year after year in +West Point, and his standing in the Army when he graduates from West Point; +but from that time on, all effort to find which man is best or worst, and +reward or punish him accordingly, is abandoned; no brilliancy, no amount of +hard work, no eagerness in the performance of duty, can advance him, and no +slackness or indifference that falls short of a court-martial offense can +retard him. Until this system is changed we can not hope that our officers +will be of as high grade as we have a right to expect, considering the +material upon which we draw. Moreover, when a man renders such service as +Captain Pershing rendered last spring in the Moro campaign, it ought to be +possible to reward him without at once jumping him to the grade of +brigadier-general. + +Shortly after the enunciation of that famous principle of American foreign +policy now known as the "Monroe Doctrine," President Monroe, in a special +Message to Congress on January 30, 1824, spoke as follows: "The Navy is the +arm from which our Government will always derive most aid in support of our +rights. Every power engaged in war will know the strength of our naval +power, the number of our ships of each class, their condition, and the +promptitude with which we may bring them into service, and will pay due +consideration to that argument." + +I heartily congratulate the Congress upon the steady progress in building +up the American Navy. We can not afford a let-up in this great work. To +stand still means to go back. There should be no cessation in adding to the +effective units of the fighting strength of the fleet. Meanwhile the Navy +Department and the officers of the Navy are doing well their part by +providing constant service at sea under conditions akin to those of actual +warfare. Our officers and enlisted men are learning to handle the +battleships, cruisers, and torpedo boats with high efficiency in fleet and +squadron formations, and the standard of marksmanship is being steadily +raised. The best work ashore is indispensable, but the highest duty of a +naval officer is to exercise command at sea. + +The establishment of a naval base in the Philippines ought not to be longer +postponed. Such a base is desirable in time of peace; in time of war it +would be indispensable, and its lack would be ruinous. Without it our fleet +would be helpless. Our naval experts are agreed that Subig Bay is the +proper place for the purpose. The national interests require that the work +of fortification and development of a naval station at Subig Bay be begun +at an early date; for under the best conditions it is a work which will +consume much time. + +It is eminently desirable, however, that there should be provided a naval +general staff on lines similar to those of the General Staff lately created +for the Army. Within the Navy Department itself the needs of the service +have brought about a system under which the duties of a general staff are +partially performed; for the Bureau of Navigation has under its direction +the War College, the Office of Naval Intelligence, and the Board of +Inspection, and has been in close touch with the General Board of the Navy. +But though under the excellent officers at their head, these boards and +bureaus do good work, they have not the authority of a general staff, and +have not sufficient scope to insure a proper readiness for emergencies. We +need the establishment by law of a body of trained officers, who shall +exercise a systematic control of the military affairs of the Navy, and be +authorized advisers of the Secretary concerning it. + +By the act of June 28, 1902, the Congress authorized the President to enter +into treaty with Colombia for the building of the canal across the Isthmus +of Panama; it being provided that in the event of failure to secure such +treaty after the lapse of a reasonable time, recourse should be had to +building a canal through Nicaragua. It has not been necessary to consider +this alternative, as I am enabled to lay before the Senate a treaty +providing for the building of the canal across the Isthmus of Panama. This +was the route which commended itself to the deliberate judgment of the +Congress, and we can now acquire by treaty the right to construct the canal +over this route. The question now, therefore, is not by which route the +isthmian canal shall be built, for that question has been definitely and +irrevocably decided. The question is simply whether or not we shall have an +isthmian canal. + +When the Congress directed that we should take the Panama route under +treaty with Colombia, the essence of the condition, of course, referred not +to the Government which controlled that route, but to the route itself; to +the territory across which the route lay, not to the name which for the +moment the territory bore on the map. The purpose of the law was to +authorize the President to make a treaty with the power in actual control +of the Isthmus of Panama. This purpose has been fulfilled. + +In the year 1846 this Government entered into a treaty with New Granada, +the predecessor upon the Isthmus of the Republic of Colombia and of the +present Republic of Panama, by which treaty it was provided that the +Government and citizens of the United States should always have free and +open right of way or transit across the Isthmus of Panama by any modes of +communication that might be constructed, while in turn our Government +guaranteed the perfect neutrality of the above-mentioned Isthmus with the +view that the free transit from the one to the other sea might not be +interrupted or embarrassed. The treaty vested in the United States a +substantial property right carved out of the rights of sovereignty and +property which New Granada then had and possessed over the said territory. +The name of New Granada has passed away and its territory has been divided. +Its successor, the Government of Colombia, has ceased to own any property +in the Isthmus. A new Republic, that of Panama, which was at one time a +sovereign state, and at another time a mere department of the successive +confederations known as New Granada and Columbia, has now succeeded to the +rights which first one and then the other formerly exercised over the +Isthmus. But as long as the Isthmus endures, the mere geographical fact of +its existence, and the peculiar interest therein which is required by our +position, perpetuate the solemn contract which binds the holders of the +territory to respect our right to freedom of transit across it, and binds +us in return to safeguard for the Isthmus and the world the exercise of +that inestimable privilege. The true interpretation of the obligations upon +which the United States entered in this treaty of 1846 has been given +repeatedly in the utterances of Presidents and Secretaries of State. +Secretary Cuss in 1858 officially stated the position of this Government as +follows: + +"The progress of events has rendered the interoceanic route across the +narrow portion of Central America vastly important to the commercial world, +and especially to the United States, whose possessions extend along the +Atlantic and Pacific coasts, and demand the speediest and easiest modes of +communication. While the rights of sovereignty of the states occupying this +region should always be respected, we shall expect that these rights be +exercised in a spirit befitting the occasion and the wants and +circumstances that have arisen. Sovereignty has its duties as well as its +rights, and none of these local governments, even if administered with more +regard to the just demands of other nations than they have been, would be +permitted, in a spirit of Eastern isolation, to close the gates of +intercourse on the great highways of the world, and justify the act by the +pretension that these avenues of trade and travel belong to them and that +they choose to shut them, or, what is almost equivalent, to encumber them +with such unjust relations as would prevent their general use." + +Seven years later, in 1865, Mr. Seward in different communications took the +following position: + +"The United States have taken and will take no interest in any question of +internal revolution in the State of Panama, or any State of the United +States of Colombia, but will maintain a perfect neutrality in connection +with such domestic altercations. The United States will, nevertheless, hold +themselves ready to protect the transit trade across the Isthmus against +invasion of either domestic or foreign disturbers of the peace of the State +of Panama. Neither the text nor the spirit of the stipulation in that +article by which the United States engages to preserve the neutrality of +the Isthmus of Panama, imposes an obligation on this Government to comply +with the requisition of the President of the United States of Colombia for +a force to protect the Isthmus of Panama from a body of insurgents of that +country]. The purpose of the stipulation was to guarantee the Isthmus +against seizure or invasion by a foreign power only." + +Attorney-General Speed, under date of November 7, 1865, advised Secretary +Seward as follows: + +"From this treaty it can not be supposed that New Granada invited the +United States to become a party to the intestine troubles of that +Government, nor did the United States become bound to take sides in the +domestic broils of New Granada. The United States did guarantee New Granada +in the sovereignty and property over the territory. This was as against +other and foreign governments." + +For four hundred years, ever since shortly after the discovery of this +hemisphere, the canal across the Isthmus has been planned. For two score +years it has been worked at. When made it is to last for the ages. It is to +alter the geography of a continent and the trade routes of the world. We +have shown by every treaty we have negotiated or attempted to negotiate +with the peoples in control of the Isthmus and with foreign nations in +reference thereto our consistent good faith in observing our obligations; +on the one hand to the peoples of the Isthmus, and on the other hand to the +civilized world whose commercial rights we are safeguarding and +guaranteeing by our action. We have done our duty to others in letter and +in spirit, and we have shown the utmost forbearance in exacting our own +rights. + +Last spring, under the act above referred to, a treaty concluded between +the representatives of the Republic of Colombia and of our Government was +ratified by the Senate. This treaty was entered into at the urgent +solicitation of the people of Colombia and after a body of experts +appointed by our Government especially to go into the matter of the routes +across the Isthmus had pronounced unanimously in favor of the Panama route. +In drawing up this treaty every concession was made to the people and to +the Government of Colombia. We were more than just in dealing with them. +Our generosity was such as to make it a serious question whether we had not +gone too far in their interest at the expense of our own; for in our +scrupulous desire to pay all possible heed, not merely to the real but even +to the fancied rights of our weaker neighbor, who already owed so much to +our protection and forbearance, we yielded in all possible ways to her +desires in drawing up the treaty. Nevertheless the Government of Colombia +not merely repudiated the treaty, but repudiated it in such manner as to +make it evident by the time the Colombian Congress adjourned that not the +scantiest hope remained of ever getting a satisfactory treaty from them. +The Government of Colombia made the treaty, and yet when the Colombian +Congress was called to ratify it the vote against ratification was +unanimous. It does not appear that the Government made any real effort to +secure ratification. + +Immediately after the adjournment of the Congress a revolution broke out in +Panama. The people of Panama had long been discontented with the Republic +of Colombia, and they had been kept quiet only by the prospect of the +conclusion of the treaty, which was to them a matter of vital concern. When +it became evident that the treaty was hopelessly lost, the people of Panama +rose literally as one man. Not a shot was fired by a single man on the +Isthmus in the interest of the Colombian Government. Not a life was lost in +the accomplishment of the revolution. The Colombian troops stationed on the +Isthmus, who had long been unpaid, made common cause with the people of +Panama, and with astonishing unanimity the new Republic was started. The +duty of the United States in the premises was clear. In strict accordance +with the principles laid down by Secretaries Cass and Seward in the +official documents above quoted, the United States gave notice that it +would permit the landing of no expeditionary force, the arrival of which +would mean chaos and destruction along the line of the railroad and of the +proposed Canal, and an interruption of transit as an inevitable +consequence. The de facto Government of Panama was recognized in the +following telegram to Mr. Ehrman: + +"The people of Panama have, by apparently unanimous movement, dissolved +their political connection with the Republic of Colombia and resumed their +independence. When you are satisfied that a de facto government, republican +in form and without substantial opposition from its own people, has been +established in the State of Panama, you will enter into relations with it +as the responsible government of the territory and look to it for all due +action to protect the persons and property of citizens of the United States +and to keep open the isthmian transit, in accordance with the obligations +of existing treaties governing the relations of the United States to that +Territory." + +The Government of Colombia was notified of our action by the following +telegram to Mr. Beaupre: + +"The people of Panama having, by an apparently unanimous movement, +dissolved their political connection with the Republic of Colombia and +resumed their independence, and having adopted a Government of their own, +republican in form, with which the Government of the United States of +America has entered into relations, the President of the United States, in +accordance with the ties of friendship which have so long and so happily +existed between the respective nations, most earnestly commends to the +Governments of Colombia and of Panama the peaceful and equitable settlement +of all questions at issue between them. He holds that he is bound not +merely by treaty obligations, but by the interests of civilization, to see +that the peaceful traffic of the world across the Isthmus of Panama shall +not longer be disturbed by a constant succession of unnecessary and +wasteful civil wars." + +When these events happened, fifty-seven years had elapsed since the United +States had entered into its treaty with New Granada. During that time the +Governments of New Granada and of its successor, Colombia, have been in a +constant state of flux. The following is a partial list of the disturbances +on the Isthmus of Panama during the period in question as reported to us by +our consuls. It is not possible to give a complete list, and some of the +reports that speak of "revolutions" must mean unsuccessful revolutions. May +22, 1850.--Outbreak; two Americans killed. War vessel demanded to quell +outbreak. October, 1850.--Revolutionary plot to bring about independence of +the Isthmus. July 22, 1851.--Revolution in four southern provinces. +November 14, 1851.--Outbreak at Chagres. Man-of-war requested for Chagres. +June 27, 1853.--Insurrection at Bogota, and consequent disturbance on +Isthmus. War vessel demanded. May 23, 1854--Political disturbances; war +vessel requested. June 28, 1854.--Attempted revolution. October 24, +1854.--Independence of Isthmus demanded by provincial legislature. April, +1856.--Riot, and massacre of Americans. May 4, 1856.--Riot. May 18, +1856.--Riot. June 3, 1856.--Riot. October 2, 1856.--Conflict between two +native parties. United States forces landed. December 18, 1858.--Attempted +secession of Panama. April, 1859.--Riots. September, 1860.--Outbreak. +October 4, 1860.--Landing of United States forces in consequence. May 23, +1861.--Intervention of the United States forces required by intendente. +October 2, 1861.--Insurrection and civil war. April 4, 1862.--Measures to +prevent rebels crossing Isthmus. June 13, 1862.--Mosquera's troops refused +admittance to Panama. March, 1865.--Revolution, and United States troops +landed. August, 1865.--Riots; unsuccessful attempt to invade Panama. March, +1866.--Unsuccessful revolution. April, 1867.--Attempt to overthrow +Government. August, 1867.--Attempt at revolution. July 5, +1868.--Revolution; provisional government inaugurated. August 29, +1868.--Revolution; provisional government overthrown. April, +1871.--Revolution; followed apparently by counter revolution. April, +1873.--Revolution and civil war which lasted to October, 1875. August, +1876.--Civil war which lasted until April, 1877. July, 1878.--Rebellion. +December, 1878.--Revolt. April, 1879.--Revolution. June, 1879.--Revolution. +March, 1883.--Riot. May, 1883.--Riot. June, 1884.--Revolutionary attempt. +December, 1884.--Revolutionary attempt. January, 1885.--Revolutionary +disturbances. March, 1885.--Revolution. April, 1887.--Disturbance on Panama +Railroad. November, 1887.--Disturbance on line of canal. January, +1889.--Riot. January, 1895.--Revolution which lasted until April. March, +1895.--Incendiary attempt. October, 1899.--Revolution. February, 1900, to +July, 1900.--Revolution. January, 1901--Revolution. July, +1901.--Revolutionary disturbances. September, 1901.--City of Colon taken by +rebels. March, 1902.--Revolutionary disturbances. July, 1902.--Revolution. +The above is only a partial list of the revolutions, rebellions, +insurrections, riots, and other outbreaks that have occurred during the +period in question; yet they number 53 for the 57 years. It will be noted +that one of them lasted for nearly three years before it was quelled; +another for nearly a year. In short, the experience of over half a century +has shown Colombia to be utterly incapable of keeping order on the Isthmus. +Only the active interference of the United States has enabled her to +preserve so much as a semblance of sovereignty. Had it not been for the +exercise by the United States of the police power in her interest, her +connection with the Isthmus would have been sundered long ago. In 1856, in +1860, in 1873, in 1885, in 1901, and again in 1902, sailors and marines +from United States war ships were forced to land in order to patrol the +Isthmus, to protect life and property, and to see that the transit across +the Isthmus was kept open. In 1861, in 1862, in 1885, and in 1900, the +Colombian Government asked that the United States Government would land +troops to protect its interests and maintain order on the Isthmus. Perhaps +the most extraordinary request is that which has just been received and +which runs as follows: + +"Knowing that revolution has already commenced in Panama [an eminent +Colombian] says that if the Government of the United States will land +troops to preserve Colombian sovereignty, and the transit, if requested by +Colombian charge d'affaires, this Government will declare martial law; and, +by virtue of vested constitutional authority, when public order is +disturbed, will approve by decree ratification of the canal treaty as +signed; or, if the Government of the United States prefers, will call extra +session of the Congress--with new and friendly members--next May to approve +the treaty. [An eminent Colombian] has the perfect confidence of +vice-president, he says, and if it became necessary will go to the Isthmus +or send representatives there to adjust matters along above lines to the +satisfaction of the people there." + +This dispatch is noteworthy from two standpoints. Its offer of immediately +guaranteeing the treaty to us is in sharp contrast with the positive and +contemptuous refusal of the Congress which has just closed its sessions to +consider favorably such a treaty; it shows that the Government which made +the treaty really had absolute control over the situation, but did not +choose to exercise this control. The dispatch further calls on us to +restore order and secure Colombian supremacy in the Isthmus from which the +Colombian Government has just by its action decided to bar us by preventing +the construction of the canal. + +The control, in the interest of the commerce and traffic of the whole +civilized world, of the means of undisturbed transit across the Isthmus of +Panama has become of transcendent importance to the United States. We have +repeatedly exercised this control by intervening in the course of domestic +dissension, and by protecting the territory from foreign invasion. In 1853 +Mr. Everett assured the Peruvian minister that we should not hesitate to +maintain the neutrality of the Isthmus in the case of war between Peru and +Colombia. In 1864 Colombia, which has always been vigilant to avail itself +of its privileges conferred by the treaty, expressed its expectation that +in the event of war between Peru and Spain the United States would carry +into effect the guaranty of neutrality. There have been few administrations +of the State Department in which this treaty has not, either by the one +side or the other, been used as a basis of more or less important demands. +It was said by Mr. Fish in 1871 that the Department of State had reason to +believe that an attack upon Colombian sovereignty on the Isthmus had, on +several occasions, been averted by warning from this Government. In 1886, +when Colombia was under the menace of hostilities from Italy in the Cerruti +case, Mr. Bayard expressed the serious concern that the United States could +not but feel, that a European power should resort to force against a sister +republic of this hemisphere, as to the sovereign and uninterrupted use of a +part of whose territory we are guarantors under the solemn faith of a +treaty. + +The above recital of facts establishes beyond question: First, that the +United States has for over half a century patiently and in good faith +carried out its obligations under the treaty of 1846; second, that when for +the first time it became possible for Colombia to do anything in requital +of the services thus repeatedly rendered to it for fifty-seven years by the +United States, the Colombian Government peremptorily and offensively +refused thus to do its part, even though to do so would have been to its +advantage and immeasurably to the advantage of the State of Panama, at that +time under its jurisdiction; third, that throughout this period +revolutions, riots, and factional disturbances of every kind have occurred +one after the other in almost uninterrupted succession, some of them +lasting for months and even for years, while the central government was +unable to put them down or to make peace with the rebels; fourth, that +these disturbances instead of showing any sign of abating have tended to +grow more numerous and more serious in the immediate past; fifth, that the +control of Colombia over the Isthmus of Panama could not be maintained +without the armed intervention and assistance of the United States. In +other words, the Government of Colombia, though wholly unable to maintain +order on the Isthmus, has nevertheless declined to ratify a treaty the +conclusion of which opened the only chance to secure its own stability and +to guarantee permanent peace on, and the construction of a canal across, +the Isthmus. + +Under such circumstances the Government of the United States would have +been guilty of folly and weakness, amounting in their sum to a crime +against the Nation, had it acted otherwise than it did when the revolution +of November 3 last took place in Panama. This great enterprise of building +the interoceanic canal can not be held up to gratify the whims, or out of +respect to the governmental impotence, or to the even more sinister and +evil political peculiarities, of people who, though they dwell afar off, +yet, against the wish of the actual dwellers on the Isthmus, assert an +unreal supremacy over the territory. The possession of a territory fraught +with such peculiar capacities as the Isthmus in question carries with it +obligations to mankind. The course of events has shown that this canal can +not be built by private enterprise, or by any other nation than our own; +therefore it must be built by the United States. + +Every effort has been made by the Government of the United States to +persuade Colombia to follow a course which was essentially not only to our +interests and to the interests of the world, but to the interests of +Colombia itself. These efforts have failed; and Colombia, by her +persistence in repulsing the advances that have been made, has forced us, +for the sake of our own honor, and of the interest and well-being, not +merely of our own people, but of the people of the Isthmus of Panama and +the people of the civilized countries of the world, to take decisive steps +to bring to an end a condition of affairs which had become intolerable. The +new Republic of Panama immediately offered to negotiate a treaty with us. +This treaty I herewith submit. By it our interests are better safeguarded +than in the treaty with Colombia which was ratified by the Senate at its +last session. It is better in its terms than the treaties offered to us by +the Republics of Nicaragua and Costa Rica. At last the right to begin this +great undertaking is made available. Panama has done her part. All that +remains is for the American Congress to do its part, and forthwith this +Republic will enter upon the execution of a project colossal in its size +and of well-nigh incalculable possibilities for the good of this country +and the nations of mankind. + +By the provisions of the treaty the United States guarantees and will +maintain the independence of the Republic of Panama. There is granted to +the United States in perpetuity the use, occupation, and control of a strip +ten miles wide and extending three nautical miles into the sea at either +terminal, with all lands lying outside of the zone necessary for the +construction of the canal or for its auxiliary works, and with the islands +in the Bay of Panama. The cities of Panama and Colon are not embraced in +the canal zone, but the United States assumes their sanitation and, in case +of need, the maintenance of order therein; the United States enjoys within +the granted limits all the rights, power, and authority which it would +possess were it the sovereign of the territory to the exclusion of the +exercise of sovereign rights by the Republic. All railway and canal +property rights belonging to Panama and needed for the canal pass to the +United States, including any property of the respective companies in the +cities of Panama and Colon; the works, property, and personnel of the canal +and railways are exempted from taxation as well in the cities of Panama and +Colon as in the canal zone and its dependencies. Free immigration of the +personnel and importation of supplies for the construction and operation of +the canal are granted. Provision is made for the use of military force and +the building of fortifications by the United States for the protection of +the transit. In other details, particularly as to the acquisition of the +interests of the New Panama Canal Company and the Panama Railway by the +United States and the condemnation of private property for the uses of the +canal, the stipulations of the Hay-Herran treaty are closely followed, +while the compensation to be given for these enlarged grants remains the +same, being ten millions of dollars payable on exchange of ratifications; +and, beginning nine years from that date, an annual payment of $250,000 +during the life of the convention. + +*** + +State of the Union Address +Theodore Roosevelt +December 6, 1904 + +To the Senate and House of Representatives: + +The Nation continues to enjoy noteworthy prosperity. Such prosperity is of +course primarily due to the high individual average of our citizenship, +taken together with our great natural resources; but an important factor +therein is the working of our long-continued governmental policies. The +people have emphatically expressed their approval of the principles +underlying these policies, and their desire that these principles be kept +substantially unchanged, although of course applied in a progressive spirit +to meet changing conditions. + +The enlargement of scope of the functions of the National Government +required by our development as a nation involves, of course, increase of +expense; and the period of prosperity through which the country is passing +justifies expenditures for permanent improvements far greater than would be +wise in hard times. Battle ships and forts, public buildings, and improved +waterways are investments which should be made when we have the money; but +abundant revenues and a large surplus always invite extravagance, and +constant care should be taken to guard against unnecessary increase of the +ordinary expenses of government. The cost of doing Government business +should be regulated with the same rigid scrutiny as the cost of doing a +private business. + +In the vast and complicated mechanism of our modern civilized life the +dominant note is the note of industralism; and the relations of capital and +labor, and especially of organized capital and organized labor, to each +other and to the public at large come second in importance only to the +intimate questions of family life. Our peculiar form of government, with +its sharp division of authority between the Nation and the several States, +has been on the whole far more advantageous to our development than a more +strongly centralized government. But it is undoubtedly responsible for much +of the difficulty of meeting with adequate legislation the new problems +presented by the total change in industrial conditions on this continent +during the last half century. In actual practice it has proved exceedingly +difficult, and in many cases impossible, to get unanimity of wise action +among the various States on these subjects. From the very nature of the +case this is especially true of the laws affecting the employment of +capital in huge masses. + +With regard to labor the problem is no less important, but it is simpler. +As long as the States retain the primary control of the police power the +circumstances must be altogether extreme which require interference by the +Federal authorities, whether in the way of safeguarding the rights of labor +or in the way of seeing that wrong is not done by unruly persons who shield +themselves behind the name of labor. If there is resistance to the Federal +courts, interference with the mails, or interstate commerce, or molestation +of Federal property, or if the State authorities in some crisis which they +are unable to face call for help, then the Federal Government may +interfere; but though such interference may be caused by a condition of +things arising out of trouble connected with some question of labor, the +interference itself simply takes the form of restoring order without regard +to the questions which have caused the breach of order--for to keep order +is a primary duty and in a time of disorder and violence all other +questions sink into abeyance until order has been restored. In the District +of Columbia and in the Territories the Federal law covers the entire field +of government; but the labor question is only acute in populous centers of +commerce, manufactures, or mining. Nevertheless, both in the enactment and +in the enforcement of law the Federal Government within its restricted +sphere should set an example to the State governments, especially in a +matter so vital as this affecting labor. I believe that under modern +industrial conditions it is often necessary, and even where not necessary +it is yet often wise, that there should be organization of labor in order +better to secure the rights of the individual wage-worker. All +encouragement should be given to any such organization so long as it is +conducted with a due and decent regard for the rights of others. There are +in this country some labor unions which have habitually, and other labor +unions which have often, been among the most effective agents in working +for good citizenship and for uplifting the condition of those whose welfare +should be closest to our hearts. But when any labor union seeks improper +ends, or seeks to achieve proper ends by improper means, all good citizens +and more especially all honorable public servants must oppose the +wrongdoing as resolutely as they would oppose the wrongdoing of any great +corporation. Of course any violence, brutality, or corruption, should not +for one moment be tolerated. Wage-workers have an entire right to organize +and by all peaceful and honorable means to endeavor to persuade their +fellows to join with them in organizations. They have a legal right, which, +according to circumstances, may or may not be a moral right, to refuse to +work in company with men who decline to join their organizations. They have +under no circumstances the right to commit violence upon these, whether +capitalists or wage-workers, who refuse to support their organizations, or +who side with those with whom they are at odds; for mob rule is intolerable +in any form. + +The wage-workers are peculiarly entitled to the protection and the +encouragement of the law. From the very nature of their occupation railroad +men, for instance, are liable to be maimed in doing the legitimate work of +their profession, unless the railroad companies are required by law to make +ample provision for their safety. The Administration has been zealous in +enforcing the existing law for this purpose. That law should be amended and +strengthened. Wherever the National Government has power there should be a +stringent employer's liability law, which should apply to the Government +itself where the Government is an employer of labor. + +In my Message to the Fifty-seventh Congress, at its second session, I urged +the passage of an employer's liability law for the District of Columbia. I +now renew that recommendation, and further recommend that the Congress +appoint a commission to make a comprehensive study of employer's liability +with the view of extending the provisions of a great and constitutional law +to all employments within the scope of Federal power. + +The Government has recognized heroism upon the water, and bestows medals of +honor upon those persons who by extreme and heroic daring have endangered +their lives in saving, or endeavoring to save, lives from the perils of the +sea in the waters over which the United States has jurisdiction, or upon an +American vessel. This recognition should be extended to cover cases of +conspicuous bravery and self-sacrifice in the saving of life in private +employments under the jurisdiction of the United States, and particularly +in the land commerce of the Nation. + +The ever-increasing casualty list upon our railroads is a matter of grave +public concern, and urgently calls for action by the Congress. In the +matter of speed and comfort of railway travel our railroads give at least +as good service as those of any other nation, and there is no reason why +this service should not also be as safe as human ingenuity can make it. +Many of our leading roads have been foremost in the adoption of the most +approved safeguards for the protection of travelers and employees, yet the +list of clearly avoidable accidents continues unduly large. The passage of +a law requiring the adoption of a block-signal system has been proposed to +the Congress. I earnestly concur in that recommendation, and would also +point out to the Congress the urgent need of legislation in the interest of +the public safety limiting the hours of labor for railroad employees in +train service upon railroads engaged in interstate commerce, and providing +that only trained and experienced persons be employed in positions of +responsibility connected with the operation of trains. Of course nothing +can ever prevent accidents caused by human weakness or misconduct; and +there should be drastic punishment for any railroad employee, whether +officer or man, who by issuance of wrong orders or by disobedience of +orders causes disaster. The law of 1901, requiring interstate railroads to +make monthly reports of all accidents to passengers and employees on duty, +should also be amended so as to empower the Government to make a personal +investigation, through proper officers, of all accidents involving loss of +life which seem to require investigation, with a requirement that the +results of such investigation be made public. + +The safety-appliance law, as amended by the act of March 2, 1903, has +proved beneficial to railway employees, and in order that its provisions +may be properly carried out, the force of inspectors provided for by +appropriation should be largely increased. This service is analogous to the +Steamboat-Inspection Service, and deals with even more important interests. +It has passed the experimental stage and demonstrated its utility, and +should receive generous recognition by the Congress. + +There is no objection to employees of the Government forming or belonging +to unions; but the Government can neither discriminate for nor discriminate +against nonunion men who are in its employment, or who seek to be employed +under it. Moreover, it is a very grave impropriety for Government employees +to band themselves together for the purpose of extorting improperly high +salaries from the Government. Especially is this true of those within the +classified service. The letter carriers, both municipal and rural, are as a +whole an excellent body of public servants. They should be amply paid. But +their payment must be obtained by arguing their claims fairly and honorably +before the Congress, and not by banding together for the defeat of those +Congressmen who refuse to give promises which they can not in conscience +give. The Administration has already taken steps to prevent and punish +abuses of this nature; but it will be wise for the Congress to supplement +this action by legislation. + +Much can be done by the Government in labor matters merely by giving +publicity to certain conditions. The Bureau of Labor has done excellent +work of this kind in many different directions. I shall shortly lay before +you in a special message the full report of the investigation of the Bureau +of Labor into the Colorado mining strike, as this was a strike in which +certain very evil forces, which are more or less at work everywhere under +the conditions of modern industrialism, became startlingly prominent. It is +greatly to be wished that the Department of Commerce and Labor, through the +Labor Bureau, should compile and arrange for the Congress a list of the +labor laws of the various States, and should be given the means to +investigate and report to the Congress upon the labor conditions in the +manufacturing and mining regions throughout the country, both as to wages, +as to hours of labor, as to the labor of women and children, and as to the +effect in the various labor centers of immigration from abroad. In this +investigation especial attention should be paid to the conditions of child +labor and child-labor legislation in the several States. Such an +investigation must necessarily take into account many of the problems with +which this question of child labor is connected. These problems can be +actually met, in most cases, only by the States themselves; but the lack of +proper legislation in one State in such a matter as child labor often +renders it excessively difficult to establish protective restriction upon +the work in another State having the same industries, so that the worst +tends to drag down the better. For this reason, it would be well for the +Nation at least to endeavor to secure comprehensive information as to the +conditions of labor of children in the different States. Such investigation +and publication by the National Government would tend toward the securing +of approximately uniform legislation of the proper character among the +several States. + +When we come to deal with great corporations the need for the Government to +act directly is far greater than in the case of labor, because great +corporations can become such only by engaging in interstate commerce, and +interstate commerce is peculiarly the field of the General Government. It +is an absurdity to expect to eliminate the abuses in great corporations by +State action. It is difficult to be patient with an argument that such +matters should be left to the States because more than one State pursues +the policy of creating on easy terms corporations which are never operated +within that State at all, but in other States whose laws they ignore. The +National Government alone can deal adequately with these great +corporations. To try to deal with them in an intemperate, destructive, or +demagogic spirit would, in all probability, mean that nothing whatever +would be accomplished, and, with absolute certainty, that if anything were +accomplished it would be of a harmful nature. The American people need to +continue to show the very qualities that they have shown--that is, +moderation, good sense, the earnest desire to avoid doing any damage, and +yet the quiet determination to proceed, step by step, without halt and +without hurry, in eliminating or at least in minimizing whatever of +mischief or evil there is to interstate commerce in the conduct of great +corporations. They are acting in no spirit of hostility to wealth, either +individual or corporate. They are not against the rich man any more than +against the poor man. On the contrary, they are friendly alike toward rich +man and toward poor man, provided only that each acts in a spirit of +justice and decency toward his fellows. Great corporations are necessary, +and only men of great and singular mental power can manage such +corporations successfully, and such men must have great rewards. But these +corporations should be managed with due regard to the interest of the +public as a whole. Where this can be done under the present laws it must be +done. Where these laws come short others should be enacted to supplement +them. + +Yet we must never forget the determining factor in every kind of work, of +head or hand, must be the man's own good sense, courage, and kindliness. +More important than any legislation is the gradual growth of a feeling of +responsibility and forbearance among capitalists, and wage-workers alike; a +feeling of respect on the part of each man for the rights of others; a +feeling of broad community of interest, not merely of capitalists among +themselves, and of wage-workers among themselves, but of capitalists and +wage-workers in their relations to each other, and of both in their +relations to their fellows who with them make up the body politic. There +are many captains of industry, many labor leaders, who realize this. A +recent speech by the president of one of our great railroad systems to the +employees of that system contains sound common sense. It rims in part as +follows: + +"It is my belief we can better serve each other, better understand the man +as well as his business, when meeting face to face, exchanging views, and +realizing from personal contact we serve but one interest, that of our +mutual prosperity. + +"Serious misunderstandings can not occur where personal good will exists +and opportunity for personal explanation is present. + +"In my early business life I had experience with men of affairs of a +character to make me desire to avoid creating a like feeling of resentment +to myself and the interests in my charge, should fortune ever place me in +authority, and I am solicitous of a measure of confidence on the part of +the public and our employees that I shall hope may be warranted by the +fairness and good fellowship I intend shall prevail in our relationship. + +"But do not feel I am disposed to grant unreasonable requests, spend the +money of our company unnecessarily or without value received, nor expect +the days of mistakes are disappearing, or that cause for complaint will not +continually occur; simply to correct such abuses as may be discovered, to +better conditions as fast as reasonably may be expected, constantly +striving, with varying success, for that improvement we all desire, to +convince you there is a force at work in the right direction, all the time +making progress--is the disposition with which I have come among you, +asking your good will and encouragement. + +"The day has gone by when a corporation can be handled successfully in +defiance of the public will, even though that will be unreasonable and +wrong. A public may be led, but not driven, and I prefer to go with it and +shape or modify, in a measure, its opinion, rather than be swept from my +bearings, with loss to myself and the interests in my charge. + +"Violent prejudice exists towards corporate activity and capital today, +much of it founded in reason, more in apprehension, and a large measure is +due to the personal traits of arbitrary, unreasonable, incompetent, and +offensive men in positions of authority. The accomplishment of results by +indirection, the endeavor to thwart the intention, if not the expressed +letter of the law (the will of the people), a disregard of the rights of +others, a disposition to withhold what is due, to force by main strength or +inactivity a result not justified, depending upon the weakness of the +claimant and his indisposition to become involved in litigation, has +created a sentiment harmful in the extreme and a disposition to consider +anything fair that gives gain to the individual at the expense of the +company. + +"If corporations are to continue to do the world's work, as they are best +fitted to, these qualities in their representatives that have resulted in +the present prejudice against them must be relegated to the background. The +corporations must come out into the open and see and be seen. They must +take the public into their confidence and ask for what they want, and no +more, and be prepared to explain satisfactorily what advantage will accrue +to the public if they are given their desires; for they are permitted to +exist not that they may make money solely, but that they may effectively +serve those from whom they derive their power. + +"Publicity, and not secrecy, will win hereafter, and laws be construed by +their intent and not by their letter, otherwise public utilities will be +owned and operated by the public which created them, even though the +service be less efficient and the result less satisfactory from a financial +standpoint." + +The Bureau of Corporations has made careful preliminary investigation of +many important corporations. It will make a special report on the beef +industry. + +The policy of the Bureau is to accomplish the purposes of its creation by +co-operation, not antagonism; by making constructive legislation, not +destructive prosecution, the immediate object of its inquiries; by +conservative investigation of law and fact, and by refusal to issue +incomplete and hence necessarily inaccurate reports. Its policy being thus +one of open inquiry into, and not attack upon, business, the Bureau has +been able to gain not only the confidence, but, better still, the +cooperation of men engaged in legitimate business. + +The Bureau offers to the Congress the means of getting at the cost of +production of our various great staples of commerce. + +Of necessity the careful investigation of special corporations will afford +the Commissioner knowledge of certain business facts, the publication of +which might be an improper infringement of private rights. The method of +making public the results of these investigations affords, under the law, a +means for the protection of private rights. The Congress will have all +facts except such as would give to another corporation information which +would injure the legitimate business of a competitor and destroy the +incentive for individual superiority and thrift. + +The Bureau has also made exhaustive examinations into the legal condition +under which corporate business is carried on in the various States; into +all judicial decisions on the subject; and into the various systems of +corporate taxation in use. I call special attention to the report of the +chief of the Bureau; and I earnestly ask that the Congress carefully +consider the report and recommendations of the Commissioner on this +subject. + +The business of insurance vitally affects the great mass of the people of +the United States and is national and not local in its application. It +involves a multitude of transactions among the people of the different +States and between American companies and foreign governments. I urge that +the Congress carefully consider whether the power of the Bureau of +Corporations can not constitutionally be extended to cover interstate +transactions in insurance. + +Above all else, we must strive to keep the highways of commerce open to all +on equal terms; and to do this it is necessary to put a complete stop to +all rebates. Whether the shipper or the railroad is to blame makes no +difference; the rebate must be stopped, the abuses of the private car and +private terminal-track and side-track systems must be stopped, and the +legislation of the Fifty-eighth Congress which declares it to be unlawful +for any person or corporation to offer, gram, give, solicit, accept, or +receive any rebate, concession, or discrimination in respect of the +transportation of any property in interstate or foreign commerce whereby +such property shall by any device whatever be transported at a less rate +than that named in the tariffs published by the carrier must be enforced. +For some time after the enactment of the Act to Regulate Commerce it +remained a mooted question whether that act conferred upon the Interstate +Commerce Commission the power, after it had found a challenged rate to be +unreasonable, to declare what thereafter should, prima facie, be the +reasonable maximum rate for the transportation in dispute. The Supreme +Court finally resolved that question in the negative, so that as the law +now stands the Commission simply possess the bare power to denounce a +particular rate as unreasonable. While I am of the opinion that at present +it would be undesirable, if it were not impracticable, finally to clothe +the Commission with general authority to fix railroad rates, I do believe +that, as a fair security to shippers, the Commission should be vested with +the power, where a given rate has been challenged and after full hearing +found to be unreasonable, to decide, subject to judicial review, what shall +be a reasonable rate to take its place; the ruling of the Commission to +take effect immediately, and to obtain unless and until it is reversed by +the court of review. The Government must in increasing degree supervise and +regulate the workings of the railways engaged in interstate commerce; and +such increased supervision is the only alternative to an increase of the +present evils on the one hand or a still more radical policy on the other. +In my judgment the most important legislative act now needed as regards the +regulation of corporations is this act to confer on the Interstate Commerce +Commission the power to revise rates and regulations, the revised rate to +at once go into effect, and stay in effect unless and until the court of +review reverses it. + +Steamship companies engaged in interstate commerce and protected in our +coastwise trade should be held to a strict observance of the interstate +commerce act. + +In pursuing the set plan to make the city of Washington an example to other +American municipalities several points should be kept in mind by the +legislators. In the first place, the people of this country should clearly +understand that no amount of industrial prosperity, and above all no +leadership in international industrial competition, can in any way atone +for the sapping of the vitality of those who are usually spoken of as the +working classes. The farmers, the mechanics, the skilled and unskilled +laborers, the small shop keepers, make up the bulk of the population of any +country; and upon their well-being, generation after generation, the +well-being of the country and the race depends. Rapid development in wealth +and industrial leadership is a good thing, but only if it goes hand in hand +with improvement, and not deterioration, physical and moral. The +over-crowding of cities and the draining of country districts are unhealthy +and even dangerous symptoms in our modern life. We should not permit +overcrowding in cities. In certain European cities it is provided by law +that the population of towns shall not be allowed to exceed a very limited +density for a given area, so that the increase in density must be +continually pushed back into a broad zone around the center of the town, +this zone having great avenues or parks within it. The death-rate +statistics show a terrible increase in mortality, and especially in infant +mortality, in overcrowded tenements. The poorest families in tenement +houses live in one room, and it appears that in these one-room tenements +the average death rate for a number of given cities at home and abroad is +about twice what it is in a two-room tenement, four times what it is in a +three-room tenement, and eight times what it is in a tenement consisting of +four rooms or over. These figures vary somewhat for different cities, but +they approximate in each city those given above; and in all cases the +increase of mortality, and especially of infant mortality, with the +decrease in the number of rooms used by the family and with the consequent +overcrowding is startling. The slum exacts a heavy total of death from +those who dwell therein; and this is the case not merely in the great +crowded slums of high buildings in New York and Chicago, but in the alley +slums of Washington. In Washington people can not afford to ignore the harm +that this causes. No Christian and civilized community can afford to show a +happy-go-lucky lack of concern for the youth of to-day; for, if so, the +community will have to pay a terrible penalty of financial burden and +social degradation in the to-morrow. There should be severe child-labor and +factory-inspection laws. It is very desirable that married women should not +work in factories. The prime duty of the man is to work, to be the +breadwinner; the prime duty of the woman is to be the mother, the +housewife. All questions of tariff and finance sink into utter +insignificance when compared with the tremendous, the vital importance of +trying to shape conditions so that these two duties of the man and of the +woman can be fulfilled under reasonably favorable circumstances. If a race +does not have plenty of children, or if the children do not grow up, or if +when they grow up they are unhealthy in body and stunted or vicious in +mind, then that race is decadent, and no heaping up of wealth, no splendor +of momentary material prosperity, can avail in any degree as offsets. + +The Congress has the same power of legislation for the District of Columbia +which the State legislatures have for the various States. The problems +incident to our highly complex modern industrial civilization, with its +manifold and perplexing tendencies both for good and for evil, are far less +sharply eccentuated in the city of Washington than in most other cities. +For this very reason it is easier to deal with the various phases of these +problems in Washington, and the District of Columbia government should be a +model for the other municipal governments of the Nation, in all such +matters as supervision of the housing of the poor, the creation of small +parks in the districts inhabited by the poor, in laws affecting labor, in +laws providing for the taking care of the children, in truant laws, and in +providing schools. + +In the vital matter of taking care of children, much advantage could be +gained by a careful study of what has been accomplished in such States as +Illinois and Colorado by the juvenile courts. The work of the juvenile +court is really a work of character building. It is now generally +recognized that young boys and young girls who go wrong should not be +treated as criminals, not even necessarily as needing reformation, but +rather as needing to have their characters formed, and for this end to have +them tested and developed by a system of probation. Much admirable work has +been done in many of our Commonwealths by earnest men and women who have +made a special study of the needs of those classes of children which +furnish the greatest number of juvenile offenders, and therefore the +greatest number of adult offenders; and by their aid, and by profiting by +the experiences of the different States and cities in these matters, it +would be easy to provide a good code for the District of Columbia. + +Several considerations suggest the need for a systematic investigation into +and improvement of housing conditions in Washington. The hidden residential +alleys are breeding grounds of vice and disease, and should be opened into +minor streets. For a number of years influential citizens have joined with +the District Commissioners in the vain endeavor to secure laws permitting +the condemnation of insanitary dwellings. The local death rates, especially +from preventable diseases, are so unduly high as to suggest that the +exceptional wholesomeness of Washington's better sections is offset by bad +conditions in her poorer neighborhoods. A special "Commission on Housing +and Health Conditions in the National Capital" would not only bring about +the reformation of existing evils, but would also formulate an appropriate +building code to protect the city from mammoth brick tenements and other +evils which threaten to develop here as they have in other cities. That the +Nation's Capital should be made a model for other municipalities is an +ideal which appeals to all patriotic citizens everywhere, and such a +special Commission might map out and organize the city's future development +in lines of civic social service, just as Major L'Enfant and the recent +Park Commission planned the arrangement of her streets and parks. + +It is mortifying to remember that Washington has no compulsory school +attendance law and that careful inquiries indicate the habitual absence +from school of some twenty per cent of all children between the ages of +eight and fourteen. It must be evident to all who consider the problems of +neglected child life or the benefits of compulsory education in other +cities that one of the most urgent needs of the National Capital is a law +requiring the school attendance of all children, this law to be enforced by +attendance agents directed by the board of education. + +Public play grounds are necessary means for the development of wholesome +citizenship in modern cities. It is important that the work inaugurated +here through voluntary efforts should be taken up and extended through +Congressional appropriation of funds sufficient to equip and maintain +numerous convenient small play grounds upon land which can be secured +without purchase or rental. It is also desirable that small vacant places +be purchased and reserved as small-park play grounds in densely settled +sections of the city which now have no public open spaces and are destined +soon to be built up solidly. All these needs should be met immediately. To +meet them would entail expenses; but a corresponding saving could be made +by stopping the building of streets and levelling of ground for purposes +largely speculative in outlying parts of the city. + +There are certain offenders, whose criminality takes the shape of brutality +and cruelty towards the weak, who need a special type of punishment. The +wife-beater, for example, is inadequately punished by imprisonment; for +imprisonment may often mean nothing to him, while it may cause hunger and +want to the wife and children who have been the victims of his brutality. +Probably some form of corporal punishment would be the most adequate way of +meeting this kind of crime. + +The Department of Agriculture has grown into an educational institution +with a faculty of two thousand specialists making research into all the +sciences of production. The Congress appropriates, directly and indirectly, +six millions of dollars annually to carry on this work. It reaches every +State and Territory in the Union and the islands of the sea lately come +under our flag. Co-operation is had with the State experiment stations, and +with many other institutions and individuals. The world is carefully +searched for new varieties of grains, fruits, grasses, vegetables, trees, +and shrubs, suitable to various localities in our country; and marked +benefit to our producers has resulted. + +The activities of our age in lines of research have reached the tillers of +the soil and inspired them with ambition to know more of the principles +that govern the forces of nature with which they have to deal. Nearly half +of the people of this country devote their energies to growing things from +the soil. Until a recent date little has been done to prepare these +millions for their life work. In most lines of human activity +college-trained men are the leaders. The farmer had no opportunity for +special training until the Congress made provision for it forty years ago. +During these years progress has been made and teachers have been prepared. +Over five thousand students are in attendance at our State agricultural +colleges. The Federal Government expends ten millions of dollars annually +toward this education and for research in Washington and in the several +States and Territories. The Department of Agriculture has given facilities +for post-graduate work to five hundred young men during the last seven +years, preparing them for advance lines of work in the Department and in +the State institutions. + +The facts concerning meteorology and its relations to plant and animal life +are being systematically inquired into. Temperature and moisture are +controlling factors in all agricultural operations. The seasons of the +cyclones of the Caribbean Sea and their paths are being forecasted with +increasing accuracy. The cold winds that come from the north are +anticipated and their times and intensity told to farmers, gardeners, and +fruiterers in all southern localities. + +We sell two hundred and fifty million dollars' worth of animals and animal +products to foreign countries every year, in addition to supplying our own +people more cheaply and abundantly than any other nation is able to provide +for its people. Successful manufacturing depends primarily on cheap food, +which accounts to a considerable extent for our growth in this direction. +The Department of Agriculture, by careful inspection of meats, guards the +health of our people and gives clean bills of health to deserving exports; +it is prepared to deal promptly with imported diseases of animals, and +maintain the excellence of our flocks and herds in this respect. There +should be an annual census of the live stock of the Nation. + +We sell abroad about six hundred million dollars' worth of plants and their +products every year. Strenuous efforts are being made to import from +foreign countries such grains as are suitable to our varying localities. +Seven years ago we bought three-fourths of our rice; by helping the rice +growers on the Gulf coast to secure seeds from the Orient suited to their +conditions, and by giving them adequate protection, they now supply home +demand and export to the islands of the Caribbean Sea and to other +rice-growing countries. Wheat and other grains have been imported from +light-rainfall countries to our lands in the West and Southwest that have +not grown crops because of light precipitation, resulting in an extensive +addition to our cropping area and our home-making territory that can not be +irrigated. Ten million bushels of first-class macaroni wheat were grown +from these experimental importations last year. Fruits suitable to our +soils and climates are being imported from all the countries of the Old +World--the fig from Turkey, the almond from Spain, the date from Algeria, +the mango from India. We are helping our fruit growers to get their crops +into European markets by studying methods of preservation through +refrigeration, packing, and handling, which have been quite successful. We +are helping our hop growers by importing varieties that ripen earlier and +later than the kinds they have been raising, thereby lengthening the +harvesting season. The cotton crop of the country is threatened with root +rot, the bollworm, and the boll weevil. Our pathologists will find immune +varieties that will resist the root disease, and the bollworm can be dealt +with, but the boll weevil is a serious menace to the cotton crop. It is a +Central American insect that has become acclimated in Texas and has done +great damage. A scientist of the Department of Agriculture has found the +weevil at home in Guatemala being kept in check by an ant, which has been +brought to our cotton fields for observation. It is hoped that it may serve +a good purpose. + +The soils of the country are getting attention from the farmer's +standpoint, and interesting results are following. We have duplicates of +the soils that grow the wrapper tobacco in Sumatra and the filler tobacco +in Cuba. It will be only a question of time when the large amounts paid to +these countries will be paid to our own people. The reclamation of alkali +lands is progressing, to give object lessons to our people in methods by +which worthless lands may be made productive. + +The insect friends and enemies of the farmer are getting attention. The +enemy of the San Jose scale was found near the Great Wall of China, and is +now cleaning up all our orchards. The fig-fertilizing insect imported from +Turkey has helped to establish an industry in California that amounts to +from fifty to one hundred tons of dried figs annually, and is extending +over the Pacific coast. A parasitic fly from South Africa is keeping in +subjection the black scale, the worst pest of the orange and lemon industry +in California. + +Careful preliminary work is being done towards producing our own silk. The +mulberry is being distributed in large numbers, eggs are being imported and +distributed, improved reels were imported from Europe last year, and two +expert reelers were brought to Washington to reel the crop of cocoons and +teach the art to our own people. + +The crop-reporting system of the Department of Agriculture is being brought +closer to accuracy every year. It has two hundred and fifty thousand +reporters selected from people in eight vocations in life. It has +arrangements with most European countries for interchange of estimates, so +that our people may know as nearly as possible with what they must +compete. + +During the two and a half years that have elapsed since the passage of the +reclamation act rapid progress has been made in the surveys and +examinations of the opportunities for reclamation in the thirteen States +and three Territories of the arid West. Construction has already been begun +on the largest and most important of the irrigation works, and plans are +being completed for works which will utilize the funds now available. The +operations are being carried on by the Reclamation Service, a corps of +engineers selected through competitive civil-service examinations. This +corps includes experienced consulting and constructing engineers as well as +various experts in mechanical and legal matters, and is composed largely of +men who have spent most of their lives in practical affairs connected with +irrigation. The larger problems have been solved and it now remains to +execute with care, economy, and thoroughness the work which has been laid +out. All important details are being carefully considered by boards of +consulting engineers, selected for their thorough knowledge and practical +experience. Each project is taken up on the ground by competent men and +viewed from the standpoint of the creation of prosperous homes, and of +promptly refunding to the Treasury the cost of construction. The +reclamation act has been found to be remarkably complete and effective, and +so broad in its provisions that a wide range of undertakings has been +possible under it. At the same time, economy is guaranteed by the fact that +the funds must ultimately be returned to be used over again. + +It is the cardinal principle of the forest-reserve policy of this +Administration that the reserves are for use. Whatever interferes with the +use of their resources is to be avoided by every possible means. But these +resources must be used in such a way as to make them permanent. + +The forest policy of the Government is just now a subject of vivid public +interest throughout the West and to the people of the United States in +general. The forest reserves themselves are of extreme value to the present +as well as to the future welfare of all the western public-land States. +They powerfully affect the use and disposal of the public lands. They are +of special importance because they preserve the water supply and the supply +of timber for domestic purposes, and so promote settlement under the +reclamation act. Indeed, they are essential to the welfare of every one of +the great interests of the West. + +Forest reserves are created for two principal purposes. The first is to +preserve the water supply. This is their most important use. The principal +users of the water thus preserved are irrigation ranchers and settlers, +cities and towns to whom their municipal water supplies are of the very +first importance, users and furnishers of water power, and the users of +water for domestic, manufacturing, mining, and other purposes. All these +are directly dependent upon the forest reserves. + +The second reason for which forest reserves are created is to preserve the +timber supply for various classes of wood users. Among the more important +of these are settlers under the reclamation act and other acts, for whom a +cheap and accessible supply of timber for domestic uses is absolutely +necessary; miners and prospectors, who are in serious danger of losing +their timber supply by fire or through export by lumber companies when +timber lands adjacent to their mines pass into private ownership; +lumbermen, transportation companies, builders, and commercial interests in +general. + +Although the wisdom of creating forest reserves is nearly everywhere +heartily recognized, yet in a few localities there has been +misunderstanding and complaint. The following statement is therefore +desirable: + +The forest reserve policy can be successful only when it has the full +support of the people of the West. It can not safely, and should not in any +case, be imposed upon them against their will. But neither can we accept +the views of those whose only interest in the forest is temporary; who are +anxious to reap what they have not sown and then move away, leaving +desolation behind them. On the contrary, it is everywhere and always the +interest of the permanent settler and the permanent business man, the man +with a stake in the country, which must be considered and which must +decide. + +The making of forest reserves within railroad and wagon-road land-grant +limits will hereafter, as for the past three years, be so managed as to +prevent the issue, under the act of June 4, 1897, of base for exchange or +lieu selection (usually called scrip). In all cases where forest reserves +within areas covered by land grants appear to be essential to the +prosperity of settlers, miners, or others, the Government lands within such +proposed forest reserves will, as in the recent past, be withdrawn from +sale or entry pending the completion of such negotiations with the owners +of the land grants as will prevent the creation of so-called scrip. + +It was formerly the custom to make forest reserves without first getting +definite and detailed information as to the character of land and timber +within their boundaries. This method of action often resulted in badly +chosen boundaries and consequent injustice to settlers and others. +Therefore this Administration adopted the present method of first +withdrawing the land from disposal, followed by careful examination on the +ground and the preparation of detailed maps and descriptions, before any +forest reserve is created. + +I have repeatedly called attention to the confusion which exists in +Government forest matters because the work is scattered among three +independent organizations. The United States is the only one of the great +nations in which the forest work of the Government is not concentrated +under one department, in consonance with the plainest dictates of good +administration and common sense. The present arrangement is bad from every +point of view. Merely to mention it is to prove that it should be +terminated at once. As I have repeatedly recommended, all the forest work +of the Government should be concentrated in the Department of Agriculture, +where the larger part of that work is already done, where practically all +of the trained foresters of the Government are employed, where chiefly in +Washington there is comprehensive first-class knowledge of the problems of +the reserves acquired on the ground, where all problems relating to growth +from the soil are already gathered, and where all the sciences auxiliary to +forestry are at hand for prompt and effective co-operation. These reasons +are decisive in themselves, but it should be added that the great +organizations of citizens whose interests are affected by the +forest-reserves, such as the National Live Stock Association, the National +Wool Growers' Association, the American Mining Congress, the national +Irrigation Congress, and the National Board of Trade, have uniformly, +emphatically, and most of them repeatedly, expressed themselves in favor of +placing all Government forest work in the Department of Agriculture because +of the peculiar adaptation of that Department for it. It is true, also, +that the forest services of nearly all the great nations of the world are +under the respective departments of agriculture, while in but two of the +smaller nations and in one colony are they under the department of the +interior. This is the result of long and varied experience and it agrees +fully with the requirements of good administration in our own case. + +The creation of a forest service in the Department of Agriculture will have +for its important results: + +First. A better handling of all forest work; because it will be under a +single head, and because the vast and indispensable experience of the +Department in all matters pertaining to the forest reserves, to forestry in +general, and to other forms of production from the soil, will be easily and +rapidly accessible. + +Second. The reserves themselves, being handled from the point of view of +the man in the field, instead of the man in the office, will be more easily +and more widely useful to the people of the West than has been the case +hitherto. + +Third. Within a comparatively short time the reserves will become +self-supporting. This is important, because continually and rapidly +increasing appropriations will be necessary for the proper care of this +exceedingly important interest of the Nation, and they can and should he +offset by returns from the National forests. Under similar circumstances +the forest possessions of other great nations form an important source of +revenue to their governments. + +Every administrative officer concerned is convinced of the necessity for +the proposed consolidation of forest work in the Department of Agriculture, +and I myself have urged it more than once in former messages. Again I +commend it to the early and favorable consideration of the Congress. The +interests of the Nation at large and of the West in particular have +suffered greatly because of the delay. + +I call the attention of the Congress again to the report and recommendation +of the Commission on the Public Lands forwarded by me to the second session +of the present Congress. The Commission has prosecuted its investigations +actively during the past season, and a second report is now in an advanced +stage of preparation. + +In connection with the work of the forest reserves I desire again to urge +upon the Congress the importance of authorizing the President to set aside +certain portions of these reserves or other public lands as game refuges +for the preservation of the bison, the wapiti, and other large beasts once +so abundant in our woods and mountains and on our great plains, and now +tending toward extinction. Every support should be given to the authorities +of the Yellowstone Park in their successful efforts at preserving the large +creatures therein; and at very little expense portions of the public domain +in other regions which are wholly unsuited to agricultural settlement could +be similarly utilized. We owe it to future generations to keep alive the +noble and beautiful creatures which by their presence add such distinctive +character to the American wilderness. The limits of the Yellowstone Park +should be extended southwards. The Canyon of the Colorado should be made a +national park; and the national-park system should include the Yosemite and +as many as possible of the groves of giant trees in California. + +The veterans of the Civil War have a claim upon the Nation such as no other +body of our citizens possess. The Pension Bureau has never in its history +been managed in a more satisfactory manner than is now the case. + +The progress of the Indians toward civilization, though not rapid, is +perhaps all that could be hoped for in view of the circumstances. Within +the past year many tribes have shown, in a degree greater than ever before, +an appreciation of the necessity of work. This changed attitude is in part +due to the policy recently pursued of reducing the amount of subsistence to +the Indians, and thus forcing them, through sheer necessity, to work for a +livelihood. The policy, though severe, is a useful one, but it is to be +exercised only with judgment and with a full understanding of the +conditions which exist in each community for which it is intended. On or +near the Indian reservations there is usually very little demand for labor, +and if the Indians are to earn their living and when work can not be +furnished from outside (which is always preferable), then it must be +furnished by the Government. Practical instruction of this kind would in a +few years result in the forming of habits of regular industry, which would +render the Indian a producer and would effect a great reduction in the cost +of his maintenance. + +It is commonly declared that the slow advance of the Indians is due to the +unsatisfactory character of the men appointed to take immediate charge of +them, and to some extent this is true. While the standard of the employees +in the Indian Service shows great improvement over that of bygone years, +and while actual corruption or flagrant dishonesty is now the rare +exception, it is nevertheless the fact that the salaries paid Indian agents +are not large enough to attract the best men to that field of work. To +achieve satisfactory results the official in charge of an Indian tribe +should possess the high qualifications which are required in the manager of +a large business, but only in exceptional cases is it possible to secure +men of such a type for these positions. Much better service, however, might +be obtained from those now holding the places were it practicable to get +out of them the best that is in them, and this should be done by bringing +them constantly into closer touch with their superior officers. An agent +who has been content to draw his salary, giving in return the least +possible equivalent in effort and service, may, by proper treatment, by +suggestion and encouragement, or persistent urging, be stimulated to +greater effort and induced to take a more active personal interest in his +work. + +Under existing conditions an Indian agent in the distant West may be wholly +out of touch with the office of the Indian Bureau. He may very well feel +that no one takes a personal interest in him or his efforts. Certain +routine duties in the way of reports and accounts are required of him, but +there is no one with whom he may intelligently consult on matters vital to +his work, except after long delay. Such a man would be greatly encouraged +and aided by personal contact with some one whose interest in Indian +affairs and whose authority in the Indian Bureau were greater than his own, +and such contact would be certain to arouse and constantly increase the +interest he takes in his work. + +The distance which separates the agents--the workers in the field--from the +Indian Office in Washington is a chief obstacle to Indian progress. +Whatever shall more closely unite these two branches of the Indian Service, +and shall enable them to co-operate more heartily and more effectively, +will be for the increased efficiency of the work and the betterment of the +race for whose improvement the Indian Bureau was established. The +appointment of a field assistant to the Commissioner of Indian Affairs +would be certain to insure this good end. Such an official, if possessed of +the requisite energy and deep interest in the work, would be a most +efficient factor in bringing into closer relationship and a more direct +union of effort the Bureau in Washington and its agents in the field; and +with the co-operation of its branches thus secured the Indian Bureau would, +in measure fuller than ever before, lift up the savage toward that +self-help and self-reliance which constitute the man. + +In 1907 there will be held at Hampton Roads the tricentennial celebration +of the settlement at Jamestown, Virginia, with which the history of what +has now become the United States really begins. I commend this to your +favorable consideration. It is an event of prime historic significance, in +which all the people of the United States should feel, and should show, +great and general interest. + +In the Post-Office Department the service has increased in efficiency, and +conditions as to revenue and expenditure continue satisfactory. The +increase of revenue during the year was $9,358,181.10, or 6.9 per cent, the +total receipts amounting to $143,382,624.34. The expenditures were +$152,362,116.70, an increase of about 9 per cent over the previous year, +being thus $8,979,492.36 in excess of the current revenue. Included in +these expenditures was a total appropriation of $152,956,637.35 for the +continuation and extension of the rural free-delivery service, which was an +increase of $4,902,237.35 over the amount expended for this purpose in the +preceding fiscal year. Large as this expenditure has been the beneficent +results attained in extending the free distribution of mails to the +residents of rural districts have justified the wisdom of the outlay. +Statistics brought down to the 1st of October, 1904, show that on that date +there were 27,138 rural routes established, serving approximately +12,000,000 of people in rural districts remote from post-offices, and that +there were pending at that time 3,859 petitions for the establishment of +new rural routes. Unquestionably some part of the general increase in +receipts is due to the increased postal facilities which the rural service +has afforded. The revenues have also been aided greatly by amendments in +the classification of mail matter, and the curtailment of abuses of the +second-class mailing privilege. The average increase in the volume of mail +matter for the period beginning with 1902 and ending June, 1905 (that +portion for 1905 being estimated), is 40.47 per cent, as compared with +25.46 per cent for the period immediately preceding, and 15.92 for the +four-year period immediately preceding that. + +Our consular system needs improvement. Salaries should be substituted for +fees, and the proper classification, grading, and transfer of consular +officers should be provided. I am not prepared to say that a competitive +system of examinations for appointment would work well; but by law it +should be provided that consuls should be familiar, according to places for +which they apply, with the French, German, or Spanish languages, and should +possess acquaintance with the resources of the United States. + +The collection of objects of art contemplated in section 5586 of the +Revised Statutes should be designated and established as a National Gallery +of Art; and the Smithsonian Institution should be authorized to accept any +additions to said collection that may be received by gift, bequest, or +devise. + +It is desirable to enact a proper National quarantine law. It is most +undesirable that a State should on its own initiative enforce quarantine +regulations which are in effect a restriction upon interstate and +international commerce. The question should properly be assumed by the +Government alone. The Surgeon-General of the National Public Health and +Marine-Hospital Service has repeatedly and convincingly set forth the need +for such legislation. + +I call your attention to the great extravagance in printing and binding +Government publications, and especially to the fact that altogether too +many of these publications are printed. There is a constant tendency to +increase their number and their volume. It is an understatement to say that +no appreciable harm would be caused by, and substantial benefit would +accrue from, decreasing the amount of printing now done by at least +one-half. Probably the great majority of the Government reports and the +like now printed are never read at all, and furthermore the printing of +much of the material contained in many of the remaining ones serves no +useful purpose whatever. + +The attention of the Congress should be especially given to the currency +question, and that the standing committees on the matter in the two Houses +charged with the duty, take up the matter of our currency and see whether +it is not possible to secure an agreement in the business world for +bettering the system; the committees should consider the question of the +retirement of the greenbacks and the problem of securing in our currency +such elasticity as is consistent with safety. Every silver dollar should be +made by law redeemable in gold at the option of the holder. + +I especially commend to your immediate attention the encouragement of our +merchant marine by appropriate legislation. + +The growing importance of the Orient as a field for American exports drew +from my predecessor, President McKinley, an urgent request for its special +consideration by the Congress. In his message of 1898 he stated: + +"In this relation, as showing the peculiar volume and value of our trade +with China and the peculiarly favorable conditions which exist for their +expansion in the normal course of trade, I refer to the communication +addressed to the Speaker of the House of Representatives by the Secretary +of the Treasury on the 14th of last June, with its accompanying letter of +the Secretary of State, recommending an appropriation for a commission to +study the industrial and commercial conditions in the Chinese Empire and to +report as to the opportunities for and the obstacles to the enlargement of +markets in China for the raw products and manufactures of the United +States. Action was not taken thereon during the last session. I cordially +urge that the recommendation receive at your hands the consideration which +its importance and timeliness merit." + +In his annual message of 1889 he again called attention to this +recommendation, quoting it, and stated further: + +"I now renew this recommendation, as the importance of the subject has +steadily grown since it was first submitted to you, and no time should be +lost in studying for ourselves the resources of this great field for +American trade and enterprise." + +The importance of securing proper information and data with a view to the +enlargement of our trade with Asia is undiminished. Our consular +representatives in China have strongly urged a place for permanent display +of American products in some prominent trade center of that Empire, under +Government control and management, as an effective means of advancing our +export trade therein. I call the attention of the Congress to the +desirability of carrying out these suggestions. + +In dealing with the questions of immigration and naturalization it is +indispensable to keep certain facts ever before the minds of those who +share in enacting the laws. First and foremost, let us remember that the +question of being a good American has nothing whatever to do with a man's +birthplace any more than it has to do with his creed. In every generation +from the time this Government was founded men of foreign birth have stood +in the very foremost rank of good citizenship, and that not merely in one +but in every field of American activity; while to try to draw a distinction +between the man whose parents came to this country and the man whose +ancestors came to it several generations back is a mere absurdity. Good +Americanism is a matter of heart, of conscience, of lofty aspiration, of +sound common sense, but not of birthplace or of creed. The medal of honor, +the highest prize to be won by those who serve in the Army and the Navy of +the United States decorates men born here, and it also decorates men born +in Great Britain and Ireland, in Germany, in Scandinavia, in France, and +doubtless in other countries also. In the field of statesmanship, in the +field of business, in the field of philanthropic endeavor, it is equally +true that among the men of whom we are most proud as Americans no +distinction whatever can be drawn between those who themselves or whose +parents came over in sailing ship or steamer from across the water and +those whose ancestors stepped ashore into the wooded wilderness at Plymouth +or at the mouth of the Hudson, the Delaware, or the James nearly three +centuries ago. No fellow-citizen of ours is entitled to any peculiar regard +because of the way in which he worships his Maker, or because of the +birthplace of himself or his parents, nor should he be in any way +discriminated against therefor. Each must stand on his worth as a man and +each is entitled to be judged solely thereby. + +There is no danger of having too many immigrants of the right kind. It +makes no difference from what country they come. If they are sound in body +and in mind, and, above all, if they are of good character, so that we can +rest assured that their children and grandchildren will be worthy +fellow-citizens of our children and grandchildren, then we should welcome +them with cordial hospitality. + +But the citizenship of this country should not be debased. It is vital that +we should keep high the standard of well-being among our wage-workers, and +therefore we should not admit masses of men whose standards of living and +whose personal customs and habits are such that they tend to lower the +level of the American wage-worker; and above all we should not admit any +man of an unworthy type, any man concerning whom we can say that he will +himself be a bad citizen, or that his children and grandchildren will +detract from instead of adding to the sum of the good citizenship of the +country. Similarly we should take the greatest care about naturalization. +Fraudulent naturalization, the naturalization of improper persons, is a +curse to our Government; and it is the affair of every honest voter, +wherever born, to see that no fraudulent voting is allowed, that no fraud +in connection with naturalization is permitted. + +In the past year the cases of false, fraudulent, and improper +naturalization of aliens coming to the attention of the executive branches +of the Government have increased to an alarming degree. Extensive sales of +forged certificates of naturalization have been discovered, as well as many +cases of naturalization secured by perjury and fraud; and in addition, +instances have accumulated showing that many courts issue certificates of +naturalization carelessly and upon insufficient evidence. + +Under the Constitution it is in the power of the Congress "to establish a +uniform rule of naturalization," and numerous laws have from time to time +been enacted for that purpose, which have been supplemented in a few States +by State laws having special application. The Federal statutes permit +naturalization by any court of record in the United States having +common-law jurisdiction and a seal and clerk, except the police court of +the District of Columbia, and nearly all these courts exercise this +important function. It results that where so many courts of such varying +grades have jurisdiction, there is lack of uniformity in the rules applied +in conferring naturalization. Some courts are strict and others lax. An +alien who may secure naturalization in one place might be denied it in +another, and the intent of the constitutional provision is in fact +defeated. Furthermore, the certificates of naturalization issued by the +courts differ widely in wording and appearance, and when they are brought +into use in foreign countries, are frequently subject to suspicion. + +There should be a comprehensive revision of the naturalization laws. The +courts having power to naturalize should be definitely named by national +authority; the testimony upon which naturalization may be conferred should +be definitely prescribed; publication of impending naturalization +applications should be required in advance of their hearing in court; the +form and wording of all certificates issued should be uniform throughout +the country, and the courts should be required to make returns to the +Secretary of State at stated periods of all naturalizations conferred. + +Not only are the laws relating to naturalization now defective, but those +relating to citizenship of the United States ought also to be made the +subject of scientific inquiry with a view to probable further legislation. +By what acts expatriation may be assumed to have been accomplished, how +long an American citizen may reside abroad and receive the protection of +our passport, whether any degree of protection should be extended to one +who has made the declaration of intention to become a citizen of the United +States but has not secured naturalization, are questions of serious import, +involving personal rights and often producing friction between this +Government and foreign governments. Yet upon these question our laws are +silent. I recommend that an examination be made into the subjects of +citizenship, expatriation, and protection of Americans abroad, with a view +to appropriate legislation. + +The power of the Government to protect the integrity of the elections of +its own officials is inherent and has been recognized and affirmed by +repeated declarations of the Supreme Court. There is no enemy of free +government more dangerous and none so insidious as the corruption of the +electorate. No one defends or excuses corruption, and it would seem to +follow that none would oppose vigorous measures to eradicate it. I +recommend the enactment of a law directed against bribery and corruption in +Federal elections. The details of such a law may be safely left to the wise +discretion of the Congress, but it should go as far as under the +Constitution it is possible to go, and should include severe penalties +against him who gives or receives a bribe intended to influence his act or +opinion as an elector; and provisions for the publication not only of the +expenditures for nominations and elections of all candidates but also of +all contributions received and expenditures made by political committees. + +No subject is better worthy the attention of the Congress than that portion +of the report of the Attorney-General dealing with the long delays and the +great obstruction to justice experienced in the cases of Beavers, Green and +Gaynor, and Benson. Were these isolated and special cases, I should not +call your attention to them; but the difficulties encountered as regards +these men who have been indicted for criminal practices are not +exceptional; they are precisely similar in kind to what occurs again and +again in the case of criminals who have sufficient means to enable them to +take advantage of a system of procedure which has grown up in the Federal +courts and which amounts in effect to making the law easy of enforcement +against the man who has no money, and difficult of enforcement, even to the +point of sometimes securing immunity, as regards the man who has money. In +criminal cases the writ of the United States should run throughout its +borders. The wheels of justice should not be clogged, as they have been +clogged in the cases above mentioned, where it has proved absolutely +impossible to bring the accused to the place appointed by the Constitution +for his trial. Of recent years there has been grave and increasing +complaint of the difficulty of bringing to justice those criminals whose +criminality, instead of being against one person in the Republic, is +against all persons in the Republic, because it is against the Republic +itself. Under any circumstance and from the very nature of the case it is +often exceedingly difficult to secure proper punishment of those who have +been guilty of wrongdoing against the Government. By the time the offender +can be brought into court the popular wrath against him has generally +subsided; and there is in most instances very slight danger indeed of any +prejudice existing in the minds of the jury against him. At present the +interests of the innocent man are amply safeguarded; but the interests of +the Government, that is, the interests of honest administration, that is +the interests of the people, are not recognized as they should be. No +subject better warrants the attention of the Congress. Indeed, no subject +better warrants the attention of the bench and the bar throughout the +United States. + +Alaska, like all our Territorial acquisitions, has proved resourceful +beyond the expectations of those who made the purchase. It has become the +home of many hardy, industrious, and thrifty American citizens. Towns of a +permanent character have been built. The extent of its wealth in minerals, +timber, fisheries, and agriculture, while great, is probably not +comprehended yet in any just measure by our people. We do know, however, +that from a very small beginning its products have grown until they are a +steady and material contribution to the wealth of the nation. Owing to the +immensity of Alaska and its location in the far north, it is a difficult +matter to provide many things essential to its growth and to the happiness +and comfort of its people by private enterprise alone. It should, +therefore, receive reasonable aid from the Government. The Government has +already done excellent work for Alaska in laying cables and building +telegraph lines. This work has been done in the most economical and +efficient way by the Signal Corps of the Army. + +In some respects it has outgrown its present laws, while in others those +laws have been found to be inadequate. In order to obtain information upon +which I could rely I caused an official of the Department of Justice, in +whose judgment I have confidence, to visit Alaska during the past summer +for the purpose of ascertaining how government is administered there and +what legislation is actually needed at present. A statement of the +conditions found to exist, together with some recommendations and the +reasons therefor, in which I strongly concur, will be found in the annual +report of the Attorney-General. In some instances I feel that the +legislation suggested is so imperatively needed that I am moved briefly to +emphasize the Attorney-General's proposals. + +Under the Code of Alaska as it now stands many purely administrative powers +and duties, including by far the most important, devolve upon the district +judges or upon the clerks of the district court acting under the direction +of the judges, while the governor, upon whom these powers and duties should +logically fall, has nothing specific to do except to make annual reports, +issue Thanksgiving Day proclamations, and appoint Indian policemen and +notaries public. I believe it essential to good government in Alaska, and +therefore recommend, that the Congress divest the district judges and the +clerks of their courts of the administrative or executive functions that +they now exercise and cast them upon the governor. This would not be an +innovation; it would simply conform the government of Alaska to fundamental +principles, making the governorship a real instead of a merely nominal +office, and leaving the judges free to give their entire attention to their +judicial duties and at the same time removing them from a great deal of the +strife that now embarrasses the judicial office in Alaska. + +I also recommend that the salaries of the district judges and district +attorneys in Alaska be increased so as to make them equal to those received +by corresponding officers in the United States after deducting the +difference in the cost of living; that the district attorneys should be +prohibited from engaging in private practice; that United States +commissioners be appointed by the governor of the Territory instead of by +the district judges, and that a fixed salary be provided for them to take +the place of the discredited "fee system," which should be abolished in all +offices; that a mounted constabulary be created to police the territory +outside the limits of incorporated towns--a vast section now wholly without +police protection; and that some provision be made to at least lessen the +oppressive delays and costs that now attend the prosecution of appeals from +the district court of Alaska. There should be a division of the existing +judicial districts, and an increase in the number of judges. + +Alaska should have a Delegate in the Congress. Where possible, the Congress +should aid in the construction of needed wagon roads. Additional +light-houses should be provided. In my judgment, it is especially important +to aid in such manner as seems just and feasible in the construction of a +trunk line of railway to connect the Gulf of Alaska with the Yukon River +through American territory. This would be most beneficial to the +development of the resources of the Territory, and to the comfort and +welfare of its people. + +Salmon hatcheries should be established in many different streams, so as to +secure the preservation of this valuable food fish. Salmon fisheries and +canneries should be prohibited on certain of the rivers where the mass of +those Indians dwell who live almost exclusively on fish. + +The Alaskan natives are kindly, intelligent, anxious to learn, and willing +to work. Those who have come under the influence of civilization, even for +a limited period, have proved their capability of becoming self-supporting, +self-respecting citizens, and ask only for the just enforcement of law and +intelligent instruction and supervision. Others, living in more remote +regions, primitive, simple hunters and fisher folk, who know only the life +of the woods and the waters, are daily being confronted with +twentieth-century civilization with all of its complexities. Their country +is being overrun by strangers, the game slaughtered and driven away, the +streams depleted of fish, and hitherto unknown and fatal diseases brought +to them, all of which combine to produce a state of abject poverty and want +which must result in their extinction. Action in their interest is demanded +by every consideration of justice and humanity. + +The needs of these people are: + +The abolition of the present fee system, whereby the native is degraded, +imposed upon, and taught the injustice of law. + +The establishment of hospitals at central points, so that contagious +diseases that are brought to them continually by incoming whites may be +localized and not allowed to become epidemic, to spread death and +destitution over great areas. + +The development of the educational system in the form of practical training +in such industries as will assure the Indians self-support under the +changed conditions in which they will have to live. + +The duties of the office of the governor should be extended to include the +supervision of Indian affairs, with necessary assistants in different +districts. He should be provided with the means and the power to protect +and advise the native people, to furnish medical treatment in time of +epidemics, and to extend material relief in periods of famine and extreme +destitution. + +The Alaskan natives should be given the right to acquire, hold, and dispose +of property upon the same conditions as given other inhabitants; and the +privilege of citizenship should be given to such as may be able to meet +certain definite requirements. In Hawaii Congress should give the governor +power to remove all the officials appointed under him. The harbor of +Honolulu should be dredged. The Marine-Hospital Service should be empowered +to study leprosy in the islands. I ask special consideration for the report +and recommendation of the governor of Porto Rico. + +In treating of our foreign policy and of the attitude that this great +Nation should assume in the world at large, it is absolutely necessary to +consider the Army and the Navy, and the Congress, through which the thought +of the Nation finds its expression, should keep ever vividly in mind the +fundamental fact that it is impossible to treat our foreign policy, whether +this policy takes shape in the effort to secure justice for others or +justice for ourselves, save as conditioned upon the attitude we are willing +to take toward our Army, and especially toward our Navy. It is not merely +unwise, it is contemptible, for a nation, as for an individual, to use +high-sounding language to proclaim its purposes, or to take positions which +are ridiculous if unsupported by potential force, and then to refuse to +provide this force. If there is no intention of providing and of keeping +the force necessary to back up a strong attitude, then it is far better not +to assume such an attitude. + +The steady aim of this Nation, as of all enlightened nations, should be to +strive to bring ever nearer the day when there shall prevail throughout the +world the peace of justice. There are kinds of peace which are highly +undesirable, which are in the long run as destructive as any war. Tyrants +and oppressors have many times made a wilderness and called it peace. Many +times peoples who were slothful or timid or shortsighted, who had been +enervated by ease or by luxury, or misled by false teachings, have shrunk +in unmanly fashion from doing duty that was stern and that needed +self-sacrifice, and have sought to hide from their own minds their +shortcomings, their ignoble motives, by calling them love of peace. The +peace of tyrannous terror, the peace of craven weakness, the peace of +injustice, all these should be shunned as we shun unrighteous war. The goal +to set before us as a nation, the goal which should be set before all +mankind, is the attainment of the peace of justice, of the peace which +comes when each nation is not merely safe-guarded in its own rights, but +scrupulously recognizes and performs its duty toward others. Generally +peace tells for righteousness; but if there is conflict between the two, +then our fealty is due-first to the cause of righteousness. Unrighteous +wars are common, and unrighteous peace is rare; but both should be shunned. +The right of freedom and the responsibility for the exercise of that right +can not be divorced. One of our great poets has well and finely said that +freedom is not a gift that tarries long in the hands of cowards. Neither +does it tarry long in the hands of those too slothful, too dishonest, or +too unintelligent to exercise it. The eternal vigilance which is the price +of liberty must be exercised, sometimes to guard against outside foes; +although of course far more often to guard against our own selfish or +thoughtless shortcomings. + +If these self-evident truths are kept before us, and only if they are so +kept before us, we shall have a clear idea of what our foreign policy in +its larger aspects should be. It is our duty to remember that a nation has +no more right to do injustice to another nation, strong or weak, than an +individual has to do injustice to another individual; that the same moral +law applies in one case as in the other. But we must also remember that it +is as much the duty of the Nation to guard its own rights and its own +interests as it is the duty of the individual so to do. Within the Nation +the individual has now delegated this right to the State, that is, to the +representative of all the individuals, and it is a maxim of the law that +for every wrong there is a remedy. But in international law we have not +advanced by any means as far as we have advanced in municipal law. There is +as yet no judicial way of enforcing a right in international law. When one +nation wrongs another or wrongs many others, there is no tribunal before +which the wrongdoer can be brought. Either it is necessary supinely to +acquiesce in the wrong, and thus put a premium upon brutality and +aggression, or else it is necessary for the aggrieved nation valiantly to +stand up for its rights. Until some method is devised by which there shall +be a degree of international control over offending nations, it would be a +wicked thing for the most civilized powers, for those with most sense of +international obligations and with keenest and most generous appreciation +of the difference between right and wrong, to disarm. If the great +civilized nations of the present day should completely disarm, the result +would mean an immediate recrudescence of barbarism in one form or another. +Under any circumstances a sufficient armament would have to be kept up to +serve the purposes of international police; and until international +cohesion and the sense of international duties and rights are far more +advanced than at present, a nation desirous both of securing respect for +itself and of doing good to others must have a force adequate for the work +which it feels is allotted to it as its part of the general world duty. +Therefore it follows that a self-respecting, just, and far-seeing nation +should on the one hand endeavor by every means to aid in the development of +the various movements which tend to provide substitutes for war, which tend +to render nations in their actions toward one another, and indeed toward +their own peoples, more responsive to the general sentiment of humane and +civilized mankind; and on the other hand that it should keep prepared, +while scrupulously avoiding wrongdoing itself, to repel any wrong, and in +exceptional cases to take action which in a more advanced stage of +international relations would come under the head of the exercise of the +international police. A great free people owes it to itself and to all +mankind not to sink into helplessness before the powers of evil. + +We are in every way endeavoring to help on, with cordial good will, every +movement which will tend to bring us into more friendly relations with the +rest of mankind. In pursuance of this policy I shall shortly lay before the +Senate treaties of arbitration with all powers which are willing to enter +into these treaties with us. It is not possible at this period of the +world's development to agree to arbitrate all matters, but there are many +matters of possible difference between us and other nations which can be +thus arbitrated. Furthermore, at the request of the Interparliamentary +Union, an eminent body composed of practical statesmen from all countries, +I have asked the Powers to join with this Government in a second Hague +conference, at which it is hoped that the work already so happily begun at +The Hague may be carried some steps further toward completion. This carries +out the desire expressed by the first Hague conference itself. + +It is not true that the United States feels any land hunger or entertains +any projects as regards the other nations of the Western Hemisphere save +such as are for their welfare. All that this country desires is to see the +neighboring countries stable, orderly, and prosperous. Any country whose +people conduct themselves well can count upon our hearty friendship. If a +nation shows that it knows how to act with reasonable efficiency and +decency in social and political matters, if it keeps order and pays its +obligations, it need fear no interference from the United States. Chronic +wrongdoing, or an impotence which results in a general loosening of the +ties of civilized society, may in America, as elsewhere, ultimately require +intervention by some civilized nation, and in the Western Hemisphere the +adherence of the United States to the Monroe Doctrine may force the United +States, however reluctantly, in flagrant cases of such wrongdoing or +impotence, to the exercise of an international police power. If every +country washed by the Caribbean Sea would show the progress in stable and +just civilization which with the aid of the Platt amendment Cuba has shown +since our troops left the island, and which so many of the republics in +both Americas are constantly and brilliantly showing, all question of +interference by this Nation with their affairs would be at an end. Our +interests and those of our southern neighbors are in reality identical. +They have great natural riches, and if within their borders the reign of +law and justice obtains, prosperity is sure to come to them. While they +thus obey the primary laws of civilized society they may rest assured that +they will be treated by us in a spirit of cordial and helpful sympathy. We +would interfere with them only in the last resort, and then only if it +became evident that their inability or unwillingness to do justice at home +and abroad had violated the rights of the United States or had invited +foreign aggression to the detriment of the entire body of American nations. +It is a mere truism to say that every nation, whether in America or +anywhere else, which desires to maintain its freedom, its independence, +must ultimately realize that the right of such independence can not be +separated from the responsibility of making good use of it. + +In asserting the Monroe Doctrine, in taking such steps as we have taken in +regard to Cuba, Venezuela, and Panama, and in endeavoring to circumscribe +the theater of war in the Far East, and to secure the open door in China, +we have acted in our own interest as well as in the interest of humanity at +large. There are, however, cases in which, while our own interests are not +greatly involved, strong appeal is made to our sympathies. Ordinarily it is +very much wiser and more useful for us to concern ourselves with striving +for our own moral and material betterment here at home than to concern +ourselves with trying to better the condition of things in other nations. +We have plenty of sins of our own to war against, and under ordinary +circumstances we can do more for the general uplifting of humanity by +striving with heart and soul to put a stop to civic corruption, to brutal +lawlessness and violent race prejudices here at home than by passing +resolutions about wrongdoing elsewhere. Nevertheless there are occasional +crimes committed on so vast a scale and of such peculiar horror as to make +us doubt whether it is not our manifest duty to endeavor at least to show +our disapproval of the deed and our sympathy with those who have suffered +by it. The cases must be extreme in which such a course is justifiable. +There must be no effort made to remove the mote from our brother's eye if +we refuse to remove the beam from our own. But in extreme cases action may +be justifiable and proper. What form the action shall take must depend upon +the circumstances of the case; that is, upon the degree of the atrocity and +upon our power to remedy it. The cases in which we could interfere by force +of arms as we interfered to put a stop to intolerable conditions in Cuba +are necessarily very few. Yet it is not to be expected that a people like +ours, which in spite of certain very obvious shortcomings, nevertheless as +a whole shows by its consistent practice its belief in the principles of +civil and religious liberty and of orderly freedom, a people among whom +even the worst crime, like the crime of lynching, is never more than +sporadic, so that individuals and not classes are molested in their +fundamental rights--it is inevitable that such a nation should desire +eagerly to give expression to its horror on an occasion like that of the +massacre of the Jews in Kishenef, or when it witnesses such systematic and +long-extended cruelty and oppression as the cruelty and oppression of which +the Armenians have been the victims, and which have won for them the +indignant pity of the civilized world. + +Even where it is not possible to secure in other nations the observance of +the principles which we accept as axiomatic, it is necessary for us firmly +to insist upon the rights of our own citizens without regard to their creed +or race; without regard to whether they were born here or born abroad. It +has proved very difficult to secure from Russia the right for our Jewish +fellow-citizens to receive passports and travel through Russian territory. +Such conduct is not only unjust and irritating toward us, but it is +difficult to see its wisdom from Russia's standpoint. No conceivable good +is accomplished by it. If an American Jew or an American Christian +misbehaves himself in Russia he can at once be driven out; but the ordinary +American Jew, like the ordinary American Christian, would behave just about +as he behaves here, that is, behave as any good citizen ought to behave; +and where this is the case it is a wrong against which we are entitled to +protest to refuse him his passport without regard to his conduct and +character, merely on racial and religious grounds. In Turkey our +difficulties arise less from the way in which our citizens are sometimes +treated than from the indignation inevitably excited in seeing such fearful +misrule as has been witnessed both in Armenia and Macedonia. + +The strong arm of the Government in enforcing respect for its just rights +in international matters is the Navy of the United States. I most earnestly +recommend that there be no halt in the work of upbuilding the American +Navy. There is no more patriotic duty before us a people than to keep the +Navy adequate to the needs of this country's position. We have undertaken +to build the Isthmian Canal. We have undertaken to secure for ourselves our +just share in the trade of the Orient. We have undertaken to protect our +citizens from proper treatment in foreign lands. We continue steadily to +insist on the application of the Monroe Doctrine to the Western Hemisphere. +Unless our attitude in these and all similar matters is to be a mere +boastful sham we can not afford to abandon our naval programme. Our voice +is now potent for peace, and is so potent because we are not afraid of war. +But our protestations upon behalf of peace would neither receive nor +deserve the slightest attention if we were impotent to make them good. + +The war which now unfortunately rages in the far East has emphasized in +striking fashion the new possibilities of naval warfare. The lessons taught +are both strategic and tactical, and are political as well as military. The +experiences of the war have shown in conclusive fashion that while +sea-going and sea-keeping torpedo destroyers are indispensable, and fast +lightly armed and armored cruisers very useful, yet that the main reliance, +the main standby, in any navy worthy the name must be the great battle +ships, heavily armored and heavily gunned. Not a Russian or Japanese battle +ship has been sunk by a torpedo boat, or by gunfire, while among the less +protected ships, cruiser after cruiser has been destroyed whenever the +hostile squadrons have gotten within range of one another's weapons. There +will always be a large field of usefulness for cruisers, especially of the +more formidable type. We need to increase the number of torpedo-boat +destroyers, paying less heed to their having a knot or two extra speed than +to their capacity to keep the seas for weeks, and, if necessary, for months +at a time. It is wise to build submarine torpedo boats, as under certain +circumstances they might be very useful. But most of all we need to +continue building our fleet of battle ships, or ships so powerfully armed +that they can inflict the maximum of damage upon our opponents, and so well +protected that they can suffer a severe hammering in return without fatal +impairment of their ability to fight and maneuver. Of course ample means +must be provided for enabling the personnel of the Navy to be brought to +the highest point of efficiency. Our great fighting ships and torpedo boats +must be ceaselessly trained and maneuvered in squadrons. The officers and +men can only learn their trade thoroughly by ceaseless practice on the high +seas. In the event of war it would be far better to have no ships at all +than to have ships of a poor and ineffective type, or ships which, however +good, were yet manned by untrained and unskillful crews. The best officers +and men in a poor ship could do nothing against fairly good opponents; and +on the other hand a modern war ship is useless unless the officers and men +aboard her have become adepts in their duties. The marksmanship in our Navy +has improved in an extraordinary degree during the last three years, and on +the whole the types of our battleships are improving; but much remains to +be done. Sooner or later we shall have to provide for some method by which +there will be promotions for merit as well as for seniority, or else +retirement all those who after a certain age have not advanced beyond a +certain grade; while no effort must be spared to make the service +attractive to the enlisted men in order that they may be kept as long as +possible in it. Reservation public schools should be provided wherever +there are navy-yards. + +Within the last three years the United States has set an example in +disarmament where disarmament was proper. By law our Army is fixed at a +maximum of one hundred thousand and a minimum of sixty thousand men. When +there was insurrection in the Philippines we kept the Army at the maximum. +Peace came in the Philippines, and now our Army has been reduced to the +minimum at which. it is possible to keep it with due regard to its +efficiency. The guns now mounted require twenty-eight thousand men, if the +coast fortifications are to be adequately manned. Relatively to the Nation, +it is not now so large as the police force of New York or Chicago +relatively to the population of either city. We need more officers; there +are not enough to perform the regular army work. It is very important that +the officers of the Army should be accustomed to handle their men in +masses, as it is also important that the National Guard of the several +States should be accustomed to actual field maneuvering, especially in +connection with the regulars. For this reason we are to be congratulated +upon the success of the field maneuvers at Manassas last fall, maneuvers in +which a larger number of Regulars and National Guard took part than was +ever before assembled together in time of peace. No other civilized nation +has, relatively to its population, such a diminutive Army as ours; and +while the Army is so small we are not to be excused if we fail to keep it +at a very high grade of proficiency. It must be incessantly practiced; the +standard for the enlisted men should be kept very high, while at the same +time the service should be made as attractive as possible; and the standard +for the officers should be kept even higher--which, as regards the upper +ranks, can best be done by introducing some system of selection and +rejection into the promotions. We should be able, in the event of some +sudden emergency, to put into the field one first-class army corps, which +should be, as a whole, at least the equal of any body of troops of like +number belonging to any other nation. + +Great progress has been made in protecting our coasts by adequate +fortifications with sufficient guns. We should, however, pay much more heed +than at present to the development of an extensive system of floating mines +for use in all our more important harbors. These mines have been proved to +be a most formidable safeguard against hostile fleets. + +I earnestly call the attention of the Congress to the need of amending the +existing law relating to the award of Congressional medals of honor in the +Navy so as to provide that they may be awarded to commissioned officers and +warrant officers as well as to enlisted men. These justly prized medals are +given in the Army alike to the officers and the enlisted men, and it is +most unjust that the commissioned officers and warrant officers of the Navy +should not in this respect have the same rights as their brethren in the +Army and as the enlisted men of the Navy. + +In the Philippine Islands there has been during the past year a +continuation of the steady progress which has obtained ever since our +troops definitely got the upper hand of the insurgents. The Philippine +people, or, to speak more accurately, the many tribes, and even races, +sundered from one another more or less sharply, who go to make up the +people of the Philippine Islands, contain many elements of good, and some +elements which we have a right to hope stand for progress. At present they +are utterly incapable of existing in independence at all or of building up +a civilization of their own. I firmly believe that we can help them to rise +higher and higher in the scale of civilization and of capacity for +self-government, and I most earnestly hope that in the end they will be +able to stand, if not entirely alone, yet in some such relation to the +United States as Cuba now stands. This end is not yet in sight, and it may +be indefinitely postponed if our people are foolish enough to turn the +attention of the Filipinos away from the problems of achieving moral and +material prosperity, of working for a stable, orderly, and just government, +and toward foolish and dangerous intrigues for a complete independence for +which they are as yet totally unfit. + +On the other hand our people must keep steadily before their minds the fact +that the justification for our stay in the Philippines must ultimately rest +chiefly upon the good we are able to do in the islands. I do not overlook +the fact that in the development of our interests in the Pacific Ocean and +along its coasts, the Philippines have played and will play an important +part; and that our interests have been served in more than one way by the +possession of the islands. But our chief reason for continuing to hold them +must be that we ought in good faith to try to do our share of the world's +work, and this particular piece of work has been imposed upon us by the +results of the war with Spain. The problem presented to us in the +Philippine Islands is akin to, but not exactly like, the problems presented +to the other great civilized powers which have possessions in the Orient. +There are points of resemblance in our work to the work which is being done +by the British in India and Egypt, by the French in Algiers, by the Dutch +in Java, by the Russians in Turkestan, by the Japanese in Formosa; but more +distinctly than any of these powers we are endeavoring to develop the +natives themselves so that they shall take an ever-increasing share in +their own government, and as far as is prudent we are already admitting +their representatives to a governmental equality with our own. There are +commissioners, judges, and governors in the islands who are Filipinos and +who have exactly the same share in the government of the islands as have +their colleagues who are Americans, while in the lower ranks, of course, +the great majority of the public servants are Filipinos. Within two years +we shall be trying the experiment of an elective lower house in the +Philippine legislature. It may be that the Filipinos will misuse this +legislature, and they certainly will misuse it if they are misled by +foolish persons here at home into starting an agitation for their own +independence or into any factious or improper action. In such case they +will do themselves no good and will stop for the time being all further +effort to advance them and give them a greater share in their own +government. But if they act with wisdom and self-restraint, if they show +that they are capable of electing a legislature which in its turn is +capable of taking a sane and efficient part in the actual work of +government, they can rest assured that a full and increasing measure of +recognition will be given them. Above all they should remember that their +prime needs are moral and industrial, not political. It is a good thing to +try the experiment of giving them a legislature; but it is a far better +thing to give them schools, good roads, railroads which will enable them to +get their products to market, honest courts, an honest and efficient +constabulary, and all that tends to produce order, peace, fair dealing as +between man and man, and habits of intelligent industry and thrift. If they +are safeguarded against oppression, and if their real wants, material and +spiritual, are studied intelligently and in a spirit of friendly sympathy, +much more good will be done them than by any effort to give them political +power, though this effort may in its own proper time and place be proper +enough. + +Meanwhile our own people should remember that there is need for the highest +standard of conduct among the Americans sent to the Philippine Islands, not +only among the public servants but among the private individuals who go to +them. It is because I feel this so deeply that in the administration of +these islands I have positively refused to permit any discrimination +whatsoever for political reasons and have insisted that in choosing the +public servants consideration should be paid solely to the worth of the men +chosen and to the needs of the islands. There is no higher body of men in +our public service than we have in the Philippine Islands under Governor +Wright and his associates. So far as possible these men should be given a +free hand, and their suggestions should receive the hearty backing both of +the Executive and of the Congress. There is need of a vigilant and +disinterested support of our public servants in the Philippines by good +citizens here in the United States. Unfortunately hitherto those of our +people here at home who have specially claimed to be the champions of the +Filipinos have in reality been their worst enemies. This will continue to +be the case as long as they strive to make the Filipinos independent, and +stop all industrial development of the islands by crying out against the +laws which would bring it on the ground that capitalists must not "exploit" +the islands. Such proceedings are not only unwise, but are most harmful to +the Filipinos, who do not need independence at all, but who do need good +laws, good public servants, and the industrial development that can only +come if the investment, of American and foreign capital in the islands is +favored in all legitimate ways. + +Every measure taken concerning the islands should be taken primarily with a +view to their advantage. We should certainly give them lower tariff rates +on their exports to the United States; if this is not done it will be a +wrong to extend our shipping laws to them. I earnestly hope for the +immediate enactment into law of the legislation now pending to encourage +American capital to seek investment in the islands in railroads, in +factories, in plantations, and in lumbering and mining. + +*** + +State of the Union Address +Theodore Roosevelt +December 5, 1905 + +To the Senate and House of Representatives: + +The people of this country continue to enjoy great prosperity. Undoubtedly +there will be ebb and flow in such prosperity, and this ebb and flow will +be felt more or less by all members of the community, both by the deserving +and the undeserving. Against the wrath of the Lord the wisdom of man cannot +avail; in time of flood or drought human ingenuity can but partially repair +the disaster. A general failure of crops would hurt all of us. Again, if +the folly of man mars the general well-being, then those who are innocent +of the folly will have to pay part of the penalty incurred by those who are +guilty of the folly. A panic brought on by the speculative folly of part of +the business community would hurt the whole business community. But such +stoppage of welfare, though it might be severe, would not be lasting. In +the long run the one vital factor in the permanent prosperity of the +country is the high individual character of the average American worker, +the average American citizen, no matter whether his work be mental or +manual, whether he be farmer or wage-worker, business man or professional +man. + +In our industrial and social system the interests of all men are so closely +intertwined that in the immense majority of cases a straight-dealing man +who by his efficiency, by his ingenuity and industry, benefits himself must +also benefit others. Normally the man of great productive capacity who +becomes rich by guiding the labor of many other men does so by enabling +them to produce more than they could produce without his guidance; and both +he and they share in the benefit, which comes also to the public at large. +The superficial fact that the sharing may be unequal must never blind us to +the underlying fact that there is this sharing, and that the benefit comes +in some degree to each man concerned. Normally the wage-worker, the man of +small means, and the average consumer, as well as the average producer, are +all alike helped by making conditions such that the man of exceptional +business ability receives an exceptional reward for his ability. Something +can be done by legislation to help the general prosperity; but no such help +of a permanently beneficial character can be given to the less able and +less fortunate, save as the results of a policy which shall inure to the +advantage of all industrious and efficient people who act decently; and +this is only another way of saying that any benefit which comes to the less +able and less fortunate must of necessity come even more to the more able +and more fortunate. If, therefore, the less fortunate man is moved by envy +of his more fortunate brother to strike at the conditions under which they +have both, though unequally, prospered, the result will assuredly be that +while danger may come to the one struck at, it will visit with an even +heavier load the one who strikes the blow. Taken as a whole we must all go +up or down together. + +Yet, while not merely admitting, but insisting upon this, it is also true +that where there is no governmental restraint or supervision some of the +exceptional men use their energies not in ways that are for the common +good, but in ways which tell against this common good. The fortunes amassed +through corporate organization are now so large, and vest such power in +those that wield them, as to make it a matter of necessity to give to the +sovereign--that is, to the Government, which represents the people as a +whole--some effective power of supervision over their corporate use. In +order to insure a healthy social and industrial life, every big corporation +should be held responsible by, and be accountable to, some sovereign strong +enough to control its conduct. I am in no sense hostile to corporations. +This is an age of combination, and any effort to prevent all combination +will be not only useless, but in the end vicious, because of the contempt +for law which the failure to enforce law inevitably produces. We should, +moreover, recognize in cordial and ample fashion the immense good effected +by corporate agencies in a country such as ours, and the wealth of +intellect, energy, and fidelity devoted to their service, and therefore +normally to the service of the public, by their officers and directors. The +corporation has come to stay, just as the trade union has come to stay. +Each can do and has done great good. Each should be favored so long as it +does good. But each should be sharply checked where it acts against law and +justice. + +So long as the finances of the Nation are kept upon an honest basis no +other question of internal economy with which the Congress has the power to +deal begins to approach in importance the matter of endeavoring to secure +proper industrial conditions under which the individuals--and especially +the great corporations--doing an interstate business are to act. The makers +of our National Constitution provided especially that the regulation of +interstate commerce should come within the sphere of the General +Government. The arguments in favor of their taking this stand were even +then overwhelming. But they are far stronger today, in view of the enormous +development of great business agencies, usually corporate in form. +Experience has shown conclusively that it is useless to try to get any +adequate regulation and supervision of these great corporations by State +action. Such regulation and supervision can only be effectively exercised +by a sovereign whose jurisdiction is coextensive with the field of work of +the corporations--that is, by the National Government. I believe that this +regulation and supervision can be obtained by the enactment of law by the +Congress. If this proves impossible, it will certainly be necessary +ultimately to confer in fullest form such power upon the National +Government by a proper amendment of the Constitution. It would obviously be +unwise to endeavor to secure such an amendment until it is certain that the +result cannot be obtained under the Constitution as it now is. The laws of +the Congress and of the several States hitherto, as passed upon by the +courts, have resulted more often in showing that the States have no power +in the matter than that the National Government has power; so that there at +present exists a very unfortunate condition of things, under which these +great corporations doing an interstate business occupy the position of +subjects without a sovereign, neither any State Government nor the National +Government having effective control over them. Our steady aim should be by +legislation, cautiously and carefully undertaken, but resolutely persevered +in, to assert the sovereignty of the National Government by affirmative +action. + +This is only in form an innovation. In substance it is merely a +restoration; for from the earliest time such regulation of industrial +activities has been recognized in the action of the lawmaking bodies; and +all that I propose is to meet the changed conditions in such manner as will +prevent the Commonwealth abdicating the power it has always possessed not +only in this country, but also in England before and since this country +became a separate Nation. + +It has been a misfortune that the National laws on this subject have +hitherto been of a negative or prohibitive rather than an affirmative kind, +and still more that they have in part sought to prohibit what could not be +effectively prohibited, and have in part in their prohibitions confounded +what should be allowed and what should not be allowed. It is generally +useless to try to prohibit all restraint on competition, whether this +restraint be reasonable or unreasonable; and where it is not useless it is +generally hurtful. Events have shown that it is not possible adequately to +secure the enforcement of any law of this kind by incessant appeal to the +courts. The Department of Justice has for the last four years devoted more +attention to the enforcement of the anti-trust legislation than to anything +else. Much has been accomplished, particularly marked has been the moral +effect of the prosecutions; but it is increasingly evident that there will +be a very insufficient beneficial result in the way of economic change. The +successful prosecution of one device to evade the law immediately develops +another device to accomplish the same purpose. What is needed is not +sweeping prohibition of every arrangement, good or bad, which may tend to +restrict competition, but such adequate supervision and regulation as will +prevent any restriction of competition from being to the detriment of the +public--as well as such supervision and regulation as will prevent other +abuses in no way connected with restriction of competition. Of these +abuses, perhaps the chief, although by no means the only one, is +overcapitalization--generally itself the result of dishonest +promotion--because of the myriad evils it brings in its train; for such +overcapitalization often means an inflation that invites business panic; it +always conceals the true relation of the profit earned to the capital +actually invested, and it creates a burden of interest payments which is a +fertile cause of improper reduction in or limitation of wages; it damages +the small investor, discourages thrift, and encourages gambling and +speculation; while perhaps worst of all is the trickiness and dishonesty +which it implies--for harm to morals is worse than any possible harm to +material interests, and the debauchery of politics and business by great +dishonest corporations is far worse than any actual material evil they do +the public. Until the National Government obtains, in some manner which the +wisdom of the Congress may suggest, proper control over the big +corporations engaged in interstate commerce--that is, over the great +majority of the big corporations--it will be impossible to deal adequately +with these evils. + +I am well aware of the difficulties of the legislation that I am +suggesting, and of the need of temperate and cautious action in securing +it. I should emphatically protest against improperly radical or hasty +action. The first thing to do is to deal with the great corporations +engaged in the business of interstate transportation. As I said in my +message of December 6 last, the immediate and most pressing need, so far as +legislation is concerned, is the enactment into law of some scheme to +secure to the agents of the Government such supervision and regulation of +the rates charged by the railroads of the country engaged in interstate +traffic as shall summarily and effectively prevent the imposition of unjust +or unreasonable rates. It must include putting a complete stop to rebates +in every shape and form. This power to regulate rates, like all similar +powers over the business world, should be exercised with moderation, +caution, and self-restraint; but it should exist, so that it can be +effectively exercised when the need arises. + +The first consideration to be kept in mind is that the power should be +affirmative and should be given to some administrative body created by the +Congress. If given to the present Interstate Commerce Commission, or to a +reorganized Interstate Commerce Commission, such commission should be made +unequivocally administrative. I do not believe in the Government +interfering with private business more than is necessary. I do not believe +in the Government undertaking any work which can with propriety be left in +private hands. But neither do I believe in the Government flinching from +overseeing any work when it becomes evident that abuses are sure to obtain +therein unless there is governmental supervision. It is not my province to +indicate the exact terms of the law which should be enacted; but I call the +attention of the Congress to certain existing conditions with which it is +desirable to deal, In my judgment the most important provision which such +law should contain is that conferring upon some competent administrative +body the power to decide, upon the case being brought before it, whether a +given rate prescribed by a railroad is reasonable and just, and if it is +found to be unreasonable and unjust, then, after full investigation of the +complaint, to prescribe the limit of rate beyond which it shall not be +lawful to go--the maximum reasonable rate, as it is commonly called--this +decision to go into effect within a reasonable time and to obtain from +thence onward, subject to review by the courts. It sometimes happens at +present not that a rate is too high but that a favored shipper is given too +low a rate. In such case the commission would have the right to fix this +already established minimum rate as the maximum; and it would need only one +or two such decisions by the commission to cure railroad companies of the +practice of giving improper minimum rates. I call your attention to the +fact that my proposal is not to give the commission power to initiate or +originate rates generally, but to regulate a rate already fixed or +originated by the roads, upon complaint and after investigation. A heavy +penalty should be exacted from any corporation which fails to respect an +order of the commission. I regard this power to establish a maximum rate as +being essential to any scheme of real reform in the matter of railway +regulation. The first necessity is to secure it; and unless it is granted +to the commission there is little use in touching the subject at all. + +Illegal transactions often occur under the forms of law. It has often +occurred that a shipper has been told by a traffic officer to buy a large +quantity of some commodity and then after it has been bought an open +reduction is made in the rate to take effect immediately, the arrangement +resulting to the profit of one shipper and the one railroad and to the +damage of all their competitors; for it must not be forgotten that the big +shippers are at least as much to blame as any railroad in the matter of +rebates. The law should make it clear so that nobody can fail to understand +that any kind of commission paid on freight shipments, whether in this form +or in the form of fictitious damages, or of a concession, a free pass, +reduced passenger rate, or payment of brokerage, is illegal. It is worth +while considering whether it would not be wise to confer on the Government +the right of civil action against the beneficiary of a rebate for at least +twice the value of the rebate; this would help stop what is really +blackmail. Elevator allowances should be stopped, for they have now grown +to such an extent that they are demoralizing and are used as rebates. + +The best possible regulation of rates would, of course, be that regulation +secured by an honest agreement among the railroads themselves to carry out +the law. Such a general agreement would, for instance, at once put a stop +to the efforts of any one big shipper or big railroad to discriminate +against or secure advantages over some rival; and such agreement would make +the railroads themselves agents for enforcing the law. The power vested in +the Government to put a stop to agreements to the detriment of the public +should, in my judgment, be accompanied by power to permit, under specified +conditions and careful supervision, agreements clearly in the interest of +the public. But, in my judgment, the necessity for giving this further +power is by no means as great as the necessity for giving the commission or +administrative body the other powers I have enumerated above; and it may +well be inadvisable to attempt to vest this particular power in the +commission or other administrative body until it already possesses and is +exercising what I regard as by far the most important of all the powers I +recommend--as indeed the vitally important power--that to fix a given +maximum rate, which rate, after the lapse of a reasonable time, goes into +full effect, subject to review by the courts. + +All private-car lines, industrial roads, refrigerator charges, and the like +should be expressly put under the supervision of the Interstate Commerce +Commission or some similar body so far as rates, and agreements practically +affecting rates, are concerned. The private car owners and the owners of +industrial railroads are entitled to a fair and reasonable compensation on +their investment, but neither private cars nor industrial railroads nor +spur tracks should be utilized as devices for securing preferential rates. +A rebate in icing charges, or in mileage, or in a division of the rate for +refrigerating charges is just as pernicious as a rebate in any other way. +No lower rate should apply on goods imported than actually obtains on +domestic goods from the American seaboard to destination except in cases +where water competition is the controlling influence. There should be +publicity of the accounts of common carriers; no common carrier engaged in +interstate business should keep any books or memoranda other than those +reported pursuant to law or regulation, and these books or memoranda should +be open to the inspection of the Government. Only in this way can +violations or evasions of the law be surely detected. A system of +examination of railroad accounts should be provided similar to that now +conducted into the National banks by the bank examiners; a few first-class +railroad accountants, if they had proper direction and proper authority to +inspect books and papers, could accomplish much in preventing willful +violations of the law. It would not be necessary for them to examine into +the accounts of any railroad unless for good reasons they were directed to +do so by the Interstate Commerce Commission. It is greatly to be desired +that some way might be found by which an agreement as to transportation +within a State intended to operate as a fraud upon the Federal interstate +commerce laws could be brought under the jurisdiction of the Federal +authorities. At present it occurs that large shipments of interstate +traffic are controlled by concessions on purely State business, which of +course amounts to an evasion of the law. The commission should have power +to enforce fair treatment by the great trunk lines of lateral and branch +lines. + +I urge upon the Congress the need of providing for expeditious action by +the Interstate Commerce Commission in all these matters, whether in +regulating rates for transportation or for storing or for handling property +or commodities in transit. The history of the cases litigated under the +present commerce act shows that its efficacy has been to a great degree +destroyed by the weapon of delay, almost the most formidable weapon in the +hands of those whose purpose it is to violate the law. + +Let me most earnestly say that these recommendations are not made in any +spirit of hostility to the railroads. On ethical grounds, on grounds of +right, such hostility would be intolerable; and on grounds of mere National +self-interest we must remember that such hostility would tell against the +welfare not merely of some few rich men, but of a multitude of small +investors, a multitude of railway employes, wage workers, and most severely +against the interest of the public as a whole. I believe that on the whole +our railroads have done well and not ill; but the railroad men who wish to +do well should not be exposed to competition with those who have no such +desire, and the only way to secure this end is to give to some Government +tribunal the power to see that justice is done by the unwilling exactly as +it is gladly done by the willing. Moreover, if some Government body is +given increased power the effect will be to furnish authoritative answer on +behalf of the railroad whenever irrational clamor against it is raised, or +whenever charges made against it are disproved. I ask this legislation not +only in the interest of the public but in the interest of the honest +railroad man and the honest shipper alike, for it is they who are chiefly +jeoparded by the practices of their dishonest competitors. This legislation +should be enacted in a spirit as remote as possible from hysteria and +rancor. If we of the American body politic are true to the traditions we +have inherited we shall always scorn any effort to make us hate any man +because he is rich, just as much as we should scorn any effort to make us +look down upon or treat contemptuously any man because he is poor. We judge +a man by his conduct--that is, by his character--and not by his wealth or +intellect. If he makes his fortune honestly, there is no just cause of +quarrel with him. Indeed, we have nothing but the kindliest feelings of +admiration for the successful business man who behaves decently, whether he +has made his success by building or managing a railroad or by shipping +goods over that railroad. The big railroad men and big shippers are simply +Americans of the ordinary type who have developed to an extraordinary +degree certain great business qualities. They are neither better nor worse +than their fellow-citizens of smaller means. They are merely more able in +certain lines and therefore exposed to certain peculiarly strong +temptations. These temptations have not sprung newly into being; the +exceptionally successful among mankind have always been exposed to them; +but they have grown amazingly in power as a result of the extraordinary +development of industrialism along new lines, and under these new +conditions, which the law-makers of old could not foresee and therefore +could not provide against, they have become so serious and menacing as to +demand entirely new remedies. It is in the interest of the best type of +railroad man and the best type of shipper no less than of the public that +there should be Governmental supervision and regulation of these great +business operations, for the same reason that it is in the interest of the +corporation which wishes to treat its employes aright that there should be +an effective Employers' Liability act, or an effective system of factory +laws to prevent the abuse of women and children. All such legislation frees +the corporation that wishes to do well from being driven into doing ill, in +order to compete with its rival, which prefers to do ill. We desire to set +up a moral standard. There can be no delusion more fatal to the Nation than +the delusion that the standard of profits, of business prosperity, is +sufficient in judging any business or political question--from rate +legislation to municipal government. Business success, whether for the +individual or for the Nation, is a good thing only so far as it is +accompanied by and develops a high standard of conduct--honor, integrity, +civic courage. The kind of business prosperity that blunts the standard of +honor, that puts an inordinate value on mere wealth, that makes a man +ruthless and conscienceless in trade, and weak and cowardly in citizenship, +is not a good thing at all, but a very bad thing for the Nation. This +Government stands for manhood first and for business only as an adjunct of +manhood. + +The question of transportation lies at the root of all industrial success, +and the revolution in transportation which has taken place during the last +half century has been the most important factor in the growth of the new +industrial conditions. Most emphatically we do not wish to see the man of +great talents refused the reward for his talents. Still less do we wish to +see him penalized but we do desire to see the system of railroad +transportation so handled that the strong man shall be given no advantage +over the weak man. We wish to insure as fair treatment for the small town +as for the big city; for the small shipper as for the big shipper. In the +old days the highway of commerce, whether by water or by a road on land, +was open to all; it belonged to the public and the traffic along it was +free. At present the railway is this highway, and we must do our best to +see that it is kept open to all on equal terms. Unlike the old highway it +is a very difficult and complex thing to manage, and it is far better that +it should be managed by private individuals than by the Government. But it +can only be so managed on condition that justice is done the public. It is +because, in my judgment, public ownership of railroads is highly +undesirable and would probably in this country entail far-reaching +disaster, but I wish to see such supervision and regulation of them in the +interest of the public as will make it evident that there is no need for +public ownership. The opponents of Government regulation dwell upon the +difficulties to be encountered and the intricate and involved nature of the +problem. Their contention is true. It is a complicated and delicate +problem, and all kinds of difficulties are sure to arise in connection with +any plan of solution, while no plan will bring all the benefits hoped for +by its more optimistic adherents. Moreover, under any healthy plan, the +benefits will develop gradually and not rapidly. Finally, we must clearly +understand that the public servants who are to do this peculiarly +responsible and delicate work must themselves be of the highest type both +as regards integrity and efficiency. They must be well paid, for otherwise +able men cannot in the long run be secured; and they must possess a lofty +probity which will revolt as quickly at the thought of pandering to any +gust of popular prejudice against rich men as at the thought of anything +even remotely resembling subserviency to rich men. But while I fully admit +the difficulties in the way, I do not for a moment admit that these +difficulties warrant us in stopping in our effort to secure a wise and just +system. They should have no other effect than to spur us on to the exercise +of the resolution, the even-handed justice, and the fertility of resource, +which we like to think of as typically American, and which will in the end +achieve good results in this as in other fields of activity. The task is a +great one and underlies the task of dealing with the whole industrial +problem. But the fact that it is a great problem does not warrant us in +shrinking from the attempt to solve it. At present we face such utter lack +of supervision, such freedom from the restraints of law, that excellent men +have often been literally forced into doing what they deplored because +otherwise they were left at the mercy of unscrupulous competitors. To rail +at and assail the men who have done as they best could under such +conditions accomplishes little. What we need to do is to develop an orderly +system, and such a system can only come through the gradually increased +exercise of the right of efficient Government control. + +In my annual message to the Fifty-eighth Congress, at its third session, I +called attention to the necessity for legislation requiring the use of +block signals upon railroads engaged in interstate commerce. The number of +serious collisions upon unblocked roads that have occurred within the past +year adds force to the recommendation then made. The Congress should +provide, by appropriate legislation, for the introduction of block signals +upon all railroads engaged in interstate commerce at the earliest +practicable date, as a measure of increased safety to the traveling +public. + +Through decisions of the Supreme Court of the United States and the lower +Federal courts in cases brought before them for adjudication the safety +appliance law has been materially strengthened, and the Government has been +enabled to secure its effective enforcement in almost all cases, with the +result that the condition of railroad equipment throughout the country is +much improved and railroad employes perform their duties under safer +conditions than heretofore. The Government's most effective aid in arriving +at this result has been its inspection service, and that these improved +conditions are not more general is due to the insufficient number of +inspectors employed. The inspection service has fully demonstrated its +usefulness, and in appropriating for its maintenance the Congress should +make provision for an increase in the number of inspectors. + +The excessive hours of labor to which railroad employes in train service +are in many cases subjected is also a matter which may well engage the +serious attention of the Congress. The strain, both mental and physical, +upon those who are engaged in the movement and operation of railroad trains +under modern conditions is perhaps greater than that which exists in any +other industry, and if there are any reasons for limiting by law the hours +of labor in any employment, they certainly apply with peculiar force to the +employment of those upon whose vigilance and alertness in the performance +of their duties the safety of all who travel by rail depends. + +In my annual message to the Fifty-seventh Congress, at its second session, +I recommended the passage of an employers' liability law for the District +of Columbia and in our navy yards. I renewed that recommendation in my +message to the Fifty-eighth Congress, at its second session, and further +suggested the appointment of a commission to make a comprehensive study of +employers' liability, with a view to the enactment of a wise and +Constitutional law covering the subject, applicable to all industries +within the scope of the Federal power. I hope that such a law will be +prepared and enacted as speedily as possible. + +The National Government has, as a rule, but little occasion to deal with +the formidable group of problems connected more or less directly with what +is known as the labor question, for in the great majority of cases these +problems must be dealt with by the State and municipal authorities, and not +by the National Government. The National Government has control of the +District of Columbia, however, and it should see to it that the City of +Washington is made a model city in all respects, both as regards parks, +public playgrounds, proper regulation of the system of housing, so as to do +away with the evils of alley tenements, a proper system of education, a +proper system of dealing with truancy and juvenile offenders, a proper +handling of the charitable work of the District. Moreover, there should be +proper factory laws to prevent all abuses in the employment of women and +children in the District. These will be useful chiefly as object lessons, +but even this limited amount of usefulness would be of real National +value. + +There has been demand for depriving courts of the power to issue +injunctions in labor disputes. Such special limitation of the equity powers +of our courts would be most unwise. It is true that some judges have +misused this power; but this does not justify a denial of the power any +more than an improper exercise of the power to call a strike by a labor +leader would justify the denial of the right to strike. The remedy is to +regulate the procedure by requiring the judge to give due notice to the +adverse parties before granting the writ, the hearing to be ex parte if the +adverse party does not appear at the time and place ordered. What is due +notice must depend upon the facts of the case; it should not be used as a +pretext to permit violation of law or the jeopardizing of life or property. +Of course, this would not authorize the issuing of a restraining order or +injunction in any case in which it is not already authorized by existing +law. + +I renew the recommendation I made in my last annual message for an +investigation by the Department of Commerce and Labor of general labor +conditions, especial attention to be paid to the conditions of child labor +and child-labor legislation in the several States. Such an investigation +should take into account the various problems with which the question of +child labor is connected. It is true that these problems can be actually +met in most cases only by the States themselves, but it would be well for +the Nation to endeavor to secure and publish comprehensive information as +to the conditions of the labor of children in the different States, so as +to spur up those that are behindhand and to secure approximately uniform +legislation of a high character among the several States. In such a +Republic as ours the one thing that we cannot afford to neglect is the +problem of turning out decent citizens. The future of the Nation depends +upon the citizenship of the generations to come; the children of today are +those who tomorrow will shape the destiny of our land, and we cannot afford +to neglect them. The Legislature of Colorado has recommended that the +National Government provide some general measure for the protection from +abuse of children and dumb animals throughout the United States. I lay the +matter before you for what I trust will be your favorable consideration. + +The Department of Commerce and Labor should also make a thorough +investigation of the conditions of women in industry. Over five million +American women are now engaged in gainful occupations; yet there is an +almost complete dearth of data upon which to base any trustworthy +conclusions as regards a subject as important as it is vast and +complicated. There is need of full knowledge on which to base action +looking toward State and municipal legislation for the protection of +working women. The introduction of women into industry is working change +and disturbance in the domestic and social life of the Nation. The decrease +in marriage, and especially in the birth rate, has been coincident with it. +We must face accomplished facts, and the adjustment of factory conditions +must be made, but surely it can be made with less friction and less harmful +effects on family life than is now the case. This whole matter in reality +forms one of the greatest sociological phenomena of our time; it is a +social question of the first importance, of far greater importance than any +merely political or economic question can be, and to solve it we need ample +data, gathered in a sane and scientific spirit in the course of an +exhaustive investigation. + +In any great labor disturbance not only are employer and employe +interested, but a third party--the general public. Every considerable labor +difficulty in which interstate commerce is involved should be investigated +by the Government and the facts officially reported to the public. + +The question of securing a healthy, self-respecting, and mutually +sympathetic attitude as between employer and employe, capitalist and +wage-worker, is a difficult one. All phases of the labor problem prove +difficult when approached. But the underlying principles, the root +principles, in accordance with which the problem must be solved are +entirely simple. We can get justice and right dealing only if we put as of +paramount importance the principle of treating a man on his worth as a man +rather than with reference to his social position, his occupation or the +class to which he belongs. There are selfish and brutal men in all ranks of +life. If they are capitalists their selfishness and brutality may take the +form of hard indifference to suffering, greedy disregard of every moral +restraint which interferes with the accumulation of wealth, and +cold-blooded exploitation of the weak; or, if they are laborers, the form +of laziness, of sullen envy of the more fortunate, and of willingness to +perform deeds of murderous violence. Such conduct is just as reprehensible +in one case as in the other, and all honest and farseeing men should join +in warring against it wherever it becomes manifest. Individual capitalist +and individual wage-worker, corporation and union, are alike entitled to +the protection of the law, and must alike obey the law. Moreover, in +addition to mere obedience to the law, each man, if he be really a good +citizen, must show broad sympathy for his neighbor and genuine desire to +look at any question arising between them from the standpoint of that +neighbor no less than from his own, and to this end it is essential that +capitalist and wage-worker should consult freely one with the other, should +each strive to bring closer the day when both shall realize that they are +properly partners and not enemies. To approach the questions which +inevitably arise between them solely from the standpoint which treats each +side in the mass as the enemy of the other side in the mass is both wicked +and foolish. In the past the most direful among the influences which have +brought about the downfall of republics has ever been the growth of the +class spirit, the growth of the spirit which tends to make a man +subordinate the welfare of the public as a whole to the welfare of the +particular class to which he belongs, the substitution of loyalty to a +class for loyalty to the Nation. This inevitably brings about a tendency to +treat each man not on his merits as an individual, but on his position as +belonging to a certain class in the community. If such a spirit grows up in +this Republic it will ultimately prove fatal to us, as in the past it has +proved fatal to every community in which it has become dominant. Unless we +continue to keep a quick and lively sense of the great fundamental truth +that our concern is with the individual worth of the individual man, this +Government cannot permanently hold the place which it has achieved among +the nations. The vital lines of cleavage among our people do not +correspond, and indeed run at right angles to, the lines of cleavage which +divide occupation from occupation, which divide wage-workers from +capitalists, farmers from bankers, men of small means from men of large +means, men who live in the towns from men who live in the country; for the +vital line of cleavage is the line which divides the honest man who tries +to do well by his neighbor from the dishonest man who does ill by his +neighbor. In other words, the standard we should establish is the standard +of conduct, not the standard of occupation, of means, or of social +position. It is the man's moral quality, his attitude toward the great +questions which concern all humanity, his cleanliness of life, his power to +do his duty toward himself and toward others, which really count; and if we +substitute for the standard of personal judgment which treats each man +according to his merits, another standard in accordance with which all men +of one class are favored and all men of another class discriminated +against, we shall do irreparable damage to the body politic. I believe that +our people are too sane, too self-respecting, too fit for self-government, +ever to adopt such an attitude. This Government is not and never shall be +government by a plutocracy. This Government is not and never shall be +government by a mob. It shall continue to be in the future what it has been +in the past, a Government based on the theory that each man, rich or poor, +is to be treated simply and solely on his worth as a man, that all his +personal and property rights are to be safeguarded, and that he is neither +to wrong others nor to suffer wrong from others. + +The noblest of all forms of government is self-government; but it is also +the most difficult. We who possess this priceless boon, and who desire to +hand it on to our children and our children's children, should ever bear in +mind the thought so finely expressed by Burke: "Men are qualified for civil +liberty in exact proportion to their disposition to put moral chains upon +their own appetites; in proportion as they are disposed to listen to the +counsels of the wise and good in preference to the flattery of knaves. +Society cannot exist unless a controlling power upon will and appetite be +placed somewhere, and the less of it there be within the more there must be +without. It is ordained in the eternal constitution of things that men of +intemperate minds cannot be free. Their passions forge their fetters." + +The great insurance companies afford striking examples of corporations +whose business has extended so far beyond the jurisdiction of the States +which created them as to preclude strict enforcement of supervision and +regulation by the parent States. In my last annual message I recommended +"that the Congress carefully consider whether the power of the Bureau of +Corporations cannot constitutionally be extended to cover interstate +transactions in insurance." + +Recent events have emphasized the importance of an early and exhaustive +consideration of this question, to see whether it is not possible to +furnish better safeguards than the several States have been able to furnish +against corruption of the flagrant kind which has been exposed. It has been +only too clearly shown that certain of the men at the head of these large +corporations take but small note of the ethical distinction between honesty +and dishonesty; they draw the line only this side of what may be called +law-honesty, the kind of honesty necessary in order to avoid falling into +the clutches of the law. Of course the only complete remedy for this +condition must be found in an aroused public conscience, a higher sense of +ethical conduct in the community at large, and especially among business +men and in the great profession of the law, and in the growth of a spirit +which condemns all dishonesty, whether in rich man or in poor man, whether +it takes the shape of bribery or of blackmail. But much can be done by +legislation which is not only drastic but practical. There is need of a far +stricter and more uniform regulation of the vast insurance interests of +this country. The United States should in this respect follow the policy of +other nations by providing adequate national supervision of commercial +interests which are clearly national in character. My predecessors have +repeatedly recognized that the foreign business of these companies is an +important part of our foreign commercial relations. During the +administrations of Presidents Cleveland, Harrison, and McKinley the State +Department exercised its influence, through diplomatic channels, to prevent +unjust discrimination by foreign countries against American insurance +companies. These negotiations illustrated the propriety of the Congress +recognizing the National character of insurance, for in the absence of +Federal legislation the State Department could only give expression to the +wishes of the authorities of the several States, whose policy was +ineffective through want of uniformity. + +I repeat my previous recommendation that the Congress should also consider +whether the Federal Government has any power or owes any duty with respect +to domestic transactions in insurance of an interstate character. That +State supervision has proved inadequate is generally conceded. The burden +upon insurance companies, and therefore their policy holders, of +conflicting regulations of many States, is unquestioned, while but little +effective check is imposed upon any able and unscrupulous man who desires +to exploit the company in his own interest at the expense of the policy +holders and of the public. The inability of a State to regulate effectively +insurance corporations created under the laws of other States and +transacting the larger part of their business elsewhere is also clear. As a +remedy for this evil of conflicting, ineffective, and yet burdensome +regulations there has been for many years a widespread demand for Federal +supervision. The Congress has already recognized that interstate insurance +may be a proper subject for Federal legislation, for in creating the Bureau +of Corporations it authorized it to publish and supply useful information +concerning interstate corporations, "including corporations engaged in +insurance." It is obvious that if the compilation of statistics be the +limit of the Federal power it is wholly ineffective to regulate this form +of commercial intercourse between the States, and as the insurance business +has outgrown in magnitude the possibility of adequate State supervision, +the Congress should carefully consider whether further legislation can be +bad. What is said above applies with equal force to fraternal and +benevolent organizations which contract for life insurance. + +There is more need of stability than of the attempt to attain an ideal +perfection in the methods of raising revenue; and the shock and strain to +the business world certain to attend any serious change in these methods +render such change inadvisable unless for grave reason. It is not possible +to lay down any general rule by which to determine the moment when the +reasons for will outweigh the reasons against such a change. Much must +depend, not merely on the needs, but on the desires, of the people as a +whole; for needs and desires are not necessarily identical. Of course, no +change can be made on lines beneficial to, or desired by, one section or +one State only. There must be something like a general agreement among the +citizens of the several States, as represented in the Congress, that the +change is needed and desired in the interest of the people, as a whole; and +there should then be a sincere, intelligent, and disinterested effort to +make it in such shape as will combine, so far as possible, the maximum of +good to the people at large with the minimum of necessary disregard for the +special interests of localities or classes. But in time of peace the +revenue must on the average, taking a series of years together, equal the +expenditures or else the revenues must be increased. Last year there was a +deficit. Unless our expenditures can be kept within the revenues then our +revenue laws must be readjusted. It is as yet too early to attempt to +outline what shape such a readjustment should take, for it is as yet too +early to say whether there will be need for it. It should be considered +whether it is not desirable that the tariff laws should provide for +applying as against or in favor of any other nation maximum and minimum +tariff rates established by the Congress, so as to secure a certain +reciprocity of treatment between other nations and ourselves. Having in +view even larger considerations of policy than those of a purely economic +nature, it would, in my judgment, be well to endeavor to bring about closer +commercial connections with the other peoples of this continent. I am happy +to be able to announce to you that Russia now treats us on the +most-favored-nation basis. + +I earnestly recommend to Congress the need of economy and to this end of a +rigid scrutiny of appropriations. As examples merely, I call your attention +to one or two specific matters. All unnecessary offices should be +abolished. The Commissioner of the General Land Office recommends the +abolishment of the office of Receiver of Public Moneys for the United +States Land Office. This will effect a saving of about a quarter of a +million dollars a year. As the business of the Nation grows, it is +inevitable that there should be from time to time a legitimate increase in +the number of officials, and this fact renders it all the more important +that when offices become unnecessary they should be abolished. In the +public printing also a large saving of public money can be made. There is a +constantly growing tendency to publish masses of unimportant information. +It is probably not unfair to say that many tens of thousands of volumes are +published at which no human being ever looks and for which there is no real +demand whatever. + +Yet, in speaking of economy, I must in no wise be understood as advocating +the false economy which is in the end the worst extravagance. To cut down +on the navy, for instance, would be a crime against the Nation. To fail to +push forward all work on the Panama Canal would be as great a folly. + +In my message of December 2, 1902, to the Congress I said: + +"Interest rates are a potent factor in business activity, and in order that +these rates may be equalized to meet the varying needs of the seasons and +of widely separated communities, and to prevent the recurrence of financial +stringencies, which injuriously affect legitimate business, it is necessary +that there should be an element of elasticity in our monetary system. Banks +are the natural servants of commerce, and, upon them should be placed, as +far as practicable, the burden of furnishing and maintaining a circulation +adequate to supply the needs of our diversified industries and of our +domestic and foreign commerce; and the issue of this should be so regulated +that a sufficient supply should be always available for the business +interests of the country." + +Every consideration of prudence demands the addition of the element of +elasticity to our currency system. The evil does not consist in an +inadequate volume of money, but in the rigidity of this volume, which does +not respond as it should to the varying needs of communities and of +seasons. Inflation must be avoided; but some provision should be made that +will insure a larger volume of money during the Fall and Winter months than +in the less active seasons of the year; so that the currency will contract +against speculation, and will expand for the needs of legitimate business. +At present the Treasury Department is at irregularly recurring intervals +obliged, in the interest of the business world--that is, in the interests +of the American public--to try to avert financial crises by providing a +remedy which should be provided by Congressional action. + +At various times I have instituted investigations into the organization and +conduct of the business of the executive departments. While none of these +inquiries have yet progressed far enough to warrant final conclusions, they +have already confirmed and emphasized the general impression that the +organization of the departments is often faulty in principle and wasteful +in results, while many of their business methods are antiquated and +inefficient. There is every reason why our executive governmental machinery +should be at least as well planned, economical, and efficient as the best +machinery of the great business organizations, which at present is not the +case. To make it so is a task of complex detail and essentially executive +in its nature; probably no legislative body, no matter how wise and able, +could undertake it with reasonable prospect of success. I recommend that +the Congress consider this subject with a view to provide by legislation +for the transfer, distribution, consolidation, and assignment of duties and +executive organizations or parts of organizations, and for the changes in +business methods, within or between the several departments, that will best +promote the economy, efficiency, and high character of the Government +work. + +In my last annual message I said: + +"The power of the Government to protect the integrity of the elections of +its own officials is inherent and has been recognized and affirmed by +repeated declarations of the Supreme Court. There is no enemy of free +government more dangerous and none so insidious as the corruption of the +electorate. No one defends or excuses corruption, and it would seem to +follow that none would oppose vigorous measures to eradicate it. I +recommend the enactment of a law directed against bribery and corruption in +Federal elections. The details of such a law may be safely left to the wise +discretion of the Congress, but it should go as far as under the +Constitution it is possible to go, and should include severe penalties +against him who gives or receives a bribe intended to influence his act or +opinion as an elector; and provisions for the publication not only of the +expenditures for nominations and elections of all candidates, but also of +all contributions received and expenditures made by political committees." + +I desire to repeat this recommendation. In political campaigns in a country +as large and populous as ours it is inevitable that there should be much +expense of an entirely legitimate kind. This, of course, means that many +contributions, and some of them of large size, must be made, and, as a +matter of fact, in any big political contest such contributions are always +made to both sides. It is entirely proper both to give and receive them, +unless there is an improper motive connected with either gift or reception. +If they are extorted by any kind of pressure or promise, express or +implied, direct or indirect, in the way of favor or immunity, then the +giving or receiving becomes not only improper but criminal. It will +undoubtedly be difficult, as a matter of practical detail, to shape an act +which shall guard with reasonable certainty against such misconduct; but if +it is possible to secure by law the full and verified publication in detail +of all the sums contributed to and expended by the candidates or committees +of any political parties, the result cannot but be wholesome. All +contributions by corporations to any political committee or for any +political purpose should be forbidden by law; directors should not be +permitted to use stockholders' money for such purposes; and, moreover, a +prohibition of this kind would be, as far as it went, an effective method +of stopping the evils aimed at in corrupt practices acts. Not only should +both the National and the several State Legislatures forbid any officer of +a corporation from using the money of the corporation in or about any +election, but they should also forbid such use of money in connection with +any legislation save by the employment of counsel in public manner for +distinctly legal services. + +The first conference of nations held at The Hague in 1899, being unable to +dispose of all the business before it, recommended the consideration and +settlement of a number of important questions by another conference to be +called subsequently and at an early date. These questions were the +following: (1) The rights and duties of neutrals; (2) the limitation of the +armed forces on land and sea, and of military budgets; (3) the use of new +types and calibres of military and naval guns; (4) the inviolability of +private property at sea in times of war; (5) the bombardment of ports, +cities, and villages by naval forces. In October, 1904, at the instance of +the Interparliamentary Union, which, at a conference held in the United +States, and attended by the lawmakers of fifteen different nations, had +reiterated the demand for a second conference of nations, I issued +invitations to all the powers signatory to The Hague Convention to send +delegates to such a conference, and suggested that it be again held at The +Hague. In its note of December 16, 1904, the United States Government +communicated to the representatives of foreign governments its belief that +the conference could be best arranged under the provisions of the present +Hague treaty. + +From all the powers acceptance was received, coupled in some cases with the +condition that we should wait until the end of the war then waging between +Russia and Japan. The Emperor of Russia, immediately after the treaty of +peace which so happily terminated this war, in a note presented to the +President on September 13, through Ambassador Rosen, took the initiative in +recommending that the conference be now called. The United States +Government in response expressed its cordial acquiescence, and stated that +it would, as a matter of course, take part in the new conference and +endeavor to further its aims. We assume that all civilized governments will +support the movement, and that the conference is now an assured fact. This +Government will do everything in its power to secure the success of the +conference, to the end that substantial progress may be made in the cause +of international peace, justice, and good will. + +This renders it proper at this time to say something as to the general +attitude of this Government toward peace. More and more war is coming to be +looked upon as in itself a lamentable and evil thing. A wanton or useless +war, or a war of mere aggression--in short, any war begun or carried on in +a conscienceless spirit, is to be condemned as a peculiarly atrocious crime +against all humanity. We can, however, do nothing of permanent value for +peace unless we keep ever clearly in mind the ethical element which lies at +the root of the problem. Our aim is righteousness. Peace is normally the +hand-maiden of rightousness; but when peace and righteousness conflict then +a great and upright people can never for a moment hesitate to follow the +path which leads toward righteousness, even though that path also leads to +war. There are persons who advocate peace at any price; there are others +who, following a false analogy, think that because it is no longer +necessary in civilized countries for individuals to protect their rights +with a strong hand, it is therefore unnecessary for nations to be ready to +defend their rights. These persons would do irreparable harm to any nation +that adopted their principles, and even as it is they seriously hamper the +cause which they advocate by tending to render it absurd in the eyes of +sensible and patriotic men. There can be no worse foe of mankind in +general, and of his own country in particular, than the demagogue of war, +the man who in mere folly or to serve his own selfish ends continually +rails at and abuses other nations, who seeks to excite his countrymen +against foreigners on insufficient pretexts, who excites and inflames a +perverse and aggressive national vanity, and who may on occasions wantonly +bring on conflict between his nation and some other nation. But there are +demagogues of peace just as there are demagogues of war, and in any such +movement as this for The Hague conference it is essential not to be misled +by one set of extremists any more than by the other. Whenever it is +possible for a nation or an individual to work for real peace, assuredly it +is failure of duty not so to strive, but if war is necessary and righteous +then either the man or the nation shrinking from it forfeits all title to +self-respect. We have scant sympathy with the sentimentalist who dreads +oppression less than physical suffering, who would prefer a shameful peace +to the pain and toil sometimes lamentably necessary in order to secure a +righteous peace. As yet there is only a partial and imperfect analogy +between international law and internal or municipal law, because there is +no sanction of force for executing the former while there is in the case of +the latter. The private citizen is protected in his rights by the law, +because the law rests in the last resort upon force exercised through the +forms of law. A man does not have to defend his rights with his own hand, +because he can call upon the police, upon the sheriff's posse, upon the +militia, or in certain extreme cases upon the army, to defend him. But +there is no such sanction of force for international law. At present there +could be no greater calamity than for the free peoples, the enlightened, +independent, and peace-loving peoples, to disarm while yet leaving it open +to any barbarism or despotism to remain armed. So long as the world is as +unorganized as now the armies and navies of those peoples who on the whole +stand for justice, offer not only the best, but the only possible, security +for a just peace. For instance, if the United States alone, or in company +only with the other nations that on the whole tend to act justly, disarmed, +we might sometimes avoid bloodshed, but we would cease to be of weight in +securing the peace of justice--the real peace for which the most +law-abiding and high-minded men must at times be willing to fight. As the +world is now, only that nation is equipped for peace that knows how to +fight, and that will not shrink from fighting if ever the conditions become +such that war is demanded in the name of the highest morality. + +So much it is emphatically necessary to say in order both that the position +of the United States may not be misunderstood, and that a genuine effort to +bring nearer the day of the peace of justice among the nations may not be +hampered by a folly which, in striving to achieve the impossible, would +render it hopeless to attempt the achievement of the practical. But, while +recognizing most clearly all above set forth, it remains our clear duty to +strive in every practicable way to bring nearer the time when the sword +shall not be the arbiter among nations. At present the practical thing to +do is to try to minimize the number of cases in which it must be the +arbiter, and to offer, at least to all civilized powers, some substitute +for war which will be available in at least a considerable number of +instances. Very much can be done through another Hague conference in this +direction, and I most earnestly urge that this Nation do all in its power +to try to further the movement and to make the result of the decisions of +The Hague conference effective. I earnestly hope that the conference may be +able to devise some way to make arbitration between nations the customary +way of settling international disputes in all save a few classes of cases, +which should themselves be as sharply defined and rigidly limited as the +present governmental and social development of the world will permit. If +possible, there should be a general arbitration treaty negotiated among all +the nations represented at the conference. Neutral rights and property +should be protected at sea as they are protected on land. There should be +an international agreement to this purpose and a similar agreement defining +contraband of war. + +During the last century there has been a distinct diminution in the number +of wars between the most civilized nations. International relations have +become closer and the development of The Hague tribunal is not only a +symptom of this growing closeness of relationship, but is a means by which +the growth can be furthered. Our aim should be from time to time to take +such steps as may be possible toward creating something like an +organization of the civilized nations, because as the world becomes more +highly organized the need for navies and armies will diminish. It is not +possible to secure anything like an immediate disarmament, because it would +first be necessary to settle what peoples are on the whole a menace to the +rest of mankind, and to provide against the disarmament of the rest being +turned into a movement which would really chiefly benefit these obnoxious +peoples; but it may be possible to exercise some check upon the tendency to +swell indefinitely the budgets for military expenditure. Of course such an +effort could succeed only if it did not attempt to do too much; and if it +were undertaken in a spirit of sanity as far removed as possible from a +merely hysterical pseudo-philanthropy. It is worth while pointing out that +since the end of the insurrection in the Philippines this Nation has shown +its practical faith in the policy of disarmament by reducing its little +army one-third. But disarmament can never be of prime importance; there is +more need to get rid of the causes of war than of the implements of war. + +I have dwelt much on the dangers to be avoided by steering clear of any +mere foolish sentimentality because my wish for peace is so genuine and +earnest; because I have a real and great desire that this second Hague +conference may mark a long stride forward in the direction of securing the +peace of justice throughout the world. No object is better worthy the +attention of enlightened statesmanship than the establishment of a surer +method than now exists of securing justice as between nations, both for the +protection of the little nations and for the prevention of war between the +big nations. To this aim we should endeavor not only to avert bloodshed, +but, above all, effectively to strengthen the forces of right. The Golden +Rule should be, and as the world grows in morality it will be, the guiding +rule of conduct among nations as among individuals; though the Golden Rule +must not be construed, in fantastic manner, as forbidding the exercise of +the police power. This mighty and free Republic should ever deal with all +other States, great or small, on a basis of high honor, respecting their +rights as jealously as it safeguards its own. + +One of the most effective instruments for peace is the Monroe Doctrine as +it has been and is being gradually developed by this Nation and accepted by +other nations. No other policy could have been as efficient in promoting +peace in the Western Hemisphere and in giving to each nation thereon the +chance to develop along its own lines. If we had refused to apply the +doctrine to changing conditions it would now be completely outworn, would +not meet any of the needs of the present day, and, indeed, would probably +by this time have sunk into complete oblivion. It is useful at home, and is +meeting with recognition abroad because we have adapted our application of +it to meet the growing and changing needs of the hemisphere. When we +announce a policy such as the Monroe Doctrine we thereby commit ourselves +to the consequences of the policy, and those consequences from time to time +alter. It is out of the question to claim a right and yet shirk the +responsibility for its exercise. Not only we, but all American republics +who are benefited by the existence of the doctrine, must recognize the +obligations each nation is under as regards foreign peoples no less than +its duty to insist upon its own rights. + +That our rights and interests are deeply concerned in the maintenance of +the doctrine is so clear as hardly to need argument. This is especially +true in view of the construction of the Panama Canal. As a mere matter of +self-defense we must exercise a close watch over the approaches to this +canal; and this means that we must be thoroughly alive to our interests in +the Caribbean Sea. + +There are certain essential points which must never be forgotten as regards +the Monroe Doctrine. In the first place we must as a Nation make it evident +that we do not intend to treat it in any shape or way as an excuse for +aggrandizement on our part at the expense of the republics to the south. We +must recognize the fact that in some South American countries there has +been much suspicion lest we should interpret the Monroe Doctrine as in some +way inimical to their interests, and we must try to convince all the other +nations of this continent once and for all that no just and orderly +Government has anything to fear from us. There are certain republics to the +south of us which have already reached such a point of stability, order, +and prosperity that they themselves, though as yet hardly consciously, are +among the guarantors of this doctrine. These republics we now meet not only +on a basis of entire equality, but in a spirit of frank and respectful +friendship, which we hope is mutual. If all of the republics to the south +of us will only grow as those to which I allude have already grown, all +need for us to be the especial champions of the doctrine will disappear, +for no stable and growing American Republic wishes to see some great +non-American military power acquire territory in its neighborhood. All that +this country desires is that the other republics on this continent shall be +happy and prosperous; and they cannot be happy and prosperous unless they +maintain order within their boundaries and behave with a just regard for +their obligations toward outsiders. It must be understood that under no +circumstances will the United States use the Monroe Doctrine as a cloak for +territorial aggression. We desire peace with all the world, but perhaps +most of all with the other peoples of the American Continent. There are, of +course, limits to the wrongs which any self-respecting nation can endure. +It is always possible that wrong actions toward this Nation, or toward +citizens of this Nation, in some State unable to keep order among its own +people, unable to secure justice from outsiders, and unwilling to do +justice to those outsiders who treat it well, may result in our having to +take action to protect our rights; but such action will not be taken with a +view to territorial aggression, and it will be taken at all only with +extreme reluctance and when it has become evident that every other resource +has been exhausted. + +Moreover, we must make it evident that we do not intend to permit the +Monroe Doctrine to be used by any nation on this Continent as a shield to +protect it from the consequences of its own misdeeds against foreign +nations. If a republic to the south of us commits a tort against a foreign +nation, such as an outrage against a citizen of that nation, then the +Monroe Doctrine does not force us to interfere to prevent punishment of the +tort, save to see that the punishment does not assume the form of +territorial occupation in any shape. The case is more difficult when it +refers to a contractual obligation. Our own Government has always refused +to enforce such contractual obligations on behalf, of its citizens by an +appeal to arms. It is much to be wished that all foreign governments would +take the same view. But they do not; and in consequence we are liable at +any time to be brought face to face with disagreeable alternatives. On the +one hand, this country would certainly decline to go to war to prevent a +foreign government from collecting a just debt; on the other hand, it is +very inadvisable to permit any foreign power to take possession, even +temporarily, of the custom houses of an American Republic in order to +enforce the payment of its obligations; for such temporary occupation might +turn into a permanent occupation. The only escape from these alternatives +may at any time be that we must ourselves undertake to bring about some +arrangement by which so much as possible of a just obligation shall be +paid. It is far better that this country should put through such an +arrangement, rather than allow any foreign country to undertake it. To do +so insures the defaulting republic from having to pay debt of an improper +character under duress, while it also insures honest creditors of the +republic from being passed by in the interest of dishonest or grasping +creditors. Moreover, for the United States to take such a position offers +the only possible way of insuring us against a clash with some foreign +power. The position is, therefore, in the interest of peace as well as in +the interest of justice. It is of benefit to our people; it is of benefit +to foreign peoples; and most of all it is really of benefit to the people +of the country concerned. + +This brings me to what should be one of the fundamental objects of the +Monroe Doctrine. We must ourselves in good faith try to help upward toward +peace and order those of our sister republics which need such help. Just as +there has been a gradual growth of the ethical element in the relations of +one individual to another, so we are, even though slowly, more and more +coming to recognize the duty of bearing one another's burdens, not only as +among individuals, but also as among nations. + +Santo Domingo, in her turn, has now made an appeal to us to help her, and +not only every principle of wisdom but every generous instinct within us +bids us respond to the appeal. It is not of the slightest consequence +whether we grant the aid needed by Santo Domingo as an incident to the wise +development of the Monroe Doctrine or because we regard the case of Santo +Domingo as standing wholly by itself, and to be treated as such, and not on +general principles or with any reference to the Monroe Doctrine. The +important point is to give the needed aid, and the case is certainly +sufficiently peculiar to deserve to be judged purely on its own merits. The +conditions in Santo Domingo have for a number of years grown from bad to +worse until a year ago all society was on the verge of dissolution. +Fortunately, just at this time a ruler sprang up in Santo Domingo, who, +with his colleagues, saw the dangers threatening their country and appealed +to the friendship of the only great and powerful neighbor who possessed the +power, and as they hoped also the will to help them. There was imminent +danger of foreign intervention. The previous rulers of Santo Domingo had +recklessly incurred debts, and owing to her internal disorders she had +ceased to be able to provide means of paying the debts. The patience of her +foreign creditors had become exhausted, and at least two foreign nations +were on the point of intervention, and were only prevented from intervening +by the unofficial assurance of this Government that it would itself strive +to help Santo Domingo in her hour of need. In the case of one of these +nations, only the actual opening of negotiations to this end by our +Government prevented the seizure of territory in Santo Domingo by a +European power. Of the debts incurred some were just, while some were not +of a character which really renders it obligatory on or proper for Santo +Domingo to pay them in full. But she could not pay any of them unless some +stability was assured her Government and people. + +Accordingly, the Executive Department of our Government negotiated a treaty +under which we are to try to help the Dominican people to straighten out +their finances. This treaty is pending before the Senate. In the meantime a +temporary arrangement has been made which will last until the Senate has +had time to take action upon the treaty. Under this arrangement the +Dominican Government has appointed Americans to all the important positions +in the customs service and they are seeing to the honest collection of the +revenues, turning over 45 per cent. to the Government for running expenses +and putting the other 55 per cent. into a safe depository for equitable +division in case the treaty shall be ratified, among the various creditors, +whether European or American. + +The Custom Houses offer well-nigh the only sources of revenue in Santo +Domingo, and the different revolutions usually have as their real aim the +obtaining of these Custom Houses. The mere fact that the Collectors of +Customs are Americans, that they are performing their duties with +efficiency and honesty, and that the treaty is pending in the Senate gives +a certain moral power to the Government of Santo Domingo which it has not +had before. This has completely discouraged all revolutionary movement, +while it has already produced such an increase in the revenues that the +Government is actually getting more from the 45 per cent. that the American +Collectors turn over to it than it got formerly when it took the entire +revenue. It is enabling the poor, harassed people of Santo Domingo once +more to turn their attention to industry and to be free from the cure of +interminable revolutionary disturbance. It offers to all bona-fide +creditors, American and European, the only really good chance to obtain +that to which they are justly entitled, while it in return gives to Santo +Domingo the only opportunity of defense against claims which it ought not +to pay, for now if it meets the views of the Senate we shall ourselves +thoroughly examine all these claims, whether American or foreign, and see +that none that are improper are paid. There is, of course, opposition to +the treaty from dishonest creditors, foreign and American, and from the +professional revolutionists of the island itself. We have already reason to +believe that some of the creditors who do not dare expose their claims to +honest scrutiny are endeavoring to stir up sedition in the island and +opposition to the treaty. In the meantime, I have exercised the authority +vested in me by the joint resolution of the Congress to prevent the +introduction of arms into the island for revolutionary purposes. + +Under the course taken, stability and order and all the benefits of peace +are at last coming to Santo Domingo, danger of foreign intervention has +been suspended, and there is at last a prospect that all creditors will get +justice, no more and no less. If the arrangement is terminated by the +failure of the treaty chaos will follow; and if chaos follows, sooner or +later this Government may be involved in serious difficulties with foreign +Governments over the island, or else may be forced itself to intervene in +the island in some unpleasant fashion. Under the proposed treaty the +independence of the island is scrupulously respected, the danger of +violation of the Monroe Doctrine by the intervention of foreign powers +vanishes, and the interference of our Government is minimized, so that we +shall only act in conjunction with the Santo Domingo authorities to secure +the proper administration of the customs, and therefore to secure the +payment of just debts and to secure the Dominican Government against +demands for unjust debts. The proposed method will give the people of Santo +Domingo the same chance to move onward and upward which we have already +given to the people of Cuba. It will be doubly to our discredit as a Nation +if we fail to take advantage of this chance; for it will be of damage to +ourselves, and it will be of incalculable damage to Santo Domingo. Every +consideration of wise policy, and, above all, every consideration of large +generosity, bids us meet the request of Santo Domingo as we are now trying +to meet it. + +We cannot consider the question of our foreign policy without at the same +time treating of the Army and the Navy. We now have a very small army +indeed, one well-nigh infinitesimal when compared With the army of any +other large nation. Of course the army we do have should be as nearly +perfect of its kind and for its size as is possible. I do not believe that +any army in the world has a better average of enlisted men or a better type +of junior officer; but the army should be trained to act effectively in a +mass. Provision should be made by sufficient appropriations for manoeuvers +of a practical kind, so that the troops may learn how to take care of +themselves under actual service conditions; every march, for instance, +being made with the soldier loaded exactly as he would be in active +campaign. The Generals and Colonels would thereby have opportunity of +handling regiments, brigades, and divisions, and the commissary and medical +departments would be tested in the field. Provision should be made for the +exercise at least of a brigade and by preference of a division in marching +and embarking at some point on our coast and disembarking at some other +point and continuing its march. The number of posts in which the army is +kept in time of peace should be materially diminished and the posts that +are left made correspondingly larger. No local interests should be allowed +to stand in the way of assembling the greater part of the troops which +would at need form our field armies in stations of such size as will permit +the best training to be given to the personnel of all grades, including the +high officers and staff officers. To accomplish this end we must have not +company or regimental garrisons, but brigade and division garrisons. +Promotion by mere seniority can never result in a thoroughly efficient +corps of officers in the higher ranks unless there accompanies it a +vigorous weeding-out process. Such a weeding-out process--that is, such a +process of selection--is a chief feature of the four years' course of the +young officer at West Point. There is no good reason why it should stop +immediately upon his graduation. While at West Point he is dropped unless +he comes up to a certain standard of excellence, and when he graduates he +takes rank in the army according to his rank of graduation. The results are +good at West Point; and there should be in the army itself something that +will achieve the same end. After a certain age has been reached the average +officer is unfit to do good work below a certain grade. Provision should be +made for the promotion of exceptionally meritorious men over the heads of +their comrades and for the retirement of all men who have reached a given +age without getting beyond a given rank; this age of retirement of course +changing from rank to rank. In both the army and the navy there should be +some principle of selection, that is, of promotion for merit, and there +should be a resolute effort to eliminate the aged officers of reputable +character who possess no special efficiency. + +There should be an increase in the coast artillery force, so that our coast +fortifications can be in some degree adequately manned. There is special +need for an increase and reorganization of the Medical Department of the +army. In both the army and navy there must be the same thorough training +for duty in the staff corps as in the fighting line. Only by such training +in advance can we be sure that in actual war field operations and those at +sea will be carried on successfully. The importance of this was shown +conclusively in the Spanish-American and the Russo-Japanese wars. The work +of the medical departments in the Japanese army and navy is especially +worthy of study. I renew my recommendation of January 9, 1905, as to the +Medical Department of the army and call attention to the equal importance +of the needs of the staff corps of the navy. In the Medical Department of +the navy the first in importance is the reorganization of the Hospital +Corps, on the lines of the Gallinger bill, (S. 3,984, February 1, 1904), +and the reapportionment of the different grades of the medical officers to +meet service requirements. It seems advisable also that medical officers of +the army and navy should have similar rank and pay in their respective +grades, so that their duties can be carried on without friction when they +are brought together. The base hospitals of the navy should be put in +condition to meet modern requirements and hospital ships be provided. +Unless we now provide with ample forethought for the medical needs of the +army and navy appalling suffering of a preventable kind is sure to occur if +ever the country goes to war. It is not reasonable to expect successful +administration in time of war of a department which lacks a third of the +number of officers necessary to perform the medical service in time of +peace. We need men who are not merely doctors; they must be trained in the +administration of military medical service. + +Our navy must, relatively to the navies of other nations, always be of +greater size than our army. We have most wisely continued for a number of +years to build up our navy, and it has now reached a fairly high standard +of efficiency. This standard of efficiency must not only be maintained, but +increased. It does not seem to be necessary, however, that the navy +should--at least in the immediate future--be increased beyond the present +number of units. What is now clearly necessary is to substitute efficient +for inefficient units as the latter become worn out or as it becomes +apparent that they are useless. Probably the result would be attained by +adding a single battleship to our navy each year, the superseded or outworn +vessels being laid up or broken up as they are thus replaced. The four +single-turret monitors built immediately after the close of the Spanish +war, for instance, are vessels which would be of but little use in the +event of war. The money spent upon them could have been more usefully spent +in other ways. Thus it would have been far better never to have built a +single one of these monitors and to have put the money into an ample supply +of reserve guns. Most of the smaller cruisers and gunboats, though they +serve a useful purpose so far as they are needed for international police +work, would not add to the strength of our navy in a conflict with a +serious foe. There is urgent need of providing a large increase in the +number of officers, and especially in the number of enlisted men. + +Recent naval history has emphasized certain lessons which ought not to, but +which do, need emphasis. Seagoing torpedo boats or destroyers are +indispensable, not only for making night attacks by surprise upon an enemy, +but even in battle for finishing already crippled ships. Under exceptional +circumstances submarine boats would doubtless be of use. Fast scouts are +needed. The main strength of the navy, however, lies, and can only lie, in +the great battleships, the heavily armored, heavily gunned vessels which +decide the mastery of the seas. Heavy-armed cruisers also play a most +useful part, and unarmed cruisers, if swift enough, are very useful as +scouts. Between antagonists of approximately equal prowess the comparative +perfection of the instruments of war will ordinarily determine the fight. +But it is, of course, true that the man behind the gun, the man in the +engine room, and the man in the conning tower, considered not only +individually, but especially with regard to the way in which they work +together, are even more important than the weapons with which they work. +The most formidable battleship is, of course, helpless against even a light +cruiser if the men aboard it are unable to hit anything with their guns, +and thoroughly well-handled cruisers may count seriously in an engagement +with much superior vessels, if the men aboard the latter are ineffective, +whether from lack of training or from any other cause. Modern warships are +most formidable mechanisms when well handled, but they are utterly useless +when not well handled, and they cannot be handled at all without long and +careful training. This training can under no circumstance be given when +once war has broken out. No fighting ship of the first class should ever be +laid up save for necessary repairs, and her crew should be kept constantly +exercised on the high seas, so that she may stand at the highest point of +perfection. To put a new and untrained crew upon the most powerful +battleship and send it out to meet a formidable enemy is not only to +invite, but to insure, disaster and disgrace. To improvise crews at the +outbreak of a war, so far as the serious fighting craft are concerned, is +absolutely hopeless. If the officers and men are not thoroughly skilled in, +and have not been thoroughly trained to, their duties, it would be far +better to keep the ships in port during hostilities than to send them +against a formidable opponent, for the result could only be that they would +be either sunk or captured. The marksmanship of our navy is now on the +whole in a gratifying condition, and there has been a great improvement in +fleet practice. We need additional seamen; we need a large store of reserve +guns; we need sufficient money for ample target practice, ample practice of +every kind at sea. We should substitute for comparatively inefficient +types--the old third-class battleship Texas, the single-turreted monitors +above mentioned, and, indeed, all the monitors and some of the old +cruisers--efficient, modern seagoing vessels. Seagoing torpedo-boat +destroyers should be substituted for some of the smaller torpedo boats. +During the present Congress there need be no additions to the aggregate +number of units of the navy. Our navy, though very small relatively to the +navies of other nations, is for the present sufficient in point of numbers +for our needs, and while we must constantly strive to make its efficiency +higher, there need be no additions to the total of ships now built and +building, save in the way of substitution as above outlined. I recommend +the report of the Secretary of the Navy to the careful consideration of the +Congress, especially with a view to the legislation therein advocated. + +During the past year evidence has accumulated to confirm the expressions +contained in my last two annual messages as to the importance of revising +by appropriate legislation our system of naturalizing aliens. I appointed +last March a commission to make a careful examination of our naturalization +laws, and to suggest appropriate measures to avoid the notorious abuses +resulting from the improvident of unlawful granting of citizenship. This +commission, composed of an officer of the Department of State, of the +Department of Justice, and of the Department of Commerce and Labor, has +discharged the duty imposed upon it, and has submitted a report, which will +be transmitted to the Congress for its consideration, and, I hope, for its +favor, able action. + +The distinguishing recommendations of the commission are: + +First--A Federal Bureau of Naturalization, to be established in the +Department of Commerce and Labor, to supervise the administration of the +naturalization laws and to receive returns of naturalizations pending and +accomplished. + +Second--Uniformity of naturalization certificates, fees to be charged, and +procedure. + +Third--More exacting qualifications for citizenship. + +Fourth--The preliminary declaration of intention to be abolished and no +alien to be naturalized until at least ninety days after the filing of his +petition. + +Fifth--Jurisdiction to naturalize aliens to be confined to United States +district courts and to such State courts as have jurisdiction in civil +actions in which the amount in controversy is unlimited; in cities of over +100,000 inhabitants the United States district courts to have exclusive +jurisdiction in the naturalization of the alien residents of such cities. + +In my last message I asked the attention of the Congress to the urgent need +of action to make our criminal law more effective; and I most earnestly +request that you pay heed to the report of the Attorney General on this +subject. Centuries ago it was especially needful to throw every safeguard +round the accused. The danger then was lest he should be wronged by the +State. The danger is now exactly the reverse. Our laws and customs tell +immensely in favor of the criminal and against the interests of the public +he has wronged. Some antiquated and outworn rules which once safeguarded +the threatened rights of private citizens, now merely work harm to the +general body politic. The criminal law of the United States stands in +urgent need of revision. The criminal process of any court of the United +States should run throughout the entire territorial extent of our country. +The delays of the criminal law, no less than of the civil, now amount to a +very great evil. + +There seems to be no statute of the United States which provides for the +punishment of a United States Attorney or other officer of the Government +who corruptly agrees to wrongfully do or wrongfully refrain from doing any +act when the consideration for such corrupt agreement is other than one +possessing money value. This ought to be remedied by appropriate +legislation. Legislation should also be enacted to cover explicitly, +unequivocally, and beyond question breach of trust in the shape of +prematurely divulging official secrets by an officer or employe of the +United States, and to provide a suitable penalty therefor. Such officer or +employe owes the duty to the United States to guard carefully and not to +divulge or in any manner use, prematurely, information which is accessible +to the officer or employe by reason of his official position. Most breaches +of public trust are already covered by the law, and this one should be. It +is impossible, no matter how much care is used, to prevent the occasional +appointment to the public service of a man who when tempted proves +unfaithful; but every means should be provided to detect and every effort +made to punish the wrongdoer. So far as in my power see each and every such +wrongdoer shall be relentlessly hunted down; in no instance in the past has +he been spared; in no instance in the future shall he be spared. His crime +is a crime against every honest man in the Nation, for it is a crime +against the whole body politic. Yet in dwelling on such misdeeds it is +unjust not to add that they are altogether exceptional, and that on the +whole the employes of the Government render upright and faithful service to +the people. There are exceptions, notably in one or two branches of the +service, but at no time in the Nation's history has the public service of +the Nation taken as a whole stood on a higher plane than now, alike as +regards honesty and as regards efficiency. + +Once again I call your attention to the condition of the public land laws. +Recent developments have given new urgency to the need for such changes as +will fit these laws to actual present conditions. The honest disposal and +right use of the remaining public lands is of fundamental importance. The +iniquitous methods by which the monopolizing of the public lands is being +brought about under the present laws are becoming more generally known, but +the existing laws do not furnish effective remedies. The recommendations of +the Public Lands Commission upon this subject are wise and should be given +effect. + +The creation of small irrigated farms under the Reclamation act is a +powerful offset to the tendency of certain other laws to foster or permit +monopoly of the land. Under that act the construction of great irrigation +works has been proceeding rapidly and successfully, the lands reclaimed are +eagerly taken up, and the prospect that the policy of National irrigation +will accomplish all that was expected of it is bright. The act should be +extended to include the State of Texas. + +The Reclamation act derives much of its value from the fact that it tends +to secure the greatest possible number of homes on the land, and to create +communities of freeholders, in part by settlement on public lands, in part +by forcing the subdivision of large private holdings before they can get +water from Government irrigation works. The law requires that no right to +the use of water for land in private ownership shall be sold for a tract +exceeding 160 acres to any one land owner. This provision has excited +active and powerful hostility, but the success of the law itself depends on +the wise and firm enforcement of it. We cannot afford to substitute tenants +for freeholders on the public domain. + +The greater part of the remaining public lands can not be irrigated. They +are at present and will probably always be of greater value for grazing +than for any other purpose. This fact has led to the grazing homestead of +640 acres in Nebraska and to the proposed extension of it to other States. +It is argued that a family can not be supported on 160 acres of arid +grazing land. This is obviously true, but neither can a family be supported +on 640 acres of much of the land to which it is proposed to apply the +grazing homestead. To establish universally any such arbitrary limit would +be unwise at the present time. It would probably result on the one hand in +enlarging the holdings of some of the great land owners, and on the other +in needless suffering and failure on the part of a very considerable +proportion of the bona fide settlers who give faith to the implied +assurance of the Government that such an area is sufficient. The best use +of the public grazing lands requires the careful examination and +classification of these lands in order to give each settler land enough to +support his family and no more. While this work is being done, and until +the lands are settled, the Government should take control of the open +range, under reasonable regulations suited to local needs, following the +general policy already in successful operation on the forest reserves. It +is probable that the present grazing value of the open public range is +scarcely more than half what it once was or what it might easily be again +under careful regulation. + +The forest policy of the Administration appears to enjoy the unbroken +support of the people. The great users of timber are themselves forwarding +the movement for forest preservation. All organized opposition to the +forest preserves in the West has disappeared. Since the consolidation of +all Government forest work in the National Forest Service there has been a +rapid and notable gain in the usefulness of the forest reserves to the +people and in public appreciation of their value. The National parks within +or adjacent to forest reserves should be transferred to the charge of the +Forest Service also. + +The National Government already does something in connection with the +construction and maintenance of the great system of levees along the lower +course of the Mississippi; in my judgment it should do much more. + +To the spread of our trade in peace and the defense of our flag in war a +great and prosperous merchant marine is indispensable. We should have ships +of our own and seamen of our own to convey our goods to neutral markets, +and in case of need to reinforce our battle line. It cannot but be a source +of regret and uneasiness to us that the lines of communication with our +sister republics of South America should be chiefly under foreign control. +It is not a good thing that American merchants and manufacturers should +have to send their goods and letters to South America via Europe if they +wish security and dispatch. Even on the Pacific, where our ships have held +their own better than on the Atlantic, our merchant flag is now threatened +through the liberal aid bestowed by other Governments on their own steam +lines. I ask your earnest consideration of the report with which the +Merchant Marine Commission has followed its long and careful inquiry. + +I again heartily commend to your favorable consideration the tercentennial +celebration at Jamestown, Va. Appreciating the desirability of this +commemoration, the Congress passed an act, March 3, 1905, authorizing in +the year 1907, on and near the waters of Hampton Roads, in the State of +Virginia, an international naval, marine, and military celebration in honor +of this event. By the authority vested in me by this act, I have made +proclamation of said celebration, and have issued, in conformity with its +instructions, invitations to all the nations of the earth to participate, +by sending their naval vessels and such military organizations as may be +practicable. This celebration would fail of its full purpose unless it were +enduring in its results and commensurate with the importance of the event +to be celebrated, the event from which our Nation dates its birth. I +earnestly hope that this celebration, already indorsed by the Congress of +the United States, and by the Legislatures of sixteen States since the +action of the Congress, will receive such additional aid at your hands as +will make it worthy of the great event it is intended to celebrate, and +thereby enable the Government of the United States to make provision for +the exhibition of its own resources, and likewise enable our people who +have undertaken the work of such a celebration to provide suitable and +proper entertainment and instruction in the historic events of our country +for all who may visit the exposition and to whom we have tendered our +hospitality. + +It is a matter of unmixed satisfaction once more to call attention to the +excellent work of the Pension Bureau; for the veterans of the civil war +have a greater claim upon us than any other class of our citizens. To them, +first of all among our people, honor is due. + +Seven years ago my lamented predecessor, President McKinley, stated that +the time had come for the Nation to care for the graves of the Confederate +dead. I recommend that the Congress take action toward this end. The first +need is to take charge of the graves of the Confederate dead who died in +Northern prisons. + +The question of immigration is of vital interest to this country. In the +year ending June 30, 1905, there came to the United States 1,026,000 alien +immigrants. In other words, in the single year that has just elapsed there +came to this country a greater number of people than came here during the +one hundred and sixty-nine years of our Colonial life which intervened +between the first landing at Jamestown and the Declaration of Independence. +It is clearly shown in the report of the Commissioner General of +Immigration that while much of this enormous immigration is undoubtedly +healthy and natural, a considerable proportion is undesirable from one +reason or another; moreover, a considerable proportion of it, probably a +very large proportion, including most of the undesirable class, does not +come here of its own initiative, but because of the activity of the agents +of the great transportation companies. These agents are distributed +throughout Europe, and by the offer of all kinds of inducements they +wheedle and cajole many immigrants, often against their best interest, to +come here. The most serious obstacle we have to encounter in the effort to +secure a proper regulation of the immigration to these shores arises from +the determined opposition of the foreign steamship lines who have no +interest whatever in the matter save to increase the returns on their +capital by carrying masses of immigrants hither in the steerage quarters of +their ships. + +As I said in my last message to the Congress, we cannot have too much +immigration of the right sort and we should have none whatever of the wrong +sort. Of course, it is desirable that even the right kind of immigration +should be properly distributed in this country. We need more of such +immigration for the South; and special effort should be made to secure it. +Perhaps it would be possible to limit the number of immigrants allowed to +come in any one year to New York and other Northern cities, while leaving +unlimited the number allowed to come to the South; always provided, +however, that a stricter effort is made to see that only immigrants of the +right kind come to our country anywhere. In actual practice it has proved +so difficult to enforce the migration laws where long stretches of frontier +marked by an imaginary line alone intervene between us and our neighbors +that I recommend that no immigrants be allowed to come in from Canada and +Mexico save natives of the two countries themselves. As much as possible +should be done to distribute the immigrants upon the land and keep them +away from the contested tenement-house districts of the great cities. But +distribution is a palliative, not a cure. The prime need is to keep out all +immigrants who will not make good American citizens. The laws now existing +for the exclusion of undesirable immigrants should be strengthened. +Adequate means should be adopted, enforced by sufficient penalties, to +compel steamship companies engaged in the passenger business to observe in +good faith the law which forbids them to encourage or solicit immigration +to the United States. Moreover, there should be a sharp limitation imposed +upon all vessels coming to our ports as to the number of immigrants in +ratio to the tonnage which each vessel can carry. This ratio should be high +enough to insure the coming hither of as good a class of aliens as +possible. Provision should be made for the surer punishment of those who +induce aliens to come to this country under promise or assurance of +employment. It should be made possible to inflict a sufficiently heavy +penalty on any employer violating this law to deter him from taking the +risk. It seems to me wise that there should be an international conference +held to deal with this question of immigration, which has more than a +merely National significance; such a conference could, among other things, +enter at length into the method for securing a thorough inspection of +would-be immigrants at the ports from which they desire to embark before +permitting them to embark. + +In dealing with this question it is unwise to depart from the old American +tradition and to discriminate for or against any man who desires to come +here and become a citizen, save on the ground of that man's fitness for +citizenship. It is our right and duty to consider his moral and social +quality. His standard of living should be such that he will not, by +pressure of competition, lower the standard of living of our own +wage-workers; for it must ever be a prime object of our legislation to keep +high their standard of living. If the man who seeks to come here is from +the moral and social standpoint of such a character as to bid fair to add +value to the community he should be heartily welcomed. We cannot afford to +pay heed to whether he is of one creed or another, of one nation, or +another. We cannot afford to consider whether he is Catholic or Protestant, +Jew or Gentile; whether he is Englishman or Irishman, Frenchman or German, +Japanese, Italian, Scandinavian, Slav, or Magyar. What we should desire to +find out is the individual quality of the individual man. In my judgment, +with this end in view, we shall have to prepare through our own agents a +far more rigid inspection in the countries from which the immigrants come. +It will be a great deal better to have fewer immigrants, but all of the +right kind, than a great number of immigrants, many of whom are necessarily +of the wrong kind. As far as possible we wish to limit the immigration to +this country to persons who propose to become citizens of this country, and +we can well afford to insist upon adequate scrutiny of the character of +those who are thus proposed for future citizenship. There should be an +increase in the stringency of the laws to keep out insane, idiotic, +epileptic, and pauper immigrants. But this is by no means enough. Not +merely the Anarchist, but every man of Anarchistic tendencies, all violent +and disorderly people, all people of bad character, the incompetent, the +lazy, the vicious, the physically unfit, defective, or degenerate should be +kept out. The stocks out of which American citizenship is to be built +should be strong and healthy, sound in body, mind, and character. If it be +objected that the Government agents would not always select well, the +answer is that they would certaintly select better than do the agents and +brokers of foreign steamship companies, the people who now do whatever +selection is done. + +The questions arising in connection with Chinese immigration stand by +themselves. The conditions in China are such that the entire Chinese coolie +class, that is, the class of Chinese laborers, skilled and unskilled, +legitimately come under the head of undesirable immigrants to this country, +because of their numbers, the low wages for which they work, and their low +standard of living. Not only is it to the interest of this country to keep +them out, but the Chinese authorities do not desire that they should be +admitted. At present their entrance is prohibited by laws amply adequate to +accomplish this purpose. These laws have been, are being, and will be, +thoroughly enforced. The violations of them are so few in number as to be +infinitesimal and can be entirely disregarded. This is no serious proposal +to alter the immigration law as regards the Chinese laborer, skilled or +unskilled, and there is no excuse for any man feeling or affecting to feel +the slightest alarm on the subject. + +But in the effort to carry out the policy of excluding Chinese laborers, +Chinese coolies, grave injustice and wrong have been done by this Nation to +the people of China, and therefore ultimately to this Nation itself. +Chinese students, business and professional men of all kinds--not only +merchants, but bankers, doctors, manufacturers, professors, travelers, and +the like--should be encouraged to come here, and treated on precisely the +same footing that we treat students, business men, travelers, and the like +of other nations. Our laws and treaties should be framed, not so as to put +these people in the excepted classes, but to state that we will admit all +Chinese, except Chinese of the coolie class, Chinese skilled or unskilled +laborers. There would not be the least danger that any such provision would +result in any relaxation of the law about laborers. These will, under all +conditions, be kept out absolutely. But it will be more easy to see that +both justice and courtesy are shown, as they ought to be shown, to other +Chinese, if the law or treaty is framed as above suggested. Examinations +should be completed at the port of departure from China. For this purpose +there should be provided a more adequate Consular Service in China than we +now have. The appropriations both for the offices of the Consuls and for +the office forces in the consulates should be increased. + +As a people we have talked much of the open door in China, and we expect, +and quite rightly intend to insist upon, justice being shown us by the +Chinese. But we cannot expect to receive equity unless we do equity. We +cannot ask the Chinese to do to us what we are unwilling to do to them. +They would have a perfect right to exclude our laboring men if our laboring +men threatened to come into their country in such numbers as to jeopardize +the well-being of the Chinese population; and as, mutatis mutandis, these +were the conditions with which Chinese immigration actually brought this +people face to face, we had and have a perfect right, which the Chinese +Government in no way contests, to act as we have acted in the matter of +restricting coolie immigration. That this right exists for each country was +explicitly acknowledged in the last treaty between the two countries. But +we must treat the Chinese student, traveler, and business man in a spirit +of the broadest justice and courtesy if we expect similar treatment to be +accorded to our own people of similar rank who go to China. Much trouble +has come during the past Summer from the organized boycott against American +goods which has been started in China. The main factor in producing this +boycott has been the resentment felt by the students and business people of +China, by all the Chinese leaders, against the harshness of our law toward +educated Chinamen of the professional and business classes. + +This Government has the friendliest feeling for China and desires China's +well-being. We cordially sympathize with the announced purpose of Japan to +stand for the integrity of China. Such an attitude tends to the peace of +the world. + +The civil service law has been on the statute books for twenty-two years. +Every President and a vast majority of heads of departments who have been +in office during that period have favored a gradual extension of the merit +system. The more thoroughly its principles have been understood, the +greater has been the favor with which the law has been regarded by +administration officers. Any attempt to carry on the great executive +departments of the Government without this law would inevitably result in +chaos. The Civil Service Commissioners are doing excellent work, and their +compensation is inadequate considering the service they perform. + +The statement that the examinations are not practical in character is based +on a misapprehension of the practice of the Commission. The departments are +invariably consulted as to the requirements desired and as to the character +of questions that shall be asked. General invitations are frequently sent +out to all heads of departments asking whether any changes in the scope or +character of examinations are required. In other words, the departments +prescribe the requirements and qualifications desired, and the Civil +Service Commission co-operates with them in securing persons with these +qualifications and insuring open and impartial competition. In a large +number of examinations (as, for example, those for trades positions), there +are no educational requirements whatever, and a person who can neither read +nor write may pass with a high average. Vacancies in the service are filled +with reasonable expedition, and the machinery of the Commission, which +reaches every part of the country, is the best agency that has yet been +devised for finding people with the most suitable qualifications for the +various offices to be filled. Written competitive examinations do not make +an ideal method for filling positions, but they do represent an +immeasurable advance upon the "spoils" method, under which outside +politicians really make the appointments nominally made by the executive +officers, the appointees being chosen by the politicians in question, in +the great majority of cases, for reasons totally unconnected with the needs +of the service or of the public. + +Statistics gathered by the Census Bureau show that the tenure of office in +the Government service does not differ materially from that enjoyed by +employes of large business corporations. Heads of executive departments and +members of the Commission have called my attention to the fact that the +rule requiring a filing of charges and three days' notice before an employe +could be separated from the service for inefficiency has served no good +purpose whatever, because that is not a matter upon which a hearing of the +employe found to be inefficient can be of any value, and in practice the +rule providing for such notice and hearing has merely resulted in keeping +in a certain number of incompetents, because of the reluctance of the heads +of departments and bureau chiefs to go through the required procedure. +Experience has shown that this rule is wholly ineffective to save any man, +if a superior for improper reasons wishes to remove him, and is mischievous +because it sometimes serves to keep in the service incompetent men not +guilty of specific wrongdoing. Having these facts in view the rule has been +amended by providing that where the inefficiency or incapacity comes within +the personal knowledge of the head of a department the removal may be made +without notice, the reasons therefor being filed and made a record of the +department. The absolute right of the removal rests where it always has +rested, with the head of a department; any limitation of this absolute +right results in grave injury to the public service. The change is merely +one of procedure; it was much needed, and it is producing good results. + +The civil service law is being energetically and impartially enforced, and +in the large majority of cases complaints of violations of either the law +or rules are discovered to be unfounded. In this respect this law compares +very favorably with any other Federal statute. The question of politics in +the appointment and retention of the men engaged in merely ministerial work +has been practically eliminated in almost the entire field of Government +employment covered by the civil service law. The action of the Congress in +providing the commission with its own force instead of requiring it to rely +on detailed clerks has been justified by the increased work done at a +smaller cost to the Government. I urge upon the Congress a careful +consideration of the recommendations contained in the annual report of the +commission. + +Our copyright laws urgently need revision. They are imperfect in +definition, confused and inconsistent in expression; they omit provision +for many articles which, under modern reproductive processes are entitled +to protection; they impose hardships upon the copyright proprietor which +are not essential to the fair protection of the public; they are difficult +for the courts to interpret and impossible for the Copyright Office to +administer with satisfaction to the public. Attempts to improve them by +amendment have been frequent, no less than twelve acts for the purpose +having been passed since the Revised Statutes. To perfect them by further +amendment seems impracticable. A complete revision of them is essential. +Such a revision, to meet modern conditions, has been found necessary in +Germany, Austria, Sweden, and other foreign countries, and bills embodying +it are pending in England and the Australian colonies. It has been urged +here, and proposals for a commission to undertake it have, from time to +time, been pressed upon the Congress. The inconveniences of the present +conditions being so great, an attempt to frame appropriate legislation has +been made by the Copyright Office, which has called conferences of the +various interests especially and practically concerned with the operation +of the copyright laws. It has secured from them suggestions as to the +changes necessary; it has added from its own experience and investigations, +and it has drafted a bill which embodies such of these changes and +additions as, after full discussion and expert criticism, appeared to be +sound and safe. In form this bill would replace the existing insufficient +and inconsistent laws by one general copyright statute. It will be +presented to the Congress at the coming session. It deserves prompt +consideration. + +I recommend that a law be enacted to regulate inter-State commerce in +misbranded and adulterated foods, drinks, and drugs. Such law would protect +legitimate manufacture and commerce, and would tend to secure the health +and welfare of the consuming public. Traffic in food-stuffs which have been +debased or adulterated so as to injure health or to deceive purchasers +should be forbidden. + +The law forbidding the emission of dense black or gray smoke in the city of +Washington has been sustained by the courts. Something has been +accomplished under it, but much remains to be done if we would preserve the +capital city from defacement by the smoke nuisance. Repeated prosecutions +under the law have not had the desired effect. I recommend that it be made +more stringent by increasing both the minimum and maximum fine; by +providing for imprisonment in cases of repeated violation, and by affording +the remedy of injunction against the continuation of the operation of +plants which are persistent offenders. I recommend, also, an increase in +the number of inspectors, whose duty it shall be to detect violations of +the act. + +I call your attention to the generous act of the State of California in +conferring upon the United States Government the ownership of the Yosemite +Valley and the Mariposa Big Tree Grove. There should be no delay in +accepting the gift, and appropriations should be made for the including +thereof in the Yosemite National Park, and for the care and policing of the +park. California has acted most wisely, as well as with great magnanimity, +in the matter. There are certain mighty natural features of our land which +should be preserved in perpetuity for our children and our children's +children. In my judgment, the Grand Canyon of the Colorado should be made +into a National park. It is greatly to be wished that the State of New York +should copy as regards Niagara what the State of California has done as +regards the Yosemite. Nothing should be allowed to interfere with the +preservation of Niagara Falls in all their beauty and majesty. If the State +cannot see to this, then it is earnestly to be wished that she should be +willing to turn it over to the National Government, which should in such +case (if possible, in conjunction with the Canadian Government) assume the +burden and responsibility of preserving unharmed Niagara Falls; just as it +should gladly assume a similar burden and responsibility for the Yosemite +National Park, and as it has already assumed them for the Yellowstone +National Park. Adequate provision should be made by the Congress for the +proper care and supervision of all these National parks. The boundaries of +the Yellowstone National Park should be extended to the south and east, to +take in such portions of the abutting forest reservations as will enable +the Government to protect the elk on their Winter range. + +The most characteristic animal of the Western plains was the great, +shaggy-maned wild ox, the bison, commonly known as buffalo. Small fragments +of herds exist in a domesticated state here and there, a few of them in the +Yellowstone Park. Such a herd as that on the Flat-head Reservation should +not be allowed to go out of existence. Either on some reservation or on +some forest reserve like the Wichita reserve and game refuge provision +should be made for the preservation of such a herd. I believe that the +scheme would be of economic advantage, for the robe of the buffalo is of +high market value, and the same is true of the robe of the crossbred +animals. + +I call your especial attention to the desirability of giving to the members +of the Life Saving Service pensions such as are given to firemen and +policemen in all our great cities. The men in the Life Saving Service +continually and in the most matter of fact way do deeds such as make +Americans proud of their country. They have no political influence, and +they live in such remote places that the really heroic services they +continually render receive the scantiest recognition from the public. It is +unjust for a great nation like this to permit these men to become totally +disabled or to meet death in the performance of their hazardous duty and +yet to give them no sort of reward. If one of them serves thirty years of +his life in such a position he should surely be entitled to retire on half +pay, as a fireman or policeman does, and if he becomes totally +incapacitated through accident or sickness, or loses his health in the +discharge of his duty, he or his family should receive a pension just as +any soldier should. I call your attention with especial earnestness to this +matter because it appeals not only to our judgment but to our sympathy; for +the people on whose behalf I ask it are comparatively few in number, render +incalculable service of a particularly dangerous kind, and have no one to +speak for them. + +During the year just past, the phase of the Indian question which has been +most sharply brought to public attention is the larger legal significance +of the Indian's induction into citizenship. This has made itself manifest +not only in a great access of litigation in which the citizen Indian +figures as a party defendant and in a more widespread disposition to levy +local taxation upon his personalty, but in a decision of the United States +Supreme Court which struck away the main prop on which has hitherto rested +the Government's benevolent effort to protect him against the evils of +intemperance. The court holds, in effect, that when an Indian becomes, by +virtue of an allotment of land to him, a citizen of the State in which his +land is situated, he passes from under Federal control in such matters as +this, and the acts of the Congress prohibiting the sale or gift to him of +intoxicants become substantially inoperative. It is gratifying to note that +the States and municipalities of the West which have most at stake in the +welfare of the Indians are taking up this subject and are trying to supply, +in a measure at least, the abdication of its trusteeship forced upon the +Federal Government. Nevertheless, I would urgently press upon the attention +of the Congress the question whether some amendment of the internal revenue +laws might not be of aid in prosecuting those malefactors, known in the +Indian country as "bootleggers," who are engaged at once in defrauding the +United States Treasury of taxes and, what is far more important, in +debauching the Indians by carrying liquors illicitly into territory still +completely under Federal jurisdiction. + +Among the crying present needs of the Indians are more day schools situated +in the midst of their settlements, more effective instruction in the +industries pursued on their own farms, and a more liberal tension of the +field-matron service, which means the education of the Indian women in the +arts of home making. Until the mothers are well started in the right +direction we cannot reasonably expect much from the children who are soon +to form an integral part of our American citizenship. Moreover the excuse +continually advanced by male adult Indians for refusing offers of +remunerative employment at a distance from their homes is that they dare +not leave their families too long out of their sight. One effectual remedy +for this state of things is to employ the minds and strengthen the moral +fibre of the Indian women--the end to which the work of the field matron is +especially directed. I trust that the Congress will make its appropriations +for Indian day schools and field matrons as generous as may consist with +the other pressing demands upon its providence. + +During the last year the Philippine Islands have been slowly recovering +from the series of disasters which, since American occupation, have greatly +reduced the amount of agricultural products below what was produced in +Spanish times. The war, the rinderpest, the locusts, the drought, and the +cholera have been united as causes to prevent a return of the prosperity +much needed in the islands. The most serious is the destruction by the +rinderpest of more than 75 per cent of the draught cattle, because it will +take several years of breeding to restore the necessary number of these +indispensable aids to agriculture. The commission attempted to supply by +purchase from adjoining countries the needed cattle, but the experiments +made were unsuccessful. Most of the cattle imported were unable to +withstand the change of climate and the rigors of the voyage and died from +other diseases than rinderpest. + +The income of the Philippine Government has necessarily been reduced by +reason of the business and agricultural depression in the islands, and the +Government has been obliged to exercise great economy to cut down its +expenses, to reduce salaries, and in every way to avoid a deficit. It has +adopted an internal revenue law, imposing taxes on cigars, cigarettes, and +distilled liquors, and abolishing the old Spanish industrial taxes. The law +has not operated as smoothly as was hoped, and although its principle is +undoubtedly correct, it may need amendments for the purpose of reconciling +the people to its provisions. The income derived from it has partly made up +for the reduction in customs revenue. + +There has been a marked increase in the number of Filipinos employed in the +civil service, and a corresponding decrease in the number of Americans. The +Government in every one of its departments has been rendered more efficient +by elimination of undesirable material and the promotion of deserving +public servants. + +Improvements of harbors, roads, and bridges continue, although the cutting +down of the revenue forbids the expenditure of any great amount from +current income for these purposes. Steps are being taken, by advertisement +for competitive bids, to secure the construction and maintenance of 1,000 +miles of railway by private corporations under the recent enabling +legislation of the Congress. The transfer of the friar lands, in accordance +with the contract made some two years ago, has been completely effected, +and the purchase money paid. Provision has just been made by statute for +the speedy settlement in a special proceeding in the Supreme Court of +controversies over the possession and title of church buildings and +rectories arising between the Roman Catholic Church and schismatics +claiming under ancient municipalities. Negotiations and hearings for the +settlement of the amount due to the Roman Catholic Church for rent and +occupation of churches and rectories by the army of the United States are +in progress, and it is hoped a satisfactory conclusion may be submitted to +the Congress before the end of the session. + +Tranquillity has existed during the past year throughout the Archipelago, +except in the Province of Cavite, the Province of Batangas and the Province +of Samar, and in the Island of Jolo among the Moros. The Jolo disturbance +was put an end to by several sharp and short engagements, and now peace +prevails in the Moro Province, Cavite, the mother of ladrones in the +Spanish times, is so permeated with the traditional sympathy of the people +for ladronism as to make it difficult to stamp out the disease. Batangas +was only disturbed by reason of the fugitive ladrones from Cavite, Samar +was thrown into disturbance by the uneducated and partly savage peoples +living in the mountains, who, having been given by the municipal code more +power than they were able to exercise discreetly, elected municipal +officers who abused their trusts, compelled the people raising hemp to sell +it at a much less price than it was worth, and by their abuses drove their +people into resistance to constituted authority. Cavite and Samar are +instances of reposing too much confidence in the self-governing power of a +people. The disturbances have all now been suppressed, and it is hoped that +with these lessons local governments can be formed which will secure quiet +and peace to the deserving inhabitants. The incident is another proof of +the fact that if there has been any error as regards giving self-government +in the Philippines it has been in the direction of giving it too quickly, +not too slowly. A year from next April the first legislative assembly for +the islands will be held. On the sanity and self-restraint of this body +much will depend so far as the future self-government of the islands is +concerned. + +The most encouraging feature of the whole situation has been the very great +interest taken by the common people in education and. the great increase in +the number of enrolled students in the public schools. The increase was +from 300,000 to half a million pupils. The average attendance is about 70 +per cent. The only limit upon the number of pupils seems to be the capacity +of the government to furnish teachers and school houses. + +The agricultural conditions of the islands enforce more strongly than ever +the argument in favor of reducing the tariff on the products of the +Philippine Islands entering the United States. I earnestly recommend that +the tariff now imposed by the Dingley bill upon the products of the +Philippine Islands be entirely removed, except the tariff on sugar and +tobacco, and that that tariff be reduced to 25 per cent of the present +rates under the Dingley act; that after July 1, 1909, the tariff upon +tobacco and sugar produced in the Philippine Islands be entirely removed, +and that free trade between the islands and the United States in the +products of each country then be provided for by law. + +A statute in force, enacted April 15, 1904, suspends the operation of the +coastwise laws of the United States upon the trade between the Philippine +Islands and the United States until July 1, 1906. I earnestly recommend +that this suspension be postponed until July 1, 1909. I think it of +doubtful utility to apply the coastwise laws to the trade between the +United States and the Philippines under any circumstances, because I am +convinced that it will do no good whatever to American bottoms, and will +only interfere and be an obstacle to the trade between the Philippines and +the United States, but if the coastwise law must be thus applied, certainly +it ought not to have effect until free trade is enjoyed between the people +of the United States and the people of the Philippine Islands in their +respective products. + +I do not anticipate that free trade between the islands and the United +States will produce a revolution in the sugar and tobacco production of the +Philippine Islands. So primitive are the methods of agriculture in the +Philippine Islands, so slow is capital in going to the islands, so many +difficulties surround a large agricultural enterprise in the islands, that +it will be many, many years before the products of those islands will have +any effect whatever upon the markets of the United States. The problem of +labor is also a formidable one with the sugar and tobacco producers in the +islands. The best friends of the Filipino people and the people themselves +are utterly opposed to the admission of Chinese coolie labor. Hence the +only solution is the training of Filipino labor, and this will take a long +time. The enactment of a law by the Congress of the United States making +provision for free trade between the islands and the United States, +however, will be of great importance from a political and sentimental +standpoint; and, while its actual benefit has doubtless been exaggerated by +the people of the islands, they will accept this measure of justice as an +indication that the people of the United States are anxious to aid the +people of the Philippine Islands in every way, and especially in the +agricultural development of their archipelago. It will aid the Filipinos +without injuring interests in America. + +In my judgment immediate steps should be taken for the fortification of +Hawaii. This is the most important point in the Pacific to fortify in order +to conserve the interests of this country. It would be hard to overstate +the importance of this need. Hawaii is too heavily taxed. Laws should be +enacted setting aside for a period of, say, twenty years 75 per cent of the +internal revenue and customs receipts from Hawaii as a special fund to be +expended in the islands for educational and public buildings, and for +harbor improvements and military and naval defenses. It cannot be too often +repeated that our aim must be to develop the territory of Hawaii on +traditional American lines. That territory has serious commercial and +industrial problems to reckon with; but no measure of relief can be +considered which looks to legislation admitting Chinese and restricting +them by statute to field labor and domestic service. The status of +servility can never again be tolerated on American soil. We cannot concede +that the proper solution of its problems is special legislation admitting +to Hawaii a class of laborers denied admission to the other States and +Territories. There are obstacles, and great obstacles, in the way of +building up a representative American community in the Hawaiian Islands; +but it is not in the American character to give up in the face of +difficulty. Many an American Commonwealth has been built up against odds +equal to those that now confront Hawaii. + +No merely half-hearted effort to meet its problems as other American +communities have met theirs can be accepted as final. Hawaii shall never +become a territory in which a governing class of rich planters exists by +means of coolie labor. Even if the rate of growth of the Territory is +thereby rendered slower, the growth must only take place by the admission +of immigrants fit in the end to assume the duties and burdens of full +American citizenship. Our aim must be to develop the Territory on the same +basis of stable citizenship as exists on this continent. + +I earnestly advocate the adoption of legislation which will explicitly +confer American citizenship on all citizens of Porto Rico. There is, in my +judgment, no excuse for failure to do this. The harbor of San Juan should +be dredged and improved. The expenses of the Federal Court of Porto Rico +should be met from the Federal Treasury and not from the Porto Rican +treasury. The elections in Porto Rico should take place every four years, +and the Legislature should meet in session every two years. The present +form of government in Porto Rico, which provides for the appointment by the +President of the members of the Executive Council or upper house of the +Legislature, has proved satisfactory and has inspired confidence in +property owners and investors. I do not deem it advisable at the present +time to change this form in any material feature. The problems and needs of +the island are industrial and commercial rather than political. + +I wish to call the attention of the Congress to one question which affects +our insular possessions generally; namely, the need of an increased +liberality in the treatment of the whole franchise question in these +islands. In the proper desire to prevent the islands being exploited by +speculators and to have them develop in the interests of their own people +an error has been made in refusing to grant sufficiently liberal terms to +induce the investment of American capital in the Philippines and in Porto +Rico. Elsewhere in this message I have spoken strongly against the jealousy +of mere wealth, and especially of corporate wealth as such. But it is +particularly regrettable to allow any such jealousy to be developed when we +are dealing either with our insular or with foreign affairs. The big +corporation has achieved its present position in the business world simply +because it is the most effective instrument in business competition. In +foreign affairs we cannot afford to put our people at a disadvantage with +their competitors by in any way discriminating against the efficiency of +our business organizations. In the same way we cannot afford to allow our +insular possessions to lag behind in industrial development from any +twisted jealousy of business success. It is, of course, a mere truism to +say that the business interests of the islands will only be developed if it +becomes the financial interest of somebody to develop them. Yet this +development is one of the things most earnestly to be wished for in the +interest of the islands themselves. We have been paying all possible heed +to the political and educational interests of the islands, but, important +though these objects are, it is not less important that we should favor +their industrial development. The Government can in certain ways help this +directly, as by building good roads; but the fundamental and vital help +must be given through the development of the industries of the islands, and +a most efficient means to this end is to encourage big American +corporations to start industries in them, and this means to make it +advantageous for them to do so. To limit the ownership of mining claims, as +has been done in the Philippines, is absurd. In both the Philippines and +Porto Rico the limit of holdings of land should be largely raised. + +I earnestly ask that Alaska be given an elective delegate. Some person +should be chosen who can speak with authority of the needs of the +Territory. The Government should aid in the construction of a railroad from +the Gulf of Alaska to the Yukon River, in American territory. In my last +two messages I advocated certain additional action on behalf of Alaska. I +shall not now repeat those recommendations, but I shall lay all my stress +upon the one recommendation of giving to Alaska some one authorized to +speak for it. I should prefer that the delegate was made elective, but if +this is not deemed wise, then make him appointive. At any rate, give Alaska +some person whose business it shall be to speak with authority on her +behalf to the Congress. The natural resources of Alaska are great. Some of +the chief needs of the peculiarly energetic, self-reliant, and typically +American white population of Alaska were set forth in my last message. I +also earnestly ask your attention to the needs of the Alaskan Indians. All +Indians who are competent should receive the full rights of American +citizenship. It is, for instance, a gross and indefensible wrong to deny to +such hard-working, decent-living Indians as the Metlakahtlas the right to +obtain licenses as captains, pilots, and engineers; the right to enter +mining claims, and to profit by the homestead law. These particular Indians +are civilized and are competent and entitled to be put on the same basis +with the white men round about them. + +I recommend that Indian Territory and Oklahoma be admitted as one State and +that New Mexico and Arizona be admitted as one State. There is no +obligation upon us to treat territorial subdivisions, which are matters of +convenience only, as binding us on the question of admission to Statehood. +Nothing has taken up more time in the Congress during the past few years +than the question as to the Statehood to be granted to the four Territories +above mentioned, and after careful consideration of all that has been +developed in the discussions of the question, I recommend that they be +immediately admitted as two States. There is no justification for further +delay; and the advisability of making the four Territories into two States +has been clearly established. + +In some of the Territories the legislative assemblies issue licenses for +gambling. The Congress should by law forbid this practice, the harmful +results of which are obvious at a glance. + +The treaty between the United States and the Republic of Panama, under +which the construction of the Panama Canal was made possible, went into +effect with its ratification by the United States Senate on February 23, +1904. The canal properties of the French Canal Company were transferred to +the United States on April 23, 1904, on payment of $40,000,000 to that +company. On April 1, 1905, the Commission was reorganized, and it now +consists of Theodore P. Shonts, Chairman; Charles E. Magoon, Benjamin M. +Harrod, Rear Admiral Mordecai T. Endicott, Brig. Gen. Peter C. Hains, and +Col. Oswald H. Ernst. John F. Stevens was appointed Chief Engineer on July +1 last. Active work in canal construction, mainly preparatory, has been in +progress for less than a year and a half. During that period two points +about the canal have ceased to be open to debate: First, the question of +route; the canal will be built on the Isthmus of Panama. Second, the +question of feasibility; there are no physical obstacles on this route that +American engineering skill will not be able to overcome without serious +difficulty, or that will prevent the completion of the canal within a +reasonable time and at a reasonable cost. This is virtually the unanimous +testimony of the engineers who have investigated the matter for the +Government. + +The point which remains unsettled is the question of type, whether the +canal shall be one of several locks above sea level, or at sea level with a +single tide lock. On this point I hope to lay before the Congress at an +early day the findings of the Advisory Board of American and European +Engineers, that at my invitation have been considering the subject, +together with the report of the Commission thereon, and such comments +thereon or recommendations in reference thereto as may seem necessary. + +The American people is pledged to the speediest possible construction of a +canal adequate to meet the demands which the commerce of the world will +make upon it, and I appeal most earnestly to the Congress to aid in the +fulfillment of the pledge. Gratifying progress has been made during the +past year, and especially during the past four months. The greater part of +the necessary preliminary work has been done. Actual work of excavation +could be begun only on a limited scale till the Canal Zone was made a +healthful place to live in and to work in. The Isthmus had to be sanitated +first. This task has been so thoroughly accomplished that yellow fever has +been virtually extirpated from the Isthmus and general health conditions +vastly improved. The same methods which converted the island of Cuba from a +pest hole, which menaced the health of the world, into a healthful place of +abode, have been applied on the Isthmus with satisfactory results. There is +no reason to doubt that when the plans for water supply, paving, and +sewerage of Panama and Colon and the large labor camps have been fully +carried out, the Isthmus will be, for the tropics, an unusually healthy +place of abode. The work is so far advanced now that the health of all +those employed in canal work is as well guarded as it is on similar work in +this country and elsewhere. + +In addition to sanitating the Isthmus, satisfactory quarters are being +provided for employes and an adequate system of supplying them with +wholesome food at reasonable prices has been created. Hospitals have been +established and equipped that are without their superiors of their kind +anywhere. The country has thus been made fit to work in, and provision has +been made for the welfare and comfort of those who are to do the work. +During the past year a large portion of the plant with which the work is to +be done has been ordered. It is confidently believed that by the middle of +the approaching year a sufficient proportion of this plant will have been +installed to enable us to resume the work of excavation on a large scale. + +What is needed now and without delay is an appropriation by the Congress to +meet the current and accruing expenses of the commission. The first +appropriation of $10,000,000, out of the $135,000,000 authorized by the +Spooner act, was made three years ago. It is nearly exhausted. There is +barely enough of it remaining to carry the commission to the end of the +year. Unless the Congress shall appropriate before that time all work must +cease. To arrest progress for any length of time now, when matters are +advancing so satisfactorily, would be deplorable. There will be no money +with which to meet pay roll obligations and none with which to meet bills +coming due for materials and supplies; and there will be demoralization of +the forces, here and on the Isthmus, now working so harmoniously and +effectively, if there is delay in granting an emergency appropriation. +Estimates of the amount necessary will be found in the accompanying reports +of the Secretary of War and the commission. + +I recommend more adequate provision than has been made heretofore for the +work of the Department of State. Within a few years there has been a very +great increase in the amount and importance of the work to be done by that +department, both in Washington and abroad. This has been caused by the +great increase of our foreign trade, the increase of wealth among our +people, which enables them to travel more generally than heretofore, the +increase of American capital which is seeking investment in foreign +countries, and the growth of our power and weight in the councils of the +civilized world. There has been no corresponding increase of facilities for +doing the work afforded to the department having charge of our foreign +relations. + +Neither at home nor abroad is there a sufficient working force to do the +business properly. In many respects the system which was adequate to the +work of twenty-five years or even ten years ago, is inadequate now, and +should be changed. Our Consular force should be classified, and +appointments should be made to the several classes, with authority to the +Executive to assign the members of each class to duty at such posts as the +interests of the service require, instead of the appointments being made as +at present to specified posts. There should be an adequate inspection +service, so that the department may be able to inform itself how the +business of each Consulate is being done, instead of depending upon casual +private information or rumor. The fee system should be entirely abolished, +and a due equivalent made in salary to the officers who now eke out their +subsistence by means of fees. Sufficient provision should be made for a +clerical force in every Consulate composed entirely of Americans, instead +of the insufficient provision now made, which compels the employment of +great numbers of citizens of foreign countries whose services can be +obtained for less money. At a large part of our Consulates the office +quarters and the clerical force are inadequate to the performance of the +onerous duties imposed by the recent provisions of our immigration laws as +well as by our increasing trade. In many parts of the world the lack of +suitable quarters for our embassies, legations, and Consulates detracts +from the respect in which our officers ought to be held, and seriously +impairs their weight and influence. + +Suitable provision should be made for the expense of keeping our diplomatic +officers more fully informed of what is being done from day to day in the +progress of our diplomatic affairs with other countries. The lack of such +information, caused by insufficient appropriations available for cable +tolls and for clerical and messenger service, frequently puts our officers +at a great disadvantage and detracts from their usefulness. The salary list +should be readjusted. It does not now correspond either to the importance +of the service to be rendered and the degrees of ability and experience +required in the different positions, or to the differences in the cost of +living. In many cases the salaries are quite inadequate. + +*** + +State of the Union Address +Theodore Roosevelt +December 3, 1906 + +To the Senate and House of Representatives: + +As a nation we still continue to enjoy a literally unprecedented +prosperity; and it is probable that only reckless speculation and disregard +of legitimate business methods on the part of the business world can +materially mar this prosperity. + +No Congress in our time has done more good work of importance than the +present Congress. There were several matters left unfinished at your last +session, however, which I most earnestly hope you will complete before your +adjournment. + +I again recommend a law prohibiting all corporations from contributing to +the campaign expenses of any party. Such a bill has already past one House +of Congress. Let individuals contribute as they desire; but let us prohibit +in effective fashion all corporations from making contributions for any +political purpose, directly or indirectly. + +Another bill which has just past one House of the Congress and which it is +urgently necessary should be enacted into law is that conferring upon the +Government the right of appeal in criminal cases on questions of law. This +right exists in many of the States; it exists in the District of Columbia +by act of the Congress. It is of course not proposed that in any case a +verdict for the defendant on the merits should be set aside. Recently in +one district where the Government had indicted certain persons for +conspiracy in connection with rebates, the court sustained the defendant's +demurrer; while in another jurisdiction an indictment for conspiracy to +obtain rebates has been sustained by the court, convictions obtained under +it, and two defendants sentenced to imprisonment. The two cases referred to +may not be in real conflict with each other, but it is unfortunate that +there should even be an apparent conflict. At present there is no way by +which the Government can cause such a conflict, when it occurs, to be +solved by an appeal to a higher court; and the wheels of justice are +blocked without any real decision of the question. I can not too strongly +urge the passage of the bill in question. A failure to pass it will result +in seriously hampering the Government in its effort to obtain justice, +especially against wealthy individuals or corporations who do wrong; and +may also prevent the Government from obtaining justice for wage-workers who +are not themselves able effectively to contest a case where the judgment of +an inferior court has been against them. I have specifically in view a +recent decision by a district judge leaving railway employees without +remedy for violation of a certain so-called labor statute. It seems an +absurdity to permit a single district judge, against what may be the +judgment of the immense majority of his colleagues on the bench, to declare +a law solemnly enacted by the Congress to be "unconstitutional," and then +to deny to the Government the right to have the Supreme Court definitely +decide the question. + +It is well to recollect that the real efficiency of the law often depends +not upon the passage of acts as to which there is great public excitement, +but upon the passage of acts of this nature as to which there is not much +public excitement, because there is little public understanding of their +importance, while the interested parties are keenly alive to the +desirability of defeating them. The importance of enacting into law the +particular bill in question is further increased by the fact that the +Government has now definitely begun a policy of resorting to the criminal +law in those trust and interstate commerce cases where such a course offers +a reasonable chance of success. At first, as was proper, every effort was +made to enforce these laws by civil proceedings; but it has become +increasingly evident that the action of the Government in finally deciding, +in certain cases, to undertake criminal proceedings was justifiable; and +tho there have been some conspicuous failures in these cases, we have had +many successes, which have undoubtedly had a deterrent effect upon +evil-doers, whether the penalty inflicted was in the shape of fine or +imprisonment--and penalties of both kinds have already been inflicted by +the courts. Of course, where the judge can see his way to inflict the +penalty of imprisonment the deterrent effect of the punishment on other +offenders is increased; but sufficiently heavy fines accomplish much. Judge +Holt, of the New York district court, in a recent decision admirably stated +the need for treating with just severity offenders of this kind. His +opinion runs in part as follows: + +'The Government's evidence to establish the defendant's guilt was clear, +conclusive, and undisputed. The case was a flagrant one. The transactions +which took place under this illegal contract were very large; the amounts +of rebates returned were considerable; and the amount of the rebate itself +was large, amounting to more than one-fifth of the entire tariff charge for +the transportation of merchandise from this city to Detroit. It is not too +much to say, in my opinion, that if this business was carried on for a +considerable time on that basis--that is, if this discrimination in favor +of this particular shipper was made with an 18 instead of a 23 cent rate +and the tariff rate was maintained as against their competitors--the result +might be and not improbably would be that their competitors would be driven +out of business. This crime is one which in its nature is deliberate and +premeditated. I think over a fortnight elapsed between the date of Palmer's +letter requesting the reduced rate and the answer of the railroad company +deciding to grant it, and then for months afterwards this business was +carried on and these claims for rebates submitted month after month and +checks in payment of them drawn month after month. Such a violation of the +law, in my opinion, in its essential nature, is a very much more heinous +act than the ordinary common, vulgar crimes which come before criminal +courts constantly for punishment and which arise from sudden passion or +temptation. This crime in this case was committed by men of education and +of large business experience, whose standing in the community was such that +they might have been expected to set an example of obedience to law upon +the maintenance of which alone in this country the security of their +property depends. It was committed on behalf of a great railroad +corporation, which, like other railroad corporations, has received +gratuitously from the State large and valuable privileges for the public's +convenience and its own, which performs quasi public functions and which is +charged with the highest obligation in the transaction of its business to +treat the citizens of this country alike, and not to carry on its business +with unjust discriminations between different citizens or different classes +of citizens. This crime in its nature is one usually done with secrecy, and +proof of which it is very difficult to obtain. The interstate commerce act +was past in 1887, nearly twenty years ago. Ever since that time complaints +of the granting of rebates by railroads have been common, urgent, and +insistent, and altho the Congress has repeatedly past legislation +endeavoring to put a stop to this evil, the difficulty of obtaining proof +upon which to bring prosecution in these cases is so great that this is the +first case that has ever been brought in this court, and, as I am formed, +this case and one recently brought in Philadelphia are the only cases that +have ever been brought in the eastern part of this country. In fact, but +few cases of this kind have ever been brought in this country, East or +West. Now, under these circumstances, I am forced to the conclusion, in a +case in which the proof is so clear and the facts are so flagrant, it is +the duty of the court to fix a penalty which shall in some degree be +commensurate with the gravity of the offense. As between the two +defendants, in my opinion, the principal penalty should be imposed on the +corporation. The traffic manager in this case, presumably, acted without +any advantage to himself and without any interest in the transaction, +either by the direct authority or in accordance with what he understood to +be the policy or the wishes of his employer. + +"The sentence of this court in this case is, that the defendant Pomeroy, +for each of the six offenses upon which he has been convicted, be fined the +sum of $1,000, making six fines, amounting in all to the sum of $6,000; and +the defendant, The New York Central and Hudson River Railroad Company, for +each of the six crimes of which it has been convicted, be fined the sum of +$18,000, making six fines amounting in the aggregate to the sum of +$108,000, and judgment to that effect will be entered in this case." + +In connection with this matter, I would like to call attention to the very +unsatisfactory state of our criminal law, resulting in large part from the +habit of setting aside the judgments of inferior courts on technicalities +absolutely unconnected with the merits of the case, and where there is no +attempt to show that there has been any failure of substantial justice. It +would be well to enact a law providing something to the effect that: + +No judgment shall be set aside or new trial granted in any cause, civil or +criminal, on the ground of misdirection of the jury or the improper +admission or rejection of evidence, or for error as to any matter of +pleading or procedure unless, in the opinion of the court to which the +application is made, after an examination of the entire cause, it shall +affirmatively appear that the error complained of has resulted in a +miscarriage of justice. + +In my last message I suggested the enactment of a law in connection with +the issuance of injunctions, attention having been sharply drawn to the +matter by the demand that the right of applying injunctions in labor cases +should be wholly abolished. It is at least doubtful whether a law +abolishing altogether the use of injunctions in such cases would stand the +test of the courts; in which case of course the legislation would be +ineffective. Moreover, I believe it would be wrong altogether to prohibit +the use of injunctions. It is criminal to permit sympathy for criminals to +weaken our hands in upholding the law; and if men seek to destroy life or +property by mob violence there should be no impairment of the power of the +courts to deal with them in the most summary and effective way possible. +But so far as possible the abuse of the power should be provided against by +some such law as I advocated last year. + +In this matter of injunctions there is lodged in the hands of the judiciary +a necessary power which is nevertheless subject to the possibility of grave +abuse. It is a power that should be exercised with extreme care and should +be subject to the jealous scrutiny of all men, and condemnation should be +meted out as much to the judge who fails to use it boldly when necessary as +to the judge who uses it wantonly or oppressively. Of course a judge strong +enough to be fit for his office will enjoin any resort to violence or +intimidation, especially by conspiracy, no matter what his opinion may be +of the rights of the original quarrel. There must be no hesitation in +dealing with disorder. But there must likewise be no such abuse of the +injunctive power as is implied in forbidding laboring men to strive for +their own betterment in peaceful and lawful ways; nor must the injunction +be used merely to aid some big corporation in carrying out schemes for its +own aggrandizement. It must be remembered that a preliminary injunction in +a labor case, if granted without adequate proof (even when authority can be +found to support the conclusions of law on which it is founded), may often +settle the dispute between the parties; and therefore if improperly granted +may do irreparable wrong. Yet there are many judges who assume a +matter-of-course granting of a preliminary injunction to be the ordinary +and proper judicial disposition of such cases; and there have undoubtedly +been flagrant wrongs committed by judges in connection with labor disputes +even within the last few years, altho I think much less often than in +former years. Such judges by their unwise action immensely strengthen the +hands of those who are striving entirely to do away with the power of +injunction; and therefore such careless use of the injunctive process tends +to threaten its very existence, for if the American people ever become +convinced that this process is habitually abused, whether in matters +affecting labor or in matters affecting corporations, it will be well-nigh +impossible to prevent its abolition. + +It may be the highest duty of a judge at any given moment to disregard, not +merely the wishes of individuals of great political or financial power, but +the overwhelming tide of public sentiment; and the judge who does thus +disregard public sentiment when it is wrong, who brushes aside the plea of +any special interest when the pleading is not rounded on righteousness, +performs the highest service to the country. Such a judge is deserving of +all honor; and all honor can not be paid to this wise and fearless judge if +we permit the growth of an absurd convention which would forbid any +criticism of the judge of another type, who shows himself timid in the +presence of arrogant disorder, or who on insufficient grounds grants an +injunction that does grave injustice, or who in his capacity as a +construer, and therefore in part a maker, of the law, in flagrant fashion +thwarts the cause of decent government. The judge has a power over which no +review can be exercised; he himself sits in review upon the acts of both +the executive and legislative branches of the Government; save in the most +extraordinary cases he is amenable only at the bar of public opinion; and +it is unwise to maintain that public opinion in reference to a man with +such power shall neither be exprest nor led. + +The best judges have ever been foremost to disclaim any immunity from +criticism. This has been true since the days of the great English Lord +Chancellor Parker, who said: "Let all people be at liberty to know what I +found my judgment upon; that, so when I have given it in any cause, others +may be at liberty to judge of me." The proprieties of the case were set +forth with singular clearness and good temper by Judge W. H. Taft, when a +United States circuit judge, eleven years ago, in 1895: + +"The opportunity freely and publicly to criticize judicial action is of +vastly more importance to the body politic than the immunity of courts and +judges from unjust aspersions and attack. Nothing tends more to render +judges careful in their decisions and anxiously solicitous to do exact +justice than the consciousness that every act of theirs is to be subjected +to the intelligent scrutiny and candid criticism of their fellow-men. Such +criticism is beneficial in proportion as it is fair, dispassionate, +discriminating, and based on a knowledge of sound legal principles. The +comments made by learned text writers and by the acute editors of the +various law reviews upon judicial decisions are therefore highly useful. +Such critics constitute more or less impartial tribunals of professional +opinion before which each judgment is made to stand or fall on its merits, +and thus exert a strong influence to secure uniformity of decision. But +non-professional criticism also is by no means without its uses, even if +accompanied, as it often is, by a direct attack upon the judicial fairness +and motives of the occupants of the bench; for if the law is but the +essence of common sense, the protest of many average men may evidence a +defect in a judicial conclusion, tho based on the nicest legal reasoning +and profoundest learning. The two important elements of moral character in +a judge are an earnest desire to reach a just conclusion and courage to +enforce it. In so far as fear of public comment does not affect the courage +of a judge, but only spurs him on to search his conscience and to reach the +result which approves itself to his inmost heart such comment serves a +useful purpose. There are few men, whether they are judges for life or for +a shorter term, who do not prefer to earn and hold the respect of all, and +who can not be reached and made to pause and deliberate by hostile public +criticism. In the case of judges having a life tenure, indeed their very +independence makes the right freely to comment on their decisions of +greater importance, because it is the only practical and available +instrument in the hands of a free people to keep such judges alive to the +reasonable demands of those they serve. + +"On the other hand, the danger of destroying the proper influence of +judicial decisions by creating unfounded prejudices against the courts +justifies and requires that unjust attacks shall be met and answered. +Courts must ultimately rest their defense upon the inherent strength of the +opinions they deliver as the ground for their conclusions and must trust to +the calm and deliberate judgment of all the people as their best +vindication." + +There is one consideration which should be taken into account by the good +people who carry a sound proposition to an excess in objecting to any +criticism of a judge's decision. The instinct of the American people as a +whole is sound in this matter. They will not subscribe to the doctrine that +any public servant is to be above all criticism. If the best citizens, +those most competent to express their judgment in such matters, and above +all those belonging to the great and honorable profession of the bar, so +profoundly influential in American life, take the position that there shall +be no criticism of a judge under any circumstances, their view will not be +accepted by the American people as a whole. In such event the people will +turn to, and tend to accept as justifiable, the intemperate and improper +criticism uttered by unworthy agitators. Surely it is a misfortune to leave +to such critics a function, right, in itself, which they are certain to +abuse. Just and temperate criticism, when necessary, is a safeguard against +the acceptance by the people as a whole of that intemperate antagonism +towards the judiciary which must be combated by every right-thinking man, +and which, if it became widespread among the people at large, would +constitute a dire menace to the Republic. + +In connection with the delays of the law, I call your attention and the +attention of the Nation to the prevalence of crime among us, and above all +to the epidemic of lynching and mob violence that springs up, now in one +part of our country, now in another. Each section, North, South, East, or +West, has its own faults; no section can with wisdom spend its time jeering +at the faults of another section; it should be busy trying to amend its own +shortcomings. To deal with the crime of corruption It is necessary to have +an awakened public conscience, and to supplement this by whatever +legislation will add speed and certainty in the execution of the law. When +we deal with lynching even mote is necessary. A great many white men are +lynched, but the crime is peculiarly frequent in respect to black men. The +greatest existing cause of lynching is the perpetration, especially by +black men, of the hideous crime of rape--the most abominable in all the +category of crimes, even worse than murder. Mobs frequently avenge the +commission of this crime by themselves torturing to death the man +committing it; thus avenging in bestial fashion a bestial deed, and +reducing themselves to a level with the criminal. + +Lawlessness grows by what it feeds upon; and when mobs begin to lynch for +rape they speedily extend the sphere of their operations and lynch for many +other kinds of crimes, so that two-thirds of the lynchings are not for rape +at all; while a considerable proportion of the individuals lynched are +innocent of all crime. Governor Candler, of Georgia, stated on one occasion +some years ago: "I can say of a verity that I have, within the last month, +saved the lives of half a dozen innocent Negroes who were pursued by the +mob, and brought them to trial in a court of law in which they were +acquitted." As Bishop Galloway, of Mississippi, has finely said: "When the +rule of a mob obtains, that which distinguishes a high civilization is +surrendered. The mob which lynches a negro charged with rape will in a +little while lynch a white man suspected of crime. Every Christian patriot +in America needs to lift up his voice in loud and eternal protest against +the mob spirit that is threatening the integrity of this Republic." +Governor Jelks, of Alabama, has recently spoken as follows: "The lynching +of any person for whatever crime is inexcusable anywhere--it is a defiance +of orderly government; but the killing of innocent people under any +provocation is infinitely more horrible; and yet innocent people are likely +to die when a mob's terrible lust is once aroused. The lesson is this: No +good citizen can afford to countenance a defiance of the statutes, no +matter what the provocation. The innocent frequently suffer, and, it is my +observation, more usually suffer than the guilty. The white people of the +South indict the whole colored race on the ground that even the better +elements lend no assistance whatever in ferreting out criminals of their +own color. The respectable colored people must learn not to harbor their +criminals, but to assist the officers in bringing them to justice. This is +the larger crime, and it provokes such atrocious offenses as the one at +Atlanta. The two races can never get on until there is an understanding on +the part of both to make common cause with the law-abiding against +criminals of any color." + +Moreover, where any crime committed by a member of one race against a +member of another race is avenged in such fashion that it seems as if not +the individual criminal, but the whole race, is attacked, the result is to +exasperate to the highest degree race feeling. There is but one safe rule +in dealing with black men as with white men; it is the same rule that must +be applied in dealing with rich men and poor men; that is, to treat each +man, whatever his color, his creed, or his social position, with +even-handed justice on his real worth as a man. White people owe it quite +as much to themselves as to the colored race to treat well the colored man +who shows by his life that he deserves such treatment; for it is surely the +highest wisdom to encourage in the colored race all those individuals who +are honest, industrious, law-abiding, and who therefore make good and safe +neighbors and citizens. Reward or punish the individual on his merits as an +individual. Evil will surely come in the end to both races if we substitute +for this just rule the habit of treating all the members of the race, good +and bad, alike. There is no question of "social equality" or "negro +domination" involved; only the question of relentlessly punishing bad men, +and of securing to the good man the right to his life, his liberty, and the +pursuit of his happiness as his own qualities of heart, head, and hand +enable him to achieve it. + +Every colored man should realize that the worst enemy of his race is the +negro criminal, and above all the negro criminal who commits the dreadful +crime of rape; and it should be felt as in the highest degree an offense +against the whole country, and against the colored race in particular, for +a colored man to fail to help the officers of the law in hunting down with +all possible earnestness and zeal every such infamous offender. Moreover, +in my judgment, the crime of rape should always be punished with death, as +is the case with murder; assault with intent to commit rape should be made +a capital crime, at least in the discretion of the court; and provision +should be made by which the punishment may follow immediately upon the +heels of the offense; while the trial should be so conducted that the +victim need not be wantonly shamed while giving testimony, and that the +least possible publicity shall be given to the details. + +The members of the white race on the other hand should understand that +every lynching represents by just so much a loosening of the bands of +civilization; that the spirit of lynching inevitably throws into prominence +in the community all the foul and evil creatures who dwell therein. No man +can take part in the torture of a human being without having his own moral +nature permanently lowered. Every lynching means just so much moral +deterioration in all the children who have any knowledge of it, and +therefore just so much additional trouble for the next generation of +Americans. + +Let justice be both sure and swift; but let it be justice under the law, +and not the wild and crooked savagery of a mob. + +There is another matter which has a direct bearing upon this matter of +lynching and of the brutal crime which sometimes calls it forth and at +other times merely furnishes the excuse for its existence. It is out of the +question for our people as a whole permanently to rise by treading down any +of their own number. Even those who themselves for the moment profit by +such maltreatment of their fellows will in the long run also suffer. No +more shortsighted policy can be imagined than, in the fancied interest of +one class, to prevent the education of another class. The free public +school, the chance for each boy or girl to get a good elementary education, +lies at the foundation of our whole political situation. In every community +the poorest citizens, those who need the schools most, would be deprived of +them if they only received school facilities proportioned to the taxes they +paid. This is as true of one portion of our country as of another. It is as +true for the negro as for the white man. The white man, if he is wise, will +decline to allow the Negroes in a mass to grow to manhood and womanhood +without education. Unquestionably education such as is obtained in our +public schools does not do everything towards making a man a good citizen; +but it does much. The lowest and most brutal criminals, those for instance +who commit the crime of rape, are in the great majority men who have had +either no education or very little; just as they are almost invariably men +who own no property; for the man who puts money by out of his earnings, +like the man who acquires education, is usually lifted above mere brutal +criminality. Of course the best type of education for the colored man, +taken as a whole, is such education as is conferred in schools like Hampton +and Tuskegee; where the boys and girls, the young men and young women, are +trained industrially as well as in the ordinary public school branches. The +graduates of these schools turn out well in the great majority of cases, +and hardly any of them become criminals, while what little criminality +there is never takes the form of that brutal violence which invites lynch +law. Every graduate of these schools--and for the matter of that every +other colored man or woman--who leads a life so useful and honorable as to +win the good will and respect of those whites whose neighbor he or she is, +thereby helps the whole colored race as it can be helped in no other way; +for next to the negro himself, the man who can do most to help the negro is +his white neighbor who lives near him; and our steady effort should be to +better the relations between the two. Great tho the benefit of these +schools has been to their colored pupils and to the colored people, it may +well be questioned whether the benefit, has not been at least as great to +the white people among whom these colored pupils live after they graduate. + +Be it remembered, furthermore, that the individuals who, whether from +folly, from evil temper, from greed for office, or in a spirit of mere base +demagogy, indulge in the inflammatory and incendiary speeches and writings +which tend to arouse mobs and to bring about lynching, not only thus excite +the mob, but also tend by what criminologists call "suggestion," greatly to +increase the likelihood of a repetition of the very crime against which +they are inveighing. When the mob is composed of the people of one race and +the man lynched is of another race, the men who in their speeches and +writings either excite or justify the action tend, of course, to excite a +bitter race feeling and to cause the people of the opposite race to lose +sight of the abominable act of the criminal himself; and in addition, by +the prominence they give to the hideous deed they undoubtedly tend to +excite in other brutal and depraved natures thoughts of committing it. +Swift, relentless, and orderly punishment under the law is the only way by +which criminality of this type can permanently be supprest. + +In dealing with both labor and capital, with the questions affecting both +corporations and trades unions, there is one matter more important to +remember than aught else, and that is the infinite harm done by preachers +of mere discontent. These are the men who seek to excite a violent class +hatred against all men of wealth. They seek to turn wise and proper +movements for the better control of corporations and for doing away with +the abuses connected with wealth, into a campaign of hysterical excitement +and falsehood in which the aim is to inflame to madness the brutal passions +of mankind. The sinister demagogs and foolish visionaries who are always +eager to undertake such a campaign of destruction sometimes seek to +associate themselves with those working for a genuine reform in +governmental and social methods, and sometimes masquerade as such +reformers. In reality they are the worst enemies of the cause they profess +to advocate, just as the purveyors of sensational slander in newspaper or +magazine are the worst enemies of all men who are engaged in an honest +effort to better what is bad in our social and governmental conditions. To +preach hatred of the rich man as such, to carry on a campaign of slander +and invective against him, to seek to mislead and inflame to madness honest +men whose lives are hard and who have not the kind of mental training which +will permit them to appreciate the danger in the doctrines preached--all +this is to commit a crime against the body politic and to be false to every +worthy principle and tradition of American national life. Moreover, while +such preaching and such agitation may give a livelihood and a certain +notoriety to some of those who take part in it, and may result in the +temporary political success of others, in the long run every such movement +will either fail or else will provoke a violent reaction, which will itself +result not merely in undoing the mischief wrought by the demagog and the +agitator, but also in undoing the good that the honest reformer, the true +upholder of popular rights, has painfully and laboriously achieved. +Corruption is never so rife as in communities where the demagog and the +agitator bear full sway, because in such communities all moral bands become +loosened, and hysteria and sensationalism replace the spirit of sound +judgment and fair dealing as between man and man. In sheer revolt against +the squalid anarchy thus produced men are sure in the end to turn toward +any leader who can restore order, and then their relief at being free from +the intolerable burdens of class hatred, violence, and demagogy is such +that they can not for some time be aroused to indignation against misdeeds +by men of wealth; so that they permit a new growth of the very abuses which +were in part responsible for the original outbreak. The one hope for +success for our people lies in a resolute and fearless, but sane and +cool-headed, advance along the path marked out last year by this very +Congress. There must be a stern refusal to be misled into following either +that base creature who appeals and panders to the lowest instincts and +passions in order to arouse one set of Americans against their fellows, or +that other creature, equally base but no baser, who in a spirit of greed, +or to accumulate or add to an already huge fortune, seeks to exploit his +fellow Americans with callous disregard to their welfare of soul and body. +The man who debauches others in order to obtain a high office stands on an +evil equality of corruption with the man who debauches others for financial +profit; and when hatred is sown the crop which springs up can only be +evil. + +The plain people who think--the mechanics, farmers, merchants, workers with +head or hand, the men to whom American traditions are dear, who love their +country and try to act decently by their neighbors, owe it to themselves to +remember that the most damaging blow that can be given popular government +is to elect an unworthy and sinister agitator on a platform of violence and +hypocrisy. Whenever such an issue is raised in this country nothing can be +gained by flinching from it, for in such case democracy is itself on trial, +popular self-government under republican forms is itself on trial. The +triumph of the mob is just as evil a thing as the triumph of the +plutocracy, and to have escaped one danger avails nothing whatever if we +succumb to the other. In the end the honest man, whether rich or poor, who +earns his own living and tries to deal justly by his fellows, has as much +to fear from the insincere and unworthy demagog, promising much and +performing nothing, or else performing nothing but evil, who would set on +the mob to plunder the rich, as from the crafty corruptionist, who, for his +own ends, would permit the common people to be exploited by the very +wealthy. If we ever let this Government fall into the hands of men of +either of these two classes, we shall show ourselves false to America's +past. Moreover, the demagog and the corruptionist often work hand in hand. +There are at this moment wealthy reactionaries of such obtuse morality that +they regard the public servant who prosecutes them when they violate the +law, or who seeks to make them bear their proper share of the public +burdens, as being even more objectionable than the violent agitator who +hounds on the mob to plunder the rich. There is nothing to choose between +such a reactionary and such an agitator; fundamentally they are alike in +their selfish disregard of the rights of others; and it is natural that +they should join in opposition to any movement of which the aim is +fearlessly to do exact and even justice to all. + +I call your attention to the need of passing the bill limiting the number +of hours of employment of railroad employees. The measure is a very +moderate one and I can conceive of no serious objection to it. Indeed, so +far as it is in our power, it should be our aim steadily to reduce the +number of hours of labor, with as a goal the general introduction of an +eight-hour day. There are industries in which it is not possible that the +hours of labor should be reduced; just as there are communities not far +enough advanced for such a movement to be for their good, or, if in the +Tropics, so situated that there is no analogy between their needs and ours +in this matter. On the Isthmus of Panama, for instance, the conditions are +in every way so different from what they are here that an eight-hour day +would be absurd; just as it is absurd, so far as the Isthmus is concerned, +where white labor can not be employed, to bother as to whether the +necessary work is done by alien black men or by alien yellow men. But the +wageworkers of the United States are of so high a grade that alike from the +merely industrial standpoint and from the civic standpoint it should be our +object to do what we can in the direction of securing the general +observance of an eight-hour day. Until recently the eight-hour law on our +Federal statute books has been very scantily observed. Now, however, +largely thru the instrumentality of the Bureau of Labor, it is being +rigidly enforced, and I shall speedily be able to say whether or not there +is need of further legislation in reference thereto; .for our purpose is to +see it obeyed in spirit no less than in letter. Half holidays during summer +should be established for Government employees; it is as desirable for +wageworkers who toil with their hands as for salaried officials whose labor +is mental that there should be a reasonable amount of holiday. + +The Congress at its last session wisely provided for a truant court for the +District of Columbia; a marked step in advance on the path of properly +caring for the children. Let me again urge that the Congress provide for a +thoro investigation of the conditions of child labor and of the labor of +women in the United States. More and more our people are growing to +recognize the fact that the questions which are not merely of industrial +but of social importance outweigh all others; and these two questions most +emphatically come in the category of those which affect in the most +far-reaching way the home life of the Nation. The horrors incident to the +employment of young children in factories or at work anywhere are a blot on +our civilization. It is true that each. State must ultimately settle the +question in its own way; but a thoro official investigation of the matter, +with the results published broadcast, would greatly help toward arousing +the public conscience and securing unity of State action in the matter. +There is, however, one law on the subject which should be enacted +immediately, because there is no need for an investigation in reference +thereto, and the failure to enact it is discreditable to the National +Government. A drastic and thorogoing child-labor law should be enacted for +the District of Columbia and the Territories. + +Among the excellent laws which the Congress past at the last session was an +employers' liability law. It was a marked step in advance to get the +recognition of employers' liability on the statute books; but the law did +not go far enough. In spite of all precautions exercised by employers there +are unavoidable accidents and even deaths involved in nearly every line of +business connected with the mechanic arts. This inevitable sacrifice of +life may be reduced to a minimum, but it can not be completely eliminated. +It is a great social injustice to compel the employee, or rather the family +of the killed or disabled victim, to bear the entire burden of such an +inevitable sacrifice. In other words, society shirks its duty by laying the +whole cost on the victim, whereas the injury comes from what may be called +the legitimate risks of the trade. Compensation for accidents or deaths due +in any line of industry to the actual conditions under which that industry +is carried on, should be paid by that portion of the community for the +benefit of which the industry is carried on--that is, by those who profit +by the industry. If the entire trade risk is placed upon the employer he +will promptly and properly add it to the legitimate cost of production and +assess it proportionately upon the consumers of his commodity. It is +therefore clear to my mind that the law should place this entire "risk of a +trade" upon the employer. Neither the Federal law, nor, as far as I am +informed, the State laws dealing with the question of employers' liability +are sufficiently thorogoing. The Federal law should of course include +employees in navy-yards, arsenals, and the like. + +The commission appointed by the President October 16, 1902, at the request +of both the anthracite coal operators and miners, to inquire into, +consider, and pass upon the questions in controversy in connection with the +strike in the anthracite regions of Pennsylvania and the causes out of +which the controversy arose, in their report, findings, and award exprest +the belief "that the State and Federal governments should provide the +machinery for what may be called the compulsory investigation of +controversies between employers and employees when they arise." This +expression of belief is deserving of the favorable consideration of the +Congress and the enactment of its provisions into law. A bill has already +been introduced to this end. + +Records show that during the twenty years from January 1, 1881, to, +December 31, 1900, there were strikes affecting 117,509 establishments, and +6,105,694 employees were thrown out of employment. During the same period +there were 1,005 lockouts, involving nearly 10,000 establishments, throwing +over one million people out of employment. These strikes and lockouts +involved an estimated loss to employees of $307,000,000 and to employers of +$143,000,000, a total of $450,000,000. The public suffered directly and +indirectly probably as great additional loss. But the money loss, great as +it was, did not measure the anguish and suffering endured by the wives and +children of employees whose pay stopt when their work stopt, or the +disastrous effect of the strike or lockout upon the business of employers, +or the increase in the cost of products and the inconvenience and loss to +the public. + +Many of these strikes and lockouts would not have occurred had the parties +to the dispute been required to appear before an unprejudiced body +representing the nation and, face to face, state the reasons for their +contention. In most instances the dispute would doubtless be found to be +due to a misunderstanding by each of the other's rights, aggravated by an +unwillingness of either party to accept as true the statements of the other +as to the justice or injustice of the matters in dispute. The exercise of a +judicial spirit by a disinterested body representing the Federal +Government, such as would be provided by a commission on conciliation and +arbitration, would tend to create an atmosphere of friendliness and +conciliation between contending parties; and the giving each side an equal +opportunity to present fully its case in the presence of the other would +prevent many disputes from developing into serious strikes or lockouts, +and, in other cases, would enable the commission to persuade the opposing +parties to come to terms. + +In this age of great corporate and labor combinations, neither employers +nor employees should be left completely at the mercy of the stronger party +to a dispute, regardless of the righteousness of their respective claims. +The proposed measure would be in the line of securing recognition of the +fact that in many strikes the public has itself an interest which can not +wisely be disregarded; an interest not merely of general convenience, for +the question of a just and proper public policy must also be considered. In +all legislation of this kind it is well to advance cautiously, testing each +step by the actual results; the step proposed can surely be safely taken, +for the decisions of the commission would not bind the parties in legal +fashion, and yet would give a chance for public opinion to crystallize and +thus to exert its full force for the right. + +It is not wise that the Nation should alienate its remaining coal lands. I +have temporarily withdrawn from settlement all the lands which the +Geological Survey has indicated as containing, or in all probability +containing, coal. The question, however, can be properly settled only by +legislation, which in my judgment should provide for the withdrawal of +these lands from sale or from entry, save in certain especial +circumstances. The ownership would then remain in the United States, which +should not, however, attempt to work them, but permit them to be worked by +private individuals under a royalty system, the Government keeping such +control as to permit it to see that no excessive price was charged +consumers. It would, of course, be as necessary to supervise the rates +charged by the common carriers to transport the product as the rates +charged by those who mine it; and the supervision must extend to the +conduct of the common carriers, so that they shall in no way favor one +competitor at the expense of another. The withdrawal of these coal lands +would constitute a policy analogous to that which has been followed in +withdrawing the forest lands from ordinary settlement. The coal, like the +forests, should be treated as the property of the public and its disposal +should be under conditions which would inure to the benefit of the public +as a whole. + +The present Congress has taken long strides in the direction of securing +proper supervision and control by the National Government over corporations +engaged in interstate business and the enormous majority of corporations of +any size are engaged in interstate business. The passage of the railway +rate bill, and only to a less degree the passage of the pure food bill, and +the provision for increasing and rendering more effective national control +over the beef-packing industry, mark an important advance in the proper +direction. In the short session it will perhaps be difficult to do much +further along this line; and it may be best to wait until the laws have +been in operation for a number of months before endeavoring to increase +their scope, because only operation will show with exactness their merits +and their shortcomings and thus give opportunity to define what further +remedial legislation is needed. Yet in my judgment it will in the end be +advisable in connection with the packing house inspection law to provide +for putting a date on the label and for charging the cost of inspection to +the packers. All these laws have already justified their enactment. The +interstate commerce law, for instance, has rather amusingly falsified the +predictions, both of those who asserted that it would ruin the railroads +and of those who asserted that it did not go far enough and would +accomplish nothing. During the last five months the railroads have shown +increased earnings and some of them unusual dividends; while during the +same period the mere taking effect of the law has produced an +unprecedented, a hitherto unheard of, number of voluntary reductions in +freights and fares by the railroads. Since the founding of the Commission +there has never been a time of equal length in which anything like so many +reduced tariffs have been put into effect. On August 27, for instance, two +days before the new law went into effect, the Commission received notices +of over five thousand separate tariffs which represented reductions from +previous rates. + +It must not be supposed, however, that with the passage of these laws it +will be possible to stop progress along the line of increasing the power of +the National Government over the use of capital interstate commerce. For +example, there will ultimately be need of enlarging the powers of the +Interstate Commerce Commission along several different lines, so as to give +it a larger and more efficient control over the railroads. + +It can not too often be repeated that experience has conclusively shown the +impossibility of securing by the actions of nearly half a hundred different +State legislatures anything but ineffective chaos in the way of dealing +with the great corporations which do not operate exclusively within the +limits of any one State. In some method, whether by a national license law +or in other fashion, we must exercise, and that at an early date, a far +more complete control than at present over these great corporations--a +control that will among other things prevent the evils of excessive +overcapitalization, and that will compel the disclosure by each big +corporation of its stockholders and of its properties and business, whether +owned directly or thru subsidiary or affiliated corporations. This will +tend to put a stop to the securing of inordinate profits by favored +individuals at the expense whether of the general public, the stockholders, +or the wageworkers. Our effort should be not so much to prevent +consolidation as such, but so to supervise and control it as to see that it +results in no harm to the people. The reactionary or ultraconservative +apologists for the misuse of wealth assail the effort to secure such +control as a step toward socialism. As a matter of fact it is these +reactionaries and ultraconservatives who are themselves most potent in +increasing socialistic feeling. One of the most efficient methods of +averting the consequences of a dangerous agitation, which is 80 per cent +wrong, is to remedy the 20 per cent of evil as to which the agitation is +well rounded. The best way to avert the very undesirable move for the +government ownership of railways is to secure by the Government on behalf +of the people as a whole such adequate control and regulation of the great +interstate common carriers as will do away with the evils which give rise +to the agitation against them. So the proper antidote to the dangerous and +wicked agitation against the men of wealth as such is to secure by proper +legislation and executive action the abolition of the grave abuses which +actually do obtain in connection with the business use of wealth under our +present system--or rather no system--of failure to exercise any adequate +control at all. Some persons speak as if the exercise of such governmental +control would do away with the freedom of individual initiative and dwarf +individual effort. This is not a fact. It would be a veritable calamity to +fail to put a premium upon individual initiative, individual capacity and +effort; upon the energy, character, and foresight which it is so important +to encourage in the individual. But as a matter of fact the deadening and +degrading effect of pure socialism, and especially of its extreme form +communism, and the destruction of individual character which they would +bring about, are in part achieved by the wholly unregulated competition +which results in a single individual or corporation rising at the expense +of all others until his or its rise effectually checks all competition and +reduces former competitors to a position of utter inferiority and +subordination. + +In enacting and enforcing such legislation as this Congress already has to +its credit, we are working on a coherent plan, with the steady endeavor to +secure the needed reform by the joint action of the moderate men, the plain +men who do not wish anything hysterical or dangerous, but who do intend to +deal in resolute common-sense fashion with the real and great evils of the +present system. The reactionaries and the violent extremists show symptoms +of joining hands against us. Both assert, for instance, that, if logical, +we should go to government ownership of railroads and the like; the +reactionaries, because on such an issue they think the people would stand +with them, while the extremists care rather to preach discontent and +agitation than to achieve solid results. As a matter of fact, our position +is as remote from that of the Bourbon reactionary as from that of the +impracticable or sinister visionary. We hold that the Government should not +conduct the business of the nation, but that it should exercise such +supervision as will insure its being conducted in the interest of the +nation. Our aim is, so far as may be, to secure, for all decent, hard +working men, equality of opportunity and equality of burden. + +The actual working of our laws has shown that the effort to prohibit all +combination, good or bad, is noxious where it is not ineffective. +Combination of capital like combination of labor is a necessary element of +our present industrial system. It is not possible completely to prevent it; +and if it were possible, such complete prevention would do damage to the +body politic. What we need is not vainly to try to prevent all combination, +but to secure such rigorous and adequate control and supervision of the +combinations as to prevent their injuring the public, or existing in such +form as inevitably to threaten injury--for the mere fact that a combination +has secured practically complete control of a necessary of life would under +any circumstances show that such combination was to be presumed to be +adverse to the public interest. It is unfortunate that our present laws +should forbid all combinations, instead of sharply discriminating between +those combinations which do good and those combinations which do evil. +Rebates, for instance, are as often due to the pressure of big shippers (as +was shown in the investigation of the Standard Oil Company and as has been +shown since by the investigation of the tobacco and sugar trusts) as to the +initiative of big railroads. Often railroads would like to combine for the +purpose of preventing a big shipper from maintaining improper advantages at +the expense of small shippers and of the general public. Such a +combination, instead of being forbidden by law, should be favored. In other +words, it should be permitted to railroads to make agreements, provided +these agreements were sanctioned by the Interstate Commerce Commission and +were published. With these two conditions complied with it is impossible to +see what harm such a combination could do to the public at large. It is a +public evil to have on the statute books a law incapable of full +enforcement because both judges and juries realize that its full +enforcement would destroy the business of the country; for the result is to +make decent railroad men violators of the law against their will, and to +put a premium on the behavior of the wilful wrongdoers. Such a result in +turn tends to throw the decent man and the wilful wrongdoer into close +association, and in the end to drag down the former to the latter's level; +for the man who becomes a lawbreaker in one way unhappily tends to lose all +respect for law and to be willing to break it in many ways. No more +scathing condemnation could be visited upon a law than is contained in the +words of the Interstate Commerce Commission when, in commenting upon the +fact that the numerous joint traffic associations do technically violate +the law, they say: "The decision of the United States Supreme Court in the +Trans-Missouri case and the Joint Traffic Association case has produced no +practical effect upon the railway operations of the country. Such +associations, in fact, exist now as they did before these decisions, and +with the same general effect. In justice to all parties, we ought probably +to add that it is difficult to see how our interstate railways could be +operated with due regard to the interest of the shipper and the railway +without concerted action of the kind afforded thru these associations." + +This means that the law as construed by the Supreme Court is such that the +business of the country can not be conducted without breaking it. I +recommend that you give careful and early consideration to this subject, +and if you find the opinion of the Interstate Commerce Commission +justified, that you amend the law so as to obviate the evil disclosed. + +The question of taxation is difficult in any country, but it is especially +difficult in ours with its Federal system of government. Some taxes should +on every ground be levied in a small district for use in that district. +Thus the taxation of real estate is peculiarly one for the immediate +locality in which the real estate is found. Again, there is no more +legitimate tax for any State than a tax on the franchises conferred by that +State upon street railroads and similar corporations which operate wholly +within the State boundaries, sometimes in one and sometimes in several +municipalities or other minor divisions of the State. But there are many +kinds of taxes which can only be levied by the General Government so as to +produce the best results, because, among other reasons, the attempt to +impose them in one particular State too often results merely in driving the +corporation or individual affected to some other locality or other State. +The National Government has long derived its chief revenue from a tariff on +imports and from an internal or excise tax. In addition to these there is +every reason why, when next our system of taxation is revised, the National +Government should impose a graduated inheritance tax, and, if possible, a +graduated income tax. The man of great wealth owes a peculiar obligation to +the State, because he derives special advantages from the mere existence of +government. Not only should he recognize this obligation in the way he +leads his daily life and in the way he earns and spends his money, but it +should also be recognized by the way in which he pays for the protection +the State gives him. On the one hand, it is desirable that he should assume +his full and proper share of the burden of taxation; on the other hand, it +is quite as necessary that in this kind of taxation, where the men who vote +the tax pay but little of it, there should be clear recognition of the +danger of inaugurating any such system save in a spirit of entire justice +and moderation. Whenever we, as a people, undertake to remodel our taxation +system along the lines suggested, we must make it clear beyond peradventure +that our aim is to distribute the burden of supporting the Government more +equitably than at present; that we intend to treat rich man and poor man on +a basis of absolute equality, and that we regard it as equally fatal to +true democracy to do or permit injustice to the one as to do or permit +injustice to the other. + +I am well aware that such a subject as this needs long and careful study in +order that the people may become familiar with what is proposed to be done, +may clearly see the necessity of proceeding with wisdom and self-restraint, +and may make up their minds just how far they are willing to go in the +matter; while only trained legislators can work out the project in +necessary detail. But I feel that in the near future our national +legislators should enact a law providing for a graduated inheritance tax by +which a steadily increasing rate of duty should be put upon all moneys or +other valuables coming by gift, bequest, or devise to any individual or +corporation. It may be well to make the tax heavy in proportion as the +individual benefited is remote of kin. In any event, in my judgment the pro +rata of the tax should increase very heavily with the increase of the +amount left to any one individual after a certain point has been reached. +It is most desirable to encourage thrift and ambition, and a potent source +of thrift and ambition is the desire on the part of the breadwinner to +leave his children well off. This object can be attained by making the tax +very small on moderate amounts of property left; because the prime object +should be to put a constantly increasing burden on the inheritance of those +swollen fortunes which it is certainly of no benefit to this country to +perpetuate. + +There can be no question of the ethical propriety of the Government thus +determining the conditions upon which any gift or inheritance should be +received. Exactly how far the inheritance tax would, as an incident, have +the effect of limiting the transmission by devise or gift of the enormous +fortunes in question it is not necessary at present to discuss. It is wise +that progress in this direction should be gradual. At first a permanent +national inheritance tax, while it might be more substantial than any such +tax has hitherto been, need not approximate, either in amount or in the +extent of the increase by graduation, to what such a tax should ultimately +be. + +This species of tax has again and again been imposed, altho only +temporarily, by the National Government. It was first imposed by the act of +July 6, 1797, when the makers of the Constitution were alive and at the +head of affairs. It was a graduated tax; tho small in amount, the rate was +increased with the amount left to any individual, exceptions being made in +the case of certain close kin. A similar tax was again imposed by the act +of July 1, 1862; a minimum sum of one thousand dollars in personal property +being excepted from taxation, the tax then becoming progressive according +to the remoteness of kin. The war-revenue act of June 13, 1898, provided +for an inheritance tax on any sum exceeding the value of ten thousand +dollars, the rate of the tax increasing both in accordance with the amounts +left and in accordance with the legatee's remoteness of kin. The Supreme +Court has held that the succession tax imposed at the time of the Civil War +was not a direct tax but an impost or excise which was both constitutional +and valid. More recently the Court, in an opinion delivered by Mr. Justice +White, which contained an exceedingly able and elaborate discussion of the +powers of the Congress to impose death duties, sustained the +constitutionality of the inheritance-tax feature of the war-revenue act of +1898. + +In its incidents, and apart from the main purpose of raising revenue, an +income tax stands on an entirely different footing from an inheritance tax; +because it involves no question of the perpetuation of fortunes swollen to +an unhealthy size. The question is in its essence a question of the proper +adjustment of burdens to benefits. As the law now stands it is undoubtedly +difficult to devise a national income tax which shall be constitutional. +But whether it is absolutely impossible is another question; and if +possible it is most certainly desirable. The first purely income-tax law +was past by the Congress in 1861, but the most important law dealing with +the subject was that of 1894. This the court held to be unconstitutional. + +The question is undoubtedly very intricate, delicate, and troublesome. The +decision of the court was only reached by one majority. It is the law of +the land, and of course is accepted as such and loyally obeyed by all good +citizens. Nevertheless, the hesitation evidently felt by the court as a +whole in coming to a conclusion, when considered together with the previous +decisions on the subject, may perhaps indicate the possibility of devising +a constitutional income-tax law which shall substantially accomplish the +results aimed at. The difficulty of amending the Constitution is so great +that only real necessity can justify a resort thereto. Every effort should +be made in dealing with this subject, as with the subject of the proper +control by the National Government over the use of corporate wealth in +interstate business, to devise legislation which without such action shall +attain the desired end; but if this fails, there will ultimately be no +alternative to a constitutional amendment. + +It would be impossible to overstate (tho it is of course difficult +quantitatively to measure) the effect upon a nation's growth to greatness +of what may be called organized patriotism, which necessarily includes the +substitution of a national feeling for mere local pride; with as a +resultant a high ambition for the whole country. No country can develop its +full strength so long as the parts which make up the whole each put a +feeling of loyalty to the part above the feeling of loyalty to the whole. +This is true of sections and it is just as true of classes. The industrial +and agricultural classes must work together, capitalists and wageworkers +must work together, if the best work of which the country is capable is to +be done. It is probable that a thoroly efficient system of education comes +next to the influence of patriotism in bringing about national success of +this kind. Our federal form of government, so fruitful of advantage to our +people in certain ways, in other ways undoubtedly limits our national +effectiveness. It is not possible, for instance, for the National +Government to take the lead in technical industrial education, to see that +the public school system of this country develops on all its technical, +industrial, scientific, and commercial sides. This must be left primarily +to the several States. Nevertheless, the National Government has control of +the schools of the District of Columbia, and it should see that these +schools promote and encourage the fullest development of the scholars in +both commercial and industrial training. The commercial training should in +one of its branches deal with foreign trade. The industrial training is +even more important. It should be one of our prime objects as a Nation, so +far as feasible, constantly to work toward putting the mechanic, the +wageworker who works with his hands, on a higher plane of efficiency and +reward, so as to increase his effectiveness in the economic world, and the +dignity, the remuneration, and the power of his position in the social +world. Unfortunately, at present the effect of some of the work in the +public schools is in the exactly opposite direction. If boys and girls are +trained merely in literary accomplishments, to the total exclusion of +industrial, manual, and technical training, the tendency is to unfit them +for industrial work and to make them reluctant to go into it, or unfitted +to do well if they do go into it. This is a tendency which should be +strenuously combated. Our industrial development depends largely upon +technical education, including in this term all industrial education, from +that which fits a man to be a good mechanic, a good carpenter, or +blacksmith, to that which fits a man to do the greatest engineering feat. +The skilled mechanic, the skilled workman, can best become such by +technical industrial education. The far-reaching usefulness of institutes +of technology and schools of mines or of engineering is now universally +acknowledged, and no less far--reaching is the effect of a good building or +mechanical trades school, a textile, or watch-making, or engraving school. +All such training must develop not only manual dexterity but industrial +intelligence. In international rivalry this country does not have to fear +the competition of pauper labor as much as it has to fear the educated +labor of specially trained competitors; and we should have the education of +the hand, eye, and brain which will fit us to meet such competition. + +In every possible way we should help the wageworker who toils with his +hands and who must (we hope in a constantly increasing measure) also toil +with his brain. Under the Constitution the National Legislature can do but +little of direct importance for his welfare save where he is engaged in +work which permits it to act under the interstate commerce clause of the +Constitution; and this is one reason why I so earnestly hope that both the +legislative and judicial branches of the Government will construe this +clause of the Constitution in the broadest possible manner. We can, +however, in such a matter as industrial training, in such a matter as child +labor and factory laws, set an example to the States by enacting the most +advanced legislation that can wisely be enacted for the District of +Columbia. + +The only other persons whose welfare is as vital to the welfare of the +whole country as is the welfare of the wageworkers are the tillers of the +soil, the farmers. It is a mere truism to say that no growth of cities, no +growth of wealth, no industrial development can atone for any falling off +in the character and standing of the farming population. During the last +few decades this fact has been recognized with ever-increasing clearness. +There is no longer any failure to realize that farming, at least in certain +branches, must become a technical and scientific profession. This means +that there must be open to farmers the chance for technical and scientific +training, not theoretical merely but of the most severely practical type. +The farmer represents a peculiarly high type of American citizenship, and +he must have the same chance to rise and develop as other American citizens +have. Moreover, it is exactly as true of the farmer, as it is of the +business man and the wageworker, that the ultimate success of the Nation of +which he forms a part must be founded not alone on material prosperity but +upon high moral, mental, and physical development. This education of the +farmer--self-education by preference but also education from the outside, +as with all other men--is peculiarly necessary here in the United States, +where the frontier conditions even in the newest States have now nearly +vanished, where there must be a substitution of a more intensive system of +cultivation for the old wasteful farm management, and where there must be a +better business organization among the farmers themselves. + +Several factors must cooperate in the improvement of the farmer's +condition. He must have the chance to be educated in the widest possible +sense--in the sense which keeps ever in view the intimate relationship +between the theory of education and the facts of life. In all education we +should widen our aims. It is a good thing to produce a certain number of +trained scholars and students; but the education superintended by the State +must seek rather to produce a hundred good citizens than merely one +scholar, and it must be turned now and then from the class book to the +study of the great book of nature itself. This is especially true of the +farmer, as has been pointed out again and again by all observers most +competent to pass practical judgment on the problems of our country life. +All students now realize that education must seek to train the executive +powers of young people and to confer more real significance upon the phrase +"dignity of labor," and to prepare the pupils so that, in addition to each +developing in the highest degree his individual capacity for work, they may +together help create a right public opinion, and show in many ways social +and cooperative spirit. Organization has become necessary in the business +world; and it has accomplished much for good in the world of labor. It is +no less necessary for farmers. Such a movement as the grange movement is +good in itself and is capable of a well-nigh infinite further extension for +good so long as it is kept to its own legitimate business. The benefits to +be derived by the association of farmers for mutual advantage are partly +economic and partly sociological. + +Moreover, while in the long run voluntary efforts will prove more +efficacious than government assistance, while the farmers must primarily do +most for themselves, yet the Government can also do much. The Department of +Agriculture has broken new ground in many directions, and year by year it +finds how it can improve its methods and develop fresh usefulness. Its +constant effort is to give the governmental assistance in the most +effective way; that is, thru associations of farmers rather than to or thru +individual farmers. It is also striving to coordinate its work with the +agricultural departments of the several States, and so far as its own work +is educational to coordinate it with the work of other educational +authorities. Agricultural education is necessarily based upon general +education, but our agricultural educational institutions are wisely +specializing themselves, making their courses relate to the actual teaching +of the agricultural and kindred sciences to young country people or young +city people who wish to live in the country. + +Great progress has already been made among farmers by the creation of +farmers' institutes, of dairy associations, of breeders' associations, +horticultural associations, and the like. A striking example of how the +Government and the farmers can cooperate is shown in connection with the +menace offered to the cotton growers of the Southern States by the advance +of the boll weevil. The Department is doing all it can to organize the +farmers in the threatened districts, just as it has been doing all it can +to organize them in aid of its work to eradicate the cattle fever tick in +the South. The Department can and will cooperate with all such +associations, and it must have their help if its own work is to be done in +the most efficient style. + +Much is now being done for the States of the Rocky Mountains and Great +Plains thru the development of the national policy of irrigation and forest +preservation; no Government policy for the betterment of our internal +conditions has been more fruitful of good than this. The forests of the +White Mountains and Southern Appalachian regions should also be preserved; +and they can not be unless the people of the States in which they lie, thru +their representatives in the Congress, secure vigorous action by the +National Government. + +I invite the attention of the Congress to the estimate of the Secretary of +War for an appropriation to enable him to begin the preliminary work for +the construction of a memorial amphitheater at Arlington. The Grand Army of +the Republic in its national encampment has urged the erection of such an +amphitheater as necessary for the proper observance Of Memorial Day and as +a fitting monument to the soldier and sailor dead buried there. In this I +heartily concur and commend the matter to the favorable consideration of +the Congress. + +I am well aware of how difficult it is to pass a constitutional amendment. +Nevertheless in my judgment the whole question of marriage and divorce +should be relegated to the authority of the National Congress. At present +the wide differences in the laws of the different States on this subject +result in scandals and abuses; and surely there is nothing so vitally +essential to the welfare of the nation, nothing around which the nation +should so bend itself to throw every safeguard, as the home life of the +average citizen. The change would be good from every standpoint. In +particular it would be good because it would confer on the Congress the +power at once to deal radically and efficiently with polygamy; and this +should be done whether or not marriage and divorce are dealt with. It is +neither safe nor proper to leave the question of polygamy to be dealt with +by the several States. Power to deal with it should be conferred on the +National Government. + +When home ties are loosened; when men and women cease to regard a worthy +family life, with all its duties fully performed, and all its +responsibilities lived up to, as the life best worth living; then evil days +for the commonwealth are at hand. There are regions in our land, and +classes of our population, where the birth rate has sunk below the death +rate. Surely it should need no demonstration to show that wilful sterility +is, from the standpoint of the nation, from the standpoint of the human +race, the one sin for which the penalty is national death, race death; a +sin for which there is no atonement; a sin which is the more dreadful +exactly in proportion as the men and women guilty thereof are in other +respects, in character, and bodily and mental powers, those whom for the +sake of the state it would be well to see the fathers and mothers of many +healthy children, well brought up in homes made happy by their presence. No +man, no woman, can shirk the primary duties of life, whether for love of +ease and pleasure, or for any other cause, and retain his or her +self-respect. + +Let me once again call the attention of the Congress to two subjects +concerning which I have frequently before communicated with them. One is +the question of developing American shipping. I trust that a law embodying +in substance the views, or a major part of the views, exprest in the report +on this subject laid before the House at its last session will be past. I +am well aware that in former years objectionable measures have been +proposed in reference to the encouragement of American shipping; but it +seems to me that the proposed measure is as nearly unobjectionable as any +can be. It will of course benefit primarily our seaboard States, such as +Maine, Louisiana, and Washington; but what benefits part of our people in +the end benefits all; just as Government aid to irrigation and forestry in +the West is really of benefit, not only to the Rocky Mountain States, but +to all our country. If it prove impracticable to enact a law for the +encouragement of shipping generally, then at least provision should be made +for better communication with South America, notably for fast mail lines to +the chief South American ports. It is discreditable to us that our business +people, for lack of direct communication in the shape of lines of steamers +with South America, should in that great sister continent be at a +disadvantage compared to the business people of Europe. + +I especially call your attention to the second subject, the condition of +our currency laws. The national bank act has ably served a great purpose in +aiding the enormous business development of the country; and within ten +years there has been an increase in circulation per capita from $21.41 to +$33.08. For several years evidence has been accumulating that additional +legislation is needed. The recurrence of each crop season emphasizes the +defects of the present laws. There must soon be a revision of them, because +to leave them as they are means to incur liability of business disaster. +Since your body adjourned there has been a fluctuation in the interest on +call money from 2 per cent to 30 per cent; and the fluctuation was even +greater during the preceding six months. The Secretary of the Treasury had +to step in and by wise action put a stop to the most violent period of +oscillation. Even worse than such fluctuation is the advance in commercial +rates and the uncertainty felt in the sufficiency of credit even at high +rates. All commercial interests suffer during each crop period. Excessive +rates for call money in New York attract money from the interior banks into +the speculative field; this depletes the fund that would otherwise be +available for commercial uses, and commercial borrowers are forced to pay +abnormal rates; so that each fall a tax, in the shape of increased interest +charges, is placed on the whole commerce of the country. + +The mere statement of these has shows that our present system is seriously +defective. There is need of a change. Unfortunately, however, many of the +proposed changes must be ruled from consideration because they are +complicated, are not easy of comprehension, and tend to, disturb existing +rights and interests. We must also rule out any plan which would materially +impair the value of the United States 2 per cent bonds now pledged to +secure circulations, the issue of which was made under conditions +peculiarly creditable to the Treasury. I do not press any especial plan. +Various plans have recently been proposed by expert committees of bankers. +Among the plans which are possibly feasible and which certainly should +receive your consideration is that repeatedly brought to your attention by +the present Secretary of the Treasury, the essential features of which have +been approved by many prominent bankers and business men. According to this +plan national banks should be permitted to issue a specified proportion of +their capital in notes of a given kind, the issue to be taxed at so high a +rate as to drive the notes back when not wanted in legitimate trade. This +plan would not permit the issue of currency to give banks additional +profits, but to meet the emergency presented by times of stringency. + +I do not say that this is the right system. I only advance it to emphasize +my belief that there is need for the adoption of some system which shall be +automatic and open to all sound banks, so as to avoid all possibility of +discrimination and favoritism. Such a plan would tend to prevent the spasms +of high money and speculation which now obtain in the New York market; for +at present there is too much currency at certain seasons of the year, and +its accumulation at New York tempts bankers to lend it at low rates for +speculative purposes; whereas at other times when the crops are being moved +there is urgent need for a large but temporary increase in the currency +supply. It must never be forgotten that this question concerns business men +generally quite as much as bankers; especially is this true of stockmen, +farmers, and business men in the West; for at present at certain seasons of +the year the difference in interest rates between the East and the West is +from 6 to 10 per cent, whereas in Canada the corresponding difference is +but 2 per cent. Any plan must, of course, guard the interests of western +and southern bankers as carefully as it guards the interests of New York or +Chicago bankers; and must be drawn from the standpoints of the farmer and +the merchant no less than from the standpoints of the city banker and the +country banker. + +The law should be amended so as specifically to provide that the funds +derived from customs duties may be treated by the Secretary of the Treasury +as he treats funds obtained under the internal-revenue laws. There should +be a considerable increase in bills of small denominations. Permission +should be given banks, if necessary under settled restrictions, to retire +their circulation to a larger amount than three millions a month. + +I most earnestly hope that the bill to provide a lower tariff for or else +absolute free trade in Philippine products will become a law. No harm will +come to any American industry; and while there will be some small but real +material benefit to the Filipinos, the main benefit will come by the +showing made as to our purpose to do all in our power for their welfare. So +far our action in the Philippines has been abundantly justified, not mainly +and indeed not primarily because of the added dignity it has given us as a +nation by proving that we are capable honorably and efficiently to bear the +international burdens which a mighty people should bear, but even more +because of the immense benefit that has come to the people of the +Philippine Islands. In these islands we are steadily introducing both +liberty and order, to a greater degree than their people have ever before +known. We have secured justice. We have provided an efficient police force, +and have put down ladronism. Only in the islands of Leyte and Samar is the +authority of our Government resisted and this by wild mountain tribes under +the superstitious inspiration of fakirs and pseudo-religions leaders. We +are constantly increasing the measure of liberty accorded the islanders, +and next spring, if conditions warrant, we shall take a great stride +forward in testing their capacity for self-government by summoning the +first Filipino legislative assembly; and the way in which they stand this +test will largely determine whether the self-government thus granted will +be increased or decreased; for if we have erred at all in the Philippines +it has been in proceeding too rapidly in the direction of granting a large +measure of self-government. We are building roads. We have, for the +immeasurable good of the people, arranged for the building of railroads. +Let us also see to it that they are given free access to our markets. This +nation owes no more imperative duty to itself and mankind than the duty of +managing the affairs of all the islands under the American flag--the +Philippines, Porto Rico, and Hawaii--so as to make it evident that it is in +every way to their advantage that the flag should fly over them. + +American citizenship should be conferred on the citizens of Porto Rico. The +harbor of San Juan in Porto Rico should be dredged and improved. The +expenses of the federal court of Porto Rico should be met from the Federal +Treasury. The administration of the affairs of Porto Rico, together with +those of the Philippines, Hawaii, and our other insular possessions, should +all be directed under one executive department; by preference the +Department of State or the Department of War. + +The needs of Hawaii are peculiar; every aid should be given the islands; +and our efforts should be unceasing to develop them along the lines of a +community of small freeholders, not of great planters with coolie-tilled +estates. Situated as this Territory is, in the middle of the Pacific, there +are duties imposed upon this small community which do not fall in like +degree or manner upon any other American community. This warrants our +treating it differently from the way in which we treat Territories +contiguous to or surrounded by sister Territories or other States, and +justifies the setting aside of a portion of our revenues to be expended for +educational and internal improvements therein. Hawaii is now making an +effort to secure immigration fit in the end to assume the duties and +burdens of full American citizenship, and whenever the leaders in the +various industries of those islands finally adopt our ideals and heartily +join our administration in endeavoring to develop a middle class of +substantial citizens, a way will then be found to deal with the commercial +and industrial problems which now appear to them so serious. The best +Americanism is that which aims for stability and permanency of prosperous +citizenship, rather than immediate returns on large masses of capital. + +Alaska's needs have been partially met, but there must be a complete +reorganization of the governmental system, as I have before indicated to +you. I ask your especial attention to this. Our fellow-citizens who dwell +on the shores of Puget Sound with characteristic energy are arranging to +hold in Seattle the Alaska Yukon Pacific Exposition. Its special aims +include the upbuilding of Alaska and the development of American commerce +on the Pacific Ocean. This exposition, in its purposes and scope, should +appeal not only to the people of the Pacific slope, but to the people of +the United States at large. Alaska since it was bought has yielded to the +Government eleven millions of dollars of revenue, and has produced nearly +three hundred millions of dollars in gold, furs, and fish. When properly +developed it will become in large degree a land of homes. The countries +bordering the Pacific Ocean have a population more numerous than that of +all the countries of Europe; their annual foreign commerce amounts to over +three billions of dollars, of which the share of the United States is some +seven hundred millions of dollars. If this trade were thoroly understood +and pushed by our manufacturers and producers, the industries not only of +the Pacific slope, but of all our country, and particularly of our +cotton-growing States, would be greatly benefited. Of course, in order to +get these benefits, we must treat fairly the countries with which we +trade. + +It is a mistake, and it betrays a spirit of foolish cynicism, to maintain +that all international governmental action is, and must ever be, based upon +mere selfishness, and that to advance ethical reasons for such action is +always a sign of hypocrisy. This is no more necessarily true of the action +of governments than of the action of individuals. It is a sure sign of a +base nature always to ascribe base motives for the actions of others. +Unquestionably no nation can afford to disregard proper considerations of +self-interest, any more than a private individual can so do. But it is +equally true that the average private individual in any really decent +community does many actions with reference to other men in which he is +guided, not by self-interest, but by public spirit, by regard for the +rights of others, by a disinterested purpose to do good to others, and to +raise the tone of the community as a whole. Similarly, a really great +nation must often act, and as a matter of fact often does act, toward other +nations in a spirit not in the least of mere self-interest, but paying heed +chiefly to ethical reasons; and as the centuries go by this +disinterestedness in international action, this tendency of the individuals +comprising a nation to require that nation to act with justice toward its +neighbors, steadily grows and strengthens. It is neither wise nor right for +a nation to disregard its own needs, and it is foolish--and may be +wicked--to think that other nations will disregard theirs. But it is wicked +for a nation only to regard its own interest, and foolish to believe that +such is the sole motive that actuates any other nation. It should be our +steady aim to raise the ethical standard of national action just as we +strive to raise the ethical standard of individual action. + +Not only must we treat all nations fairly, but we must treat with justice +and good will all immigrants who come here under the law. Whether they are +Catholic or Protestant, Jew or Gentile; whether they come from England or +Germany, Russia, Japan, or Italy, matters nothing. All we have a right to +question is the man's conduct. If he is honest and upright in his dealings +with his neighbor and with the State, then he is entitled to respect and +good treatment. Especially do we need to remember our duty to the stranger +within our gates. It is the sure mark of a low civilization, a low +morality, to abuse or discriminate against or in any way humiliate such +stranger who has come here lawfully and who is conducting himself properly. +To remember this is incumbent on every American citizen, and it is of +course peculiarly incumbent on every Government official, whether of the +nation or of the several States. + +I am prompted to say this by the attitude of hostility here and there +assumed toward the Japanese in this country. This hostility is sporadic and +is limited to a very few places. Nevertheless, it is most discreditable to +us as a people, and it may be fraught with the gravest consequences to the +nation. The friendship between the United States and Japan has been +continuous since the time, over half a century ago, when Commodore Perry, +by his expedition to Japan, first opened the islands to western +civilization. Since then the growth of Japan has been literally astounding. +There is not only nothing to parallel it, but nothing to approach it in the +history of civilized mankind. Japan has a glorious and ancient past. Her +civilization is older than that of the nations of northern Europe--the +nations from whom the people of the United States have chiefly sprung. But +fifty years ago Japan's development was still that of the Middle Ages. +During that fifty years the progress of the country in every walk in life +has been a marvel to mankind, and she now stands as one of the greatest of +civilized nations; great in the arts of war and in the arts of peace; great +in military, in industrial, in artistic development and achievement. +Japanese soldiers and sailors have shown themselves equal in combat to any +of whom history makes note. She has produced great generals and mighty +admirals; her fighting men, afloat and ashore, show all the heroic courage, +the unquestioning, unfaltering loyalty, the splendid indifference to +hardship and death, which marked the Loyal Ronins; and they show also that +they possess the highest ideal of patriotism. Japanese artists of every +kind see their products eagerly sought for in all lands. The industrial and +commercial development of Japan has been phenomenal; greater than that of +any other country during the same period. At the same time the advance in +science and philosophy is no less marked. The admirable management of the +Japanese Red Cross during the late war, the efficiency and humanity of the +Japanese officials, nurses, and doctors, won the respectful admiration of +all acquainted with the facts. Thru the Red Cross the Japanese people sent +over $100,000 to the sufferers of San Francisco, and the gift was accepted +with gratitude by our people. The courtesy of the Japanese, nationally and +individually, has become proverbial. To no other country has there been +such an increasing number of visitors from this land as to Japan. In +return, Japanese have come here in great numbers. They are welcome, +socially and intellectually, in all our colleges and institutions of higher +learning, in all our professional and social bodies. The Japanese have won +in a single generation the right to stand abreast of the foremost and most +enlightened peoples of Europe and America; they have won on their own +merits and by their own exertions the right to treatment on a basis of full +and frank equality. The overwhelming mass of our people cherish a lively +regard and respect for the people of Japan, and in almost every quarter of +the Union the stranger from Japan is treated as he deserves; that is, he is +treated as the stranger from any part of civilized Europe is and deserves +to be treated. But here and there a most unworthy feeling has manifested +itself toward the Japanese--the feeling that has been shown in shutting +them out from the common schools in San Francisco, and in mutterings +against them in one or two other places, because of their efficiency as +workers. To shut them out from the public schools is a wicked absurdity, +when there are no first-class colleges in the land, including the +universities and colleges of California, which do not gladly welcome +Japanese students and on which Japanese students do not reflect credit. We +have as much to learn from Japan as Japan has to learn from us; and no +nation is fit to teach unless it is also willing to learn. Thruout Japan +Americans are well treated, and any failure on the part of Americans at +home to treat the Japanese with a like courtesy and consideration is by +just so much a confession of inferiority in our civilization. + +Our nation fronts on the Pacific, just as it fronts on the Atlantic. We +hope to play a constantly growing part in the great ocean of the Orient. We +wish, as we ought to wish, for a great commercial development in our +dealings with Asia; and it is out of the question that we should +permanently have such development unless we freely and gladly extend to +other nations the same measure of justice and good treatment which we +expect to receive in return. It is only a very small body of our citizens +that act badly. Where the Federal Government has power it will deal +summarily with any such. Where the several States have power I earnestly +ask that they also deal wisely and promptly with such conduct, or else this +small body of wrongdoers may bring shame upon the great mass of their +innocent and right-thinking fellows--that is, upon our nation as a whole. +Good manners should be an international no less than an individual +attribute. I ask fair treatment for the Japanese as I would ask fair +treatment for Germans or Englishmen, Frenchmen, Russians, or Italians. I +ask it as due to humanity and civilization. I ask it as due to ourselves +because we must act uprightly toward all men. + +I recommend to the Congress that an act be past specifically providing for +the naturalization of Japanese who come here intending to become American +citizens. One of the great embarrassments attending the performance of our +international obligations is the fact that the Statutes of the United +States are entirely inadequate. They fail to give to the National +Government sufficiently ample power, thru United States courts and by the +use of the Army and Navy, to protect aliens in the rights secured to them +under solemn treaties which are the law of the land. I therefore earnestly +recommend that the criminal and civil statutes of the United States be so +amended and added to as to enable the President, acting for the United +States Government, which is responsible in our international relations, to +enforce the rights of aliens under treaties. Even as the law now is +something can be done by the Federal Government toward this end, and in the +matter now before me affecting the Japanese everything that it is in my +power to do will be done, and all of the forces, military and civil, of the +United States which I may lawfully employ will be so employed. There +should, however, be no particle of doubt as to the power of the National +Government completely to perform and enforce its own obligations to other +nations. The mob of a single city may at any time perform acts of lawless +violence against some class of foreigners which would plunge us into war. +That city by itself would be powerless to make defense against the foreign +power thus assaulted, and if independent of this (Government it would never +venture to perform or permit the performance of the acts complained of. The +entire power and the whole duty to protect the offending city or the +offending community lies in the hands of the United States Government. It +is unthinkable that we should continue a policy under which a given +locality may be allowed to commit a crime against a friendly nation, and +the United States Government limited, not to preventing the commission of +the crime, but, in the last resort, to defending the people who have +committed it against the consequences of their own wrongdoing. + +Last August an insurrection broke out in Cuba which it speedily grew +evident that the existing Cuban Government was powerless to quell. This +Government was repeatedly asked by the then Cuban Government to intervene, +and finally was notified by the President of Cuba that he intended to +resign; that his decision was irrevocable; that none of the other +constitutional officers would consent to carry on the Government, and that +he was powerless to maintain order. It was evident that chaos was +impending, and there was every probability that if steps were not +immediately taken by this Government to try to restore order the +representatives of various European nations in the island would apply to +their respective governments for armed intervention in order to protect the +lives and property of their citizens. Thanks to the preparedness of our +Navy, I was able immediately to send enough ships to Cuba to prevent the +situation from becoming hopeless; and I furthermore dispatched to Cuba the +Secretary of War and the Assistant Secretary of State, in order that they +might grapple with the situation on the ground. All efforts to secure an +agreement between the contending factions, by which they should themselves +come to an amicable understanding and settle upon some modus vivendi--some +provisional government of their own--failed. Finally the President of the +Republic resigned. The quorum of Congress assembled failed by deliberate +purpose of its members, so that there was no power to act on his +resignation, and the Government came to a halt. In accordance with the +so-called Platt amendment, which was embodied in the constitution of Cuba, +I thereupon proclaimed a provisional government for the island, the +Secretary of War acting as provisional governor until he could be replaced +by Mr. Magoon, the late minister to Panama and governor of the Canal Zone +on the Isthmus; troops were sent to support them and to relieve the Navy, +the expedition being handled with most satisfactory speed and efficiency. +The insurgent chiefs immediately agreed that their troops should lay down +their arms and disband; and the agreement was carried out. The provisional +government has left the personnel of the old government and the old laws, +so far as might be, unchanged, and will thus administer the island for a +few months until tranquillity. can be restored, a new election properly +held, and a new government inaugurated. Peace has come in the island; and +the harvesting of the sugar-cane crop, the great crop of the island, is +about to proceed. + +When the election has been held and the new government inaugurated in +peaceful and orderly fashion the provisional government will come to an +end. I take this opportunity of expressing upon behalf of the American +people, with all possible solemnity, our most earnest hope that the people +of Cuba will realize the imperative need of preserving justice and keeping +order in the Island. The United States wishes nothing of Cuba except that +it shall prosper morally and materially, and wishes nothing of the Cubans +save that they shall be able to preserve order among themselves and +therefore to preserve their independence. If the elections become a farce, +and if the insurrectionary habit becomes confirmed in the Island, it is +absolutely out of the question that the Island should continue independent; +and the United States, which has assumed the sponsorship before the +civilized world for Cuba's career as a nation, would again have to +intervene and to see that the government was managed in such orderly +fashion as to secure the safety cf life and property. The path to be +trodden by those who exercise self-government is always hard, and we should +have every charity and patience with the Cubans as they tread this +difficult path. I have the utmost sympathy with, and regard for, them; but +I most earnestly adjure them solemnly to weigh their responsibilities and +to see that when their new government is started it shall run smoothly, and +with freedom from flagrant denial of right on the one hand, and from +insurrectionary disturbances on the other. + +The Second International Conference of American Republics, held in Mexico +in the years 1901-2, provided for the holding of the third conference +within five years, and committed the fixing of the time and place and the +arrangements for the conference to the governing board of the Bureau of +American Republics, composed of the representatives of all the American +nations in Washington. That board discharged the duty imposed upon it with +marked fidelity and painstaking care, and upon the courteous invitation of +the United States of Brazil the conference was held at Rio de Janeiro, +continuing from the 23d of July to the 29th of August last. Many subjects +of common interest to all the American nations were discust by the +conference, and the conclusions reached, embodied in a series of +resolutions and proposed conventions, will be laid before you upon the +coming in of the final report of the American delegates. They contain many +matters of importance relating to the extension of trade, the increase of +communication, the smoothing away of barriers to free intercourse, and the +promotion of a better knowledge and good understanding between the +different countries represented. The meetings of the conference were +harmonious and the conclusions were reached with substantial unanimity. It +is interesting to observe that in the successive conferences which have +been held the representatives of the different American nations have been +learning' to work together effectively, for, while the First Conference in +Washington in 1889, and the Second Conference in Mexico in 1901-2, occupied +many months, with much time wasted in an unregulated and fruitless +discussion, the Third Conference at Rio exhibited much of the facility in +the practical dispatch of business which characterizes permanent +deliberative bodies, and completed its labors within the period of six +weeks originally allotted for its sessions. + +Quite apart from the specific value of the conclusions reached by the +conference, the example of the representatives of all the American nations +engaging in harmonious and kindly consideration and discussion of subjects +of common interest is itself of great and substantial value for the +promotion of reasonable and considerate treatment of all international +questions. The thanks of this country are due to the Government of Brazil +and to the people of Rio de Janeiro for the generous hospitality with which +our delegates, in common with the others, were received, entertained, and +facilitated in their work. + +Incidentally to the meeting of the conference, the Secretary of State +visited the city of Rio de Janeiro and was cordially received by the +conference, of which he was made an honorary president. The announcement of +his intention to make this visit was followed by most courteous and urgent +invitations from nearly all the countries of South America to visit them as +the guest of their Governments. It was deemed that by the acceptance of +these invitations we might appropriately express the real respect and +friendship in which we hold our sister Republics of the southern continent, +and the Secretary, accordingly, visited Brazil, Uruguay, Argentina, Chile, +Peru, Panama, and Colombia. He refrained from visiting Paraguay, Bolivia, +and Ecuador only because the distance of their capitals from the seaboard +made it impracticable with the time at his disposal. He carried with him a +message of peace and friendship, and of strong desire for good +understanding and mutual helpfulness; and he was everywhere received in the +spirit of his message. The members of government, the press, the learned +professions, the men of business, and the great masses of the people united +everywhere in emphatic response to his friendly expressions and in doing +honor to the country and cause which he represented. + +In many parts of South America there has been much misunderstanding of the +attitude and purposes of the United States towards the other American +Republics. An idea had become prevalent that our assertion of the Monroe +Doctrine implied, or carried with it, an assumption of superiority, and of +a right to exercise some kind of protectorate over the countries to whose +territory that doctrine applies. Nothing could be farther from the truth. +Yet that impression continued to be a serious barrier to good +understanding, to friendly intercourse, to the introduction of American +capital and the extension of American trade. The impression was so +widespread that apparently it could not be reached by any ordinary means. + +It was part of Secretary Root's mission to dispel this unfounded +impression, and there is just cause to believe that he has succeeded. In an +address to the Third Conference at Rio on the 31st of July--an address of +such note that I send it in, together with this message--he said: + +"We wish for no victories but those of peace; for no territory except our +own; for no sovereignty except the sovereignty over ourselves. We deem the +independence and equal rights of the smallest and weakest member of the +family of nations entitled to as much respect as those of the greatest +empire, and we deem the observance of that respect the chief guaranty of +the weak against the oppression of the strong. We neither claim nor desire +any rights or privileges or powers that we do not freely concede to every +American Republic. We wish to increase our prosperity, to extend our trade, +to grow in wealth, in wisdom, and in spirit, but our conception of the true +way to accomplish this is not to pull down others and profit by their ruin, +but to help all friends to a common prosperity and a common growth, that we +may all become greater and stronger together. Within a few months for the +first time the recognized possessors of every foot of soil upon the +American continents can be and I hope will be represented with the +acknowledged rights of equal sovereign states in the great World Congress +at The Hague. This will be the world's formal and final acceptance of the +declaration that no part of the American continents is to be deemed subject +to colonization. Let us pledge ourselves to aid each other in the full +performance of the duty to humanity which that accepted declaration +implies, so that in time the weakest and most unfortunate of our Republics +may come to march with equal step by the side of the stronger and more +fortunate. Let us help each other to show that for all the races of men the +liberty for which we have fought and labored is the twin sister of justice +and peace. Let us unite in creating and maintaining and making effective an +all-American public opinion, whose power shall influence international +conduct and prevent international wrong, and narrow the causes of war, and +forever preserve our free lands from the burden of such armaments as are +massed behind the frontiers of Europe, and bring us ever nearer to the +perfection of ordered liberty. So shall come security and prosperity, +production and trade, wealth, learning, the arts, and happiness for us +all." + +These words appear to have been received with acclaim in every part of +South America. They have my hearty approval, as I am sure they will have +yours, and I can not be wrong in the conviction that they correctly +represent the sentiments of the whole American people. I can not better +characterize the true attitude of the United States in its assertion of the +Monroe Doctrine than in the words of the distinguished former minister of +foreign affairs of Argentina, Doctor Drago, in his speech welcoming Mr. +Root at Buenos Ayres. He spoke of-- + +"The traditional policy of the United States (which) without accentuating +superiority or seeking preponderance, condemned the oppression of the +nations of this part of the world and the control of their destinies by the +great Powers of Europe." + +It is gratifying to know that in the great city of Buenos Ayres, upon the +arches which spanned the streets, entwined with Argentine and American +flags for the reception of our representative, there were emblazoned not' +only the names of Washington and Jefferson and Marshall, but also, in +appreciative recognition of their services to the cause of South American +independence, the names of James Monroe, John Quincy Adams, Henry Clay, and +Richard Rush. We take especial pleasure in the graceful courtesy of the +Government of Brazil, which has given to the beautiful and stately building +first used for the meeting of the conference the name of "Palacio Monroe." +Our grateful acknowledgments are due to the Governments and the people of +all the countries visited by the Secretary of State for the courtesy, the +friendship, and the honor shown to our country in their generous +hospitality to him. + +In my message to you on the 5th of December, 1905, I called your attention +to the embarrassment that might be caused to this Government by the +assertion by foreign nations of the right to collect by force of arms +contract debts due by American republics to citizens of the collecting +nation, and to the danger that the process of compulsory collection might +result in the occupation of territory tending to become permanent. I then +said: + +"Our own Government has always refused to enforce such contractual +obligations on behalf of its citizens by an appeal to arms. It is much to +be wisht that all foreign governments would take the same view." + +This subject was one of the topics of consideration at the conference at +Rio and a resolution was adopted by that conference recommending to the +respective governments represented "to consider the advisability of asking +the Second Peace Conference at The Hague to examine the question of the +compulsory collection of public debts, and, in general, means tending to +diminish among nations conflicts of purely pecuniary origin." + +This resolution was supported by the representatives of the United States +in accordance with the following instructions: + +"It has long been the established policy of the United States not to use +its armed forces for the collection of ordinary contract debts due to its +citizens by other governments. We have not considered the use of force for +such a purpose consistent with that respect for the independent sovereignty +of other members of the family of nations which is the most important +principle of international law and the chief protection of weak nations +against the oppression of the strong. It seems to us that the practise is +injurious in its general effect upon the relations of nations and upon the +welfare of weak and disordered states, whose development ought to be +encouraged in the interests of civilization; that it offers frequent +temptation to bullying and oppression and to unnecessary and unjustifiable +warfare. We regret that other powers, whose opinions and sense of justice +we esteem highly, have at times taken a different view and have permitted +themselves, tho we believe with reluctance, to collect such debts by force. +It is doubtless true that the non-payment of public debts may be +accompanied by such circumstances of fraud and wrongdoing or violation of +treaties as to justify the use of force. This Government would be glad to +see an international consideration of the subject which shall discriminate +between such cases and the simple nonperformance of a contract with a +private person, and a resolution in favor of reliance upon peaceful means +in cases of the latter class. + +"It is not felt, however, that the conference at Rio should undertake to +make such a discrimination or to resolve upon such a rule. Most of the +American countries are still debtor nations, while the countries of Europe +are the creditors. If the Rio conference, therefore, were to take such +action it would have the appearance of a meeting of debtors resolving how +their creditors should act, and this would not inspire respect. The true +course is indicated by the terms of the program, which proposes to request +the Second Hague Conference, where both creditors and debtors will be +assembled, to consider the subject." + +Last June trouble which had existed for some time between the Republics of +Salvador, Guatemala, and Honduras culminated in war--a war which threatened +to be ruinous to the countries involved and very destructive to the +commercial interests of Americans, Mexicans, and other foreigners who are +taking an important part in the development of these countries. The thoroly +good understanding which exists between the United States and Mexico +enabled this Government and that of Mexico to unite in effective mediation +between the warring Republics; which mediation resulted, not without +long-continued and patient effort, in bringing about a meeting of the +representatives of the hostile powers on board a United States warship as +neutral territory, and peace was there concluded; a peace which resulted in +the saving of thousands of lives and in the prevention of an incalculable +amount of misery and the destruction of property and of the means of +livelihood. The Rio Conference past the following resolution in reference +to this action: + +"That the Third International American Conference shall address to the +Presidents of the United States of America and of the United States of +Mexico a note in which the conference which is being held at Rio expresses +its satisfaction at the happy results of their mediation for the +celebration of peace between the Republics of Guatemala, Honduras, and +Salvador." + +This affords an excellent example of one way in which the influence of the +United States can properly be exercised for the benefit of the peoples of +the Western Hemisphere; that is, by action taken in concert with other +American republics and therefore free from those suspicions and prejudices +which might attach if the action were taken by one alone. In this way it is +possible to exercise a powerful influence toward the substitution of +considerate action in the spirit of justice for the insurrectionary or +international violence which has hitherto been so great a hindrance to the +development of many of our neighbors. Repeated examples of united action by +several or many American republics in favor of peace, by urging cool and +reasonable, instead of excited and belligerent, treatment of international +controversies, can not fail to promote the growth of a general public +opinion among the American nations which will elevate the standards of +international action, strengthen the sense of international duty among +governments, and tell in favor of the peace of mankind. + +I have just returned from a trip to Panama and shall report to you at +length later on the whole subject of the Panama Canal. + +The Algeciras Convention, which was signed by the United States as well as +by most of the powers of Europe, supersedes the previous convention of +1880, which was also signed both by the United States and a majority of the +European powers. This treaty confers upon us equal commercial rights with +all European countries and does not entail a single obligation of any kind +upon us, and I earnestly hope it may be speedily ratified. To refuse to +ratify it would merely mean that we forfeited our commercial rights in +Morocco and would not achieve another object of any kind. In the event of +such refusal we would be left for the first time in a hundred and twenty +years without any commercial treaty with Morocco; and this at a time when +we are everywhere seeking new markets and outlets for trade. + +The destruction of the Pribilof Islands fur seals by pelagic sealing still +continues. The herd which, according to the surveys made in 1874 by +direction of the Congress, numbered 4,700,000, and which, according to the +survey of both American and Canadian commissioners in 1891, amounted to +1,000,000, has now been reduced to about 180,000. This result has been +brought about by Canadian and some other sealing vessels killing the female +seals while in the water during their annual pilgrimage to and from the +south, or in search of food. As a rule the female seal when killed is +pregnant, and also has an unweaned pup on land, so that, for each skin +taken by pelagic sealing, as a rule, three lives are destroyed--the mother, +the unborn offspring, and the nursing pup, which is left to starve to +death. No damage whatever is done to the herd by the carefully regulated +killing on land; the custom of pelagic sealing is solely responsible for +all of the present evil, and is alike indefensible from the economic +standpoint and from the standpoint of humanity. + +In 1896 over 16,000 young seals were found dead from starvation on the +Pribilof Islands. In 1897 it was estimated that since pelagic sealing began +upward of 400,000 adult female seals had been killed at sea, and over +300,000 young seals had died of starvation as the result. The revolting +barbarity of such a practise, as well as the wasteful destruction which it +involves, needs no demonstration and is its own condemnation. The Bering +Sea Tribunal, which sat in Paris in 1893, and which decided against the +claims of the United States to exclusive jurisdiction in the waters of +Bering Sea and to a property right in the fur seals when outside of the +three-mile limit, determined also upon certain regulations which the +Tribunal considered sufficient for the proper protection and preservation +of the fur seal. in, or habitually resorting to, the Bering Sea. The +Tribunal by its regulations established a close season, from the 1st of May +to the 31st of July, and excluded all killing in the waters within 60 miles +around the Pribilof Islands. They also provided that the regulations which +they had determined upon, with a view to the protection and preservation of +the seals, should be submitted every five years to new examination, so as +to enable both interested Governments to consider whether, in the light of +past experience, there was occasion for any modification thereof. + +The regulations have proved plainly inadequate to accomplish the object of +protection and preservation of the fur seals, and for a long time this +Government has been trying in vain to secure from Great Britain such +revision and modification of the regulations as were contemplated and +provided for by the award of the Tribunal of Paris. + +The process of destruction has been accelerated during recent years by the +appearance of a number of Japanese vessels engaged in pelagic sealing. As +these vessels have not been bound even by the inadequate limitations +prescribed by the Tribunal of Paris, they have paid no attention either to +the close season or to the sixty-mile limit imposed upon the Canadians, and +have prosecuted their work up to the very islands themselves. On July 16 +and 17 the crews from several Japanese vessels made raids upon the island +of St. Paul, and before they were beaten off by the very meager and +insufficiently armed guard, they succeeded in killing several hundred seals +and carrying off the skins of most of them. Nearly all the seals killed +were females and the work was done with frightful barbarity. Many of the +seals appear to have been skinned alive and many were found half skinned +and still alive. The raids were repelled only by the use of firearms, and +five of the raiders were killed, two were wounded, and twelve captured, +including the two wounded. Those captured have since been tried and +sentenced to imprisonment. An attack of this kind had been wholly unlookt +for, but such provision of vessels, arms, and ammunition will now be made +that its repetition will not be found profitable. + +Suitable representations regarding the incident have been made to the +Government of Japan, and we are assured that all practicable measures will +be taken by that country to prevent any recurrence of the outrage. On our +part, the guard on the island will be increased and better equipped and +organized, and a better revenue-cutter patrol service about the islands +will be established; next season a United States war vessel will also be +sent there. + +We have not relaxed our efforts to secure an agreement with Great Britain +for adequate protection of the seal herd, and negotiations with Japan for +the same purpose are in progress. + +The laws for the protection of the seals within the jurisdiction of the +United States need revision and amendment. Only the islands of St. Paul and +St. George are now, in terms, included in the Government reservation, and +the other islands are also to be included. The landing of aliens as well as +citizens upon the islands, without a permit from the Department of Commerce +and Labor, for any purpose except in case of stress of weather or for +water, should be prohibited under adequate penalties. The approach of +vessels for the excepted purposes should be regulated. The authority of the +Government agents on the islands should be enlarged, and the chief agent +should have the powers of a committing magistrate. The entrance of a vessel +into the territorial waters surrounding the islands with intent to take +seals should be made a criminal offense and cause of forfeiture. Authority +for seizures in such cases should be given and the presence on any such +vessel of seals or sealskins, or the paraphernalia for taking them, should +be made prima facie evidence of such intent. I recommend what legislation +is needed to accomplish these ends; and I commend to your attention the +report of Mr. Sims, of the Department of Commerce and Labor, on this +subject. + +In case we are compelled to abandon the hope of making arrangements with +other governments to put an end to the hideous cruelty now incident to +pelagic sealing, it will be a question for your serious consideration how +far we should continue to protect and maintain the seal herd on land with +the result of continuing such a practise, and whether it is not better to +end the practice by exterminating the herd ourselves in the most humane way +possible. + +In my last message I advised you that the Emperor of Russia had taken the +initiative in bringing about a second peace conference at The Hague. Under +the guidance of Russia the arrangement of the preliminaries for such a +conference has been progressing during the past year. Progress has +necessarily been slow, owing to the great number of countries to be +consulted upon every question that has arisen. It is a matter of +satisfaction that all of the American Republics have now, for the first +time, been invited to join in the proposed conference. + +The close connection between the subjects to be taken up by the Red Cross +Conference held at Geneva last summer and the subjects which naturally +would come before The Hague Conference made it apparent that it was +desirable to have the work of the Red Cross Conference completed and +considered by the different powers before the meeting at The Hague. The Red +Cross Conference ended its labors on the 6th day of July, and the revised +and amended convention, which was signed by the American delegates, will be +promptly laid before the Senate. + +By the special and highly appreciated courtesy of the Governments of Russia +and the Netherlands, a proposal to call The Hague Conference together at a +time which would conflict with the Conference of the American Republics at +Rio de Janeiro in August was laid aside. No other date has yet been +suggested. A tentative program for the conference has been proposed by the +Government of Russia, and the subjects which it enumerates are undergoing +careful examination and consideration in preparation for the conference. + +It must ever be kept in mind that war is not merely justifiable, but +imperative, upon honorable men, upon an honorable nation, where peace can +only be obtained by the sacrifice of conscientious conviction or of +national welfare. Peace is normally a great good, and normally it coincides +with righteousness; but it is righteousness and not peace which should bind +the conscience of a nation as it should bind the conscience of an +individual; and neither a nation nor an individual can surrender conscience +to another's keeping. Neither can a nation, which is an entity, and which +does not die as individuals die, refrain from taking thought for the +interest of the generations that are to come, no less than for the interest +of the generation of to-day; and no public men have a right, whether from +shortsightedness, from selfish indifference, or from sentimentality, to +sacrifice national interests which are vital in character. A just war is in +the long run far better for a nation's soul than the most prosperous peace +obtained by acquiescence in wrong or injustice. Moreover, tho it is +criminal for a nation not to prepare for war, so that it may escape the +dreadful consequences of being defeated in war, yet it must always be +remembered that even to be defeated in war may be far better than not to +have fought at all. As has been well and finely said, a beaten nation is +not necessarily a disgraced nation; but the nation or man is disgraced if +the obligation to defend right is shirked. + +We should as a nation do everything in our power for the cause of honorable +peace. It is morally as indefensible for a nation to commit a wrong upon +another nation, strong or weak, as for an individual thus to wrong his +fellows. We should do all in our power to hasten the day when there shall +be peace among the nations--a peace based upon justice and not upon +cowardly submission to wrong. We can accomplish a good deal in this +direction, but we can not accomplish everything, and the penalty of +attempting to do too much would almost inevitably be to do worse than +nothing; for it must be remembered that fantastic extremists are not in +reality leaders of the causes which they espouse, but are ordinarily those +who do most to hamper the real leaders of the cause and to damage the cause +itself. As yet there is no likelihood of establishing any kind of +international power, of whatever sort, which can effectively check +wrongdoing, and in these circumstances it would be both a foolish and an +evil thing for a great and free nation to deprive itself of the power to +protect its own rights and even in exceptional cases to stand up for the +rights of others. Nothing would more promote iniquity, nothing would +further defer the reign upon earth of peace and righteousness, than for the +free and enlightened peoples which, tho with much stumbling and many +shortcomings, nevertheless strive toward justice, deliberately to render +themselves powerless while leaving every despotism and barbarism armed and +able to work their wicked will. The chance for the settlement of disputes +peacefully, by arbitration, now depends mainly upon the possession by the +nations that mean to do right of sufficient armed strength to make their +purpose effective. + +The United States Navy is the surest guarantor of peace which this country +possesses. It is earnestly to be wisht that we would profit by the +teachings of history in this matter. A strong and wise people will study +its own failures no less than its triumphs, for there is wisdom to be +learned from the study of both, of the mistake as well as of the success. +For this purpose nothing could be more instructive than a rational study of +the war of 1812, as it is told, for instance, by Captain Mahan. There was +only one way in which that war could have been avoided. If during the +preceding twelve years a navy relatively as strong as that which this +country now has had been built up, and an army provided relatively as good +as that which the country now has, there never would have been the +slightest necessity of fighting the war; and if the necessity had arisen +the war would under such circumstances have ended with our speedy and +overwhelming triumph. But our people during those twelve years refused to +make any preparations whatever, regarding either the Army or the Navy. They +saved a million or two of dollars by so doing; and in mere money paid a +hundredfold for each million they thus saved during the three years of war +which followed--a war which brought untold suffering upon our people, which +at one time threatened the gravest national disaster, and which, in spite +of the necessity of waging it, resulted merely in what was in effect a +drawn battle, while the balance of defeat and triumph was almost even. + +I do not ask that we continue to increase our Navy. I ask merely that it be +maintained at its present strength; and this can be done only if we replace +the obsolete and outworn ships by new and good ones, the equals of any +afloat in any navy. To stop building ships for one year means that for that +year the Navy goes back instead of forward. The old battle ship Texas, for +instance, would now be of little service in a stand-up fight with a +powerful adversary. The old double-turret monitors have outworn their +usefulness, while it was a waste of money to build the modern single-turret +monitors. All these ships should be replaced by others; and this can be +done by a well-settled program of providing for the building each year of +at least one first-class battle ship equal in size and speed to any that +any nation is at the same time building; the armament presumably to consist +of as large a number as possible of very heavy guns of one caliber, +together with smaller guns to repel torpedo attack; while there should be +heavy armor, turbine engines, and in short, every modern device. Of course, +from time to time, cruisers, colliers, torpedo-boat destroyers or torpedo +boats, Will have to be built also. All this, be it remembered, would not +increase our Navy, but would merely keep it at its present strength. +Equally of course, the ships will be absolutely useless if the men aboard +them are not so trained that they can get the best possible service out of +the formidable but delicate and complicated mechanisms intrusted to their +care. The marksmanship of our men has so improved during the last five +years that I deem it within bounds to say that the Navy is more than twice +as efficient, ship for ship, as half a decade ago. The Navy can only attain +proper efficiency if enough officers and men are provided, and if these +officers and men are given the chance (and required to take advantage of +it) to stay continually at sea and to exercise the fleets singly and above +all in squadron, the exercise to be of every kind and to include unceasing +practise at the guns, conducted under conditions that will test +marksmanship in time of war. + +In both the Army and the Navy there is urgent need that everything possible +should be done to maintain the highest standard for the personnel, alike as +regards the officers and the enlisted men. I do not believe that in any +service there is a finer body of enlisted men and of junior officer than we +have in both the Army and the Navy, including the Marine Corps. All +possible encouragement to the enlisted men should be given, in pay and +otherwise, and everything practicable done to render the service attractive +to men of the right type. They should be held to the strictest discharge of +their duty, and in them a spirit should be encouraged which demands not the +mere performance of duty, but the performance of far more than duty, if it +conduces to the honor and the interest of the American nation; and in +return the amplest consideration should be theirs. + +West Point and Annapolis already turn out excellent officers. We do not +need to have these schools made more scholastic. On the contrary we should +never lose sight of the fact that the aim of each school is to turn out a +man who shall be above everything else a fighting man. In the Army in +particular it is not necessary that either the cavalry or infantry officer +should have special mathematical ability. Probably in both schools the best +part of the education is the high standard of character and of professional +morale which it confers. + +But in both services there is urgent need for the establishment of a +principle of selection which will eliminate men after a certain age if they +can not be promoted from the subordinate ranks, and which will bring into +the higher ranks fewer men, and these at an earlier age. This principle of +selection will be objected to by good men of mediocre capacity, who are +fitted to do well while young in the lower positions, but who are not +fitted to do well when at an advanced age they come into positions of +command and of great responsibility. But the desire of these men to be +promoted to positions which they are not competent to fill should not weigh +against the interest of the Navy and the country. At present our men, +especially in the Navy, are kept far too long in the junior grades, and +then, at much too advanced an age, are put quickly thru the senior grades, +often not attaining to these senior grades until they are too old to be of +real use in them; and if they are of real use, being put thru them so +quickly that little benefit to the Navy comes from their having been in +them at all. + +The Navy has one great advantage over the Army in the fact that the +officers of high rank are actually trained in the continual performance of +their duties; that is, in the management of the battle ships and armored +cruisers gathered into fleets. This is not true of the army officers, who +rarely have corresponding chances to exercise command over troops under +service conditions. The conduct of the Spanish war showed the lamentable +loss of life, the useless extravagance, and the inefficiency certain to +result, if during peace the high officials of the War and Navy Departments +are praised and rewarded only if they save money at no matter what cost to +the efficiency of the service, and if the higher officers are given no +chance whatever to exercise and practise command. For years prior to the +Spanish war the Secretaries of War were praised chiefly if they practised +economy; which economy, especially in connection with the quartermaster, +commissary, and medical departments, was directly responsible for most of +the mismanagement that occurred in the war itself--and parenthetically be +it observed that the very people who clamored for the misdirected economy +in the first place were foremost to denounce the mismanagement, loss, and +suffering which were primarily due to this same misdirected economy and to +the lack of preparation it involved. There should soon be an increase in +the number of men for our coast defenses; these men should be of the right +type and properly trained; and there should therefore be an increase of pay +for certain skilled grades, especially in the coast artillery. Money should +be appropriated to permit troops to be massed in body and exercised in +maneuvers, particularly in marching. Such exercise during the summer just +past has been of incalculable benefit to the Army and should under no +circumstances be discontinued. If on these practise marches and in these +maneuvers elderly officers prove unable to bear the strain, they should be +retired at once, for the fact is conclusive as to their unfitness for war; +that is, for the only purpose because of which they should be allowed to +stay in the service. It is a real misfortune to have scores of small +company or regimental posts scattered thruout the country; the Army should +be gathered in a few brigade or division posts; and the generals should be +practised in handling the men in masses. Neglect to provide for all of this +means to incur the risk of future disaster and disgrace. + +The readiness and efficiency of both the Army and Navy in dealing with the +recent sudden crisis in Cuba illustrate afresh their value to the Nation. +This readiness and efficiency would have been very much less had it not +been for the existence of the General Staff in the Army and the General +Board in the Navy; both are essential to the proper development and use of +our military forces afloat and ashore. The troops that were sent to Cuba +were handled flawlessly. It was the swiftest mobilization and dispatch of +troops over sea ever accomplished by our Government. The expedition landed +completely equipped and ready for immediate service, several of its +organizations hardly remaining in Havana over night before splitting up +into detachments and going to their several posts, It was a fine +demonstration of the value and efficiency of the General Staff. Similarly, +it was owing in large part to the General Board that the Navy was able at +the outset to meet the Cuban crisis with such instant efficiency; ship +after ship appearing on the shortest notice at any threatened point, while +the Marine Corps in particular performed indispensable service. The Army +and Navy War Colleges are of incalculable value to the two services, and +they cooperate with constantly increasing efficiency and importance. + +The Congress has most wisely provided for a National Board for the +promotion of rifle practise. Excellent results have already come from this +law, but it does not go far enough. Our Regular Army is so small that in +any great war we should have to trust mainly to volunteers; and in such +event these volunteers should already know how to shoot; for if a soldier +has the fighting edge, and ability to take care of himself in the open, his +efficiency on the line of battle is almost directly Proportionate to +excellence in marksmanship. We should establish shooting galleries in all +the large public and military schools, should maintain national target +ranges in different parts of the country, and should in every way encourage +the formation of rifle clubs thruout all parts of the land. The little +Republic of Switzerland offers us an excellent example in all matters +connected with building up an efficient citizen soldiery. + +*** + +State of the Union Address +Theodore Roosevelt +December 3, 1907 + +To the Senate and House of Representatives: + +No nation has greater resources than ours, and I think it can be truthfully +said that the citizens of no nation possess greater energy and industrial +ability. In no nation are the fundamental business conditions sounder than +in ours at this very moment; and it is foolish, when such is the case, for +people to hoard money instead of keeping it in sound banks; for it is such +hoarding that is the immediate occasion of money stringency. Moreover, as a +rule, the business of our people is conducted with honesty and probity, and +this applies alike to farms and factories, to railroads and banks, to all +our legitimate commercial enterprises. + +In any large body of men, however, there are certain to be some who are +dishonest, and if the conditions are such that these men prosper or commit +their misdeeds with impunity, their example is a very evil thing for the +community. Where these men are business men of great sagacity and of +temperament both unscrupulous and reckless, and where the conditions are +such that they act without supervision or control and at first without +effective check from public opinion, they delude many innocent people into +making investments or embarking in kinds of business that are really +unsound. When the misdeeds of these successfully dishonest men are +discovered, suffering comes not only upon them, but upon the innocent men +whom they have misled. It is a painful awakening, whenever it occurs; and, +naturally, when it does occur those who suffer are apt to forget that the +longer it was deferred the more painful it would be. In the effort to +punish the guilty it is both wise and proper to endeavor so far as possible +to minimize the distress of those who have been misled by the guilty. Yet +it is not possible to refrain because of such distress from striving to put +an end to the misdeeds that are the ultimate causes of the suffering, and, +as a means to this end, where possible to punish those responsible for +them. There may be honest differences of opinion as to many governmental +policies; but surely there can be no such differences as to the need of +unflinching perseverance in the war against successful dishonesty. + +In my Message to the Congress on December 5, 1905, I said: + +"If the folly of man mars the general well-being, then those who are +innocent of the folly will have to pay part of the penalty incurred by +those who are guilty of the folly. A panic brought on by the speculative +folly of part of the business community would hurt the whole business +community; but such stoppage of welfare, though it might be severe, would +not be lasting. In the long run, the one vital factor in the permanent +prosperity of the country is the high individual character of the average +American worker, the average American citizen, no matter whether his work +be mental or manual, whether he be farmer or wage-worker, business man or +professional man. + +"In our industrial and social system the interests of all men are so +closely intertwined that in the immense majority of cases a +straight-dealing man, who by his efficiency, by his ingenuity and industry, +benefits himself, must also benefit others. Normally, the man of great +productive capacity who becomes rich by guiding the labor of many other men +does so by enabling them to produce more than they could produce without +his guidance; and both he and they share in the benefit, which comes also +to the public at large. The superficial fact that the sharing may be +unequal must never blind us to the underlying fact that there is this +sharing, and that the benefit comes in some degree to each man concerned.. +Normally, the wageworker, the man of small means, and the average consumer, +as well as the average producer, are all alike helped by making conditions +such that the man of exceptional business ability receives an exceptional +reward for his ability Something can be done by legislation to help the +general prosperity; but no such help of a permanently beneficial character +can be given to the less able and less fortunate save as the results of a +policy which shall inure to the advantage of all industrious and efficient +people who act decently; and this is only another way of saying that any +benefit which comes to the less able and less fortunate must of necessity +come even more to the more able and more fortunate. If, therefore, the less +fortunate man is moved by envy of his more fortunate brother to strike at +the conditions under which they have both, though unequally, prospered, the +result will assuredly be that while damage may come to the one struck at, +it will visit with an even heavier load the one who strikes the blow. Taken +as a whole, we must all go up or go down together. + +"Yet, while not merely admitting, but insisting upon this, it is also true +that where there is no governmental restraint or supervision some of the +exceptional men use their energies, not in ways that are for the common +good, but in ways which tell against this common good. The fortunes amassed +through corporate organization are now so large, and vest such power in +those that wield them, as to make it a matter of necessity to give to the +sovereign--that is, to the Government, which represents the people as a +whole--some effective power of supervision over their corporate use. In +order to insure a healthy social and industrial life, every big corporation +should be held responsible by, and be accountable to, some sovereign strong +enough to control its conduct. I am in no sense hostile to corporations. +This is an age of combination, and any effort to prevent all combination +will be not only useless, but in the end vicious, because of the contempt +for law which the failure to enforce law inevitably produces. We should, +moreover, recognize in cordial and ample fashion the immense good effected +by corporate agencies in a country such as ours, and the wealth of +intellect, energy, and fidelity devoted to their service, and therefore +normally to the service of the public, by their officers and directors. The +corporation has come to stay, just as the trade union has come to stay. +Each can do and has done great good. Each should be favored so long as it +does good. But each should be sharply checked where it acts against law and +justice. + +"The makers of our National Constitution provided especially that the +regulation of interstate commerce should come within the sphere of the +General Government. The arguments in favor of their taking this stand were +even then overwhelming. But they are far stronger to-day, in view of the +enormous development of great business agencies, usually corporate in form. +Experience has shown conclusively that it is useless to try to get any +adequate regulation and supervision of these great corporations by State +action. Such regulation and supervision can only be effectively exercised +by a sovereign whose jurisdiction is coextensive with the field of work of +the corporations--that is, by the National Government. I believe that this +regulation and supervision can be obtained by the enactment of law by the +Congress. Our steady aim should be by legislation, cautiously and carefully +undertaken, but resolutely persevered in, to assert the sovereignty of the +National Government by affirmative action. + +"This is only in form an innovation. In substance it is merely a +restoration; for from the earliest time such regulation of industrial +activities has been recognized in the action of the lawmaking bodies; and +all that I propose is to meet the changed conditions in such manner as will +prevent the Commonwealth abdicating the power it has always possessed, not +only in this country, but also in England before and since this country +became a separate nation. + +"It has been a misfortune that the National laws on this subject have +hitherto been of a negative or prohibitive rather than an affirmative kind, +and still more that they have in part sought to prohibit what could not be +effectively prohibited, and have in part in their prohibitions confounded +what should be allowed and what should not be allowed. It is generally +useless to try to prohibit all restraint on competition, whether this +restraint be reasonable or unreasonable; and where it is not useless it is +generally hurtful. The successful prosecution of one device to evade the +law immediately develops another device to accomplish the same purpose. +What is needed is not sweeping prohibition of every arrangement, good or +bad, which may tend to restrict competition, but such adequate supervision +and regulation as will prevent any restriction of competition from being to +the detriment of the public, as well as such supervision and regulation as +will prevent other abuses in no way connected with restriction of +competition." + +I have called your attention in these quotations to what I have already +said because I am satisfied that it is the duty of the National Government +to embody in action the principles thus expressed. + +No small part of the trouble that we have comes from carrying to an extreme +the national virtue of self-reliance, of independence in initiative and +action. It is wise to conserve this virtue and to provide for its fullest +exercise, compatible with seeing that liberty does not become a liberty to +wrong others. Unfortunately, this is the kind of liberty that the lack of +all effective regulation inevitably breeds. founders of the Constitution +provided that the National Government should have complete and sole control +of interstate commerce. There was then practically no interstate business +save such as was conducted by water, and this the National Government at +once proceeded to regulate in thoroughgoing and effective fashion. +Conditions have now so wholly changed that the interstate commerce by water +is insignificant compared with the amount that goes by land, and almost all +big business concerns are now engaged in interstate commerce. As a result, +it can be but partially and imperfectly controlled or regulated by the +action of any one of the several States; such action inevitably tending to +be either too drastic or else too lax, and in either case ineffective for +purposes of justice. Only the National Government can in thoroughgoing +fashion exercise the needed control. This does not mean that there should +be any extension of Federal authority, for such authority already exists +under the Constitution in amplest and most far-reaching form; but it does +mean that there should be an extension of Federal activity. This is not +advocating centralization. It is merely looking facts in the face, and +realizing that centralization in business has already come and can not be +avoided or undone, and that the public at large can only protect itself +from certain evil effects of this business centralization by providing +better methods for the exercise of control through the authority already +centralized in the National Government by the Constitution itself. There +must be no ball in the healthy constructive course of action which this +Nation has elected to pursue, and has steadily pursued, during the last six +years, as shown both in the legislation of the Congress and the +administration of the law by the Department of Justice. The most vital need +is in connection with the railroads. As to these, in my judgment there +should now be either a national incorporation act or a law licensing +railway companies to engage in interstate commerce upon certain conditions. +The law should be so framed as to give to the Interstate Commerce +Commission power to pass upon the future issue of securities, while ample +means should be provided to enable the Commission, whenever in its judgment +it is necessary, to make a physical valuation of any railroad. As I stated +in my Message to the Congress a year ago, railroads should be given power +to enter into agreements, subject to these argreements being made public in +minute detail and to the consent of the Interstate Commerce Commission +being first obtained. Until the National Government assumes proper control +of interstate commerce, in the exercise of the authority it already +possesses, it will be impossible either to give to or to get from the +railroads full justice. The railroads and all other great corporations will +do well to recognize that this control must come; the only question is as +to what governmental body can most wisely exercise it. The courts will +determine the limits within which the Federal authority can exercise it, +and there will still remain ample work within each State for the railway +commission of that State; and the National Interstate Commerce Commission +will work in harmony with the several State commissions, each within its +own province, to achieve the desired end. + +Moreover, in my judgment there should be additional legislation looking to +the proper control of the great business concerns engaged in interstate +business, this control to be exercised for their own benefit and prosperity +no less than for the protection of investors and of the general public. As +I have repeatedly said in Messages to the Congress and elsewhere, +experience has definitely shown not merely the unwisdom but the futility of +endeavoring to put a stop to all business combinations. Modern industrial +conditions are such that combination is not only necessary but inevitable. +It is so in the world of business just as it is so in the world of labor, +and it is as idle to desire to put an end to all corporations, to all big +combinations of capital, as to desire to put an end to combinations of +labor. Corporation and labor union alike have come to stay. Each if +properly managed is a source of good and not evil. Whenever in either there +is evil, it should be promptly held to account; but it should receive +hearty encouragement so long as it is properly managed. It is profoundly +immoral to put or keep on the statute books a law, nominally in the +interest of public morality that really puts a premium upon public +immorality, by undertaking to forbid honest men from doing what must be +done under modern business conditions, so that the law itself provides that +its own infraction must be the condition precedent upon business success. +To aim at the accomplishment of too much usually means the accomplishment +of too little, and often the doing of positive damage. In my Message to the +Congress a year ago, in speaking of the antitrust laws, I said: + +"The actual working of our laws has shown that the effort to prohibit all +combination, good or bad, is noxious where it is not ineffective. +Combination of capital, like combination of labor, is a necessary element +in our present industrial system. It is not possible completely to prevent +it; and if it were possible, such complete prevention would do damage to +the body politic. What we need is not vainly to try to prevent all +combination, but to secure such rigorous and adequate control and +supervision of the combinations as to prevent their injuring the public, or +existing in such forms as inevitably to threaten injury. It is unfortunate +that our present laws should forbid all combinations instead of sharply +discriminating between those combinations which do evil. Often railroads +would like to combine for the purpose of preventing a big shipper from +maintaining improper advantages at the expense of small shippers and of the +general public. Such a combination, instead of being forbidden by law, +should be favored. It is a public evil to have on the statute books a law +incapable of full enforcement, because both judges and juries realize that +its full enforcement would destroy the business of the country; for the +result is to make decent men violators of the law against their will, and +to put a premium on the behavior of the willful wrongdoers. Such a result +in turn tends to throw the decent man and the willful wrongdoer into close +association, and in the end to drag clown the former to the latter's level; +for the man who becomes a lawbreaker in one way unhappily tends to lose all +respect for law and to be willing to break. it in many ways. No more +scathing condemnation could be visited upon a law than is contained in the +words of the Interstate Commerce Commission when, in commenting upon the +fact that the numerous joint traffic associations do technically violate +the law, they say: 'The decision of the United States Supreme Court in the +Trans-Missouri case and the Joint Traffic Association case has produced no +practical effect upon the railway operations of the country. Such +associations, in fact, exist now as they did before these decisions, and +with the same general effect. In justice to all parties, we ought probably +to add that it is difficult to see how our interstate railways could be +operated with due regard to the interest of the shipper and the railway +without concerted action of the kind afforded through these asociations.' + +"This means that the law as construed by the Supreme Court is such that the +business of the country can not be conducted without breaking it." + +As I have elsewhere said: + +'All this is substantially what I have said over and over again. Surely it +ought not to be necessary to say that it in no shape or way represents any +hostility to corporations as such. On the contrary, it means a frank +recognition of the fact that combinations of capital, like combinations of +labor, are a natural result of modern conditions and of our National +development. As far as in my ability lies my endeavor is and will be to +prevent abuse of power by either and to favor both so long as they do well. +The aim of the National Government is quite as much to favor and protect +honest corporations, honest business men of wealth, as to bring to justice +those individuals and corporations representing dishonest methods. Most +certainly there will be no relaxation by the Government authorities in the +effort to get at any great railroad wrecker--any man who by clever +swindling devices robs investors, oppresses wage-workers, and does +injustice to the general public. But any such move as this is in the +interest of honest railway operators, of honest corporations, and of those +who, when they invest their small savings in stocks and bonds, wish to be +assured that these will represent money honestly expended for legitimate +business purposes. To confer upon the National Government the power for +which I ask would be a check upon overcapitalization and upon the clever +gamblers who benefit by overcapitalization. But it alone would mean an +increase in the value, an increase in the safety of the stocks and bonds of +law-abiding, honestly managed railroads, and would render it far easier to +market their securities. I believe in proper publicity. There has been +complaint of some of the investigations recently carried on, but those who +complain should put the blame where it belongs--upon the misdeeds which are +done in darkness and not upon the investigations which brought them to +light. The Administration is responsible for turning on the light, but it +is not responsible for what the light showed. I ask for full power to be +given the Federal Government, because no single State can by legislation +effectually cope with these powerful corporations engaged in interstate +commerce, and, while doing them full justice, exact from them in return +full justice to others. The conditions of railroad activity, the conditions +of our immense interstate commerce, are such as to make the Central +Government alone competent to exercise full supervision and control. + +"The grave abuses in individual cases of railroad management in the past +represent wrongs not merely to the general public, but, above all, wrongs +to fair-dealing and honest corporations and men of wealth, because they +excite a popular anger and distrust which from the very nature of the case +tends to include in the sweep of its resentment good and bad alike. From +the standpoint of the public I can not too earnestly say that as soon as +the natural and proper resentment aroused by these abuses becomes +indiscriminate and unthinking, it also becomes not merely unwise and +unfair, but calculated to defeat the very ends which those feeling it have +in view. There has been plenty of dishonest work by corporations in the +past. There will not be the slightest let-up in the effort to hunt down and +punish every dishonest man. But the bulk of our business is honestly done. +In the natural indignation the people feel over the dishonesty, it is +essential that they should not lose their heads and get drawn into an +indiscriminate raid upon all corporations, all people of wealth, whether +they do well or ill. Out of any such wild movement good will not come, can +not come, and never has come. On the contrary, the surest way to invite +reaction is to follow the lead of either demagogue or visionary in a +sweeping assault upon property values and upon public confidence, which +would work incalculable damage in the business world and would produce such +distrust of the agitators that in the revulsion the distrust would extend +to honest men who, in sincere and same fashion, are trying to remedy the +evils." + +The antitrust law should not be repealed; but it should be made both more +efficient and more in harmony with actual conditions. It should be so +amended as to forbid only the kind of combination which does harm to the +general public, such amendment to be accompanied by, or to be an incident +of, a grant of supervisory power to the Government over these big concerns +engaged in interstate business. This should be accompanied by provision for +the compulsory publication of accounts and the subjection of books and +papers to the inspection of the Government officials. A beginning has +already been made for such supervision by the establishment of the Bureau +of Corporations. + +The antitrust law should not prohibit combinations that do no injustice to +the public, still less those the existence of which is on the whole of +benefit to the public. But even if this feature of the law were abolished, +there would remain as an equally objectionable feature the difficulty and +delay now incident to its enforcement. The Government must now submit to +irksome and repeated delay before obtaining a final decision of the courts +upon proceedings instituted, and even a favorable decree may mean an empty +victory. Moreover, to attempt to control these corporations by lawsuits +means to impose upon both the Department of Justice and the courts an +impossible burden; it is not feasible to carry on more than a limited +number of such suits. Such a law to be really effective must of course be +administered by an executive body, and not merely by means of lawsuits. The +design should be to prevent the abuses incident to the creation of +unhealthy and improper combinations, instead of waiting until they are in +existence and then attempting to destroy them by civil or criminal +proceedings. + +A combination should not be tolerated if it abuse the power acquired by +combination to the public detriment. No corporation or association of any +kind should be permitted to engage in foreign or interstate commerce that +is formed for the purpose of, or whose operations create, a monopoly or +general control of the production, sale, or distribution of any one or more +of the prime necessities of life or articles of general use and necessity. +Such combinations are against public policy; they violate the common law; +the doors of the courts are closed to those who are parties to them, and I +believe the Congress can close the channels of interstate commerce against +them for its protection. The law should make its prohibitions and +permissions as clear and definite as possible, leaving the least possible +room for arbitrary action, or allegation of such action, on the part of the +Executive, or of divergent interpretations by the courts. Among the points +to be aimed at should be the prohibition of unhealthy competition, such as +by rendering service at an actual loss for the purpose of crushing out +competition, the prevention of inflation of capital, and the prohibition of +a corporation's making exclusive trade with itself a condition of having +any trade with itself. Reasonable agreements between, or combinations of, +corporations should be permitted, provided they are submitted to and +approved by some appropriate Government body. + +The Congress has the power to charter corporations to engage in interstate +and foreign commerce, and a general law can be enacted under the provisions +of which existing corporations could take out Federal charters and new +Federal corporations could be created. An essential provision of such a law +should be a method of predetermining by some Federal board or commission +whether the applicant for a Federal charter was an association or +combination within the restrictions of the Federal law. Provision should +also be made for complete publicity in all matters affecting the public and +complete protection to the investing public and the shareholders in the +matter of issuing corporate securities. If an incorporation law is not +deemed advisable, a license act for big interstate corporations might be +enacted; or a combination of the two might be tried. The supervision +established might be analogous to that now exercised over national banks. +At least, the antitrust act should be supplemented by specific prohibitions +of the methods which experience has shown have been of most service in +enabling monopolistic combinations to crush out competition. The real +owners of a corporation should be compelled to do business in their own +name. The right to hold stock in other corporations should hereafter be +denied to interstate corporations, unless on approval by the Government +officials, and a prerequisite to such approval should be the listing with +the Government of all owners and stockholders, both by the corporation +owning such stock and by the corporation in which such stock is owned. + +To confer upon the National Government, in connection with the amendment I +advocate in the antitrust law, power of supervision over big business +concerns engaged in interstate commerce, would benefit them as it has +benefited the national banks. In the recent business crisis it is +noteworthy that the institutions which failed were institutions which were +not under the supervision and control of the National Government. Those +which were under National control stood the test. + +National control of the kind above advocated would be to the benefit of +every well-managed railway. From the standpoint of the public there is need +for additional tracks, additional terminals, and improvements in the actual +handling of the railroads, and all this as rapidly as possible. Ample, +safe, and speedy transportation facilities are even more necessary than +cheap transportation. Therefore, there is need for the investment of money +which will provide for all these things while at the same time securing as +far as is possible better wages and shorter hours for their employees. +Therefore, while there must be just and reasonable regulation of rates, we +should be the first to protest against any arbitrary and unthinking +movement to cut them down without the fullest and most careful +consideration of all interests concerned and of the actual needs of the +situation. Only a special body of men acting for the National Government +under authority conferred upon it by the Congress is competent to pass +judgment on such a matter. + +Those who fear, from any reason, the extension of Federal activity will do +well to study the history not only of the national banking act but of the +pure-food law, and notably the meat inspection law recently enacted. The +pure-food law was opposed so violently that its passage was delayed for a +decade; yet it has worked unmixed and immediate good. The meat inspection +law was even more violently assailed; and the same men who now denounce the +attitude of the National Government in seeking to oversee and control the +workings of interstate common carriers and business concerns, then asserted +that we were "discrediting and ruining a great American industry." Two +years have not elapsed, and already it has become evident that the great +benefit the law confers upon the public is accompanied by an equal benefit +to the reputable packing establishments. The latter are better off under +the law than they were without it. The benefit to interstate common +carriers and business concerns from the legislation I advocate would be +equally marked. + +Incidentally, in the passage of the pure-food law the action of the various +State food and dairy commissioners showed in striking fashion how much good +for the whole people results from the hearty cooperation of the Federal and +State officials in securing a given reform. It is primarily to the action +of these State commissioners that we owe the enactment of this law; for +they aroused the people, first to demand the enactment and enforcement of +State laws on the subject, and then the enactment of the Federal law, +without which the State laws were largely ineffective. There must be the +closest cooperation between the National and State governments in +administering these laws. + +In my Message to the Congress a year ago I spoke as follows of the +currency: + +"I especially call your attention to the condition of our currency laws. +The national-bank act has ably served a great purpose in aiding the +enormous business development of the country, and within ten years there +has been an increase in circulation per capita from $21.41 to $33.08. For +several years evidence has been accumulating that additional legislation is +needed. The recurrence of each crop season emphasizes the defects of the +present laws. There must soon be a revision of them, because to leave them +as they are means to incur liability of business disaster. Since your body +adjourned there has been a fluctuation in the interest on call money from 2 +per cent to 30 percent, and the fluctuation was even greater during the +preceding six months. The Secretary of the Treasury had to step in and by +wise action put a stop to the most violent period of oscillation. Even +worse than such fluctuation is the advance in commercial rates and the +uncertainty felt in the sufficiency of credit even at high rates. All +commercial interests suffer during each crop period. Excessive rates for +call money in New York attract money from the interior banks into the +speculative field. This depletes the fund that would otherwise be available +for commercial uses, and commercial borrowers are forced to pay abnormal +rates, so that each fall a tax, in the shape of increased interest charges, +is placed on the whole commerce of the country. + +"The mere statement of these facts shows that our present system is +seriously defective. There is need of a change. Unfortunately, however, +many of the proposed changes must be ruled from consideration because they +are complicated, are not easy of comprehension, and tend to disturb +existing rights and interests. We must also rule out any plan which would +materially impair the value of the United States 2 per cent bonds now +pledged to secure circulation, the issue of which was made under conditions +peculiarly creditable to the Treasury. I do not press any especial plan. +Various plans have recently been proposed by expert committees of bankers. +Among the plans which are possibly feasible and which certainly should +receive your consideration is that repeatedly brought to your attention by +the present Secretary of the Treasury, the essential features of which have +been approved by many prominent bankers and business men. According to this +plan national banks should be permitted to issue a specified proportion of +their capital in notes of a given kind, the issue to be taxed at so high a +rate as to drive the notes back when not wanted in legitimate trade. This +plan would not permit the issue of currency to give banks additional +profits, but to meet the emergency presented by times of stringency. + +"I do not say that this is the right system. I only advance it to emphasize +my belief that there is need for the adoption of some system which shall be +automatic and open to all sound banks, so as to avoid all possibility of +discrimination and favoritism. Such a plan would tend to prevent the spasms +of high money and speculation which now obtain in the New York market; for +at present there is too much currency at certain seasons of the year, and +its accumulation at New York tempts bankers to lend it at low rates for +speculative purposes; whereas at other times when the crops are being moved +there is urgent need for a large but temporary increase in the currency +supply. It must never be forgotten that this question concerns business men +generally quite as much as bankers; especially is this true of stockmen, +farmers, and business men in the West; for at present at certain seasons of +the year the difference in interest rates between the East and the West is +from 6 to 10 per cent, whereas in Canada the corresponding difference is +but 2 per cent. Any plan must, of course, guard the interests of western +and southern bankers as carefully as it guards the interests of New York or +Chicago bankers, and must be drawn from the standpoints of the farmer and +the merchant no less than from the standpoints of the city banker and the +country banker." + +I again urge on the Congress the need of immediate attention to this +matter. We need a greater elasticity in our currency; provided, of course, +that we recognize the even greater need of a safe and secure currency. +There must always be the most rigid examination by the National +authorities. Provision should be made for an emergency currency. The +emergency issue should, of course, be made with an effective guaranty, and +upon conditions carefully prescribed by the Government. Such emergency +issue must be based on adequate securities approved by the Government, and +must be issued under a heavy tax. This would permit currency being issued +when the demand for it was urgent, while securing its requirement as the +demand fell off. It is worth investigating to determine whether officers +and directors of national banks should ever be allowed to loan to +themselves. Trust companies should be subject to the same supervision as +banks; legislation to this effect should be enacted for the District of +Columbia and the Territories. + +Yet we must also remember that even the wisest legislation on the subject +can only accomplish a certain amount. No legislation can by any possibility +guarantee the business community against the results of speculative folly +any more than it can guarantee an individual against the results of his +extravagance. When an individual mortgages his house to buy an automobile +he invites disaster; and when wealthy men, or men who pose as such, or are +unscrupulously or foolishly eager to become such, indulge in reckless +speculation--especially if it is accompanied by dishonesty--they jeopardize +not only their own future but the future of all their innocent +fellow-citizens, for the expose the whole business community to panic and +distress. + +The income account of the Nation is in a most satisfactory condition. For +the six fiscal years ending with the 1st of July last, the total +expenditures and revenues of the National Government, exclusive of the +postal revenues and expenditures, were, in round numbers, revenues, +$3,465,000,0000, and expenditures, $3,275,000,000. The net excess of income +over expenditures, including in the latter the fifty millions expended for +the Panama Canal, was one hundred and ninety million dollars for the six +years, an average of about thirty-one millions a year. This represents an +approximation between income and outgo which it would be hard to improve. +The satisfactory working of the present tariff law has been chiefly +responsible for this excellent showing. Nevertheless, there is an evident +and constantly growing feeling among our people that the time is rapidly +approaching when our system of revenue legislation must be revised. + +This country is definitely committed to the protective system and any +effort to uproot it could not but cause widespread industrial disaster. In +other words, the principle of the present tariff law could not with wisdom +be changed. But in a country of such phenomenal growth as ours it is +probably well that every dozen years or so the tariff laws should be +carefully scrutinized so as to see that no excessive or improper benefits +are conferred thereby, that proper revenue is provided, and that our +foreign trade is encouraged. There must always be as a minimum a tariff +which will not only allow for the collection of an ample revenue but which +will at least make good the difference in cost of production here and +abroad; that is, the difference in the labor cost here and abroad, for the. +well-being of the wage-worker must ever be a cardinal point of American +policy. The question should be approached purely from a business +standpoint; both the time and the manner of the change being such as to +arouse the minimum of agitation and disturbance in the business world, and +to give the least play for selfish and factional motives. The sole +consideration should be to see that the sum total of changes represents the +public good. This means that the subject can not with wisdom be dealt with +in the year preceding a Presidential election, because as a matter of fact +experience has conclusively shown that at such a time it is impossible to +get men to treat it from the standpoint of the public good. In my judgment +the wise time to deal with the matter is immediately after such election. + +When our tax laws are revised the question of an income tax and an +inheritance tax should receive the careful attention of our legislators. In +my judgment both of these taxes should be part of our system of Federal +taxation. I speak diffidently about the income tax because one scheme for +an income tax was declared unconstitutional by the Supreme Court; while in +addition it is a difficult tax to administer in its practical working, and +great care would have to be exercised to see that it was not evaded by the +very men whom it was most desirable to have taxed, for if so evaded it +would, of course, be worse than no tax at all; as the least desirable of +all taxes is the tax which bears heavily upon the honest as compared with +the dishonest man. Nevertheless, a graduated income tax of the proper type +would be a desirable feature of Federal taxation, and it is to be hoped +that one may be devised which the Supreme Court will declare +constitutional. The inheritance tax, however, is both a far better method +of taxation, and far more important for the purpose of having the fortunes +of the country bear in proportion to their increase in size a corresponding +increase and burden of taxation. The Government has the absolute right to +decide as to the terms upon which a man shall receive a bequest or devise +from another, and this point in the devolution of property is especially +appropriate for the imposition of a tax. Laws imposing such taxes have +repeatedly been placed upon the National statute books and as repeatedly +declared constitutional by the courts; and these laws contained the +progressive principle, that is, after a certain amount is reached the +bequest or gift, in life or death, is increasingly burdened and the rate of +taxation is increased in proportion to the remoteness of blood of the man +receiving the bequest. These principles are recognized already in the +leading civilized nations of the world. In Great Britain all the estates +worth $5,000 or less are practically exempt from death duties, while the +increase is such that when an estate exceeds five millions of dollars in +value and passes to a distant kinsman or stranger in blood the Government +receives all told an amount equivalent to nearly a fifth of the whole +estate. In France so much of an inheritance as exceeds $10,000,000 pays +over a fifth to the State if it passes to a distant relative. The German +law is especially interesting to us because it makes the inheritance tax an +imperial measure while allotting to the individual States of the Empire a +portion of the proceeds and permitting them to impose taxes in addition to +those imposed by the Imperial Government. Small inheritances are exempt, +but the tax is so sharply progressive that when the inheritance is still +not very large, provided it is not an agricultural or a forest land, it is +taxed at the rate of 25 per cent if it goes to distant relatives. There is +no reason why in the United States the National Government should not +impose inheritance taxes in addition to those imposed by the States, and +when we last had an inheritance tax about one-half of the States levied +such taxes concurrently with the National Government, making a combined +maximum rate, in some cases as high as 25 per cent. The French law has one +feature which is to be heartily commended. The progressive principle is so +applied that each higher rate is imposed only on the excess above the +amount subject to the next lower rate; so that each increase of rate will +apply only to a certain amount above a certain maximum. The tax should if +possible be made to bear more heavily upon those residing without the +country than within it. A heavy progressive tax upon a very large fortune +is in no way such a tax upon thrift or industry as a like would be on a +small fortune. No advantage comes either to the country as a whole or to +the individuals inheriting the money by permitting the transmission in +their entirety of the enormous fortunes which would be affected by such a +tax; and as an incident to its function of revenue raising, such a tax +would help to preserve a measurable equality of opportunity for the people +of the generations growing to manhood. We have not the slightest sympathy +with that socialistic idea which would try to put laziness, thriftlessness +and inefficiency on a par with industry, thrift and efficiency; which would +strive to break up not merely private property, but what is far more +important, the home, the chief prop upon which our whole civilization +stands. Such a theory, if ever adopted, would mean the ruin of the entire +country--a ruin which would bear heaviest upon the weakest, upon those +least able to shift for themselves. But proposals for legislation such as +this herein advocated are directly opposed to this class of socialistic +theories. Our aim is to recognize what Lincoln pointed out: The fact that +there are some respects in which men are obviously not equal; but also to +insist that there should be an equality of self-respect and of mutual +respect, an equality of rights before the law, and at least an approximate +equality in the conditions under which each man obtains the chance to show +the stuff that is in him when compared to his fellows. + +A few years ago there was loud complaint that the law could not be invoked +against wealthy offenders. There is no such complaint now. The course of +the Department of Justice during the last few years has been such as to +make it evident that no man stands above the law, that no corporation is so +wealthy that it can not be held to account. The Department of Justice has +been as prompt to proceed against the wealthiest malefactor whose crime was +one of greed and cunning as to proceed against the agitator who incites to +brutal violence. Everything that can be done under the existing law, and +with the existing state of public opinion, which so profoundly influences +both the courts and juries, has been done. But the laws themselves need +strengthening in more than one important point; they should be made more +definite, so that no honest man can be led unwittingly to break them, and +so that the real wrongdoer can be readily punished. + +Moreover, there must be the public opinion back of the laws or the laws +themselves will be of no avail. At present, while the average juryman +undoubtedly wishes to see trusts broken up, and is quite ready to fine the +corporation itself, he is very reluctant to find the facts proven beyond a +reasonable doubt when it comes to sending to jail a member of the business +community for indulging in practices which are profoundly unhealthy, but +which, unfortunately, the business community has grown to recognize as +well-nigh normal. Both the present condition of the law and the present +temper of juries render it a task of extreme difficulty to get at the real +wrongdoer in any such case, especially by imprisonment. Yet it is from +every standpoint far preferable to punish the prime offender by +imprisonment rather than to fine the corporation, with the attendant damage +to stockholders. + +The two great evils in the execution of our criminal laws to-day are +sentimentality and technicality. For the latter the remedy must come from +the hands of the legislatures, the courts, and the lawyers. The other must +depend for its cure upon the gradual growth of a sound public opinion which +shall insist that regard for the law and the demands of reason shall +control all other influences and emotions in the jury box. Both of these +evils must be removed or public discontent with the criminal law will +continue. + +Instances of abuse in the granting of injunctions in labor disputes +continue to occur, and the resentment in the minds of those who feel that +their rights are being invaded and their liberty of action and of speech +unwarrantably restrained continues likewise to grow. Much of the attack on +the use of the process of injunction is wholly without warrant; but I am +constrained to express the belief that for some of it there is warrant. +This question is becoming more and more one of prime importance, and unless +the courts will themselves deal with it in effective manner, it is certain +ultimately to demand some form of legislative action. It would be most +unfortunate for our social welfare if we should permit many honest and +law-abiding citizens to feel that they had just cause for regarding our +courts with hostility. I earnestly commend to the attention of the Congress +this matter, so that some way may be devised which will limit the abuse of +injunctions and protect those rights which from time to time it +unwarrantably invades. Moreover, discontent is often expressed with the use +of the process of injunction by the courts, not only in labor disputes, but +where State laws are concerned. I refrain from discussion of this question +as I am informed that it will soon receive the consideration of the Supreme +Court. + +The Federal courts must of course decide ultimately what are the respective +spheres of State and Nation in connection with any law, State or National, +and they must decide definitely and finally in matters affecting individual +citizens, not only as to the rights and wrongs of labor but as to the +rights and wrongs of capital; and the National Government must always see +that the decision of the court is put into effect. The process of +injunction is an essential adjunct of the court's doing its work well; and +as preventive measures are always better than remedial, the wise use of +this process is from every standpoint commendable. But where it is +recklessly or unnecessarily used, the abuse should he censured, above all +by the very men who are properly anxious to prevent any effort to shear the +courts of this necessary power. The court's decision must be final; the +protest is only against the conduct of individual judges in needlessly +anticipating such final decision, or in the tyrannical use of what is +nominally a temporary injunction to accomplish what is in fact a permanent +decision. + +The loss of life and limb from railroad accidents in this country has +become appalling. It is a subject of which the National Government should +take supervision. It might be well to begin by providing for a Federal +inspection of interstate railroads somewhat along the lines of Federal +inspection of steamboats, although not going so far; perhaps at first all +that it would be necessary to have would be some officer whose duty would +be to investigate all accidents on interstate railroads and report in +detail the causes thereof. Such an officer should make it his business to +get into close touch with railroad operating men so as to become thoroughly +familiar with every side of the question, the idea being to work along the +lines of the present steamboat inspection law. + +The National Government should be a model employer. It should demand the +highest quality of service from each of its employees and it should care +for all of them properly in return. Congress should adopt legislation +providing limited but definite compensation for accidents to all workmen +within the scope of the Federal power, including employees of navy yards +and arsenals. In other words, a model employers' liability act, +far-reaching and thoroughgoing, should be enacted which should apply to all +positions, public and private, over which the National Government has +jurisdiction. The number of accidents to wage-workers, including those that +are preventable and those that are not, has become appalling in the +mechanical, manufacturing, and transportation operations of the day. It +works grim hardship to the ordinary wage-worker and his family to have the +effect of such an accident fall solely upon him; and, on the other hand, +there are whole classes of attorneys who exist only by inciting men who may +or may not have been wronged to undertake suits for negligence. As a matter +of fact a suit for negligence is generally an inadequate remedy for the +person injured, while it often causes altogether disproportionate annoyance +to the employer. The law should be made such that the payment for accidents +by the employer would be automatic instead of being a matter for lawsuits. +Workmen should receive certain and definite compensation for all accidents +in industry irrespective of negligence. The employer is the agent of the +public and on his own responsibility and for his own profit he serves the +public. When he starts in motion agencies which create risks for others, he +should take all the ordinary and extraordinary risks involved; and the risk +he thus at the moment assumes will ultimately be assumed, as it ought to +be, by the general public. Only in this way can the shock of the accident +be diffused, instead of falling upon the man or woman least able to bear +it, as is now the case. The community at large should share the burdens as +well as the benefits of industry. By the proposed law, employers would gain +a desirable certainty of obligation and get rid of litigation to determine +it, while the workman and his family would be relieved from a crushing +load. With such a policy would come increased care, and accidents would be +reduced in number. The National laws providing for employers' liability on +railroads engaged in interstate commerce and for safety appliances, as well +as for diminishing the hours any employee of a railroad should be permitted +to work, should all be strengthened wherever in actual practice they have +shown weakness; they should be kept on the statute books in thoroughgoing +form. + +The constitutionality of the employers' liability act passed by the +preceding Congress has been carried before the courts. In two jurisdictions +the law has been declared unconstitutional, and in three jurisdictions its +constitutionality has been affirmed. The question has been carried to the +Supreme Court, the case has been heard by that tribunal, and a decision is +expected at an early date. In the event that the court should affirm the +constitutionality of the act, I urge further legislation along the lines +advocated in my Message to the preceding Congress. The practice of putting +the entire burden of loss to life or limb upon the victim or the victim's +family is a form of social injustice in which the United States stands in +unenviable prominence. In both our Federal and State legislation we have, +with few exceptions, scarcely gone farther than the repeal of the +fellow-servant principle of the old law of liability, and in some of our +States even this slight modification of a completely outgrown principle has +not yet been secured. The legislation of the rest of the industrial world +stands out in striking contrast to our backwardness in this respect. Since +1895 practically every country of Europe, together with Great Britain, New +Zealand, Australia, British Columbia, and the Cape of Good Hope has enacted +legislation embodying in one form or another the complete recognition of +the principle which places upon the employer the entire trade risk in the +various lines of industry. I urge upon the Congress the enactment of a law +which will at the same time bring Federal legislation up to the standard +already established by all the European countries, and which will serve as +a stimulus to the various States to perfect their legislation in this +regard. + +The Congress should consider the extension of the eight-hour law. The +constitutionality of the present law has recently been called into +question, and the Supreme Court has decided that the existing legislation +is unquestionably within the powers of the Congress. The principle of the +eight-hour day should as rapidly and as far as practicable be extended to +the entire work carried on by the Government; and the present law should be +amended to embrace contracts on those public works which the present +wording of the act has been construed to exclude. The general introduction +of the eight-hour day should be the goal toward which we should steadily +tend, and the Government should set the example in this respect. + +Strikes and lockouts, with their attendant loss and suffering, continue to +increase. For the five years ending December 31, 1905, the number of +strikes was greater than those in any previous ten years and was double the +number in the preceding five years. These figures indicate the increasing +need of providing some machinery to deal with this class of disturbance in +the interest alike of the employer, the employee, and the general public. I +renew my previous recommendation that the Congress favorably consider the +matter of creating the machinery for compulsory investigation of such +industrial controversies as are of sufficient magnitude and of sufficient +concern to the people of the country as a whole to warrant the Federal +Government in taking action. + +The need for some provision for such investigation was forcibly illustrated +during the past summer. A strike of telegraph operators seriously +interfered with telegraphic communication, causing great damage to business +interests and serious inconvenience to the general public. Appeals were +made to me from many parts of the country, from city councils, from boards +of trade, from chambers of commerce, and from labor organizations, urging +that steps be taken to terminate the strike. Everything that could with any +propriety be done by a representative of the Government was done, without +avail, and for weeks the public stood by and suffered without recourse of +any kind. Had the machinery existed and had there been authority for +compulsory investigation of the dispute, the public would have been placed +in possession of the merits of the controversy, and public opinion would +probably have brought about a prompt adjustment. + +Each successive step creating machinery for the adjustment of labor +difficulties must be taken with caution, but we should endeavor to make +progress in this direction. + +The provisions of the act of 1898 creating the chairman of the Interstate +Commerce Commission and the Commissioner of Labor a board of mediation in +controversies between interstate railroads and their employees has, for the +first time, been subjected to serious tests within the past year, and the +wisdom of the experiment has been fully demonstrated. The creation of a +board for compulsory investigation in cases where mediation fails and +arbitration is rejected is the next logical step in a progressive program. + +It is certain that for some time to come there will be a constant increase +absolutely, and perhaps relatively, of those among our citizens who dwell +in cities or towns of some size and who work for wages. This means that +there will be an ever-increasing need to consider the problems inseparable +from a great industrial civilization. Where an immense and complex +business, especially in those branches relating to manufacture and +transportation, is transacted by a large number of capitalists who employ a +very much larger number of wage-earners, the former tend more and more to +combine into corporations and the latter into unions. The relations of the +capitalist and wage-worker to one another, and of each to the general +public, are not always easy to adjust; and to put them and keep them on a +satisfactory basis is one of the most important and one of the most +delicate tasks before our whole civilization. Much of the work for the +accomplishment of this end must be done by the individuals concerned +themselves, whether singly or in combination; and the one fundamental fact +that must never be lost track of is that the character of the average man, +whether he be a man of means or a man who works with his hands, is the most +important factor in solving the problem aright. But it is almost equally +important to remember that without good laws it is also impossible to reach +the proper solution. It is idle to hold that without good laws evils such +as child labor, as the over-working of women, as the failure to protect +employees from loss of life or limb, can be effectively reached, any more +than the evils of rebates and stock-watering can be reached without good +laws. To fail to stop these practices by legislation means to force honest +men into them, because otherwise the dishonest who surely will take +advantage of them will have everything their own way. If the States will +correct these evils, well and good; but the Nation must stand ready to aid +them. + +No question growing out of our rapid and complex industrial development is +more important than that of the employment of women and children. The +presence of women in industry reacts with extreme directness upon the +character of the home and upon family life, and the conditions surrounding +the employment of children bear a vital relation to our future citizenship. +Our legislation in those areas under the control of the Congress is very +much behind the legislation of our more progressive States. A thorough and +comprehensive measure should be adopted at this session of the Congress +relating to the employment of women and children in the District of +Columbia and the Territories. The investigation into the condition of women +and children wage-earners recently authorized and directed by the Congress +is now being carried on in the various States, and I recommend that the +appropriation made last year for beginning this work be renewed, in order +that we may have the thorough and comprehensive investigation which the +subject demands. The National Government has as an ultimate resort for +control of child labor the use of the interstate commerce clause to prevent +the products of child labor from entering into interstate commerce. But +before using this it ought certainly to enact model laws on the subject for +the Territories under its own immediate control. + +There is one fundamental proposition which can be laid down as regards all +these matters, namely: While honesty by itself will not solve the problem, +yet the insistence upon honesty--not merely technical honesty, but honesty +in purpose and spirit--is an essential element in arriving at a right +conclusion. Vice in its cruder and more archaic forms shocks everybody; but +there is very urgent need that public opinion should be just as severe in +condemnation of the vice which hides itself behind class or professional +loyalty, or which denies that it is vice if it can escape conviction in the +courts. The public and the representatives of the public, the high +officials, whether on the bench or in executive or legislative positions, +need to remember that often the most dangerous criminals, so far as the +life of the Nation is concerned, are not those who commit the crimes known +to and condemned by the popular conscience for centuries, but those who +commit crimes only rendered possible by the complex conditions of our +modern industrial life. It makes not a particle of difference whether these +crimes are committed by a capitalist or by a laborer, by a leading banker +or manufacturer or railroad man, or by a leading representative of a labor +union. Swindling in stocks, corrupting legislatures, making fortunes by the +inflation of securities, by wrecking railroads, by destroying competitors +through rebates--these forms of wrongdoing in the capitalist, are far more +infamous than any ordinary form of embezzlement or forgery; yet it is a +matter of extreme difficulty to secure the punishment of the man most +guilty of them, most responsible for them. The business man who condones +such conduct stands on a level with the labor man who deliberately supports +a corrupt demagogue and agitator, whether head of a union or head of some +municipality, because he is said to have "stood by the union." The members +of the business community, the educators, or clergymen, who condone and +encourage the first kind of wrongdoing, are no more dangerous to the +community, but are morally even worse, than the labor men who are guilty of +the second type of wrongdoing, because less is to be pardoned those who +have no such excuse as is furnished either by ignorance or by dire need. + +When the Department of Agriculture was founded there was much sneering as +to its usefulness. No Department of the Government, however, has more +emphatically vindicated its usefulness, and none save the Post-Office +Department comes so continually and intimately into touch with the people. +The two citizens whose welfare is in the aggregate most vital to the +welfare of the Nation, and therefore to the welfare of all other citizens, +are the wage-worker who does manual labor and the tiller of the soil, the +farmer. There are, of course, kinds of labor where the work must be purely +mental, and there are other kinds of labor where, under existing +conditions, very little demand indeed is made upon the mind, though I am +glad to say that the proportion of men engaged in this kind of work is +diminishing. But in any community with the solid, healthy qualities which +make up a really great nation the bulk of the people should do work which +calls for the exercise of both body and mind. Progress can not permanently +exist in the abandonment of physical labor, but in the development of +physical labor, so that it shall represent more and more the work of the +trained mind in the trained body. Our school system is gravely defective in +so far as it puts a premium upon mere literary training and tends therefore +to train the boy away from the farm and the workshop. Nothing is more +needed than the best type of industrial school, the school for mechanical +industries in the city, the school for practically teaching agriculture in +the country. The calling of the skilled tiller of the soil, the calling of +the skilled mechanic, should alike be recognized as professions, just as +emphatically as the callings of lawyer, doctor, merchant, or clerk. The +schools recognize this fact and it should equally be recognized in popular +opinion. The young man who has the farsightedness and courage to recognize +it and to get over the idea that it makes a difference whether what he +earns is called salary or wages, and who refuses to enter the crowded field +of the so-called professions, and takes to constructive industry instead, +is reasonably sure of an ample reward in earnings, in health, in +opportunity to marry early, and to establish a home with a fair amount of +freedom from worry. It should be one of our prime objects to put both the +farmer and the mechanic on a higher plane of efficiency and reward, so as +to increase their effectiveness in the economic world, and therefore the +dignity, the remuneration, and the power of their positions in the social +world. + +No growth of cities, no growth of wealth, can make up for any loss in +either the number or the character of the farming population. We of the +United States should realize this above almost all other peoples. We began +our existence as a nation of farmers, and in every great crisis of the past +a peculiar dependence has had to be placed upon the farming population; and +this dependence has hitherto been justified. But it can not be justified in +the future if agriculture is permitted to sink in the scale as compared +with other employments. We can not afford to lose that preeminently typical +American, the farmer who owns his own medium-sized farm. To have his place +taken by either a class of small peasant proprietors, or by a class of +great landlords with tenant-farmed estates would be a veritable calamity. +The growth of our cities is a good thing but only in so far as it does not +mean a growth at the expense of the country farmer. We must welcome the +rise of physical sciences in their application to agricultural practices, +and we must do all we can to render country conditions more easy and +pleasant. There are forces which now tend to bring about both these +results, but they are, as yet, in their infancy. The National Government +through the Department of Agriculture should do all it can by joining with +the State governments and with independent associations of farmers to +encourage the growth in the open farming country of such institutional and +social movements as will meet the demand of the best type of farmers, both +for the improvement of their farms and for the betterment of the life +itself. The Department of Agriculture has in many places, perhaps +especially in certain districts of the South, accomplished an extraordinary +amount by cooperating with and teaching the farmers through their +associations, on their own soil, how to increase their income by managing +their farms better than they were hitherto managed. The farmer must not +lose his independence, his initiative, his rugged self-reliance, yet he +must learn to work in the heartiest cooperation with his fellows, exactly +as the business man has learned to work; and he must prepare to use to +constantly better advantage the knowledge that can be obtained from +agricultural colleges, while he must insist upon a practical curriculum in +the schools in which his children are taught. The Department of Agriculture +and the Department of Commerce and Labor both deal with the fundamental +needs of our people in the production of raw material and its manufacture +and distribution, and, therefore, with the welfare of those who produce it +in the raw state, and of those who manufacture and distribute it. The +Department of Commerce and Labor has but recently been founded but has +already justified its existence; while the Department of Agriculture yields +to no other in the Government in the practical benefits which it produces +in proportion to the public money expended. It must continue in the future +to deal with growing crops as it has dealt in the past, but it must still +further extend its field of usefulness hereafter by dealing with live men, +through a far-reaching study and treatment of the problems of farm life +alike from the industrial and economic and social standpoint. Farmers must +cooperate with one another and with the Government, and the Government can +best give its aid through associations of farmers, so as to deliver to the +farmer the large body of agricultural knowledge which has been accumulated +by the National and State governments and by the agricultural colleges and +schools. + +The grain producing industry of the country, one of the most important in +the United States, deserves special consideration at the hands of the +Congress. Our grain is sold almost exclusively by grades. To secure +satisfactory results in our home markets and to facilitate our trade +abroad, these grades should approximate the highest degree of uniformity +and certainty. The present diverse methods of inspection and grading +throughout the country under different laws and boards, result in confusion +and lack of uniformity, destroying that confidence which is necessary for +healthful trade. Complaints against the present methods have continued for +years and they are growing in volume and intensity, not only in this +country but abroad. I therefore suggest to the Congress the advisability of +a National system of inspection and grading of grain entering into +interstate and foreign commerce as a remedy for the present evils. + +The conservation of our natural resources and their proper use constitute +the fundamental problem which underlies almost every other problem of our +National life. We must maintain for our civilization the adequate material +basis without which that civilization can not exist. We must show +foresight, we must look ahead. As a nation we not only enjoy a wonderful +measure of present prosperity but if this prosperity is used aright it is +an earnest of future success such as no other nation will have. The reward +of foresight for this Nation is great and easily foretold. But there must +be the look ahead, there must be a realization of the fact that to waste, +to destroy, our natural resources, to skin and exhaust the land instead of +using it so as to increase its usefulness, will result in undermining in +the days of our children the very prosperity which we ought by right to +hand down to them amplified and developed. For the last few years, through +several agencies, the Government has been endeavoring to get our people to +look ahead and to substitute a planned and orderly development of our +resources in place of a haphazard striving for immediate profit. Our great +river systems should be developed as National water highways, the +Mississippi, with its tributaries, standing first in importance, and the +Columbia second, although there are many others of importance on the +Pacific, the Atlantic and the Gulf slopes. The National Government should +undertake this work, and I hope a beginning will be made in the present +Congress; and the greatest of all our rivers, the Mississippi, should +receive especial attention. From the Great Lakes to the mouth of the +Mississippi there should be a deep waterway, with deep waterways leading +from it to the East and the West. Such a waterway would practically mean +the extension of our coast line into the very heart of our country. It +would be of incalculable benefit to our people. If begun at once it can be +carried through in time appreciably to relieve the congestion of our great +freight-carrying lines of railroads. The work should be systematically and +continuously carried forward in accordance with some well-conceived plan. +The main streams should be improved to the highest point of efficiency +before the improvement of the branches is attempted; and the work should be +kept free from every faint of recklessness or jobbery. The inland waterways +which lie just back of the whole eastern and southern coasts should +likewise be developed. Moreover, the development of our waterways involves +many other important water problems, all of which should be considered as +part of the same general scheme. The Government dams should be used to +produce hundreds of thousands of horsepower as an incident to improving +navigation; for the annual value of the unused water-power of the United +States perhaps exceeds the annual value of the products of all our mines. +As an incident to creating the deep waterways down the Mississippi, the +Government should build along its whole lower length levees which taken +together with the control of the headwaters, will at once and forever put a +complete stop to all threat of floods in the immensely fertile Delta +region. The territory lying adjacent to the Mississippi along its lower +course will thereby become one of the most prosperous and populous, as it +already is one of the most fertile, farming regions in all the world. I +have appointed an Inland Waterways Commission to study and outline a +comprehensive scheme of development along all the lines indicated. Later I +shall lay its report before the Congress. + +Irrigation should be far more extensively developed than at present, not +only in the States of the Great Plains and the Rocky Mountains, but in many +others, as, for instance, in large portions of the South Atlantic and Gulf +States, where it should go hand in hand with the reclamation of swamp land. +The Federal Government should seriously devote itself to this task, +realizing that utilization of waterways and water-power, forestry, +irrigation, and the reclamation of lands threatened with overflow, are all +interdependent parts of the same problem. The work of the Reclamation +Service in developing the larger opportunities of the western half of our +country for irrigation is more important than almost any other movement. +The constant purpose of the Government in connection with the Reclamation +Service has been to use the water resources of the public lands for the +ultimate greatest good of the greatest number; in other words, to put upon +the land permanent home-makers, to use and develop it for themselves and +for their children and children's children. There has been, of course, +opposition to this work; opposition from some interested men who desire to +exhaust the land for their own immediate profit without regard to the +welfare of the next generation, and opposition from honest and well-meaning +men who did not fully understand the subject or who did not look far enough +ahead. This opposition is, I think, dying away, and our people are +understanding that it would be utterly wrong to allow a few individuals to +exhaust for their own temporary personal profit the resources which ought +to be developed through use so as to be conserved for the permanent common +advantage of the people as a whole. + +The effort of the Government to deal with the public land has been based +upon the same principle as that of the Reclamation Service. The land law +system which was designed to meet the needs of the fertile and well-watered +regions of the Middle West has largely broken down when applied to the +dryer regions of the Great Plains, the mountains, and much of the Pacific +slope, where a farm of 160 acres is inadequate for self-support. In these +regions the system lent itself to fraud, and much land passed out of the +hands of the Government without passing into the hands of the home-maker. +The Department of the Interior and the Department of Justice joined in +prosecuting the offenders against the law; and they have accomplished much, +while where the administration of the law has been defective it has been +changed. But the laws themselves are defective. Three years ago a public +lands commission was appointed to scrutinize the law, and defects, and +recommend a remedy. Their examination specifically showed the existence of +great fraud upon the public domain, and their recommendations for changes +in the law were made with the design of conserving the natural resources of +every part of the public lands by putting it to its best use. Especial +attention was called to the prevention of settlement by the passage of +great areas of public land into the hands of a few men, and to the enormous +waste caused by unrestricted grazing upon the open range. The +recommendations of the Public Lands Commission are sound, for they are +especially in the interest of the actual homemaker; and where the small +home-maker can not at present utilize the land they provide that the +Government shall keep control of it so that it may not be monopolized by a +few men. The Congress has not yet acted upon these recommendations; but +they are so just and proper, so essential to our National welfare, that I +feel confident, if the Congress will take time to consider them, that they +will ultimately be adopted. + +Some such legislation as that proposed is essential in order to preserve +the great stretches of public grazing land which are unfit for cultivation +under present methods and are valuable only for the forage which they +supply. These stretches amount in all to some 300,000,000 acres, and are +open to the free grazing of cattle, sheep, horses and goats, without +restriction. Such a system, or lack of system, means that the range is not +so much used as wasted by abuse. As the West settles the range becomes more +and more over-grazed. Much of it can not be used to advantage unless it is +fenced, for fencing is the only way by which to keep in check the owners of +nomad flocks which roam hither and thither, utterly destroying the pastures +and leaving a waste behind so that their presence is incompatible with the +presence of home-makers. The existing fences are all illegal. Some of them +represent the improper exclusion of actual settlers, actual home-makers, +from territory which is usurped by great cattle companies. Some of them +represent what is in itself a proper effort to use the range for those upon +the land, and to prevent its use by nomadic outsiders. All these fences, +those that are hurtful and those that are beneficial, are alike illegal and +must come down. But it is an outrage that the law should necessitate such +action on the part of the Administration. The unlawful fencing of public +lands for private grazing must be stopped, but the necessity which +occasioned it must be provided for. The Federal Government should have +control of the range, whether by permit or lease, as local necessities may +determine. Such control could secure the great benefit of legitimate +fencing, while at the same time securing and promoting the settlement of +the country. In some places it may be that the tracts of range adjacent to +the homesteads of actual settlers should be allotted to them severally or +in common for the summer grazing of their stock. Elsewhere it may be that a +lease system would serve the purpose; the leases to be temporary and +subject to the rights of settlement, and the amount charged being large +enough merely to permit of the efficient and beneficial control of the +range by the Government, and of the payment to the county of the equivalent +of what it would otherwise receive in taxes. The destruction of the public +range will continue until some such laws as these are enacted. Fully to +prevent the fraud in the public lands which, through the joint action of +the Interior Department and the Department of Justice, we have been +endeavoring to prevent, there must be further legislation, and especially a +sufficient appropriation to permit the Department of the Interior to +examine certain classes of entries on the ground before they pass into +private ownership. The Government should part with its title only to the +actual home-maker, not to the profit-maker who does not care to make a +home. Our prime object is to secure the rights and guard the interests of +the small ranchman, the man who plows and pitches hay for himself. It is +this small ranchman, this actual settler and homemaker, who in the long run +is most hurt by permitting thefts of the public land in whatever form. + +Optimism is a good characteristic, but if carried to an excess it becomes +foolishness. We are prone to speak of the resources of this country as +inexhaustible; this is not so. The mineral wealth of the country, the coal, +iron, oil, gas, and the like, does not reproduce itself, and therefore is +certain to be exhausted ultimately; and wastefulness in dealing with it +to-day means that our descendants will feel the exhaustion a generation or +two before they otherwise would. But there are certain other forms of waste +which could be entirely stopped--the waste of soil by washing, for +instance, which is among the most dangerous of all wastes now in progress +in the United States, is easily preventable, so that this present enormous +loss of fertility is entirely unnecessary. The preservation or replacement +of the forests is one of the most important means of preventing this loss. +We have made a beginning in forest preservation, but it is only a +beginning. At present lumbering is the fourth greatest industry in the +United States; and yet, so rapid has been the rate of exhaustion of timber +in the United States in the past, and so rapidly is the remainder being +exhausted, that the country is unquestionably on the verge of a timber +famine which will be felt in every household in the land. There has already +been a rise in the price of lumber, but there is certain to be a more rapid +and heavier rise in the future. The present annual consumption of lumber is +certainly three times as great as the annual growth; and if the consumption +and growth continue unchanged, practically all our lumber will be exhausted +in another generation, while long before the limit to complete exhaustion +is reached the growing scarcity will make itself felt in many blighting +ways upon our National welfare. About 20 per cent of our forested territory +is now reserved in National forests; but these do not include the most +valuable timber lauds, and in any event the proportion is too small to +expect that the reserves can accomplish more than a mitigation of the +trouble which is ahead for the nation. Far more drastic action is needed. +Forests can be lumbered so as to give to the public the full use of their +mercantile timber without the slightest detriment to the forest, any more +than it is a detriment to a farm to furnish a harvest; so that there is no +parallel between forests and mines, which can only be completely used by +exhaustion. But forests, if used as all our forests have been used in the +past and as most of them are still used, will be either wholly destroyed, +or so damaged that many decades have to pass before effective use can be +made of them again. All these facts are so obvious that it is extraordinary +that it should be necessary to repeat them. Every business man in the land, +every writer in the newspapers, every man or woman of an ordinary school +education, ought to be able to see that immense quantities of timber are +used in the country, that the forests which supply this timber are rapidly +being exhausted, and that, if no change takes place, exhaustion will come +comparatively soon, and that the effects of it will be felt severely in the +every-day life of our people. Surely, when these facts are so obvious, +there should be no delay in taking preventive measures. Yet we seem as a +nation to be willing to proceed in this matter with happy-go-lucky +indifference even to the immediate future. It is this attitude which +permits the self-interest of a very few persons to weigh for more than the +ultimate interest of all our people. There are persons who find it to their +immense pecuniary benefit to destroy the forests by lumbering. They are to +be blamed for thus sacrificing the future of the Nation as a whole to their +own self-interest of the moment; but heavier blame attaches to the people +at large for permitting such action, whether in the White Mountains, in the +southern Alleghenies, or in the Rockies and Sierras. A big lumbering +company, impatient for immediate returns and not caring to look far enough +ahead, will often deliberately destroy all the good timber in a region, +hoping afterwards to move on to some new country. The shiftless man of +small means, who does not care to become an actual home-maker but would +like immediate profit, will find it to his advantage to take up timber land +simply to turn it over to such a big company, and leave it valueless for +future settlers. A big mine owner, anxious only to develop his mine at the +moment, will care only to cut all the timber that he wishes without regard +to the future--probably net looking ahead to the condition of the country +when the forests are exhausted, any more than he does to the condition when +the mine is worked out. I do not blame these men nearly as much as I blame +the supine public opinion, the indifferent public opinion, which permits +their action to go unchecked. Of course to check the waste of timber means +that there must be on the part of the public the acceptance of a temporary +restriction in the lavish use of the timber, in order to prevent the total +loss of this use in the future. There are plenty of men in public and +private life who actually advocate the continuance of the present system of +unchecked and wasteful extravagance, using as an argument the fact that to +check it will of course mean interference with the ease and comfort of +certain people who now get lumber at less cost than they ought to pay, at +the expense of the future generations. Some of these persons actually +demand that the present forest reserves be thrown open to destruction, +because, forsooth, they think that thereby the price of lumber could be put +down again for two or three or more years. Their attitude is precisely like +that of an agitator protesting against the outlay of money by farmers on +manure and in taking care of their farms generally. Undoubtedly, if the +average farmer were content absolutely to ruin his farm, he could for two +or three years avoid spending any money on it, and yet make a good deal of +money out of it. But only a savage would, in his private affairs, show such +reckless disregard of the future; yet it is precisely this reckless +disregard of the future which the opponents of the forestry system are now +endeavoring to get the people of the United States to show. The only +trouble with the movement for the preservation of our forests is that it +has not gone nearly far enough, and was not begun soon enough. It is a most +fortunate thing, however, that we began it when we did. We should acquire +in the Appalachian and White Mountain regions all the forest lands that it +is possible to acquire for the use of the Nation. These lands, because they +form a National asset, are as emphatically national as the rivers which +they feed, and which flow through so many States before they reach the +ocean. + +There should be no tariff on any forest product grown in this country; and, +in especial, there should be no tariff on wood pulp; due notice of the +change being of course given to those engaged in the business so as to +enable them to adjust themselves to the new conditions. The repeal of the +duty on wood pulp should if possible be accompanied by an agreement with +Canada that there shall be no export duty on Canadian pulp wood. + +In the eastern United States the mineral fuels have already passed into the +hands of large private owners, and those of the West are rapidly following. +It is obvious that these fuels should be conserved and not wasted, and it +would be well to protect the people against unjust and extortionate prices, +so far as that can still be done. What has been accomplished in the great +oil fields of the Indian Territory by the action of the Administration, +offers a striking example of the good results of such a policy. In my +judgment the Government should have the right to keep the fee of the coal, +oil, and gas fields in its own possession and to lease the rights to +develop them under proper regulations; or else, if the Congress will not +adopt this method, the coal deposits should be sold under limitations, to +conserve them as public utilities, the right to mine coal being separated +from the title to the soil. The regulations should permit coal lands to be +worked in sufficient quantity by the several corporations. The present +limitations have been absurd, excessive, and serve no useful purpose, and +often render it necessary that there should be either fraud or close +abandonment of the work of getting out the coal. + +Work on the Panama Canal is proceeding in a highly satisfactory manner. In +March last, John F. Stevens, chairman of the Commission and chief engineer, +resigned, and the Commission was reorganized and constituted as follows: +Lieut. Col. George W. Goethals, Corps. of Engineers, U. S. Army, chairman +and chief engineer; Maj. D. D. Gall-lard, Corps of Engineers, U. S. Army; +Maj. William L. Sibert, Corps of Engineers, U. S. Army; Civil Engineer H. +H. Rousseau, U. S. Navy; Mr. J. C. S. Blackburn; Col. W. C. Gorgas, U. S. +Army, and Mr. Jackson Smith, Commissioners. This change of authority and +direction went into effect on April 1, without causing a perceptible check +to the progress of the work. In March the total excavation in the Culebra +Cut, where effort was chiefly concentrated, was 815,270 cubic yards. In +April this was increased to 879,527 cubic yards. There was a considerable +decrease in the output for May and June owing partly to the advent of the +rainy season and partly to temporary trouble with the steam shovel men over +the question of wages. This trouble was settled satisfactorily to all +parties and in July the total excavation advanced materially and in August +the grand total from all points in the canal prism by steam shovels and +dredges exceeded all previous United States records, reaching 1,274,404 +cubic yards. In September this record was eclipsed and a total of 1,517,412 +cubic yards was removed. Of this amount 1,481,307 cubic yards were from the +canal prism and 36,105 cubic yards were from accessory works. These results +were achieved in the rainy season with a rainfall in August of 11.89 inches +and in September of 11.65 inches. Finally, in October, the record was again +eclipsed, the total excavation being 1,868,729 cubic yards; a truly +extraordinary record, especially in view of the heavy rainfall, which was +17.1 inches. In fact, experience during the last two rainy seasons +demonstrates that the rains are a less serious obstacle to progress than +has hitherto been supposed. + +Work on the locks and dams at Gatun, which began actively in March last, +has advanced so far that it is thought that masonry work on the locks can +be begun within fifteen months. In order to remove all doubt as to the +satisfactory character of the foundations for the locks of the Canal, the +Secretary of War requested three eminent civil engineers, of special +experience in such construction, Alfred Noble, Frederic P. Stearns and John +R. Freeman, to visit the Isthmus and make thorough personal investigations +of the sites. These gentlemen went to the Isthmus in April and by means of +test pits which had been dug for the purpose, they inspected the proposed +foundations, and also examined the borings that had been made. In their +report to the Secretary of War, under date of May 2, 1907, they said: "We +found that all of the locks, of the dimensions now propesed, will rest upon +rock of such character that it will furnish a safe and stable foundation." +Subsequent new borings, conducted by the present Commission, have fully +confirmed this verdict. They show that the locks will rest on rock for +their entire length. The cross section of the dam and method of +construction will be such as to insure against any slip or sloughing off. +Similar examination of the foundations of the locks and dams on the Pacific +side are in progress. I believe that the locks should be made of a width of +120 feet. + +Last winter bids were requested and received for doing the work of canal +construction by contract. None of them was found to be satisfactory and all +were rejected. It is the unanimous opinion of the present Commission that +the work can be done better, more cheaply, and more quickly by the +Government than by private contractors. Fully 80 per cent of the entire +plant needed for construction has been purchased or contracted for; machine +shops have been erected and equipped for making all needed repairs to the +plant; many thousands of employees have been secured; an effective +organization has been perfected; a recruiting system is in operation which +is capable of furnishing more labor than can be used advantageously; +employees are well sheltered and well fed; salaries paid are satisfactory, +and the work is not only going forward smoothly, but it is producing +results far in advance of the most sanguine anticipations. Under these +favorable conditions, a change in the method of prosecuting the work would +be unwise and unjustifiable, for it would inevitably disorganize existing +conditions, check progress, and increase the cost and lengthen the time of +completing the Canal. + +The chief engineer and all his professional associates are firmly convinced +that the 85 feet level lock canal which they are constructing is the best +that could be desired. Some of them had doubts on this point when they went +to the Isthmus. As the plans have developed under their direction their +doubts have been dispelled. While they may decide upon changes in detail as +construction advances they are in hearty accord in approving the general +plan. They believe that it provides a canal not only adequate to all +demands that will be made upon it but superior in every way to a sea level +canal. I concur in this belief. + +I commend to the favorable consideration of the Congress a postal savings +bank system, as recommended by the Postmaster-General. The primary object +is to encourage among our people economy and thrift and by the use of +postal savings banks to give them an opportunity to husband their +resources, particularly those who have not the facilities at hand for +depositing their money in savings banks. Viewed, however, from the +experience of the past few weeks, it is evident that the advantages of such +an institution are till more far-reaching. Timid depositors have withdrawn +their savings for the time being from national banks, trust companies, and +savings banks; individuals have hoarded their cash and the workingmen their +earnings; all of which money has been withheld and kept in hiding or in +safe deposit box to the detriment of prosperity. Through the agency of the +postal savings banks such money would be restored to the channels of trade, +to the mutual benefit of capital and labor. + +I further commend to the Congress the consideration of the +Postmaster-General's recommendation for an extension of the parcel post, +especially on the rural routes. There are now 38,215 rural routes, serving +nearly 15,000,000 people who do not have the advantages of the inhabitants +of cities in obtaining their supplies. These recommendations have been +drawn up to benefit the farmer and the country storekeeper; otherwise, I +should not favor them, for I believe that it is good policy for our +Government to do everything possible to aid the small town and the country +district. It is desirable that the country merchant should not be crushed +out. + +The fourth-class postmasters' convention has passed a very strong +resolution in favor of placing the fourth-class postmasters under the +civil-service law. The Administration has already put into effect the +policy of refusing to remove any fourth-class postmasters save for reasons +connected with the good of the service; and it is endeavoring so far as +possible to remove them from the domain of partisan politics. It would be a +most desirable thing to put the fourth-class postmasters in the classified +service. It is possible that this might be done without Congressional +action, but, as the matter is debatable, I earnestly recommend that the +Congress enact a law providing that they be included under the +civil-service law and put in the classified service. + +Oklahoma has become a State, standing on a full equality with her elder +sisters, and her future is assured by her great natural resources. The duty +of the National Government to guard the personal and property rights of the +Indians within her borders remains of course unchanged. + +I reiterate my recommendations of last year as regards Alaska. Some form of +local self-government should be provided, as simple and inexpensive as +possible; it is impossible for the Congress to devote the necessary time to +all the little details of necessary Alaskan legislation. Road building and +railway building should be encouraged. The Governor of Alaska should +begiven an ample appropriation wherewith to organize a force to preserve +the public peace. Whisky selling to the natives should be made a felony. +The coal land laws should be changed so as to meet the peculiar needs of +the Territory. This should be attended to at once; for the present laws +permit individuals to locate large areas of the public domain for +speculative purposes; and cause an immense amount of trouble, fraud, and +litigation. There should be another judicial division established. As early +as possible lighthouses and buoys should be established as aids to +navigation, especially in and about Prince William Sound, and the survey of +the coast completed. There is need of liberal appropriations for lighting +and buoying the southern coast and improving the aids to navigation in +southeastern Alaska. One of the great industries of Alaska, as of Puget +Sound and the Columbia, is salmon fishing. Gradually, by reason of lack of +proper laws, this industry is being ruined; it should now be taken in +charge, and effectively protected, by the United States Government. + +The courage and enterprise of the citizens of the farnorth-west in their +projected Alaskan-Yukon-Pacific Exposition, to be held in 1909, should +receive liberal encouragement. This exposition is not sentimental in its +conception, but seeks to exploit the natural resources of Alaska and to +promote the commerce, trade, and industry of the Pacific States with their +neighboring States and with our insular possessions and the neighboring +countries of the Pacific. The exposition asks no loan from the Congress but +seeks appropriations for National exhibits and exhibits of the western +dependencies of the General Government. The State of Washington and the +city of Seattle have shown the characteristic western enterprise in large +donations for the conduct of this exposition in which other States are +lending generous assistance. + +The unfortunate failure of the shipping bill at the last session of the +last Congress was followed by the taking off of certain Pacific steamships, +which has greatly hampered the movement of passengers between Hawaii and +the mainland. Unless the Congress is prepared by positive encouragement to +secure proper facilities in the way of shipping between Hawaii and the +mainland, then the coastwise shipping laws should be so far relaxed as to +prevent Hawaii suffering as it is now suffering. I again call your +attention to the capital importance from every standpoint of making Pearl +Harbor available for the largest deep water vessels, and of suitably +fortifying the islan + +The Secretary of War has gone to the Philippines. On his return I shall +submit to you his report on the islands. + +I again recommend that the rights of citizenship be conferred upon the +people of Porto Rico. + +A bureau of mines should be created under the control and direction of the +Secretary of the Interior; the bureau to have power to collect statistics +and make investigations in all matters pertaining to mining and +particularly to the accidents and dangers of the industry. If this can not +now be done, at least additional appropriations should be given the +Interior Department to be used for the study of mining conditions, for the +prevention of fraudulent mining schemes, for carrying on the work of +mapping the mining districts, for studying methods for minimizing the +accidents and dangers in the industry; in short, to aid in all proper ways +the development of the mining industry. + +I strongly recommend to the Congress to provide funds for keeping up the +Hermitage, the home of Andrew Jackson; these funds to be used through the +existing Hermitage Association for the preservation of a historic building +which should ever be dear to Americans. + +I further recommend that a naval monument be established in the Vicksburg +National Park. This national park gives a unique opportunity for +commemorating the deeds of those gallant men who fought on water, no less +than of those who fought on land, in the great civil War. + +Legislation should be enacted at the present session of the Congress for +the Thirteenth Census. The establishment of the permanent Census Bureau +affords the opportunity for a better census than we have ever had, but in +order to realize the full advantage of the permanent organization, ample +time must be given for preparation. + +There is a constantly growing interest in this country in the question of +the public health. At last the public mind is awake to the fact that many +diseases, notably tuberculosis, are National scourges. The work of the +State and city boards of health should be supplemented by a constantly +increasing interest on the part of the National Government. The Congress +has already provided a bureau of public health and has provided for a +hygienic laboratory. There are other valuable laws relating to the public +health connected with the various departments. This whole branch of the +Government should be strengthened and aided in every way. + +I call attention to two Government commissions which I have appointed and +which have already done excellent work. The first of these has to do with +the organization of the scientific work of the Government, which has grown +up wholly without plan and is in consequence so unwisely distributed among +the Executive Departments that much of its effect is lost for the lack of +proper coordination. This commission's chief object is to introduce a +planned and orderly development and operation in the place of the +ill-assorted and often ineffective grouping and methods of work which have +prevailed. This can not be done without legislation, nor would it be +feasible to deal in detail with so complex an administrative problem by +specific provisions of law. I recommend that the President be given +authority to concentrate related lines of work and reduce duplication by +Executive order through transfer and consolidation of lines of work. + +The second committee, that on Department methods, was instructed to +investigate and report upon the changes needed to place the conduct of the +executive force of the Government on the most economical and effective +basis in the light of the best modern business practice. The committee has +made very satisfactory progress. Antiquated practices and bureaucratic ways +have been abolished, and a general renovation of departmental methods has +been inaugurated. All that can be done by Executive order has already been +accomplished or will be put into effect in the near future. The work of the +main committee and its several assistant committees has produced a +wholesome awakening on the part of the great body of officers and employees +engaged in Government work. In nearly every Department and office there has +been a careful self-inspection for the purpose of remedying any defects +before they could be made the subject of adverse criticism. This has led +individuals to a wider study of the work on which they were engaged, and +this study has resulted in increasing their efficiency in their respective +lines of work. There are recommendations of special importance from the +committee on the subject of personnel and the classification of salaries +which will require legislative action before they can be put into effect. +It is my intention to submit to the Congress in the near future a special +message on those subjects. + +Under our form of government voting is not merely a right but a duty, and, +moreover, a fundamental and necessary duty if a man is to be a good +citizen. It is well to provide that corporations shall not contribute to +Presidential or National campaigns, and furthermore to provide for the +publication of both contributions and expenditures. There is, however, +always danger in laws of this kind, which from their very nature are +difficult of enforcement; the danger being lest they be obeyed only by the +honest, and disobeyed by the unscrupulous, so as to act only as a penalty +upon honest men. Moreover, no such law would hamper an unscrupulous man of +unlimited means from buying his own way into office. There is a very +radical measure which would, I believe, work a substantial improvement in +our system of conducting a campaign, although I am well aware that it will +take some time for people so to familiarize themselves with such a proposal +as to be willing to consider its adoption. The need for collecting large +campaign funds would vanish if Congress provided an appropriation for the +proper and legitimate expenses of each of the great national parties, an +appropriation ample enough to meet the necessity for thorough organization +and machinery, which requires a large expenditure of money. Then the +stipulation should be made that no party receiving campaign funds from the +Treasury should accept more than a fixed amount from any individual +subscriber or donor; and the necessary publicity for receipts and +expenditures could without difficulty be provided. + +There should be a National gallery of art established in the capital city +of this country. This is important not merely to the artistic but to the +material welfare of the country; and the people are to be congratulated on +the fact that the movement to establish such a gallery is taking definite +form under the guidance of the Smithsonian Institution. So far from there +being a tariff on works of art brought into the country, their importation +should be encouraged in every way. There have been no sufficient +collections of objects of art by the Government, and what collections have +been acquired are scattered and are generally placed in unsuitable and +imperfectly lighted galleries. + +The Biological Survey is quietly working for the good of our agricultural +interests, and is an excellent example of a Government bureau which +conducts original scientific research the findings of which are of much +practical utility. For more than twenty years it has studied the food +habits of birds and mammals that are injurious or beneficial to +agriculture, horticulture, and forestry; has distributed illustrated +bulletins on the subject, and has labored to secure legislative protection +for the beneficial species. The cotton boll-weevil, which has recently +overspread the cotton belt of Texas and is steadily extending its range, is +said to cause an annual loss of about $3,000,000. The Biological Survey has +ascertained and gives wide publicity to the fact that at least 43 kinds of +birds prey upon this destructive insect. It has discovered that 57 species +of birds feed upon scale-insects--dreaded enemies of the fruit grower. It +has shown that woodpeckers as a class, by destroying the larvae of +wood-boring insects, are so essential to tree life that it is doubtful if +our forests could exist without them. It has shown that cuckoos and orioles +are the natural enemies of the leaf-eating caterpillars that destroy our +shade and fruit trees; that our quails and sparrows consume annually +hundreds of tons of seeds of noxious weeds; that hawks and owls as a class +(excepting the few that kill poultry and game birds) are markedly +beneficial, spending their lives in catching grasshoppers, mice, and other +pests that prey upon the products of husbandry. It has conducted field +experiments for the purpose of devising and perfecting simple methods for +holding in check the hordes of destructive rodents--rats, mice, rabbits, +gophers, prairie dogs, and ground squirrels--which annually destroy crops +worth many millions of dollars; and it has published practical directions +for the destruction of wolves and coyotes on the stock ranges of the West, +resulting during the past year in an estimated saving of cattle and sheep +valued at upwards of a million dollars. + +It has inaugurated a system of inspection at the principal ports of entry +on both Atlantic and Pacific coasts by means of which the introduction of +noxious mammals and birds is prevented, thus keeping out the mongoose and +certain birds which are as much to be dreaded as the previously introduced +English sparrow and the house rats and mice. + +In the interest of game protection it has cooperated with local officials +in every State in the Union, has striven to promote uniform legislation in +the several States, has rendered important service in enforcing the Federal +law regulating interstate traffic in game, and has shown bow game +protection may be made to yield a large revenue to the State--a revenue +amounting in the case of Illinois to $128,000 in a single year. + +The Biological Survey has explored the faunas and floras of America with +reference to the distribution of animals and plants; it has defined and +mapped the natural life areas--areas in which, by reason of prevailing +climatic conditions, certain kinds of animals and plants occur--and has +pointed out the adaptability of these areas to the cultivation of +particular crops. The results of these investigations are not only of high +educational value but are worth each year to the progressive farmers of the +country many times the cost of maintaining the Survey, which, it may be +added, is exceedingly small. I recommend to Congress that this bureau, +whose usefulness is seriously handicapped by lack of funds, be granted an +appropriation in some degree commensurate with the importance of the work +it is doing. + +I call your especial attention to the unsatisfactory condition of our +foreign mail service, which, because of the lack of American steamship +lines is now largely done through foreign lines, and which, particularly so +far as South and Central America are concerned, is done in a manner which +constitutes a serious barrier to the extension of our commerce. + +The time has come, in my judgment, to set to work seriously to make our +ocean mail service correspond more closely with our recent commercial and +political development. A beginning was made by the ocean mail act of March +3, 1891, but even at that time the act was known to be inadequate in +various particulars. Since that time events have moved rapidly in our +history. We have acquired Hawaii, the Philippines, and lesser islands in +the Pacific. We are steadily prosecuting the great work of uniting at the +Isthmus the waters of the Atlantic and the Pacific. To a greater extent +than seemed probable even a dozen years ago, we may look to an American +future on the sea worthy of the traditions of our past. As the first step +in that direction, and the step most feasible at the present time, I +recommend the extension of the ocean mail act of 1891. This act has stood +for some years free from successful criticism of its principle and purpose. +It was based on theories of the obligations of a great maritime nation, +undisputed in our own land and followed by other nations since the +beginning of steam navigation. Briefly those theories are, that it is the +duty of a first-class Power so far as practicable to carry its ocean mails +under its own flag;that the fast ocean steamships and their crews, required +for such mail service, are valuable auxiliaries to the sea power of a +nation. Furthermore, the construction of such steamships insures the +maintenance in an efficient condition of the shipyards in which our +battleships must be built. + +The expenditure of public money for the Performance of such necessary +functions of government is certainly warranted, nor is it necessary to +dwell upon the incidental benefits to our foreign commerce, to the +shipbuilding industry, and to ship owning and navigation which will +accompany the discharge of these urgent public duties, though they, too, +should have weight. + +The only serious question is whether at this time we can afford to improve +our ocean mail service as it should be improved. All doubt on this subject +is removed by the reports of the Post-Office Department. For the fiscal +year ended June 30, 1907, that Department estimates that the postage +collected on the articles exchanged with foreign countries other than +Canada and Mexico amounted to $6,579,043.48, or $3,637,226.81 more than the +net cost of the service exclusive of the cost of transporting the articles +between the United States exchange post-offices and the United States +post-offices at which they were mailed or delivered. In other words, the +Government of the United States, having assumed a monopoly of carrying the +mails for the people, making a profit of over $3,600,000 by rendering a +cheap and inefficient service. That profit I believe should be devoted to +strengthening maritime power in those directions where it will best promote +our prestige. The country is familiar with the facts of our maritime +impotence in the harbors of the great and friendly Republics of South +America. Following the failure of the shipbuilding bill we lost our only +American line of steamers to Australasia, and that loss on the Pacific has +become a serious embarrassment to the people of Hawaii, and has wholly cut +off the Samoan islands from regular communication with the Pacific coast. +Puget Sound, in the year, has lost over half (four out of seven) of its +American steamers trading with the Orient. + +We now pay under the act of 1891 $4 a statute mile outward to 20-knot +American mail steamships, built according to naval plans, available as +cruisers, and manned by Americans. Steamships of that speed are confined +exclusively to trans-Atlantic trade with New York. To steamships of 16 +knots or over only $2 a mile can be paid, and it is steamships of this +speed and type which are needed to meet the requirements of mail service to +South America, Asia (including the Philippines), and Australia. I strongly +recommend, therefore, a simple amendment to the ocean mail act of 1891 +which shall authorize the Postmaster-General in his discretion to enter +into contracts for the transportation of mails to the Republics of South +America, to Asia, the Philippines, and Australia at a rate not to exceed $4 +a mile for steamships of 16 knots speed or upwards, subject to the +restrictions and obligations of the act of 1891. The profit of $3,600,000 +which has been mentioned will fully cover the maximum annual expenditure +involved in this recommendation, and it is believed will in time establish +the lines so urgently needed. The proposition involves no new principle, +but permits the efficient discharge of public functions now inadequately +performed or not performed at all. + +Not only there is not now, but there never has been, any other nation in +the world so wholly free from the evils of militarism as is ours. There +never has been any other large nation, not even China, which for so long a +period has had relatively to its numbers so small a regular army as has +ours. Never at any time in our history has this Nation suffered from +militarism or been in the remotest danger of suffering from militarism. +Never at any time of our history has the Regular Army been of a size which +caused the slightest appreciable tax upon the tax-paying citizens of the +Nation. Almost always it has been too small in size and underpaid. Never in +our entire history has the Nation suffered in the least particular because +too much care has been given to the Army, too much prominence given it, too +much money spent upon it, or because it has been too large. But again and +again we have suffered because enough care has not been given to it, +because it has been too small, because there has not been sufficient +preparation in advance for possible war. Every foreign war in which we have +engaged has cost us many times the amount which, if wisely expended during +the preceding years of peace on the Regular Army, would have insured the +war ending in but a fraction of the time and but for a fraction of the cost +that was actually the case. As a Nation we have always been shortsighted in +providing for the efficiency of the Army in time of peace. It is nobody's +especial interest to make such provision and no one looks ahead to war at +any period, no matter how remote, as being a serious possibility; while an +improper economy, or rather niggardliness, can be practiced at the expense +of the Army with the certainty that those practicing it will not be called +to account therefor, but that the price will be paid by the unfortunate +persons who happen to be in office when a war does actually come. + +I think it is only lack of foresight that troubles us, not any hostility to +the Army. There are, of course, foolish people who denounce any care of the +Army or Navy as "militarism," but I do not think that these people are +numerous. This country has to contend now, and has had to contend in the +past, with many evils, and there is ample scope for all who would work for +reform. But there is not one evil that now exists, or that ever has existed +in this country, which is, or ever has been, owing in the smallest part to +militarism. Declamation against militarism has no more serious place in an +earnest and intelligent movement for righteousness in this country than +declamation against the worship of Baal or Astaroth. It is declamation +against a non-existent evil, one which never has existed in this country, +and which has not the slightest chance of appearing here. We are glad to +help in any movement for international peace, but this is because we +sincerely believe that it is our duty to help all such movements provided +they are sane and rational, and not because there is any tendency toward +militarism on our part which needs to be cured. The evils we have to fight +are those in connection with industrialism, not militarism. Industry is +always necessary, just as war is sometimes necessary. Each has its price, +and industry in the United States now exacts, and has always exacted, a far +heavier toll of death than all our wars put together. The statistics of the +railroads of this country for the year ended June 30, 1906, the last +contained in the annual statistical report of the Interstate Commerce +Commission, show in that one year a total of 108,324 casualties to persons, +of which 10,618 represent the number of persons killed. In that wonderful +hive of human activity, Pittsburg, the deaths due to industrial accidents +in 1906 were 919, all the result of accidents in mills, mines or on +railroads. For the entire country, therefore, it is safe to say that the +deaths due to industrial accidents aggregate in the neighborhood of twenty +thousand a year. Such a record makes the death rate in all our foreign wars +utterly trivial by comparison. The number of deaths in battle in all the +foreign wars put together, for the last century and a quarter, aggregate +considerably less than one year's death record for our industries. A mere +glance at these figures is sufficient to show the absurdity of the outcry +against militarism. + +But again and again in the past our little Regular Army has rendered +service literally vital to the country, and it may at any time have to do +so in the future. Its standard of efficiency and instruction is higher now +than ever in the past. But it is too small. There are not enough officers; +and it is impossible to secure enough enlisted men. We should maintain in +peace a fairly complete skeleton of a large army. A great and +long-continued war would have to be fought by volunteers. But months would +pass before any large body of efficient volunteers could be put in the +field, and our Regular Army should be large enough to meet any immediate +need. In particular it is essential that we should possess a number of +extra officers trained in peace to perform efficiently the duties urgently +required upon the breaking out of war. + +The Medical Corps should be much larger than the needs of our Regular Army +in war. Yet at present it is smaller than the needs of the service demand +even in peace. The Spanish war occurred less than ten years ago. The chief +loss we suffered in it was by disease among the regiments which never left +the country. At the moment the Nation seemed deeply impressed by this fact; +yet seemingly it has already been forgotten, for not the slightest effort +has been made to prepare a medical corps of sufficient size to prevent the +repetition of the same disaster on a much larger scale if we should ever be +engaged in a serious conflict. The trouble in the Spanish war was not with +the then existing officials of the War Department; it was with the +representatives of the people as a whole who, for the preceding thirty +years, had declined to make the necessary provision for the Army. Unless +ample provision is now made by Congress to put the Medical Corps where it +should be put disaster in the next war is inevitable, and the +responsibility will not lie with those then in charge of the War +Department, but with those who now decline to make the necessary provision. +A well organized medical corps, thoroughly trained before the advent of war +in all the important administrative duties of a military sanitary corps, is +essential to the efficiency of any large army, and especially of a large +volunteer army. Such knowledge of medicine and surgery as is possessed by +the medical profession generally will not alone suffice to make an +efficient military surgeon. He must have, in addition, knowledge of the +administration and sanitation of large field hospitals and camps, in order +to safeguard the health and lives of men intrusted in great numbers to his +care. A bill has long been pending before the Congress for the +reorganization of the Medical Corps; its passage is urgently needed. + +But the Medical Department is not the only department for which increased +provision should be made. The rate of pay for the officers should be +greatly increased; there is no higher type of citizen than the American +regular officer, and he should have a fair reward for his admirable work. +There should be a relatively even greater increase in the pay for the +enlisted men. In especial provision should be made for establishing grades +equivalent to those of warrant officers in the Navy which should be open to +the enlisted men who serve sufficiently long and who do their work well. +Inducements should be offered sufficient to encourage really good men to +make the Army a life occupation. The prime needs of our present Army is to +secure and retain competent noncommissioned officers. This difficulty rests +fundamentally on the question of pay. The noncommissioned officer does not +correspond with an unskilled laborer; he corresponds to the best type of +skilled workman or to the subordinate official in civil institutions. Wages +have greatly increased in outside occupations in the last forty years and +the pay of the soldier, like the pay of the officers, should be +proportionately increased. The first sergeant of a company, if a good man, +must be one of such executive and administrative ability, and such +knowledge of his trade, as to be worth far more than we at present pay him. +The same is true of the regimental sergeant major. These men should be men +who had fully resolved to make the Army a life occupation and they should +be able to look forward to ample reward; while only men properly qualified +should be given a chance to secure these final rewards. The increase over +the present pay need not be great in the lower grades for the first one or +two enlistments, but the increase should be marked for the noncommissioned +officers of the upper grades who serve long enough to make it evident that +they intend to stay permanently in the Army, while additional pay should be +given for high qualifications in target practice. The position of warrant +officer should be established and there should be not only an increase of +pay, but an increase of privileges and allowances and dignity, so as to +make the grade open to noncommissioned officers capable of filling them +desirably from every standpoint. The rate of desertion in our Army now in +time of peace is alarming. The deserter should be treated by public opinion +as a man guilty of the greatest crime; while on the other hand the man who +serves steadily in the Army should be treated as what he is, that is, as +preeminently one of the best citizens of this Republic. After twelve years' +service in the Army, my own belief is that the man should be given a +preference according to his ability for certain types of office over all +civilian applicants without examination. This should also apply, of course, +to the men who have served twelve years in the Navy. A special corps should +be provided to do the manual labor now necessarily demanded of the privates +themselves. + +Among the officers there should be severe examinations to weed out the +unfit up to the grade of major. From that position on appointments should +be solely by selection and it should be understood that a man of merely +average capacity could never get beyond the position of major, while every +man who serves in any grade a certain length of time prior to promotion to +the next grade without getting the promotion to the next grade should be +forthwith retired. The practice marches and field maneuvers of the last two +or three years have been invaluable to the Army. They should be continued +and extended. A rigid and not a perfunctory examination of physical +capacity has been provided for the higher grade officers. This will work +well. Unless an officer has a good physique, unless he can stand hardship, +ride well, and walk fairly, he is not fit for any position, even after he +has become a colonel. Before he has become a colonel the need for physical +fitness in the officers is almost as great as in the enlisted man. I hope +speedily to see introduced into the Army a far more rigid and thoroughgoing +test of horsemanship for all field officers than at present. There should +be a Chief of Cavalry just as there is a Chief of Artillery. + +Perhaps the most important of all legislation needed for the benefit of the +Army is a law to equalize and increase the pay of officers and enlisted men +of the Army, Navy, Marine Corps, and Revenue-Cutter Service. Such a bill +has been prepared, which it is hoped will meet with your favorable +consideration. The next most essential measure is to authorize a number of +extra officers as mentioned above. To make the Army more attractive to +enlisted men, it is absolutely essential to create a service corps, such as +exists in nearly every modern army in the world, to do the skilled and +unskilled labor, inseparably connected with military administration, which +is now exacted, without just compensation, of enlisted men who voluntarily +entered the Army to do service of an altogether different kind. There are a +number of other laws necessary to so organize the Army as to promote its +efficiency and facilitate its rapid expansion in time of war; but the above +are the most important. + +It was hoped The Hague Conference might deal with the question of the +limitation of armaments. But even before it had assembled informal +inquiries had developed that as regards naval armaments, the only ones in +which this country had any interest, it was hopeless to try to devise any +plan for which there was the slightest possibility of securing the assent +of the nations gathered at The Hague. No plan was even proposed which would +have had the assent of more than one first class Power outside of the +United States. The only plan that seemed at all feasible, that of limiting +the size of battleships, met with no favor at all. It is evident, +therefore, that it is folly for this Nation to base any hope of securing +peace on any international agreement as to the limitations of armaments. +Such being the fact it would be most unwise for us to stop the upbuilding +of our Navy. To build one battleship of the best and most advanced type a +year would barely keep our fleet up to its present force. This is not +enough. In my judgment, we should this year provide for four battleships. +But it is idle to build battleships unless in addition to providing the +men, and the means for thorough training, we provide the auxiliaries for +them, unless we provide docks, the coaling stations, the colliers and +supply ships that they need. We are extremely deficient in coaling stations +and docks on the Pacific, and this deficiency should not longer be +permitted to exist. Plenty of torpedo boats and destroyers should be built. +Both on the Atlantic and Pacific coasts, fortifications of the best type +should be provided for all our greatest harbors. + +We need always to remember that in time of war the Navy is not to be used +to defend harbors and sea-coast cities; we should perfect our system of +coast fortifications. The only efficient use for the Navy is for offense. +The only way in which it can efficiently protect our own coast against the +possible action of a foreign navy is by destroying that foreign navy. For +defense against a hostile fleet which actually attacks them, the coast +cities must depend upon their forts, mines, torpedoes, submarines, and +torpedo boats and destroyers. All of these together are efficient for +defensive purposes, but they in no way supply the place of a thoroughly +efficient navy capable of acting on the offensive; for parrying never yet +won a fight. It can only be won by hard hitting, and an aggressive +sea-going navy alone can do this hard hitting of the offensive type. But +the forts and the like are necessary so that the Navy may be footloose. In +time of war there is sure to be demand, under pressure, of fright, for the +ships to be scattered so as to defend all kind of ports. Under penalty of +terrible disaster, this demand must be refused. The ships must be kept +together, and their objective made the enemies' fleet. If fortifications +are sufficiently strong, no modern navy will venture to attack them, so +long as the foe has in existence a hostile navy of anything like the same +size or efficiency. But unless there exists such a navy then the +fortifications are powerless by themselves to secure the victory. For of +course the mere deficiency means that any resolute enemy can at his leisure +combine all his forces upon one point with the certainty that he can take +it. + +Until our battle fleet is much larger than at present it should never be +split into detachments so far apart that they could not in event of +emergency be speedily united. Our coast line is on the Pacific just as much +as on the Atlantic. The interests of California, Oregon, and Washington are +as emphatically the interests of the whole Union as those of Maine and New +York, of Louisiana and Texas. The battle fleet should now and then be moved +to the Pacific, just as at other times it should be kept in the Atlantic. +When the Isthmian Canal is built the transit of the battle fleet from one +ocean to the other will be comparatively easy. Until it is built I +earnestly hope that the battle fleet will be thus shifted between the two +oceans every year or two. The marksmanship on all our ships has improved +phenomenally during the last five years. Until within the last two or three +years it was not possible to train a battle fleet in squadron maneuvers +under service conditions, and it is only during these last two or three +years that the training under these conditions has become really effective. +Another and most necessary stride in advance is now being taken. The battle +fleet is about starting by the Straits of Magellan to visit the Pacific +coast.. Sixteen battleships are going under the command of Rear-Admiral +Evans, while eight armored cruisers and two other battleships will meet him +at San Francisco, whither certain torpedo destroyers are also going. No +fleet of such size has ever made such a voyage, and it will be of very +great educational use to all engaged in it. The only way by which to teach +officers and men how to handle the fleet so as to meet every possible +strain and emergency in time of war is to have them practice under similar +conditions in time of peace. Moreover, the only way to find out our actual +needs is to perform in time of peace whatever maneuvers might be necessary +in time of war. After war is declared it is too late to find out the needs; +that means to invite disaster. This trip to the Pacific will show what some +of our needs are and will enable us to provide for them. The proper place +for an officer to learn his duty is at sea, and the only way in which a +navy can ever be made efficient is by practice at sea, under all the +conditions which would have to be met if war existed. + +I bespeak the most liberal treatment for the officers and enlisted men of +the Navy. It is true of them, as likewise of the officers and enlisted men +of the Army, that they form a body whose interests should be close to the +heart of every good American. In return the most rigid performance of duty +should be exacted from them. The reward should be ample when they do their +best; and nothing less than their best should be tolerated. It is idle to +hope for the best results when the men in the senior grades come to those +grades late in life and serve too short a time in them. Up to the rank of +lieutenant-commander promotion in the Navy should be as now, by seniority, +subject, however, to such rigid tests as would eliminate the unfit. After +the grade of lieutenant-commander, that is, when we come to the grade of +command rank, the unfit should be eliminated in such manner that only the +conspicuously fit would remain, and sea service should be a principal test +of fitness. Those who are passed by should, after a certain length of +service in their respective grades, be retired. Of a given number of men it +may well be that almost all would make good lieutenants and most of them +good lieutenant-commanders, while only a minority be fit to be captains, +and but three or four to be admirals. Those who object to promotion +otherwise than by mere seniority should reflect upon the elementary fact +that no business in private life could be successfully managed if those who +enter at the lowest rungs of the ladder should each in turn, if he lived, +become the head of the firm, its active director, and retire after he had +held the position a few months. On its face such a scheme is an absurdity. +Chances for improper favoritism can be minimized by a properly formed +board; such as the board of last June, which did such conscientious and +excellent work in elimination. + +If all that ought to be done can not now be done, at least let a beginning +be made. In my last three annual Messages, and in a special Message to the +last Congress, the necessity for legislation that will cause officers of +the line of the Navy to reach the grades of captain and rear-admiral at +less advanced ages and which will cause them to have more sea training and +experience in the highly responsible duties of those grades, so that they +may become thoroughly skillful in handling battleships, divisions, +squadrons, and fleets in action, has been fully explained and urgently +recommended. Upon this subject the Secretary of the Navy has submitted +detailed and definite recommendations which have received my approval, and +which, if enacted into law, will accomplish what is immediately necessary, +and will, as compared with existing law, make a saving of more than five +millions of dollars during the next seven years. The navy personnel act of +1899 has accomplished all that was expected of it in providing satisfactory +periods of service in the several subordinate grades, from the grade of +ensign to the grade of lieutenant-commander, but the law is inadequate in +the upper grades and will continue to be inadequate on account of the +expansion of the personnel since its enactment. Your attention is invited +to the following quotations from the report of the personnel board of 1906, +of which the Assistant Secretary of the Navy was president: + +"Congress has authorized a considerable increase in the number of +midshipmen at the Naval Academy, and these midshipmen upon graduation are +promoted to ensign and lieutenant (junior-grade). But no provision has been +made for a corresponding increase in the upper grades, the result being +that the lower grades will become so congested that a midshipman now in one +of the lowest classes at Annapolis may possibly not be promoted to +lieutenant until he is between 45 and 50 years of age. So it will continue +under the present law, congesting at the top and congesting at the bottom. +The country fails to get from the officers of the service the best that is +in them by not providing opportunity for their normal development and +training. The board believes that this works a serious detriment to the +efficiency of the Navy and is a real menace to the public safety." + +As stated in my special Message to the last Congress: "I am firmly of the +opinion that unless the present conditions of the higher commissioned +personnel is rectified by judicious legislation the future of our Navy will +be gravely compromised." It is also urgently necessary to increase the +efficiency of the Medical Corps of the Navy. Special legislation to this +end has already been proposed; and I trust it may be enacted without +delay. + +It must be remembered that everything done in the Navy to fit it to do well +in time of war must be done in time of peace. Modern wars are short; they +do not last the length of time requisite to build a battleship; and it +takes longer to train the officers and men to do well on a battleship than +it takes to build it. Nothing effective can be done for the Navy once war +has begun, and the result of the war, if the combatants are otherwise +equally matched, will depend upon which power has prepared best in time of +peace. The United States Navy is the best guaranty the Nation has that its +honor and interest will not be neglected; and in addition it offers by far +the best insurance for peace that can by human ingenuity be devised. + +I call attention to the report of the official Board of Visitors to the +Naval Academy at Annapolis which has been forwarded to the Congress. The +report contains this paragraph: + +"Such revision should be made of the courses of study and methods of +conducting and marking examinations as will develop and bring out the +average all-round ability of the midshipman rather than to give him +prominence in any one particular study. The fact should be kept in mind +that the Naval Academy is not a university but a school, the primary object +of which is to educate boys to be efficient naval officers. Changes in +curriculum, therefore, should be in the direction of making the course of +instruction less theoretical and more practical. No portion of any future +class should be graduated in advance of the full four years' course, and +under no circumstances should the standard of instruction be lowered. The +Academy in almost all of its departments is now magnificently equipped, and +it would be very unwise to make the course of instruction less exacting +than it is to-day." + +Acting upon this suggestion I designated three seagoing officers, Capt. +Richard Wainwright, Commander Robert S. Griffin, and Lieut. Commander +Albert L. Key, all graduates of the Academy, to investigate conditions and +to recommend to me the best method of carrying into effect this general +recommendation. These officers performed the duty promptly and +intelligently, and, under the personal direction of Capt. Charles J. +Badger, Superintendent of the Academy, such of the proposed changes as were +deemed to be at present advisable were put into effect at the beginning of +the academic year, October 1, last. The results, I am confident, will be +most beneficial to the Academy, to the midshipmen, and to the Navy. + +In foreign affairs this country's steady policy is to behave toward other +nations as a strong and self-respecting man should behave toward the other +men with whom he is brought into contact. In other words, our aim is +disinterestedly to help other nations where such help can be wisely given +without the appearance of meddling with what does not concern us; to be +careful to act as a good neighbor; and at the same time, in good-natured +fashion, to make it evident that we do not intend to be imposed upon. + +The Second International Peace Conference was convened at The Hague on the +15th of June last and remained in session until the 18th of October. For +the first time the representatives of practically all the civilized +countries of the world united in a temperate and kindly discussion of the +methods by which the causes of war might be narrowed and its injurious +effects reduced. + +Although the agreements reached in the Conference did not in any direction +go to the length hoped for by the more sanguine, yet in many directions +important steps were taken, and upon every subject on the programme there +was such full and considerate discussion as to justify the belief that +substantial progress has been made toward further agreements in the future. +Thirteen conventions were agreed upon embodying the definite conclusions +which had been reached, and resolutions were adopted marking the progress +made in matters upon which agreement was not yet sufficiently complete to +make conventions practicable. + +The delegates of the United States were instructed to favor an agreement +for obligatory arbitration, the establishment of a permanent court of +arbitration to proceed judicially in the hearing and decision of +international causes, the prohibition of force for the collection of +contract debts alleged to be due from governments to citizens of other +countries until after arbitration as to the justice and amount of the debt +and the time and manner of payment, the immunity of private property at +sea, the better definition of the rights of neutrals, and, in case any +measure to that end should be introduced, the limitation of armaments. + +In the field of peaceful disposal of international differences several +important advances were made. First, as to obligatory arbitration. Although +the Conference failed to secure a unanimous agreement upon the details of a +convention for obligatory arbitration, it did resolve as follows; + +"It is unanimous: (1) In accepting the principle for obligatory +arbitration; (2) In declaring that certain differences, and notably those +relating to the interpretation and application of international +conventional stipulations are susceptible of being submitted to obligatory +arbitration without any restriction." + +In view of the fact that as a result of the discussion the vote upon the +definite treaty of obligatory arbitration, which was proposed, stood 32 in +favor to 9 against the adoption of the treaty, there can be little doubt +that the great majority of the countries of the world have reached a point +where they are now ready to apply practically the principles thus +unanimously agreed upon by the Conference. + +The second advance, and a very great one, is the agreement which relates to +the use of force for the collection of contract debts. Your attention is +invited to the paragraphs upon this subject in my Message of December, +1906, and to the resolution of the Third American Conference at Rio in the +summer of 1906. The convention upon this subject adopted by the Conference +substantially as proposed by the American delegates is as follows:: + +"In order to avoid between nations armed conflicts of a purely pecuniary +origin arising from contractual debts claimed of the government of one +country by the government of another country to be due to its nationals, +the signatory Powers agree not to have recourse to armed force for the +collection of such contractual debts. + +"However, this stipulation shall not be applicable when the debtor State +refuses or leaves unanswered an offer to arbitrate, or, in case of +acceptance, makes it impossible to formulate the terms of submission, or, +after arbitration, fails to comply with the award rendered. + +"It is further agreed that arbitration here contemplated shall be in +conformity, as to procedure, with Chapter III of the Convention for the +Pacific Settlement of International Disputes adopted at The Hague, and that +it shall determine, in so far as there shall be no agreement between the +parties, the justice and the amount of the debt, the time and mode of +payment thereof." + +Such a provision would have prevented much injustice and extortion in the +past, and I cannot doubt that its effect in the future will be most +salutary. + +A third advance has been made in amending and perfecting the convention of +1899 for the voluntary settlement of international disputes, and +particularly the extension of those parts of that convention which relate +to commissions of inquiry. The existence of those provisions enabled the +Governments of Great Britain and Russia to avoid war, notwithstanding great +public excitement, at the time of the Dogger Bank incident, and the new +convention agreed upon by the Conference gives practical effect to the +experience gained in that inquiry. + +Substantial progress was also made towards the creation of a permanent +judicial tribunal for the determination of international causes. There was +very full discussion of the proposal for such a court and a general +agreement was finally reached in favor of its creation. The Conference +recommended to the signatory Powers the adoption of a draft upon which it +agreed for the organization of the court, leaving to be determined only the +method by which the judges should be selected. This remaining unsettled +question is plainly one which time and good temper will solve. + +A further agreement of the first importance was that for the creation of an +international prize court. The constitution, organization and procedure of +such a tribunal were provided for in detail. Anyone who recalls the +injustices under which this country suffered as a neutral power during the +early part of the last century can not fail to see in this provision for an +international prize court the great advance which the world is making +towards the substitution of the rule of reason and justice in place of +simple force. Not only will the international prize court be the means of +protecting the interests of neutrals, but it is in itself a step towards +the creation of the more general court for the hearing of international +controversies to which reference has just been made. The organization and +action of such a prize court can not fail to accustom the different +countries to the submission of international questions to the decision of +an international tribunal, and we may confidently expect the results of +such submission to bring about a general agreement upon the enlargement of +the practice. + +Numerous provisions were adopted for reducing the evil effects of war and +for defining the rights and duties of neutrals. + +The Conference also provided for the holding of a third Conference within a +period similar to that which elapsed between the First and Second +Conferences. + +The delegates of the United States worthily represented the spirit of the +American people and maintained with fidelity and ability the policy of our +Government upon all the great questions discussed in the Conference. + +The report of the delegation, together with authenticated copies of the +conventions signed, when received, will be laid before the Senate for its +consideration. + +When we remember how difficult it is for one of our own legislative bodies, +composed of citizens of the same country, speaking the same language, +living under the same laws, and having the same customs, to reach an +agreement, or even to secure a majority upon any difficult and important +subject which is proposed for legislation, it becomes plain that the +representatives of forty-five different countries, speaking many different +languages, accustomed to different methods of procedure, with widely +diverse interests, who discussed so many different subjects and reached +agreements upon so many, are entitled to grateful appreciation for the +wisdom, patience, and moderation with which they have discharged their +duty. The example of this temperate discussion, and the agreements and the +efforts to agree, among representatives of all the nations of the earth, +acting with universal recognition of the supreme obligation to promote +peace, can. not fail to be a powerful influence for good in future +international relations. + +A year ago in consequence of a revolutionary movement in Cuba which +threatened the immediate return to chaos of the island, the United States +intervened, sending down an army and establishing a provisional government +under Governor Magoon. Absolute quiet and prosperity have returned to the +island because of this action. We are now taking steps to provide for +elections in the island and our expectation is within the coming year to be +able to turn the island over again to government chosen by the people +thereof. Cuba is at our doors. It is not possible that this Nation should +permit Cuba again to sink into the condition from which we rescued it. All +that we ask of the Cuban people is that they be prosperous, that they +govern themselves so as to bring content, order and progress to their +island, the Queen of the Antilles; and our only interference has been and +will be to help them achieve these results. + +An invitation has been extended by Japan to the Government and people of +the United States to participate in a great national exposition to be held +at Tokyo from April 1 to October 31, 1912, and in which the principal +countries of the world are to be invited to take part. This is an occasion +of special interest to all the nations of the world, and peculiarly so to +us; for it is the first instance in which such a great national exposition +has been held by a great power dwelling on the Pacific; and all the nations +of Europe and America will, I trust, join in helping to success this first +great exposition ever held by a great nation of Asia. The geographical +relations of Japan and the United States as the possessors of such large +portions of the coasts of the Pacific, the intimate trade relations already +existing between the two countries, the warm friendship which has been +maintained between them without break since the opening of Japan to +intercourse with the western nations, and her increasing wealth and +production, which we regard with hearty goodwill and wish to make the +occasion of mutually beneficial commerce, all unite in making it eminently +desirable that this invitation should be accepted. I heartily recommend +such legislation as will provide in generous fashion for the representation +of this Government and. its people in the proposed exposition. Action +should be taken now. We are apt to underestimate the time necessary for +preparation in such cases. The invitation to the French Exposition of 1900 +was brought to the attention of the Congress by President Cleveland in +December, 1895; and so many are the delays necessary to such proceedings +that the period of font years and a half which then intervened before the +exposition proved none too long for the proper preparation of the +exhibits. + +The adoption of a new tariff by Germany, accompanied by conventions for +reciprocal tariff concessions between that country and most of the other +countries of continental Europe, led the German Government to -ire the +notice necessary to terminate the reciprocal commercial agreement with this +country proclaimed July 13, 1900. The notice was to take effect on the 1st +of March, 1906, and in default of some other arrangements this would have +left the exports from the United States to Germany subject to the general +German tariff duties, from 25 to 50 per cent higher than the conventional +duties imposed upon the goods of most of our competitors for German trade. + +Under a special agreement made between the two Governments in February, +1906, the German Government postponed the operation of their notice until +the 30th of June, 1907. In the meantime, deeming it to be my duty to make +every possible effort to prevent a tariff war between the United States and +Germany arising from misunderstanding by either country of the conditions +existing in the other, and acting upon the invitation of the German +Government, I sent to Berlin a commission composed of competent experts in +the operation and administration of the customs tariff, from the +Departments of the Treasury and Commerce and Labor. This commission was +engaged for several mouths in conference with a similar commission +appointed by the German Government, under instructions, so far as +practicable, to reach a common understanding as to all the facts regarding +the tariffs of the United States and Germany material and relevant to the +trade relations between the two countries. The commission reported, and +upon the basis of the report, a further temporary commercial agreement was +entered into by the two countries, pursuant to which, in the exercise of +the authority conferred upon the President by the third section of the +tariff act of July 24, 1897, I extended the reduced tariff rates provided +for in that section to champagne and all other sparkling wines, and +pursuant to which the German conventional or minimum tariff rates were +extended to about 96 1/2 per cent of all the exports from the United States +to Germany. This agreement is to remain in force until the 30th of June, +1908, and until six months after notice by either party to terminate it. + +The agreement and the report of the commission on which it is based will be +laid before the Congress for its information. + +This careful examination into the tariff relations between the United +States and Germany involved an inquiry into certain of our methods of +administration which had been the cause of much complaint on the part of +German exporters. In this inquiry I became satisfied that certain vicious +and unjustifiable practices had grown up in our customs administration, +notably the practice of determining values of imports upon detective +reports never disclosed to the persons whose interests were affected. The +use of detectives, though often necessary, tends towards abuse, and should +be carefully guarded. Under our practice as I found it to exist in this +case, the abuse had become gross and discreditable. Under it, instead of +seeking information as to the market value of merchandise from the +well-known and respected members of the commercial community in the country +of its production, secret statements were obtained from informers and +discharged employees and business rivals, and upon this kind of secret +evidence the values of imported goods were frequently raised and heavy +penalties were frequently imposed upon importers who were never permitted +to know what the evidence was and who never had an opportunity to meet it. +It is quite probable that this system tended towards an increase of the +duties collected upon imported goods, but I conceive it to be a violation +of law to exact more duties than the law provides, just as it is a +violation to admit goods upon the payment of less than the legal rate of +duty. This practice was repugnant to the spirit of American law and to +American sense of justice. In the judgment of the most competent experts of +the Treasury Department and the Department of Commerce and Labor it was +wholly unnecessary for the due collection of the customs revenues, and the +attempt to defend it merely illustrates the demoralization which naturally +follows from a long continued course of reliance upon such methods. I +accordingly caused the regulations governing this branch of the customs +service to be modified so that values are determined upon a hearing in +which all the parties interested have an opportunity to be heard and to +know the evidence against them. Moreover our Treasury agents are accredited +to the government of the country in which they seek information, and in +Germany receive the assistance of the quasi-official chambers of commerce +in determining the actual market value of goods, in accordance with what I +am advised to be the true construction of the law. + +These changes of regulations were adapted to the removal of such manifest +abuses that I have not felt that they ought to be confined to our relations +with Germany; and I have extended their operation to all other countries +which have expressed a desire to enter into similar administrative +relations. + +I ask for authority to reform the agreement with China under which the +indemnity of 1900 was fixed, by remitting and cancelling the obligation of +China for the payment of all that part of the stipulated indemnity which is +in excess of the sum of eleven million, six hundred and fifty-five +thousand, four hundred and ninety-two dollars and sixty-nine cents, and +interest at four per cent. After the rescue of the foreign legations in +Peking during the Boxer troubles in 1900 the Powers required from China the +payment of equitable indemnities to the several nations, and the final +protocol under which the troops were withdrawn, signed at Peking, September +7, 1901, fixed the amount of this indemnity allotted to the United States +at over $20,000,000, and China paid, up to and including the 1st day of +June last, a little over $6,000,000. It was the first intention of this +Government at the proper time, when all claims had been presented and all +expenses ascertained as fully as possible, to revise the estimates and +account, and as a proof of sincere friendship for China voluntarily to +release that country from its legal liability for all payments in excess of +the sum which should prove to be necessary for actual indemnity to the +United States and its citizens. + +This Nation should help in every practicable way in the education of the +Chinese people, so that the vast and populous Empire of China may gradually +adapt itself to modern conditions. One way of doing this is by promoting +the coming of Chinese students to this country and making it attractive to +them to take courses at our universities and higher educational +institutions. Our educators should, so far as possible, take concerted +action toward this end. + +On the courteous invitation of the President of Mexico, the Secretary of +State visited that country in September and October and was received +everywhere with the greatest kindness and hospitality. + +He carried from the Government of the United States to our southern +neighbor a message of respect and good will and of desire for better +acquaintance and increasing friendship. The response from the Government +and the people of Mexico was hearty and sincere. No pains were spared to +manifest the most friendly attitude and feeling toward the United States. + +In view of the close neighborhood of the two countries the relations which +exist between Mexico and the United States are just cause for +gratification. We have a common boundary of over 1,500 miles from the Gulf +of Mexico to the Pacific. Much of it is marked only by the shifting waters +of the Rio Grande. Many thousands of Mexicans are residing upon our side of +the line and it is estimated that over 40,000 Americans are resident in +Mexican territory and that American investments in Mexico amount to over +seven hundred million dollars. The extraordinary industrial and commercial +prosperity of Mexico has been greatly promoted by American enterprise, and +Americans are sharing largely in its results. The foreign trade of the +Republic already exceeds $240,000,000 per annum, and of this two-thirds +both of exports and imports are exchanged with the United States. Under +these circumstances numerous questions necessarily arise between the two +countries. These questions are always approached and disposed of in a +spirit of mutual courtesy and fair dealing. Americans carrying on business +in Mexico testify uniformly to the kindness and consideration with which +they are treated and their sense of the security of their property and +enterprises under the wise administration of the great statesman who has so +long held the office of Chief Magistrate of that Republic. + +The two Governments have been uniting their efforts for a considerable time +past to aid Central America in attaining the degree of peace and order +which have made possible the prosperity of the northern ports of the +Continent. After the peace between Guatemala, Honduras, and Salvador, +celebrated under the circumstances described in my last Message, a new war +broke out between the Republics of Nicaragua, Honduras, and Salvador. The +effort to compose this new difficulty has resulted in the acceptance of the +joint suggestion of the Presidents of Mexico and of the United States for a +general peace conference between all the countries of Central America. On +the 17th day of September last a protocol was signed between the +representatives of the five Central American countries accredited to this +Government agreeing upon a conference to be held in the City of Washington +"in order to devise the means of preserving the good relations among said +Republics and bringing about permanent peace in those countries." The +protocol includes the expression of a wish that the Presidents of the +United States and Mexico should appoint "representatives to lend their good +and impartial offices in a purely friendly way toward the realization of +the objects of the conference." The conference is now in session and will +have our best wishes and, where it is practicable, our friendly +assistance. + +One of the results of the Pan American Conference at Rio Janeiro in the +summer of 1906 has been a great increase in the activity and usefulness of +the International Bureau of American Republics. That institution, which +includes all the American Republics in its membership and brings all their +representatives together, is doing a really valuable work in informing the +people of the United States about the other Republics and in making the +United States known to them. Its action is now limited by appropriations +determined when it was doing a work on a much smaller scale and rendering +much less valuable service. I recommend that the contribution of this +Government to the expenses of the Bureau be made commensurate with its +increased work. + +*** + +State of the Union Address +Theodore Roosevelt +December 8, 1908 + +To the Senate and House of Representatives: FINANCES. + +The financial standing of the Nation at the present time is excellent, and +the financial management of the Nation's interests by the Government during +the last seven years has shown the most satisfactory results. But our +currency system is imperfect, and it is earnestly to be hoped that the +Currency Commission will be able to propose a thoroughly good system which +will do away with the existing defects. + +During the period from July 1, 1901, to September 30, 1908, there was an +increase in the amount of money in circulation of $902,991,399. The +increase in the per capita during this period was $7.06. Within this time +there were several occasions when it was necessary for the Treasury +Department to come to the relief of the money market by purchases or +redemptions of United States bonds; by increasing deposits in national +banks; by stimulating additional issues of national bank notes, and by +facilitating importations from abroad of gold. Our imperfect currency +system has made these proceedings necessary, and they were effective until +the monetary disturbance in the fall of 1907 immensely increased the +difficulty of ordinary methods of relief. By the middle of November the +available working balance in the Treasury had been reduced to approximately +$5,000,000. Clearing house associations throughout the country had been +obliged to resort to the expedient of issuing clearing house certificates, +to be used as money. In this emergency it was determined to invite +subscriptions for $50,000,000 Panama Canal bonds, and $100,000,000 three +per cent certificates of indebtedness authorized by the act of June 13, +1898. It was proposed to re-deposit in the national banks the proceeds of +these issues, and to permit their use as a basis for additional circulating +notes of national banks. The moral effect of this procedure was so great +that it was necessary to issue only $24,631,980 of the Panama Canal bonds +and $15,436,500 of the certificates of indebtedness. + +During the period from July 1, 1901, to September 30, 1908, the balance +between the net ordinary receipts and the net ordinary expenses of the +Government showed a surplus in the four years 1902, 1903, 1906 and 1907, +and a deficit in the years 1904, 1905, 1908 and a fractional part of the +fiscal year 1909. The net result was a surplus of $99,283,413.54. The +financial operations of the Government during this period, based upon these +differences between receipts and expenditures, resulted in a net reduction +of the interest-bearing debt of the United States from $987,141,040 to +$897,253,990, notwithstanding that there had been two sales of Panama Canal +bonds amounting in the aggregate to $54,631,980, and an issue of three per +cent certificates of indebtedness under the act of June 13, 1998, amounting +to $15,436,500. Refunding operations of the Treasury Department under the +act of March 14, 1900, resulted in the conversion into two per cent consols +of 1930 of $200,309,400 bonds bearing higher rates of interest. A decrease +of $8,687,956 in the annual interest charge resulted from these +operations. + +In short, during the seven years and three months there has been a net +surplus of nearly one hundred millions of receipts over expenditures, a +reduction of the interest-bearing debt by ninety millions, in spite of the +extraordinary expense of the Panama Canal, and a saving of nearly nine +millions on the annual interest charge. This is an exceedingly satisfactory +showing, especially in view of the fact that during this period the Nation +has never hesitated to undertake any expenditure that it regarded as +necessary. There have been no new taxes and no increase of taxes; on the +contrary, some taxes have been taken off; there has been a reduction of +taxation. CORPORATIONS. + +As regards the great corporations engaged in interstate business, and +especially the railroad, I can only repeat what I have already again and +again said in my messages to the Congress, I believe that under the +interstate clause of the Constitution the United States has complete and +paramount right to control all agencies of interstate commerce, and I +believe that the National Government alone can exercise this right with +wisdom and effectiveness so as both to secure justice from, and to do +justice to, the great corporations which are the most important factors in +modern business. I believe that it is worse than folly to attempt to +prohibit all combinations as is done by the Sherman anti-trust law, because +such a law can be enforced only imperfectly and unequally, and its +enforcement works almost as much hardship as good. I strongly advocate that +instead of an unwise effort to prohibit all combinations there shall be +substituted a law which shall expressly permit combinations which are in +the interest of the public, but shall at the same time give to some agency +of the National Government full power of control and supervision over them. +One of the chief features of this control should be securing entire +publicity in all matters which the public has a right to know, and +furthermore, the power, not by judicial but by executive action, to prevent +or put a stop to every form of improper favoritism or other wrongdoing. + +The railways of the country should be put completely under the Interstate +Commerce Commission and removed from the domain of the anti-trust law. The +power of the Commission should be made thoroughgoing, so that it could +exercise complete supervision and control over the issue of securities as +well as over the raising and lowering of rates. As regards rates, at least, +this power should be summary. The power to investigate the financial +operations and accounts of the railways has been one of the most valuable +features in recent legislation. Power to make combinations and traffic +agreements should be explicitly conferred upon the railroads, the +permission of the Commission being first gained and the combination or +agreement being published in all its details. In the interest of the public +the representatives of the public should have complete power to see that +the railroads do their duty by the public, and as a matter of course this +power should also be exercised so as to see that no injustice is done to +the railroads. The shareholders, the employees and the shippers all have +interests that must be guarded. It is to the interest of all of them that +no swindling stock speculation should be allowed, and that there should be +no improper issuance of securities. The guiding intelligences necessary for +the successful building and successful management of railroads should +receive ample remuneration; but no man should be allowed to make money in +connection with railroads out of fraudulent over-capitalization and kindred +stock-gambling performances; there must be no defrauding of investors, +oppression of the farmers and business men who ship freight, or callous +disregard of the rights and needs of the employees. In addition to this the +interests of the shareholders, of the employees, and of the shippers should +all be guarded as against one another. To give any one of them undue and +improper consideration is to do injustice to the others. Rates must be made +as low as is compatible with giving proper returns to all the employees of +the railroad, from the highest to the lowest, and proper returns to the +shareholders; but they must not, for instance, be reduced in such fashion +as to necessitate a cut in the wages of the employees or the abolition of +the proper and legitimate profits of honest shareholders. + +Telegraph and telephone companies engaged in interstate business should be +put under the jurisdiction of the Interstate Commerce Commission. + +It is very earnestly to be wished that our people, through their +representatives, should act in this matter. It is hard to say whether most +damage to the country at large would come from entire failure on the part +of the public to supervise and control the actions of the great +corporations, or from the exercise of the necessary governmental power in a +way which would do injustice and wrong to the corporations. Both the +preachers of an unrestricted individualism, and the preachers of an +oppression which would deny to able men of business the just reward of +their initiative and business sagacity, are advocating policies that would +be fraught with the gravest harm to the whole country. To permit every +lawless capitalist, every law-defying corporation, to take any action, no +matter how iniquitous, in the effort to secure an improper profit and to +build up privilege, would be ruinous to the Republic and would mark the +abandonment of the effort to secure in the industrial world the spirit of +democratic fair dealing. On the other hand, to attack these wrongs in that +spirit of demagogy which can see wrong only when committed by the man of +wealth, and is dumb and blind in the presence of wrong committed against +men of property or by men of no property, is exactly as evil as corruptly +to defend the wrongdoing of men of wealth. The war we wage must be waged +against misconduct, against wrongdoing wherever it is found; and we must +stand heartily for the rights of every decent man, whether he be a man of +great wealth or a man who earns his livelihood as a wage-worker or a tiller +of the soil. + +It is to the interest of all of us that there should be a premium put upon +individual initiative and individual capacity, and an ample reward for the +great directing intelligences alone competent to manage the great business +operations of to-day. It is well to keep in mind that exactly as the +anarchist is the worst enemy of liberty and the reactionary the worst enemy +of order, so the men who defend the rights of property have most to fear +from the wrongdoers of great wealth, and the men who are championing +popular rights have most to fear from the demagogues who in the name of +popular rights would do wrong to and oppress honest business men, honest +men of wealth; for the success of either type of wrongdoer necessarily +invites a violent reaction against the cause the wrongdoer nominally +upholds. In point of danger to the Nation there is nothing to choose +between on the one hand the corruptionist, the bribe-giver, the +bribe-taker, the man who employs his great talent to swindle his +fellow-citizens on a large scale, and, on the other hand, the preacher of +class hatred, the man who, whether from ignorance or from willingness to +sacrifice his country to his ambition, persuades well-meaning but +wrong-headed men to try to destroy the instruments upon which our +prosperity mainly rests. Let each group of men beware of and guard against +the shortcomings to which that group is itself most liable. Too often we +see the business community in a spirit of unhealthy class consciousness +deplore the effort to hold to account under the law the wealthy men who in +their management of great corporations, whether railroads, street railways, +or other industrial enterprises, have behaved in a way that revolts the +conscience of the plain, decent people. Such an attitude can not be +condemned too severely, for men of property should recognize that they +jeopardize the rights of property when they fail heartily to join in the +effort to do away with the abuses of wealth. On the other hand, those who +advocate proper control on behalf of the public, through the State, of +these great corporations, and of the wealth engaged on a giant scale in +business operations, must ever keep in mind that unless they do scrupulous +justice to the corporation, unless they permit ample profit, and cordially +encourage capable men of business so long as they act with honesty, they +are striking at the root of our national well-being; for in the long run, +under the mere pressure of material distress, the people as a whole would +probably go back to the reign of an unrestricted individualism rather than +submit to a control by the State so drastic and so foolish, conceived in a +spirit of such unreasonable and narrow hostility to wealth, as to prevent +business operations from being profitable, and therefore to bring ruin upon +the entire business community, and ultimately upon the entire body of +citizens. + +The opposition to Government control of these great corporations makes its +most effective effort in the shape of an appeal to the old doctrine of +State's rights. Of course there are many sincere men who now believe in +unrestricted individualism in business, just as there were formerly many +sincere men who believed in slavery--that is, in the unrestricted right of +an individual to own another individual. These men do not by themselves +have great weight, however. The effective fight against adequate Government +control and supervision of individual, and especially of corporate, wealth +engaged in interstate business is chiefly done under cover; and especially +under cover of an appeal to State's rights. It is not at all infrequent to +read in the same speech a denunciation of predatory wealth fostered by +special privilege and defiant of both the public welfare and law of the +land, and a denunciation of centralization in the Central Government of the +power to deal with this centralized and organized wealth. Of course the +policy set forth in such twin denunciations amounts to absolutely nothing, +for the first half is nullified by the second half. The chief reason, among +the many sound and compelling reasons, that led to the formation of the +National Government was the absolute need that the Union, and not the +several States, should deal with interstate and foreign commerce; and the +power to deal with interstate commerce was granted absolutely and plenarily +to the Central Government and was exercised completely as regards the only +instruments of interstate commerce known in those days--the waterways, the +highroads, as well as the partnerships of individuals who then conducted +all of what business there was. Interstate commerce is now chiefly +conducted by railroads; and the great corporation has supplanted the mass +of small partnerships or individuals. The proposal to make the National +Government supreme over, and therefore to give it complete control over, +the railroads and other instruments of interstate commerce is merely a +proposal to carry out to the letter one of the prime purposes, if not the +prime purpose, for which the Constitution was rounded. It does not +represent centralization. It represents merely the acknowledgment of the +patent fact that centralization has already come in business. If this +irresponsible outside business power is to be controlled in the interest of +the general public it can only be controlled in one way--by giving adequate +power of control to the one sovereignty capable of exercising such +power--the National Government. Forty or fifty separate state governments +can not exercise that power over corporations doing business in most or all +of them; first, because they absolutely lack the authority to deal with +interstate business in any form; and second, because of the inevitable +conflict of authority sure to arise in the effort to enforce different +kinds of state regulation, often inconsistent with one another and +sometimes oppressive in themselves. Such divided authority can not regulate +commerce with wisdom and effect. The Central Government is the only power +which, without oppression, can nevertheless thoroughly and adequately +control and supervise the large corporations. To abandon the effort for +National control means to abandon the effort for all adequate control and +yet to render likely continual bursts of action by State legislatures, +which can not achieve the purpose sought for, but which can do a great deal +of damage to the corporation without conferring any real benefit on the +public. + +I believe that the more farsighted corporations are themselves coming to +recognize the unwisdom of the violent hostility they have displayed during +the last few years to regulation and control by the National Government of +combinations engaged in interstate business. The truth is that we who +believe in this movement of asserting and exercising a genuine control, in +the public interest, over these great corporations have to contend against +two sets of enemies, who, though nominally opposed to one another, are +really allies in preventing a proper solution of the problem. There are, +first, the big corporation men, and the extreme individualists among +business men, who genuinely believe in utterly unregulated business that +is, in the reign of plutocracy; and, second, the men who, being blind to +the economic movements of the day, believe in a movement of repression +rather than of regulation of corporations, and who denounce both the power +of the railroads and the exercise of the Federal power which alone can +really control the railroads. Those who believe in efficient national +control, on the other hand, do not in the least object to combinations; do +not in the least object to concentration in business administration. On the +contrary, they favor both, with the all important proviso that there shall +be such publicity about their workings, and such thoroughgoing control over +them, as to insure their being in the interest, and not against the +interest, of the general public. We do not object to the concentration of +wealth and administration; but we do believe in the distribution of the +wealth in profits to the real owners, and in securing to the public the +full benefit of the concentrated administration. We believe that with +concentration in administration there can come both be advantage of a +larger ownership and of a more equitable distribution of profits, and at +the same time a better service to the commonwealth. We believe that the +administration should be for the benefit of the many; and that greed and +rascality, practiced on a large scale, should be punished as relentlessly +as if practiced on a small scale. + +We do not for a moment believe that the problem will be solved by any short +and easy method. The solution will come only by pressing various concurrent +remedies. Some of these remedies must lie outside the domain of all +government. Some must lie outside the domain of the Federal Government. But +there is legislation which the Federal Government alone can enact and which +is absolutely vital in order to secure the attainment of our purpose. Many +laws are needed. There should be regulation by the National Government of +the great interstate corporations, including a simple method of account +keeping, publicity, supervision of the issue securities, abolition of +rebates, and of special privileges. There should be short time franchises +for all corporations engaged in public business; including the corporations +which get power from water rights. There should be National as well as +State guardianship of mines and forests. The labor legislation hereinafter +referred to should concurrently be enacted into law. + +To accomplish this, means of course a certain increase in the use of--not +the creation of--power, by the Central Government. The power already +exists; it does not have to be created; the only question is whether it +shall be used or left idle--and meanwhile the corporations over which the +power ought to be exercised will not remain idle. Let those who object to +this increase in the use of the only power available, the national power, +be frank, and admit openly that they propose to abandon any effort to +control the great business corporations and to exercise supervision over +the accumulation and distribution of wealth; for such supervision and +control can only come through this particular kind of increase of power. We +no more believe in that empiricism which demand, absolutely unrestrained +individualism than we do in that empiricism which clamors for a deadening +socialism which would destroy all individual initiative and would ruin the +country with a completeness that not even an unrestrained individualism +itself could achieve. The danger to American democracy lies not in the +least in the concentration of administrative power in responsible and +accountable hands. It lies in having the power insufficiently concentrated, +so that no one can be held responsible to the people for its use. +Concentrated power is palpable, visible, responsible, easily reached, +quickly held to account. Power scattered through many administrators, many +legislators, many men who work behind and through legislators and +administrators, is impalpable, is unseen, is irresponsible, can not be +reached, can not be held to account. Democracy is in peril wherever the +administration of political power is scattered among a variety of men who +work in secret, whose very names are unknown to the common people. It is +not in peril from any man who derives authority from the people, who +exercises it in sight of the people, and who is from time to time compelled +to give an account of its exercise to the people. LABOR. + +There are many matters affecting labor and the status of the wage-worker to +which I should like to draw your attention, but an exhaustive discussion of +the problem in all its aspects is not now necessary. This administration is +nearing its end; and, moreover, under our form of government the solution +of the problem depends upon the action of the States as much as upon the +action of the Nation. Nevertheless, there are certain considerations which +I wish to set before you, because I hope that our people will more and more +keep them in mind. A blind and ignorant resistance to every effort for the +reform of abuses and for the readjustment of society to modern industrial +conditions represents not true conservatism, but an incitement to the +wildest radicalism; for wise radicalism and wise conservatism go hand in +hand, one bent on progress, the other bent on seeing that no change is made +unless in the right direction. I believe in a steady effort, or perhaps it +would be more accurate to say in steady efforts in many different +directions, to bring about a condition of affairs under which the men who +work with hand or with brain, the laborers, the superintendents, the men +who produce for the market and the men who find a market for the articles +produced, shall own a far greater share than at present of the wealth they +produce, and be enabled to invest it in the tools and instruments by which +all work is carried on. As far as possible I hope to see a frank +recognition of the advantages conferred by machinery, organization, and +division of labor, accompanied by an effort to bring about a larger share +in the ownership by wage-worker of railway, mill and factory. In farming, +this simply means that we wish to see the farmer own his own land; we do +not wish to see the farms so large that they become the property of +absentee landlords who farm them by tenants, nor yet so small that the +farmer becomes like a European peasant. Again, the depositors in our +savings banks now number over one-tenth of our entire population. These are +all capitalists, who through the savings banks loan their money to the +workers--that is, in many cases to themselves--to carry on their various +industries. The more we increase their number, the more we introduce the +principles of cooperation into our industry. Every increase in the number +of small stockholders in corporations is a good thing, for the same +reasons; and where the employees are the stockholders the result is +particularly good. Very much of this movement must be outside of anything +that can be accomplished by legislation; but legislation can do a good +deal. Postal savings banks will make it easy for the poorest to keep their +savings in absolute safety. The regulation of the national highways must be +such that they shall serve all people with equal justice. Corporate +finances must be supervised so as to make it far safer than at present for +the man of small means to invest his money in stocks. There must be +prohibition of child labor, diminution of woman labor, shortening of hours +of all mechanical labor; stock watering should be prohibited, and stock +gambling so far as is possible discouraged. There should be a progressive +inheritance tax on large fortunes. Industrial education should be +encouraged. As far as possible we should lighten the burden of taxation on +the small man. We should put a premium upon thrift, hard work, and business +energy; but these qualities cease to be the main factors in accumulating a +fortune long before that fortune reaches a point where it would be +seriously affected by any inheritance tax such as I propose. It is +eminently right that the Nation should fix the terms upon which the great +fortunes are inherited. They rarely do good and they often do harm to those +who inherit them in their entirety. + +PROTECTION FOR WAGEWORKERS. + +The above is the merest sketch, hardly even a sketch in outline, of the +reforms for which we should work. But there is one matter with which the +Congress should deal at this session. There should no longer be any +paltering with the question of taking care of the wage-workers who, under +our present industrial system, become killed, crippled, or worn out as part +of the regular incidents of a given business. The majority of wageworkers +must have their rights secured for them by State action; but the National +Government should legislate in thoroughgoing and far-reaching fashion not +only for all employees of the National Government, but for all persons +engaged in interstate commerce. The object sought for could be achieved to +a measurable degree, as far as those killed or crippled are concerned, by +proper employers' liability laws. As far as concerns those who have been +worn out, I call your attention to the fact that definite steps toward +providing old-age pensions have been taken in many of our private +industries. These may be indefinitely extended through voluntary +association and contributory schemes, or through the agency of savings +banks, as under the recent Massachusetts plan. To strengthen these +practical measures should be our immediate duty; it is not at present +necessary to consider the larger and more general governmental schemes that +most European governments have found themselves obliged to adopt. + +Our present system, or rather no system, works dreadful wrong, and is of +benefit to only one class of people--the lawyers. When a workman is injured +what he needs is not an expensive and doubtful lawsuit, but the certainty +of relief through immediate administrative action. The number of accidents +which result in the death or crippling of wageworkers, in the Union at +large, is simply appalling; in a very few years it runs up a total far in +excess of the aggregate of the dead and wounded in any modern war. No +academic theory about "freedom of contract" or "constitutional liberty to +contract" should be permitted to interfere with this and similar movements. +Progress in civilization has everywhere meant a limitation and regulation +of contract. I call your especial attention to the bulletin of the Bureau +of Labor which gives a statement of the methods of treating the unemployed +in European countries, as this is a subject which in Germany, for instance, +is treated in connection with making provision for worn-out and crippled +workmen. + +Pending a thoroughgoing investigation and action there is certain +legislation which should be enacted at once. The law, passed at the last +session of the Congress, granting compensation to certain classes of +employees of the Government, should be extended to include all employees of +the Government and should be made more liberal in its terms. There is no +good ground for the distinction made in the law between those engaged in +hazardous occupations and those not so engaged. If a man is injured or +killed in any line of work, it was hazardous in his case. Whether 1 per +cent or 10 per cent of those following a given occupation actually suffer +injury or death ought not to have any bearing on the question of their +receiving compensation. It is a grim logic which says to an injured +employee or to the dependents of one killed that he or they are entitled to +no compensation because very few people other than he have been injured or +killed in that occupation. Perhaps one of the most striking omissions in +the law is that it does not embrace peace officers and others whose lives +may be sacrificed in enforcing the laws of the United States. The terms of +the act providing compensation should be made more liberal than in the +present act. A year's compensation is not adequate for a wage-earner's +family in the event of his death by accident in the course of his +employment. And in the event of death occurring, say, ten or eleven months +after the accident, the family would only receive as compensation the +equivalent of one or two months' earnings. In this respect the generosity +of the United States towards its employees compares most unfavorably with +that of every country in Europe--even the poorest. + +The terms of the act are also a hardship in prohibiting payment in cases +where the accident is in any way due to the negligence of the employee. It +is inevitable that daily familiarity with danger will lead men to take +chances that can be construed into negligence. So well is this recognized +that in practically all countries in the civilized world, except the United +States, only a great degree of negligence acts as a bar to securing +compensation. Probably in no other respect is our legislation, both State +and National, so far behind practically the entire civilized world as in +the matter of liability and compensation for accidents in industry. It is +humiliating that at European international congresses on accidents the +United States should be singled out as the most belated among the nations +in respect to employers' liability legislation. This Government is itself a +large employer of labor, and in its dealings with its employees it should +set a standard in this country which would place it on a par with the most +progressive countries in Europe. The laws of the United States in this +respect and the laws of European countries have been summarized in a recent +Bulletin of the Bureau of Labor, and no American who reads this summary can +fail to be struck by the great contrast between our practices and theirs--a +contrast not in any sense to our credit. + +The Congress should without further delay pass a model employers' liability +law for the District of Columbia. The employers' liability act recently +declared unconstitutional, on account of apparently including in its +provisions employees engaged in intrastate commerce as well as those +engaged in interstate commerce, has been held by the local courts to be +still in effect so far as its provisions apply to District of Columbia. +There should be no ambiguity on this point. If there is any doubt on the +subject, the law should be reenacted with special reference to the District +of Columbia. This act, however, applies only to employees of common +carriers. In all other occupations the liability law of the District is the +old common law. The severity and injustice of the common law in this matter +has been in some degree or another modified in the majority of our States, +and the only jurisdiction under the exclusive control of the Congress +should be ahead and not behind the States of the Union in this respect. A +comprehensive employers' liability law should be passed for the District of +Columbia. + +I renew my recommendation made in a previous message that half-holidays be +granted during summer to all wageworkers in Government employ. + +I also renew my recommendation that the principle of the eight-hour day +should as rapidly and as far as practicable be extended to the entire work +being carried on by the Government; the present law should be amended to +embrace contracts on those public works which the present wording of the +act seems to exclude. + +THE COURTS. + +I most earnestly urge upon the Congress the duty of increasing the totally +inadequate salaries now given to our Judges. On the whole there is no body +of public servants who do as valuable work, nor whose moneyed reward is so +inadequate compared to their work. Beginning with the Supreme Court, the +Judges should have their salaries doubled. It is not befitting the dignity +of the Nation that its most honored public servants should be paid sums so +small compared to what they would earn in private life that the performance +of public service by them implies an exceedingly heavy pecuniary +sacrifice. + +It is earnestly to be desired that some method should be devised for doing +away with the long delays which now obtain in the administration of +justice, and which operate with peculiar severity against persons of small +means, and favor only the very criminals whom it is most desirable to +punish. These long delays in the final decisions of cases make in the +aggregate a crying evil; and a remedy should be devised. Much of this +intolerable delay is due to improper regard paid to technicalities which +are a mere hindrance to justice. In some noted recent cases this +over-regard for technicalities has resulted in a striking denial of +justice, and flagrant wrong to the body politic. + +At the last election certain leaders of organized labor made a violent and +sweeping attack upon the entire judiciary of the country, an attack couched +in such terms as to include the most upright, honest and broad-minded +judges, no less than those of narrower mind and more restricted outlook. It +was the kind of attack admirably fitted to prevent any successful attempt +to reform abuses of the judiciary, because it gave the champions of the +unjust judge their eagerly desired opportunity to shift their ground into a +championship of just judges who were unjustly assailed. Last year, before +the House Committee on the Judiciary, these same labor leaders formulated +their demands, specifying the bill that contained them, refusing all +compromise, stating they wished the principle of that bill or nothing. They +insisted on a provision that in a labor dispute no injunction should issue +except to protect a property right, and specifically provided that the +right to carry on business should not be construed as a property right; and +in a second provision their bill made legal in a labor dispute any act or +agreement by or between two or more persons that would not have been +unlawful if done by a single person. In other words. this bill legalized +blacklisting and boycotting in every form, legalizing, for instance, those +forms of the secondary boycott which the anthracite coal strike commission +so unreservedly condemned; while the right to carry on a business was +explicitly taken out from under that protection which the law throws over +property. The demand was made that there should be trial by jury in +contempt cases, thereby most seriously impairing the authority of the +courts. All this represented a course of policy which, if carried out, +would mean the enthronement of class privilege in its crudest and most +brutal form, and the destruction of one of the most essential functions of +the judiciary in all civilized lands. + +The violence of the crusade for this legislation, and its complete failure, +illustrate two truths which it is essential our people should learn. In the +first place, they ought to teach the workingman, the laborer, the +wageworker, that by demanding what is improper and impossible he plays into +the hands of his foes. Such a crude and vicious attack upon the courts, +even if it were temporarily successful, would inevitably in the end cause a +violent reaction and would band the great mass of citizens together, +forcing them to stand by all the judges, competent and incompetent alike, +rather than to see the wheels of justice stopped. A movement of this kind +can ultimately result in nothing but damage to those in whose behalf it is +nominally undertaken. This is a most healthy truth, which it is wise for +all our people to learn. Any movement based on that class hatred which at +times assumes the name of "class consciousness" is certain ultimately to +fail, and if it temporarily succeeds, to do far-reaching damage. "Class +consciousness," where it is merely another name for the odious vice of +class selfishness, is equally noxious whether in an employer's association +or in a workingman's association. The movement in question was one in which +the appeal was made to all workingmen to vote primarily, not as American +citizens, but as individuals of a certain class in society. Such an appeal +in the first place revolts the more high-minded and far-sighted among the +persons to whom it is addressed, and in the second place tends to arouse a +strong antagonism among all other classes of citizens, whom it therefore +tends to unite against the very organization on whose behalf it is issued. +The result is therefore unfortunate from every standpoint. This healthy +truth, by the way, will be learned by the socialists if they ever succeed +in establishing in this country an important national party based on such +class consciousness and selfish class interest. + +The wageworkers, the workingmen, the laboring men of the country, by the +way in which they repudiated the effort to get them to cast their votes in +response to an appeal to class hatred, have emphasized their sound +patriotism and Americanism. The whole country has cause to fell pride in +this attitude of sturdy independence, in this uncompromising insistence +upon acting simply as good citizens, as good Americans, without regard to +fancied--and improper--class interests. Such an attitude is an +object-lesson in good citizenship to the entire nation. + +But the extreme reactionaries, the persons who blind themselves to the +wrongs now and then committed by the courts on laboring men, should also +think seriously as to what such a movement as this portends. The judges who +have shown themselves able and willing effectively to check the dishonest +activity of the very rich man who works iniquity by the mismanagement of +corporations, who have shown themselves alert to do justice to the +wageworker, and sympathetic with the needs of the mass of our people, so +that the dweller in the tenement houses, the man who practices a dangerous +trade, the man who is crushed by excessive hours of labor, feel that their +needs are understood by the courts--these judges are the real bulwark of +the courts; these judges, the judges of the stamp of the president-elect, +who have been fearless in opposing labor when it has gone wrong, but +fearless also in holding to strict account corporations that work iniquity, +and far-sighted in seeing that the workingman gets his rights, are the men +of all others to whom we owe it that the appeal for such violent and +mistaken legislation has fallen on deaf ears, that the agitation for its +passage proved to be without substantial basis. The courts are jeopardized +primarily by the action of those Federal and State judges who show +inability or unwillingness to put a stop to the wrongdoing of very rich men +under modern industrial conditions, and inability or unwillingness to give +relief to men of small means or wageworkers who are crushed down by these +modern industrial conditions; who, in other words, fail to understand and +apply the needed remedies for the new wrongs produced by the new and highly +complex social and industrial civilization which has grown up in the last +half century. + +The rapid changes in our social and industrial life which have attended +this rapid growth have made it necessary that, in applying to concrete +cases the great rule of right laid down in our Constitution, there should +be a full understanding and appreciation of the new conditions to which the +rules are to be applied. What would have been an infringement upon liberty +half a century ago may be the necessary safeguard of liberty to-day. What +would have been an injury to property then may be necessary to the +enjoyment of property now. Every judicial decision involves two terms--one, +as interpretation of the law; the other, the understanding of the facts to +which it is to be applied. The great mass of our judicial officers are, I +believe, alive to those changes of conditions which so materially affect +the performance of their judicial duties. Our judicial system is sound and +effective at core, and it remains, and must ever be maintained, as the +safeguard of those principles of liberty and justice which stand at the +foundation of American institutions; for, as Burke finely said, when +liberty and justice are separated, neither is safe. There are, however, +some members of the judicial body who have lagged behind in their +understanding of these great and vital changes in the body politic, whose +minds have never been opened to the new applications of the old principles +made necessary by the new conditions. Judges of this stamp do lasting harm +by their decisions, because they convince poor men in need of protection +that the courts of the land are profoundly ignorant of and out of sympathy +with their needs, and profoundly indifferent or hostile to any proposed +remedy. To such men it seems a cruel mockery to have any court decide +against them on the ground that it desires to preserve "liberty" in a +purely technical form, by withholding liberty in any real and constructive +sense. It is desirable that the legislative body should possess, and +wherever necessary exercise, the power to determine whether in a given case +employers and employees are not on an equal footing, so that the +necessities of the latter compel them to submit to such exactions as to +hours and conditions of labor as unduly to tax their strength; and only +mischief can result when such determination is upset on the ground that +there must be no "interference with the liberty to contract"--often a +merely academic "liberty," the exercise of which is the negation of real +liberty. + +There are certain decisions by various courts which have been exceedingly +detrimental to the rights of wageworkers. This is true of all the decisions +that decide that men and women are, by the Constitution, "guaranteed their +liberty" to contract to enter a dangerous occupation, or to work an +undesirable or improper number of hours, or to work in unhealthy +surroundings; and therefore can not recover damages when maimed in that +occupation and can not be forbidden to work what the legislature decides is +an excessive number of hours, or to carry on the work under conditions +which the legislature decides to be unhealthy. The most dangerous +occupations are often the poorest paid and those where the hours of work +are longest; and in many cases those who go into them are driven by +necessity so great that they have practically no alternative. Decisions +such as those alluded to above nullify the legislative effort to protect +the wage-workers who most need protection from those employers who take +advantage of their grinding need. They halt or hamper the movement for +securing better and more equitable conditions of labor. The talk about +preserving to the misery-hunted beings who make contracts for such service +their "liberty" to make them, is either to speak in a spirit of heartless +irony or else to show an utter lack of knowledge of the conditions of life +among the great masses of our fellow-countrymen, a lack which unfits a +judge to do good service just as it would unfit any executive or +legislative officer. + +There is also, I think, ground for the belief that substantial injustice is +often suffered by employees in consequence of the custom of courts issuing +temporary injunctions without notice to them, and punishing them for +contempt of court in instances where, as a matter of fact, they have no +knowledge of any proceedings. Outside of organized labor there is a +widespread feeling that this system often works great injustice to +wageworkers when their efforts to better their working condition result in +industrial disputes. A temporary injunction procured ex parte may as a +matter of fact have all the effect of a permanent injunction in causing +disaster to the wageworkers' side in such a dispute. Organized labor is +chafing under the unjust restraint which comes from repeated resort to this +plan of procedure. Its discontent has been unwisely expressed, and often +improperly expressed, but there is a sound basis for it, and the orderly +and law-abiding people of a community would be in a far stronger position +for upholding the courts if the undoubtedly existing abuses could be +provided against. + +Such proposals as those mentioned above as advocated by the extreme labor +leaders contain the vital error of being class legislation of the most +offensive kind, and even if enacted into law I believe that the law would +rightly be held unconstitutional. Moreover, the labor people are themselves +now beginning to invoke the use of the power of injunction. During the last +ten years, and within my own knowledge, at least fifty injunctions have +been obtained by labor unions in New York City alone, most of them being to +protect the union label (a "property right"), but some being obtained for +other reasons against employers. The power of injunction is a great +equitable remedy, which should on no account be destroyed. But safeguards +should be erected against its abuse. I believe that some such provisions as +those I advocated a year ago for checking the abuse of the issuance of +temporary injunctions should be adopted. In substance, provision should be +made that no injunction or temporary restraining order issue otherwise than +on notice, except where irreparable injury would otherwise result; and in +such case a hearing on the merits of the order should be had within a short +fixed period, and, if not then continued after hearing, it should forthwith +lapse. Decisions should be rendered immediately, and the chance of delay +minimized in every way. Moreover, I believe that the procedure should be +sharply defined, and the judge required minutely to state the particulars +both of his action and of his reasons therefor, so that the Congress can, +if it desires, examine and investigate the same. + +The chief lawmakers in our country may be, and often are, the judges, +because they are the final seat of authority. Every time they interpret +contract, property, vested rights, due process of law, liberty, they +necessarily enact into law parts of a system of social philosophy, and as +such interpretation is fundamental, they give direction to all law-making. +The decisions of the courts on economic and social questions depend upon +their economic and social philosophy; and for the peaceful progress of our +people during the twentieth century we shall owe most to those judges who +hold to a twentieth century economic and social philosophy and not to a +long outgrown philosophy, which was itself the product of primitive +economic conditions. Of course a judge's views on progressive social +philosophy are entirely second in importance to his possession of a high +and fine character; which means the possession of such elementary virtues +as honesty, courage, and fair-mindedness. The judge who owes his election +to pandering to demagogic sentiments or class hatreds and prejudices, and +the judge who owes either his election or his appointment to the money or +the favor of a great corporation, are alike unworthy to sit on the bench, +are alike traitors to the people; and no profundity of legal learning, or +correctness of abstract conviction on questions of public policy, can serve +as an offset to such shortcomings. But it is also true that judges, like +executives and legislators, should hold sound views on the questions of +public policy which are of vital interest to the people. + +The legislators and executives are chosen to represent the people in +enacting and administering the laws. The judges are not chosen to represent +the people in this sense. Their function is to interpret the laws. The +legislators are responsible for the laws; the judges for the spirit in +which they interpret and enforce the laws. We stand aloof from the reckless +agitators who would make the judges mere pliant tools of popular prejudice +and passion; and we stand aloof from those equally unwise partisans of +reaction and privilege who deny the proposition that, inasmuch as judges +are chosen to serve the interests of the whole people, they should strive +to find out what those interests are, and, so far as they conscientiously +can, should strive to give effect to popular conviction when deliberately +and duly expressed by the lawmaking body. The courts are to be highly +commended and staunchly upheld when they set their faces against wrongdoing +or tyranny by a majority; but they are to be blamed when they fail to +recognize under a government like ours the deliberate judgment of the +majority as to a matter of legitimate policy, when duly expressed by the +legislature. Such lawfully expressed and deliberate judgment should be +given effect by the courts, save in the extreme and exceptional cases where +there has been a clear violation of a constitutional provision. Anything +like frivolity or wantonness in upsetting such clearly taken governmental +action is a grave offense against the Republic. To protest against tyranny, +to protect minorities from oppression, to nullify an act committed in a +spasm of popular fury, is to render a service to the Republic. But for the +courts to arrogate to themselves functions which properly belong to the +legislative bodies is all wrong, and in the end works mischief. The people +should not be permitted to pardon evil and slipshod legislation on the +theory that the court will set it right; they should be taught that the +right way to get rid of a bad law is to have the legislature repeal it, and +not to have the courts by ingenious hair-splitting nullify it. A law may be +unwise and improper; but it should not for these reasons be declared +unconstitutional by a strained interpretation, for the result of such +action is to take away from the people at large their sense of +responsibility and ultimately to destroy their capacity for orderly self +restraint and self government. Under such a popular government as ours, +rounded on the theory that in the long run the will of the people is +supreme, the ultimate safety of the Nation can only rest in training and +guiding the people so that what they will shall be right, and not in +devising means to defeat their will by the technicalities of strained +construction. + +For many of the shortcomings of justice in our country our people as a +whole are themselves to blame, and the judges and juries merely bear their +share together with the public as a whole. It is discreditable to us as a +people that there should be difficulty in convicting murderers, or in +bringing to justice men who as public servants have been guilty of +corruption, or who have profited by the corruption of public servants. The +result is equally unfortunate, whether due to hairsplitting technicalities +in the interpretation of law by judges, to sentimentality and class +consciousness on the part of juries, or to hysteria and sensationalism in +the daily press. For much of this failure of justice no responsibility +whatever lies on rich men as such. We who make up the mass of the people +can not shift the responsibility from our own shoulders. But there is an +important part of the failure which has specially to do with inability to +hold to proper account men of wealth who behave badly. + +The chief breakdown is in dealing with the new relations that arise from +the mutualism, the interdependence of our time. Every new social relation +begets a new type of wrongdoing--of sin, to use an old-fashioned word--and +many years always elapse before society is able to turn this sin into crime +which can be effectively punished at law. During the lifetime of the older +men now alive the social relations have changed far more rapidly than in +the preceding two centuries. The immense growth of corporations, of +business done by associations, and the extreme strain and pressure of +modern life, have produced conditions which render the public confused as +to who its really dangerous foes are; and among the public servants who +have not only shared this confusion, but by some of their acts have +increased it, are certain judges. Marked inefficiency has been shown in +dealing with corporations and in re-settling the proper attitude to be +taken by the public not only towards corporations, but towards labor and +towards the social questions arising out of the factory system and the +enormous growth of our great cities. + +The huge wealth that has been accumulated by a few individuals of recent +years, in what has amounted to a social and industrial revolution, has been +as regards some of these individuals made possible only by the improper use +of the modern corporation. A certain type of modern corporation, with its +officers and agents, its many issues of securities, and its constant +consolidation with allied undertakings, finally becomes an instrument so +complex as to contain a greater number of elements that, under various +judicial decisions, lend themselves to fraud and oppression than any device +yet evolved in the human brain. Corporations are necessary instruments of +modern business. They have been permitted to become a menace largely +because the governmental representatives of the people have worked slowly +in providing for adequate control over them. + +The chief offender in any given case may be an executive, a legislature, or +a judge. Every executive head who advises violent, instead of gradual, +action, or who advocates ill-considered and sweeping measures of reform +(especially if they are tainted with vindictiveness and disregard for the +rights of the minority) is particularly blameworthy. The several +legislatures are responsible for the fact that our laws are often prepared +with slovenly haste and lack of consideration. Moreover, they are often +prepared, and still more frequently amended during passage, at the +suggestion of the very parties against whom they are afterwards enforced. +Our great clusters of corporations, huge trusts and fabulously wealthy +multi-millionaires, employ the very best lawyers they can obtain to pick +flaws in these statutes after their passage; but they also employ a class +of secret agents who seek, under the advice of experts, to render hostile +legislation innocuous by making it unconstitutional, often through the +insertion of what appear on their face to be drastic and sweeping +provisions against the interests of the parties inspiring them; while the +demagogues, the corrupt creatures who introduce blackmailing schemes to +"strike" corporations, and all who demand extreme, and undesirably radical, +measures, show themselves to be the worst enemies of the very public whose +loud-mouthed champions they profess to be. A very striking illustration of +the consequences of carelessness in the preparation of a statute was the +employers' liability law of 1906. In the cases arising under that law, four +out of six courts of first instance held it unconstitutional; six out of +nine justices of the Supreme Court held that its subject-matter was within +the province of congressional action; and four of the nine justices held it +valid. It was, however, adjudged unconstitutional by a bare majority of the +court--five to four. It was surely a very slovenly piece of work to frame +the legislation in such shape as to leave the question open at all. + +Real damage has been done by the manifold and conflicting interpretations +of the interstate commerce law. Control over the great corporations doing +interstate business can be effective only if it is vested with full power +in an administrative department, a branch of the Federal executive, +carrying out a Federal law; it can never be effective if a divided +responsibility is left in both the States and the Nation; it can never be +effective if left in the hands of the courts to be decided by lawsuits. + +The courts hold a place of peculiar and deserved sanctity under our form of +government. Respect for the law is essential to the permanence of our +institutions; and respect for the law is largely conditioned upon respect +for the courts. It is an offense against the Republic to say anything which +can weaken this respect, save for the gravest reason and in the most +carefully guarded manner. Our judges should be held in peculiar honor; and +the duty of respectful and truthful comment and criticism, which should be +binding when we speak of anybody, should be especially binding when we +speak of them. On an average they stand above any other servants of the +community, and the greatest judges have reached the high level held by +those few greatest patriots whom the whole country delights to honor. But +we must face the fact that there are wise and unwise judges, just as there +are wise and unwise executives and legislators. When a president or a +governor behaves improperly or unwisely, the remedy is easy, for his term +is short; the same is true with the legislator, although not to the same +degree, for he is one of many who belong to some given legislative body, +and it is therefore less easy to fix his personal responsibility and hold +him accountable therefor. With a judge, who, being human, is also likely to +err, but whose tenure is for life, there is no similar way of holding him +to responsibility. Under ordinary conditions the only forms of pressure to +which he is in any way amenable are public opinion and the action of his +fellow judges. It is the last which is most immediately effective, and to +which we should look for the reform of abuses. Any remedy applied from +without is fraught with risk. It is far better, from every standpoint, that +the remedy should come from within. In no other nation in the world do the +courts wield such vast and far-reaching power as in the United States. All +that is necessary is that the courts as a whole should exercise this power +with the farsighted wisdom already shown by those judges who scan the +future while they act in the present. Let them exercise this great power +not only honestly and bravely, but with wise insight into the needs and +fixed purposes of the people, so that they may do justice and work equity, +so that they may protect all persons in their rights, and yet break down +the barriers of privilege, which is the foe of right. FORESTS. + +If there is any one duty which more than another we owe it to our children +and our children's children to perform at once, it is to save the forests +of this country, for they constitute the first and most important element +in the conservation of the natural resources of the country. There are of +course two kinds of natural resources, One is the kind which can only be +used as part of a process of exhaustion; this is true of mines, natural oil +and gas wells, and the like. The other, and of course ultimately by far the +most important, includes the resources which can be improved in the process +of wise use; the soil, the rivers, and the forests come under this head. +Any really civilized nation will so use all of these three great national +assets that the nation will have their benefit in the future. Just as a +farmer, after all his life making his living from his farm, will, if he is +an expert farmer, leave it as an asset of increased value to his son, so we +should leave our national domain to our children, increased in value and +not worn out. There are small sections of our own country, in the East and +the West, in the Adriondacks, the White Mountains, and the Appalachians, +and in the Rocky Mountains, where we can already see for ourselves the +damage in the shape of permanent injury to the soil and the river systems +which comes from reckless deforestation. It matters not whether this +deforestation is due to the actual reckless cutting of timber, to the fires +that inevitably follow such reckless cutting of timber, or to reckless and +uncontrolled grazing, especially by the great migratory bands of sheep, the +unchecked wandering of which over the country means destruction to forests +and disaster to the small home makers, the settlers of limited means. + +Shortsighted persons, or persons blinded to the future by desire to make +money in every way out of the present, sometimes speak as if no great +damage would be done by the reckless destruction of our forests. It is +difficult to have patience with the arguments of these persons. Thanks to +our own recklessness in the use of our splendid forests, we have already +crossed the verge of a timber famine in this country, and no measures that +we now take can, at least for many years, undo the mischief that has +already been done. But we can prevent further mischief being done; and it +would be in the highest degree reprehensible to let any consideration of +temporary convenience or temporary cost interfere with such action, +especially as regards the National Forests which the nation can now, at +this very moment, control. + +All serious students of the question are aware of the great damage that has +been done in the Mediterranean countries of Europe, Asia, and Africa by +deforestation. The similar damage that has been done in Eastern Asia is +less well known. A recent investigation into conditions in North China by +Mr. Frank N. Meyer, of the Bureau of Plant Industry of the United States +Department of Agriculture, has incidentally furnished in very striking +fashion proof of the ruin that comes from reckless deforestation of +mountains, and of the further fact that the damage once done may prove +practically irreparable. So important are these investigations that I +herewith attach as an appendix to my message certain photographs showing +present conditions in China. They show in vivid fashion the appalling +desolation, taking the shape of barren mountains and gravel and +sand-covered plains, which immediately follows and depends upon the +deforestation of the mountains. Not many centuries ago the country of +northern China was one of the most fertile and beautiful spots in the +entire world, and was heavily forested. We know this not only from the old +Chinese records, but from the accounts given by the traveler, Marco Polo. +He, for instance, mentions that in visiting the provinces of Shansi and +Shensi he observed many plantations of mulberry trees. Now there is hardly +a single mulberry tree in either of these provinces, and the culture of the +silkworm has moved farther south, to regions of atmospheric moisture. As an +illustration of the complete change in the rivers, we may take Polo's +statement that a certain river, the Hun Ho, was so large and deep that +merchants ascended it from the sea with heavily laden boats; today this +river is simply a broad sandy bed, with shallow, rapid currents wandering +hither and thither across it, absolutely unnavigable. But we do not have to +depend upon written records. The dry wells, and the wells with water far +below the former watermark, bear testimony to the good days of the past and +the evil days of the present. Wherever the native vegetation has been +allowed to remain, as, for instance, here and there around a sacred temple +or imperial burying ground, there are still huge trees and tangled jungle, +fragments of the glorious ancient forests. The thick, matted forest growth +formerly covered the mountains to their summits. All natural factors +favored this dense forest growth, and as long as it was permitted to exist +the plains at the foot of the mountains were among the most fertile on the +globe, and the whole country was a garden. Not the slightest effort was +made, however, to prevent the unchecked cutting of the trees, or to secure +reforestation. Doubtless for many centuries the tree-cutting by the +inhabitants of the mountains worked but slowly in bringing about the +changes that have now come to pass; doubtless for generations the inroads +were scarcely noticeable. But there came a time when the forest had shrunk +sufficiently to make each year's cutting a serious matter, and from that +time on the destruction proceeded with appalling rapidity; for of course +each year of destruction rendered the forest less able to recuperate, less +able to resist next year's inroad. Mr. Meyer describes the ceaseless +progress of the destruction even now, when there is so little left to +destroy. Every morning men and boys go out armed with mattox or axe, scale +the steepest mountain sides, and cut down and grub out, root and branch, +the small trees and shrubs still to be found. The big trees disappeared +centuries ago, so that now one of these is never seen save in the +neighborhood of temples, where they are artificially protected; and even +here it takes all the watch and care of the tree-loving priests to prevent +their destruction. Each family, each community, where there is no common +care exercised in the interest of all of them to prevent deforestation, +finds its profit in the immediate use of the fuel which would otherwise be +used by some other family or some other community. In the total absence of +regulation of the matter in the interest of the whole people, each small +group is inevitably pushed into a policy of destruction which can not +afford to take thought for the morrow. This is just one of those matters +which it is fatal to leave to unsupervised individual control. The forest +can only be protected by the State, by the Nation; and the liberty of +action of individuals must be conditioned upon what the State or Nation +determines to be necessary for the common safety. + +The lesson of deforestation in China is a lesson which mankind should have +learned many times already from what has occurred in other places. +Denudation leaves naked soil; then gullying cuts down to the bare rock; and +meanwhile the rock-waste buries the bottomlands. When the soil is gone, men +must go; and the process does not take long. + +This ruthless destruction of the forests in northern China has brought +about, or has aided in bringing about, desolation, just as the destruction +of the forests in central Asia aid in bringing ruin to the once rich +central Asian cities; just as the destruction of the forest in northern +Africa helped towards the ruin of a region that was a fertile granary in +Roman days. Shortsighted man, whether barbaric, semi-civilized, or what he +mistakenly regards as fully civilized, when he has destroyed the forests, +has rendered certain the ultimate destruction of the land itself. In +northern China the mountains are now such as are shown by the accompanying +photographs, absolutely barren peaks. Not only have the forests been +destroyed, but because of their destruction the soil has been washed off +the naked rock. The terrible consequence is that it is impossible now to +undo the damage that has been done. Many centuries would have to pass +before soil would again collect, or could be made to collect, in sufficient +quantity once more to support the old-time forest growth. In consequence +the Mongol Desert is practically extending eastward over northern China. +The climate has changed and is still changing. It has changed even within +the last half century, as the work of tree destruction has been +consummated. The great masses of arboreal vegetation on the mountains +formerly absorbed the heat of the sun and sent up currents of cool air +which brought the moisture-laden clouds lower and forced them to +precipitate in rain a part of their burden of water. Now that there is no +vegetation, the barren mountains, scorched by the sun, send up currents of +heated air which drive away instead of attracting the rain clouds, and +cause their moisture to be disseminated. In consequence, instead of the +regular and plentiful rains which existed in these regions of China when +the forests were still in evidence, the unfortunate inhabitants of the +deforested lands now see their crops wither for lack of rainfall, while the +seasons grow more and more irregular; and as the air becomes dryer certain +crops refuse longer to grow at all. That everything dries out faster than +formerly is shown by the fact that the level of the wells all over the land +has sunk perceptibly, many of them having become totally dry. In addition +to the resulting agricultural distress, the watercourses have changed. +Formerly they were narrow and deep, with an abundance of clear water the +year around; for the roots and humus of the forests caught the rainwater +and let it escape by slow, regular seepage. They have now become broad, +shallow stream beds, in which muddy water trickles in slender currents +during the dry seasons, while when it rains there are freshets, and roaring +muddy torrents come tearing down, bringing disaster and destruction +everywhere. Moreover, these floods and freshets, which diversify the +general dryness, wash away from the mountain sides, and either wash away or +cover in the valleys, the rich fertile soil which it took tens of thousands +of years for Nature to form; and it is lost forever, and until the forests +grow again it can not be replaced. The sand and stones from the mountain +sides are washed loose and come rolling down to cover the arable lands, and +in consequence, throughout this part of China, many formerly rich districts +are now sandy wastes, useless for human cultivation and even for pasture. +The cities have been of course seriously affected, for the streams have +gradually ceased to be navigable. There is testimony that even within the +memory of men now living there has been a serious diminution of the +rainfall of northeastern China. The level of the Sungari River in northern +Manchuria has been sensibly lowered during the last fifty years, at least +partly as the result of the indiscriminate rutting of the forests forming +its watershed. Almost all the rivers of northern China have become +uncontrollable, and very dangerous to the dwellers along their banks, as a +direct result of the destruction of the forests. The journey from Pekin to +Jehol shows in melancholy fashion how the soil has been washed away from +whole valleys, so that they have been converted into deserts. + +In northern China this disastrous process has gone on so long and has +proceeded so far that no complete remedy could be applied. There are +certain mountains in China from which the soil is gone so utterly that only +the slow action of the ages could again restore it; although of course much +could be done to prevent the still further eastward extension of the +Mongolian Desert if the Chinese Government would act at once. The +accompanying cuts from photographs show the inconceivable desolation of the +barren mountains in which certain of these rivers rise--mountains, be it +remembered, which formerly supported dense forests of larches and firs, now +unable to produce any wood, and because of their condition a source of +danger to the whole country. The photographs also show the same rivers +after they have passed through the mountains, the beds having become broad +and sandy because of the deforestation of the mountains. One of the +photographs shows a caravan passing through a valley. Formerly, when the +mountains were forested, it was thickly peopled by prosperous peasants. Now +the floods have carried destruction all over the land and the valley is a +stony desert. Another photograph shows a mountain road covered with the +stones and rocks that are brought down in the rainy season from the +mountains which have already been deforested by human hands. Another shows +a pebbly river-bed in southern Manchuria where what was once a great stream +has dried up owing to the deforestation in the mountains. Only some scrub +wood is left, which will disappear within a half century. Yet another shows +the effect of one of the washouts, destroying an arable mountain side, +these washouts being due to the removal of all vegetation; yet in this +photograph the foreground shows that reforestation is still a possibility +in places. + +What has thus happened in northern China, what has happened in Central +Asia, in Palestine, in North Africa, in parts of the Mediterranean +countries of Europe, will surely happen in our country if we do not +exercise that wise forethought which should be one of the chief marks of +any people calling itself civilized. Nothing should be permitted to stand +in the way of the preservation of the forests, and it is criminal to permit +individuals to purchase a little gain for themselves through the +destruction of forests when this destruction is fatal to the well-being of +the whole country in the future. + +INLAND WATERWAYS. + +Action should be begun forthwith, during the present session of the +Congress, for the improvement of our inland waterways--action which will +result in giving us not only navigable but navigated rivers. We have spent +hundreds of millions of dollars upon these waterways, yet the traffic on +nearly all of them is steadily declining. This condition is the direct +result of the absence of any comprehensive and far-seeing plan of waterway +improvement, Obviously we can not continue thus to expend the revenues of +the Government without return. It is poor business to spend money for +inland navigation unless we get it. + +Inquiry into the condition of the Mississippi and its principal tributaries +reveals very many instances of the utter waste caused by the methods which +have hitherto obtained for the so-called "improvement" of navigation. A +striking instance is supplied by the "improvement" of the Ohio, which, +begun in 1824, was continued under a single plan for half a century. In +1875 a new plan was adopted and followed for a quarter of a century. In +1902 still a different plan was adopted and has since been pursued at a +rate which only promises a navigable river in from twenty to one hundred +years longer. + +Such shortsighted, vacillating, and futile methods are accompanied by +decreasing water-borne commerce and increasing traffic congestion on land, +by increasing floods, and by the waste of public money. The remedy lies in +abandoning the methods which have so signally failed and adopting new ones +in keeping with the needs and demands of our people. + +In a report on a measure introduced at the first session of the present +Congress, the Secretary of War said: "The chief defect in the methods +hitherto pursued lies in the absence of executive authority for originating +comprehensive plans covering the country or natural divisions thereof." In +this opinion I heartily concur. The present methods not only fail to give +us inland navigation, but they are injurious to the army as well. What is +virtually a permanent detail of the corps of engineers to civilian duty +necessarily impairs the efficiency of our military establishment. The +military engineers have undoubtedly done efficient work in actual +construction, but they are necessarily unsuited by their training and +traditions to take the broad view, and to gather and transmit to the +Congress the commercial and industrial information and forecasts, upon +which waterway improvement must always so largely rest. Furthermore, they +have failed to grasp the great underlying fact that every stream is a unit +from its source to its mouth, and that all its uses are interdependent. +Prominent officers of the Engineer Corps have recently even gone so far as +to assert in print that waterways are not dependent upon the conservation +of the forests about their headwaters. This position is opposed to all the +recent work of the scientific bureaus of the Government and to the general +experience of mankind. A physician who disbelieved in vaccination would not +be the right man to handle an epidemic of smallpox, nor should we leave a +doctor skeptical about the transmission of yellow fever by the Stegomyia +mosquito in charge of sanitation at Havana or Panama. So with the +improvement of our rivers; it is no longer wise or safe to leave this great +work in the hands of men who fail to grasp the essential relations between +navigation and general development and to assimilate and use the central +facts about our streams. + +Until the work of river improvement is undertaken in a modern way it can +not have results that will meet the needs of this modern nation. These +needs should be met without further dilly-dallying or delay. The plan which +promises the best and quickest results is that of a permanent commission +authorized to coordinate the work of all the Government departments +relating to waterways, and to frame and supervise the execution of a +comprehensive plan. Under such a commission the actual work of construction +might be entrusted to the reclamation service; or to the military engineers +acting with a sufficient number of civilians to continue the work in time +of war; or it might be divided between the reclamation service and the +corps of engineers. Funds should be provided from current revenues if it is +deemed wise--otherwise from the sale of bonds. The essential thing is that +the work should go forward under the best possible plan, and with the least +possible delay. We should have a new type of work and a new organization +for planning and directing it. The time for playing with our waterways is +past. The country demands results. + +NATIONAL PARKS. + +I urge that all our National parks adjacent to National forests be placed +completely under the control of the forest service of the Agricultural +Department, instead of leaving them as they now are, under the Interior +Department and policed by the army. The Congress should provide for +superintendents with adequate corps of first-class civilian scouts, or +rangers, and, further, place the road construction under the superintendent +instead of leaving it with the War Department. Such a change in park +management would result in economy and avoid the difficulties of +administration which now arise from having the responsibility of care and +protection divided between different departments. The need for this course +is peculiarly great in the Yellowstone Park. This, like the Yosemite, is a +great wonderland, and should be kept as a national playground. In both, all +wild things should be protected and the scenery kept wholly unmarred. + +I am happy to say that I have been able to set aside in various parts of +the country small, well-chosen tracts of ground to serve as sanctuaries and +nurseries for wild creatures. + +DENATURED ALCOHOL. + +I had occasion in my message of May 4, 1906, to urge the passage of some +law putting alcohol, used in the arts, industries, and manufactures, upon +the free list--that is, to provide for the withdrawal free of tax of +alcohol which is to be denatured for those purposes. The law of June 7, +1906, and its amendment of March 2, 1907, accomplished what was desired in +that respect, and the use of denatured alcohol, as intended, is making a +fair degree of progress and is entitled to further encouragement and +support from the Congress. + +PURE FOOD. + +The pure food legislation has already worked a benefit difficult to +overestimate. + +INDIAN SERVICE. + +It has been my purpose from the beginning of my administration to take the +Indian Service completely out of the atmosphere of political activity, and +there has been steady progress toward that end. The last remaining +stronghold of politics in that service was the agency system, which had +seen its best days and was gradually falling to pieces from natural or +purely evolutionary causes, but, like all such survivals, was decaying +slowly in its later stages. It seems clear that its extinction had better +be made final now, so that the ground can be cleared for larger +constructive work on behalf of the Indians, preparatory to their induction +into the full measure of responsible citizenship. On November 1 only +eighteen agencies were left on the roster; with two exceptions, where some +legal questions seemed to stand temporarily in the way, these have been +changed to superintendencies, and their heads brought into the classified +civil service. + +SECRET SERVICE. + +Last year an amendment was incorporated in the measure providing for the +Secret Service, which provided that there should be no detail from the +Secret Service and no transfer therefrom. It is not too much to say that +this amendment has been of benefit only, and could be of benefit only, to +the criminal classes. If deliberately introduced for the purpose of +diminishing the effectiveness of war against crime it could not have been +better devised to this end. It forbade the practices that had been followed +to a greater or less extent by the executive heads of various departments +for twenty years. To these practices we owe the securing of the evidence +which enabled us to drive great lotteries out of business and secure a +quarter of a million of dollars in fines from their promoters. These +practices have enabled us to get some of the evidence indispensable in +order in connection with the theft of government land and government timber +by great corporations and by individuals. These practices have enabled us +to get some of the evidence indispensable in order to secure the conviction +of the wealthiest and most formidable criminals with whom the Government +has to deal, both those operating in violation of the anti-trust law and +others. The amendment in question was of benefit to no one excepting to +these criminals, and it seriously hampers the Government in the detection +of crime and the securing of justice. Moreover, it not only affects +departments outside of the Treasury, but it tends to hamper the Secretary +of the Treasury himself in the effort to utilize the employees of his +department so as to best meet the requirements of the public service. It +forbids him from preventing frauds upon the customs service, from +investigating irregularities in branch mints and assay offices, and has +seriously crippled him. It prevents the promotion of employees in the +Secret Service, and this further discourages good effort. In its present +form the restriction operates only to the advantage of the criminal, of the +wrongdoer. The chief argument in favor of the provision was that the +Congressmen did not themselves wish to be investigated by Secret Service +men. Very little of such investigation has been done in the past; but it is +true that the work of the Secret Service agents was partly responsible for +the indictment and conviction of a Senator and a Congressman for land +frauds in Oregon. I do not believe that it is in the public interest to +protect criminally in any branch of the public service, and exactly as we +have again and again during the past seven years prosecuted and convicted +such criminals who were in the executive branch of the Government, so in my +belief we should be given ample means to prosecute them if found in the +legislative branch. But if this is not considered desirable a special +exception could be made in the law prohibiting the use of the Secret +Service force in investigating members of the Congress. It would be far +better to do this than to do what actually was done, and strive to prevent +or at least to hamper effective action against criminals by the executive +branch of the Government. + +POSTAL SAVINGS BANKS. + +I again renew my recommendation for postal savings hanks, for depositing +savings with the security of the Government behind them. The object is to +encourage thrift and economy in the wage-earner and person of moderate +means. In 14 States the deposits in savings banks as reported to the +Comptroller of the Currency amount to $3,590,245,402, or 98.4 per cent of +the entire deposits, while in the remaining 32 States there are only +$70,308,543, or 1.6 per cent, showing conclusively that there are many +localities in the United States where sufficient opportunity is not given +to the people to deposit their savings. The result is that money is kept in +hiding and unemployed. It is believed that in the aggregate vast sums of +money would be brought into circulation through the instrumentality of the +postal savings banks. While there are only 1,453 savings banks reporting to +the Comptroller there are more than 61,000 post-offices, 40,000 of which +are money order offices. Postal savings banks are now in operation in +practically all of the great civilized countries with the exception of the +United States. + +PARCEL POST. + +In my last annual message I commended the Postmaster-General's +recommendation for an extension of the parcel post on the rural routes. The +establishment of a local parcel post on rural routes would be to the mutual +benefit of the farmer and the country storekeeper, and it is desirable that +the routes, serving more than 15,000,000 people, should be utilized to the +fullest practicable extent. An amendment was proposed in the Senate at the +last session, at the suggestion of the Postmaster-General, providing that, +for the purpose of ascertaining the practicability of establishing a +special local parcel post system on the rural routes throughout the United +States, the Postmaster-General be authorized and directed to experiment and +report to the Congress the result of such experiment by establishing a +special local parcel post system on rural delivery routes in not to exceed +four counties in the United States for packages of fourth-class matter +originating on a rural route or at the distributing post office for +delivery by rural carriers. It would seem only proper that such an +experiment should be tried in order to demonstrate the practicability of +the proposition, especially as the Postmaster-General estimates that the +revenue derived from the operation of such a system on all the rural routes +would amount to many million dollars. EDUCATION. + +The share that the National Government should take in the broad work of +education has not received the attention and the care it rightly deserves. +The immediate responsibility for the support and improvement of our +educational systems and institutions rests and should always rest with the +people of the several States acting through their state and local +governments, but the Nation has an opportunity in educational work which +must not be lost and a duty which should no longer be neglected. + +The National Bureau of Education was established more than forty years ago. +Its purpose is to collect and diffuse such information "as shall aid the +people of the United States in the establishment and maintenance of +efficient school systems and otherwise promote the cause of education +throughout the country." This purpose in no way conflicts with the +educational work of the States, but may be made of great advantage to the +States by giving them the fullest, most accurate, and hence the most +helpful information and suggestion regarding the best educational systems. +The Nation, through its broader field of activities, its wider opportunity +for obtaining information from all the States and from foreign countries, +is able to do that which not even the richest States can do, and with the +distinct additional advantage that the information thus obtained is used +for the immediate benefit of all our people. + +With the limited means hitherto provided, the Bureau of Education has +rendered efficient service, but the Congress has neglected to adequately +supply the bureau with means to meet the educational growth of the country. +The appropriations for the general work of the bureau, outside education in +Alaska, for the year 1909 are but $87,500--an amount less than they were +ten years ago, and some of the important items in these appropriations are +less than they were thirty years ago. It is an inexcusable waste of public +money to appropriate an amount which is so inadequate as to make it +impossible properly to do the work authorized, and it is unfair to the +great educational interests of the country to deprive them of the value of +the results which can be obtained by proper appropriations. + +I earnestly recommend that this unfortunate state of affairs as regards the +national educational office be remedied by adequate appropriations. This +recommendation is urged by the representatives of our common schools and +great state universities and the leading educators, who all unite in +requesting favorable consideration and action by the Congress upon this +subject. CENSUS. + +I strongly urge that the request of the Director of the Census in +connection with the decennial work so soon to be begun be complied with and +that the appointments to the census force be placed under the civil service +law, waiving the geographical requirements as requested by the Director of +the Census. The supervisors and enumerators should not be appointed under +the civil service law, for the reasons given by the Director. I commend to +the Congress the careful consideration of the admirable report of the +Director of the Census, and I trust that his recommendations will be +adopted and immediate action thereon taken. + +PUBLIC HEALTH. + +It is highly advisable that there should be intelligent action on the part +of the Nation on the question of preserving the health of the country. +Through the practical extermination in San Francisco of disease-bearing +rodents our country has thus far escaped the bubonic plague. This is but +one of the many achievements of American health officers; and it shows what +can be accomplished with a better organization than at present exists. The +dangers to public health from food adulteration and from many other +sources, such as the menace to the physical, mental and moral development +of children from child labor, should be met and overcome. There are +numerous diseases, which are now known to be preventable, which are, +nevertheless, not prevented. The recent International Congress on +Tuberculosis has made us painfully aware of the inadequacy of American +public health legislation. This Nation can not afford to lag behind in the +world-wide battle now being waged by all civilized people with the +microscopic foes of mankind, nor ought we longer to ignore the reproach +that this Government takes more pains to protect the lives of hogs and of +cattle than of human beings. + +REDISTRIBUTION OF BUREAUS. + +The first legislative step to be taken is that for the concentration of the +proper bureaus into one of the existing departments. I therefore urgently +recommend the passage of a bill which shall authorize a redistribution of +the bureaus which shall best accomplish this end. + +GOVERNMENT PRINTING OFFICE. + +I recommend that legislation be enacted placing under the jurisdiction of +the Department of Commerce and Labor the Government Printing Office. At +present this office is under the combined control, supervision, and +administrative direction of the President and of the Joint Committee on +Printing of the two Houses of the Congress. The advantage of having the +4,069 employees in this office and the expenditure of the $5,761,377.57 +appropriated therefor supervised by an executive department is obvious, +instead of the present combined supervision. + +SOLDIERS' HOMES. + +All Soldiers' Homes should be placed under the complete jurisdiction and +control of the War Department. + +INDEPENDENT BUREAUS AND COMMISSIONS. + +Economy and sound business policy require that all existing independent +bureaus and commissions should be placed under the jurisdiction of +appropriate executive departments. It is unwise from every standpoint, and +results only in mischief, to have any executive work done save by the +purely executive bodies, under the control of the President; and each such +executive body should be under the immediate supervision of a Cabinet +Minister. STATEHOOD. + +I advocate the immediate admission of New Mexico and Arizona as States. +This should be done at the present session of the Congress. The people of +the two Territories have made it evident by their votes that they will not +come in as one State. The only alternative is to admit them as two, and I +trust that this will be done without delay. + +INTERSTATE FISHERIES. + +I call the attention of the Congress to the importance of the problem of +the fisheries in the interstate waters. On the Great Lakes we are now, +under the very wise treaty of April 11th of this year, endeavoring to come +to an international agreement for the preservation and satisfactory use of +the fisheries of these waters which can not otherwise be achieved. Lake +Erie, for example, has the richest fresh water fisheries in the world; but +it is now controlled by the statutes of two Nations, four States, and one +Province, and in this Province by different ordinances in different +counties. All these political divisions work at cross purposes, and in no +case can they achieve protection to the fisheries, on the one hand, and +justice to the localities and individuals on the other. The case is similar +in Puget Sound. + +But the problem is quite as pressing in the interstate waters of the United +States. The salmon fisheries of the Columbia River are now but a fraction +of what they were twenty-five years ago, and what they would be now if the +United States Government had taken complete charge of them by intervening +between Oregon and Washington. During these twenty-five years the fishermen +of each State have naturally tried to take all they could get, and the two +legislatures have never been able to agree on joint action of any kind +adequate in degree for the protection of the fisheries. At the moment the +fishing on the Oregon side is practically closed, while there is no limit +on the Washington side of any kind, and no one can tell what the courts +will decide as to the very statutes under which this action and non-action +result. Meanwhile very few salmon reach the spawning grounds, and probably +four years hence the fisheries will amount to nothing; and this comes from +a struggle between the associated, or gill-net, fishermen on the one hand, +and the owners of the fishing wheels up the river. The fisheries of the +Mississippi, the Ohio, and the Potomac are also in a bad way. For this +there is no remedy except for the United States to control and legislate +for the interstate fisheries as part of the business of interstate +commerce. In this case the machinery for scientific investigation and for +control already exists in the United States Bureau of Fisheries. In this as +in similar problems the obvious and simple rule should be followed of +having those matters which no particular State can manage taken in hand by +the United States; problems which in the seesaw of conflicting State +legislatures are absolutely unsolvable are easy enough for Congress to +control. + +FISHERIES AND FUR SEALS. + +The federal statute regulating interstate traffic in game should be +extended to include fish. New federal fish hatcheries should be +established. The administration of the Alaskan fur-seal service should be +vested in the Bureau of Fisheries. + +FOREIGN AFFAIRS. + +This Nation's foreign policy is based on the theory that right must be done +between nations precisely as between individuals, and in our actions for +the last ten years we have in this matter proven our faith by our deeds. We +have behaved, and are behaving, towards other nations as in private life an +honorable man would behave towards his fellows. + +LATIN-AMERICAN REPUBLICS. + +The commercial and material progress of the twenty Latin-American Republics +is worthy of the careful attention of the Congress. No other section of the +world has shown a greater proportionate development of its foreign trade +during the last ten years and none other has more special claims on the +interest of the United States. It offers to-day probably larger +opportunities for the legitimate expansion of our commerce than any other +group of countries. These countries will want our products in greatly +increased quantities, and we shall correspondingly need theirs. The +International Bureau of the American Republics is doing a useful work in +making these nations and their resources better known to us, and in +acquainting them not only with us as a people and with our purposes towards +them, but with what we have to exchange for their goods. It is an +international institution supported by all the governments of the two +Americas. + +PANAMA CANAL. + +The work on the Panama Canal is being done with a speed, efficiency and +entire devotion to duty which make it a model for all work of the kind. No +task of such magnitude has ever before been undertaken by any nation; and +no task of the kind has ever been better performed. The men on the isthmus, +from Colonel Goethals and his fellow commissioners through the entire list +of employees who are faithfully doing their duty, have won their right to +the ungrudging respect and gratitude of the American people. + +OCEAN MAIL LINERS. + +I again recommend the extension of the ocean mail act of 1891 so that +satisfactory American ocean mail lines to South America, Asia, the +Philippines, and Australiasia may be established. The creation of such +steamship lines should be the natural corollary of the voyage of the battle +fleet. It should precede the opening of the Panamal Canal. Even under +favorable conditions several years must elapse before such lines can be put +into operation. Accordingly I urge that the Congress act promptly where +foresight already shows that action sooner or later will be inevitable. +HAWAII. + +I call particular attention to the Territory of Hawaii. The importance of +those islands is apparent, and the need of improving their condition and +developing their resources is urgent. In recent years industrial conditions +upon the islands have radically changed, The importation of coolie labor +has practically ceased, and there is now developing such a diversity in +agricultural products as to make possible a change in the land conditions +of the Territory, so that an opportunity may be given to the small land +owner similar to that on the mainland. To aid these changes, the National +Government must provide the necessary harbor improvements on each island, +so that the agricultural products can be carried to the markets of the +world. The coastwise shipping laws should be amended to meet the special +needs of the islands, and the alien contract labor law should be so +modified in its application to Hawaii as to enable American and European +labor to be brought thither. + +We have begun to improve Pearl Harbor for a naval base and to provide the +necessary military fortifications for the protection of the islands, but I +can not too strongly emphasize the need of appropriations for these +purposes of such an amount as will within the shortest possible time make +those islands practically impregnable. It is useless to develop the +industrial conditions of the islands and establish there bases of supply +for our naval and merchant fleets unless we insure, as far as human +ingenuity can, their safety from foreign seizure. + +One thing to be remembered with all our fortifications is that it is almost +useless to make them impregnable from the sea if they are left open to land +attack. This is true even of our own coast, but it is doubly true of our +insular possessions. In Hawaii, for instance, it is worse than useless to +establish a naval station unless we establish it behind fortifications so +strong that no landing force can take them save by regular and +long-continued siege operations. + +THE PHILIPPINES. + +Real progress toward self-government is being made in the Philippine +Islands. The gathering of a Philippine legislative body and Philippine +assembly marks a process absolutely new in Asia, not only as regards +Asiatic colonies of European powers but as regards Asiatic possessions of +other Asiatic powers; and, indeed, always excepting the striking and +wonderful example afforded by the great Empire of Japan, it opens an +entirely new departure when compared with anything which has happened among +Asiatic powers which are their own masters. Hitherto this Philippine +legislature has acted with moderation and self-restraint, and has seemed in +practical fashion to realize the eternal truth that there must always be +government, and that the only way in which any body of individuals can +escape the necessity of being governed by outsiders is to show that they +are able to restrain themselves, to keep down wrongdoing and disorder. The +Filipino people, through their officials, are therefore making real steps +in the direction of self-government. I hope and believe that these steps +mark the beginning of a course which will continue till the Filipinos +become fit to decide for themselves whether they desire to be an +independent nation. But it is well for them (and well also for those +Americans who during the past decade have done so much damage to the +Filipinos by agitation for an immediate independence for which they were +totally unfit) to remember that self-government depends, and must depend, +upon the Filipinos themselves. All we can do is to give them the +opportunity to develop the capacity for self-government. If we had followed +the advice of the foolish doctrinaires who wished us at any time during the +last ten years to turn the Filipino people adrift, we should have shirked +the plainest possible duty and have inflicted a lasting wrong upon the +Filipino people. We have acted in exactly the opposite spirit. We have +given the Filipinos constitutional government--a government based upon +justice--and we have shown that we have governed them for their good and +not for our aggrandizement. At the present time, as during the past ten +years, the inexorable logic of facts shows that this government must be +supplied by us and not by them. We must be wise and generous; we must help +the Filipinos to master the difficult art of self-control, which is simply +another name for self-government. But we can not give them self-government +save in the sense of governing them so that gradually they may, if they are +able, learn to govern themselves. Under the present system of just laws and +sympathetic administration, we have every reason to believe that they are +gradually acquiring the character which lies at the basis of +self-government, and for which, if it be lacking, no system of laws, no +paper constitution, will in any wise serve as a substitute. Our people in +the Philippines have achieved what may legitimately be called a marvelous +success in giving to them a government which marks on the part of those in +authority both the necessary understanding of the people and the necessary +purpose to serve them disinterestedly and in good faith. I trust that +within a generation the time will arrive when the Philippines can decide +for themselves whether it is well for them to become independent, or to +continue under the protection of a strong and disinterested power, able to +guarantee to the islands order at home and protection from foreign +invasion. But no one can prophesy the exact date when it will be wise to +consider independence as a fixed and definite policy. It would be worse +than folly to try to set down such a date in advance, for it must depend +upon the way in which the Philippine people themselves develop the power of +self-mastery. + +PORTO RICO. + +I again recommend that American citizenship be conferred upon the people of +Porto Rico. CUBA. + +In Cuba our occupancy will cease in about two months' time, the Cubans have +in orderly manner elected their own governmental authorities, and the +island will be turned over to them. Our occupation on this occasion has +lasted a little over two years, and Cuba has thriven and prospered under +it. Our earnest hope and one desire is that the people of the island shall +now govern themselves with justice, so that peace and order may be secure. +We will gladly help them to this end; but I would solemnly warn them to +remember the great truth that the only way a people can permanently avoid +being governed from without is to show that they both can and will govern +themselves from within. + +JAPANESE EXPOSITION. + +The Japanese Government has postponed until 1917 the date of the great +international exposition, the action being taken so as to insure ample time +in which to prepare to make the exposition all that it should be made. The +American commissioners have visited Japan and the postponement will merely +give ampler opportunity for America to be represented at the exposition. +Not since the first international exposition has there been one of greater +importance than this will be, marking as it does the fiftieth anniversary +of the ascension to the throne of the Emperor of Japan. The extraordinary +leap to a foremost place among the nations of the world made by Japan +during this half century is something unparalleled in all previous history. +This exposition will fitly commemorate and signalize the giant progress +that has been achieved. It is the first exposition of its kind that has +ever been held in Asia. The United States, because of the ancient +friendship between the two peoples, because each of us fronts on the +Pacific, and because of the growing commercial relations between this +country and Asia, takes a peculiar interest in seeing the exposition made a +success in every way. + +I take this opportunity publicly to state my appreciation of the way in +which in Japan, in Australia, in New Zealand, and in all the States of +South America, the battle fleet has been received on its practice voyage +around the world. The American Government can not too strongly express its +appreciation of the abounding and generous hospitality shown our ships in +every port they visited. + +THE ARMY. + +As regards the Army I call attention to the fact that while our junior +officers and enlisted men stand very high, the present system of promotion +by seniority results in bringing into the higher grades many men of +mediocre capacity who have but a short time to serve. No man should regard +it as his vested right to rise to the highest rank in the Army any more +than in any other profession. It is a curious and by no means creditable +fact that there should be so often a failure on the part of the public and +its representatives to understand the great need, from the standpoint of +the service and the Nation, of refusing to promote respectable, elderly +incompetents. The higher places should be given to the most deserving men +without regard to seniority; at least seniority should be treated as only +one consideration. In the stress of modern industrial competition no +business firm could succeed if those responsible for its management were +chosen simply on the ground that they were the oldest people in its +employment; yet this is the course advocated as regards the Army, and +required by law for all grades except those of general officer. As a matter +of fact, all of the best officers in the highest ranks of the Army are +those who have attained their present position wholly or in part by a +process of selection. + +The scope of retiring boards should be extended so that they could consider +general unfitness to command for any cause, in order to secure a far more +rigid enforcement than at present in the elimination of officers for +mental, physical or temperamental disabilities. But this plan is +recommended only if the Congress does not see fit to provide what in my +judgment is far better; that is, for selection in promotion, and for +elimination for age. Officers who fail to attain a certain rank by a +certain age should be retired--for instance, if a man should not attain +field rank by the time he is 45 he should of course be placed on the +retired list. General officers should be selected as at present, and +one-third of the other promotions should be made by selection, the +selection to be made by the President or the Secretary of War from a list +of at least two candidates proposed for each vacancy by a board of officers +from the arm of the service from which the promotion is to be made. A bill +is now before the Congress having for its object to secure the promotion of +officers to various grades at reasonable ages through a process of +selection, by boards of officers, of the least efficient for retirement +with a percentage of their pay depending upon length of service. The bill, +although not accomplishing all that should be done, is a long step in the +right direction; and I earnestly recommend its passage, or that of a more +completely effective measure. + +The cavalry arm should be reorganized upon modern lines. This is an arm in +which it is peculiarly necessary that the field officers should not be old. +The cavalry is much more difficult to form than infantry, and it should be +kept up to the maximum both in efficiency and in strength, for it can not +be made in a hurry. At present both infantry and artillery are too few in +number for our needs. Especial attention should be paid to development of +the machine gun. A general service corps should be established. As things +are now the average soldier has far too much labor of a nonmilitary +character to perform. + +NATIONAL GUARD. + +Now that the organized militia, the National Guard, has been incorporated +with the Army as a part of the national forces, it behooves the Government +to do every reasonable thing in its power to perfect its efficiency. It +should be assisted in its instruction and otherwise aided more liberally +than heretofore. The continuous services of many well-trained regular +officers will be essential in this connection. Such officers must be +specially trained at service schools best to qualify them as instructors of +the National Guard. But the detailing of officers for training at the +service schools and for duty with the National Guard entails detaching them +from their regiments which are already greatly depleted by detachment of +officers for assignment to duties prescribed by acts of the Congress. + +A bill is now pending before the Congress creating a number of extra +officers in the Army, which if passed, as it ought to be, will enable more +officers to be trained as instructors of the National Guard and assigned to +that duty. In case of war it will be of the utmost importance to have a +large number of trained officers to use for turning raw levies into good +troops. + +There should be legislation to provide a complete plan for organizing the +great body of volunteers behind the Regular Army and National Guard when +war has come. Congressional assistance should be given those who are +endeavoring to promote rifle practice so that our men, in the services or +out of them, may know how to use the rifle. While teams representing the +United States won the rifle and revolver championships of the world against +all comers in England this year, it is unfortunately true that the great +body of our citizens shoot less and less as time goes on. To meet this we +should encourage rifle practice among schoolboys, and indeed among all +classes, as well as in the military services, by every means in our power. +Thus, and not otherwise, may we be able to assist in preserving the peace +of the world. Fit to hold our own against the strong nations of the earth, +our voice for peace will carry to the ends of the earth. Unprepared, and +therefore unfit, we must sit dumb and helpless to defend ourselves, protect +others, or preserve peace. The first step--in the direction of preparation +to avert war if possible, and to be fit for war if it should come--is to +teach our men to shoot. + +THE NAVY. + +I approve the recommendations of the General Board for the increase of the +Navy, calling especial attention to the need of additional destroyers and +colliers, and above all, of the four battleships. It is desirable to +complete as soon as possible a squadron of eight battleships of the best +existing type. The North Dakota, Delaware, Florida, and Utah will form the +first division of this squadron. The four vessels proposed will form the +second division. It will be an improvement on the first, the ships being of +the heavy, single caliber, all big gun type. All the vessels should have +the same tactical qualities--that is, speed and turning circle--and as near +as possible these tactical qualities should be the same as in the four +vessels before named now being built. + +I most earnestly recommend that the General Board be by law turned into a +General Staff. There is literally no excuse whatever for continuing the +present bureau organization of the Navy. The Navy should be treated as a +purely military organization, and everything should be subordinated to the +one object of securing military efficiency. Such military efficiency can +only be guaranteed in time of war if there is the most thorough previous +preparation in time of peace--a preparation, I may add, which will in all +probability prevent any need of war. The Secretary must be supreme, and he +should have as his official advisers a body of line officers who should +themselves have the power to pass upon and coordinate all the work and all +the proposals of the several bureaus. A system of promotion by merit, +either by selection or by exclusion, or by both processes, should be +introduced. It is out of the question, if the present principle of +promotion by mere seniority is kept, to expect to get the best results from +the higher officers. Our men come too old, and stay for too short a time, +in the high command positions. + +Two hospital ships should be provided. The actual experience of the +hospital ship with the fleet in the Pacific has shown the invaluable work +which such a ship does, and has also proved that it is well to have it kept +under the command of a medical officer. As was to be expected, all of the +anticipations of trouble from such a command have proved completely +baseless. It is as absurd to put a hospital ship under a line officer as it +would be to put a hospital on shore under such a command. This ought to +have been realized before, and there is no excuse for failure to realize it +now. + +Nothing better for the Navy from every standpoint has ever occurred than +the cruise of the battle fleet around the world. The improvement of the +ships in every way has been extraordinary, and they have gained far more +experience in battle tactics than they would have gained if they had stayed +in the Atlantic waters. The American people have cause for profound +gratification, both in view of the excellent condition of the fleet as +shown by this cruise, and in view of the improvement the cruise has worked +in this already high condition. I do not believe that there is any other +service in the world in which the average of character and efficiency in +the enlisted men is as high as is now the case in our own. I believe that +the same statement can be made as to our officers, taken as a whole; but +there must be a reservation made in regard to those in the highest +ranks--as to which I have already spoken--and in regard to those who have +just entered the service; because we do not now get full benefit from our +excellent naval school at Annapolis. It is absurd not to graduate the +midshipmen as ensigns; to keep them for two years in such an anomalous +position as at present the law requires is detrimental to them and to the +service. In the academy itself, every first classman should be required in +turn to serve as petty officer and officer; his ability to discharge his +duties as such should be a prerequisite to his going into the line, and his +success in commanding should largely determine his standing at graduation. +The Board of Visitors should be appointed in January, and each member +should be required to give at least six days' service, only from one to +three days' to be performed during June week, which is the least desirable +time for the board to be at Annapolis so far as benefiting the Navy by +their observations is concerned. + +THE WHITE HOUSE, + +Tuesday, December 8, 1908. + + + +*** END OF THE PROJECT GUTENBERG EBOOK OF ADDRESSES BY THEODORE ROOSEVELT *** + +This file should be named suroo10.txt or suroo10.zip +Corrected EDITIONS of our eBooks get a new NUMBER, suroo11.txt +VERSIONS based on separate sources get new LETTER, suroo10a.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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