The relations of the United States with all foreign governments have continued upon the normal basis of amity and good understanding, and are very generally satisfactory.  . Pursuant to the provisions of the general treaty of arbitration concluded between the United States and Great Britain, April 4, 1908, a special agreement was entered into between the two countries on January 27, 1909, for the submission of questions relating to the fisheries on the North Atlantic Coast to a tribunal to be formed from members of the Permanent Court of Arbitration at The Hague. In accordance with the provisions of the special agreement the printed case of each Government was, on October 4 last, submitted to the other and to the Arbitral Tribunal at The Hague, and the counter case of the United States is now in course of preparation. The American rights under the fisheries article of the Treaty of 1818 have been a cause of difference between the United States and Great Britain for nearly seventy years. The interests involved are of great importance to the American fishing industry, and the final settlement of the controversy will remove a source of constant irritation and complaint. This is the first case involving such great international questions which has been submitted to the Permanent Court of Arbitration at The Hague. The treaty between the United States and Great Britain concerning the Canadian International boundary, concluded April 11, 1908, authorizes the appointment of two commissioners to define and mark accurately the international boundary line between the United States and the Dominion of Canada in the waters of the Passamaquoddy Bay, and provides for the exchange of briefs within the period of six months. The briefs were duly presented within the prescribed period, but as the commissioners failed to agree within six months after the exchange of the printed statements, as required by the treaty, it has now become necessary to resort to the arbitration provided for in the article. The International Fisheries Commission appointed pursuant to and under the authority of the Convention of April 11, 1908, between the United States and Great Britain, has completed a system of uniform and common international regulations for the protection and preservation of the food fishes in international boundary waters of the United States and Canada. The regulations will be duly submitted to Congress with a view to the enactment of such legislation as will be necessary under the convention to put them into operation. The Convention providing for the settlement of international differences between the United States and Canada, including the apportionment between the two countries of certain of the boundary waters and the appointment of commissioners to adjust certain other questions, signed on the 11th day of January, 1909, and to the ratification of which the Senate gave its advice and consent on March 3, 1909, has not yet been ratified on the part of Great Britain. Commissioners have been appointed on the part of the United States to act jointly with Commissioners on the part of Canada in examining into the question of obstructions in the St. John River between Maine and New Brunswick, and to make recommendations for the regulation of the uses thereof, and are now engaged in this work. Negotiations for an international conference to consider and reach an arrangement providing for the preservation and protection of the fur seals in the North Pacific are in progress with the Governments of Great Britain, Japan, and Russia. The attitude of the Governments interested leads me to hope for a satisfactory settlement of this question as the ultimate outcome of the negotiations. The Second Peace Conference recently held at The Hague adopted a convention for the establishment of an International Prize Court upon the joint proposal of delegations of the United States, France, Germany and Great Britain. The law to be observed by the Tribunal in the decision of prize cases was, however, left in an uncertain and therefore unsatisfactory state. Article 7 of the Convention provided that the Court was to be governed by the provisions of treaties existing between the belligerents, but that "in the absence of such provisions, the court shall apply the rules of international law. If no generally recognized rule exists, the court shall give judgment in accordance with the general principles of justice and equity." As, however, many questions in international maritime law are understood differently and therefore interpreted differently in various countries, it was deemed advisable not to intrust legislative powers to the proposed court, but to determine the rules of law properly applicable in a Conference of the representative maritime nations. Pursuant to an invitation of Great Britain a conference was held at London from December 2, 1908, to February 26, 1909, in which the following Powers participated: the United States, Austria-Hungary, France, Germany, Great Britain, Italy, Japan, the Netherlands, Russia and Spain. The conference resulted in the Declaration of London, unanimously agreed to and signed by the participating Powers, concerning among other matters, the highly important subjects of blockade, contraband, the destruction of neutral prizes, and continuous voyages. The declaration of London is an eminently satisfactory codification of the international maritime law, and it is hoped that its reasonableness and fairness will secure its general adoption, as well as remove one of the difficulties standing in the way of the establishment of an International Prize Court. Under the authority given in the sundry civil appropriation act, approved March 4, 1909, the United States was represented at the International Conference on Maritime Law at Brussels. The Conference met on the 28th of September last and resulted in the signature ad referendum of a convention for the unification of certain regulations with regard to maritime assistance and salvage and a convention for the unification of certain rules with regard to collisions at sea. Two new projects of conventions which have not heretofore been considered in a diplomatic conference, namely, one concerning the limitation of the responsibility of shipowners, and the other concerning marine mortgages and privileges, have been submitted by the Conference to the different governments. The Conference adjourned to meet again on April 11, 1910. The International Conference for the purpose of promoting uniform legislation concerning letters of exchange, which was called by the Government of the Netherlands to meet at The Hague in September, 1909, has been postponed to meet at that capital in June, 1910. The United States will be appropriately represented in this Conference under the provision therefor already made by Congress. The cordial invitation of Belgium to be represented by a fitting display of American progress in the useful arts and inventions at the World's Fair to be held at Brussels in 1910 remains to be acted upon by the Congress. Mindful of the advantages to accrue to our artisans and producers in competition with their Continental rivals, I renew the recommendation heretofore made that provision be made for acceptance of the invitation and adequate representation in the Exposition. The question arising out of the Belgian annexation of the Independent State of the Congo, which has so long and earnestly preoccupied the attention of this Government and enlisted the sympathy of our best citizens, is still open, but in a more hopeful stage. This Government was among the foremost in the great work of uplifting the uncivilized regions of Africa and urging the extension of the benefits of civilization, education, and fruitful open commerce to that vast domain, and is a party to treaty engagements of all the interested powers designed to carry out that great duty to humanity. The way to better the original and adventitious conditions, so burdensome to the natives and so destructive to their development, has been pointed out, by observation and experience, not alone of American representatives, but by cumulative evidence from all quarters and by the investigations of Belgian Agents. The announced programmes of reforms, striking at many of the evils known to exist, are an augury of better things. The attitude of the United States is one of benevolent encouragement, coupled with a hopeful trust that the good work, responsibly undertaken and zealously perfected to the accomplishment of the results so ardently desired, will soon justify the wisdom that inspires them and satisfy the demands of humane sentiment throughout the world. A convention between the United States and Germany, under which the nonworking provisions of the German patent law are made inapplicable to the patents of American citizens, was concluded on February 23, 1909, and is now in force. Negotiations for similar conventions looking to the placing of American inventors on the same footing as nationals have recently been initiated with other European governments whose laws require the local working of foreign patents. Under an appropriation made at the last session of the Congress, a commission was sent on American cruisers to Monrovia to investigate the interests of the United States and its citizens in Liberia. Upon its arrival at Monrovia the commission was enthusiastically received, and during its stay in Liberia was everywhere met with the heartiest expressions of good will for the American Government and people and the hope was repeatedly expressed on all sides that this Government might see its way clear to do something to relieve the critical position of the Republic arising in a measure from external as well as internal and financial embarrassments. The Liberian Government afforded every facility to the Commission for ascertaining the true state of affairs. The Commission also had conferences with representative citizens, interested foreigners and the representatives of foreign governments in Monrovia. Visits were made to various parts of the Republic and to the neighboring British colony of Sierra Leone, where the Commission was received by and conferred with the Governor. It will be remembered that the interest of the United States in the Republic of Liberia springs from the historical fact of the foundation of the Republic by the colonization of American citizens of the African race. In an early treaty with Liberia there is a provision under which the United States may be called upon for advice or assistance. Pursuant to this provision and in the spirit of the moral relationship of the United States to Liberia, that Republic last year asked this Government to lend assistance in the solution of certain of their national problems, and hence the Commission was sent. The report of our commissioners has just been completed and is now under examination by the Department of State. It is hoped that there may result some helpful measures, in which case it may be my duty again to invite your attention to this subject. The Norwegian Government, by a note addressed on January 26, 1909, to the Department of State, conveyed an invitation to the Government of the United States to take part in a conference which it is understood will be held in February or March, 1910, for the purpose of devising means to remedy existing conditions in the Spitzbergen Islands. This invitation was conveyed under the reservation that the question of altering the status of the islands as countries belonging to no particular State, and as equally open to the citizens and subjects of all States, should not be raised. The European Powers invited to this Conference by the Government of Norway were Belgium, Denmark, France, Germany, Great Britain, Russia, Sweden and the Netherlands. The Department of State, in view of proofs filed with it in 1906, showing the American possession, occupation, and working of certain coal-bearing lands in Spitzbergen, accepted the invitation under the reservation above stated, and under the further reservation that all interests in those islands already vested should be protected and that there should be equality of opportunity for the future. It was further pointed out that membership in the Conference on the part of the United States was qualified by the consideration that this Government would not become a signatory to any conventional arrangement concluded by the European members of the Conference which would imply contributory participation by the United States in any obligation or responsibility for the enforcement of any scheme of administration which might be devised by the Conference for the islands. His Majesty Mehmed V, Sultan of Turkey, recently sent to this country a special embassy to announce his accession. The quick transition of the Government of the Ottoman Empire from one of retrograde tendencies to a constitutional government with a Parliament and with progressive modern policies of reform and public improvement is one of the important phenomena of our times. Constitutional government seems also to have made further advance in Persia. These events have turned the eyes of the world upon the Near East. In that quarter the prestige of the United States has spread widely through the peaceful influence of American schools, universities and missionaries. There is every reason why we should obtain a greater share of the commerce of the Near East since the conditions are more favorable now than ever before. One of the happiest events in recent Pan-American diplomacy was the pacific, independent settlement by the Governments of Bolivia and Peru of a boundary difference between them, which for some weeks threatened to cause war and even to entrain embitterments affecting other republics less directly concerned. From various quarters, directly or indirectly concerned, the intermediation of the United States was sought to assist in a solution of the controversy. Desiring at all times to abstain from any undue mingling in the affairs of sister republics and having faith in the ability of the Governments of Peru and Bolivia themselves to settle their differences in a manner satisfactory to themselves which, viewed with magnanimity, would assuage all embitterment, this Government steadily abstained from being drawn into the controversy and was much gratified to find its confidence justified by events. On the 9th of July next there will open at Buenos Aires the Fourth Pan-American Conference. This conference will have a special meaning to the hearts of all Americans, because around its date are clustered the anniversaries of the independence of so many of the American republics. It is not necessary for me to remind the Congress of the political, social and commercial importance of these gatherings. You are asked to make liberal appropriation for our participation. If this be granted, it is my purpose to appoint a distinguished and representative delegation, qualified fittingly to represent this country and to deal with the problems of intercontinental interest which will there be discussed. The Argentine Republic will also hold from May to November, 1910, at Buenos Aires, a great International Agricultural Exhibition in which the United States has been invited to participate. Considering the rapid growth of the trade of the United States with the Argentine Republic and the cordial relations existing between the two nations, together with the fact that it provides an opportunity to show deference to a sister republic on the occasion of the celebration of its national independence, the proper Departments of this Government are taking steps to apprise the interests concerned of the opportunity afforded by this Exhibition, in which appropriate participation by this country is so desirable. The designation of an official representative is also receiving consideration. To-day, more than ever before, American capital is seeking investment in foreign countries, and American products are more and more generally seeking foreign markets. As a consequence, in all countries there are American citizens and American interests to be protected, on occasion, by their Government. These movements of men, of capital, and of commodities bring peoples and governments closer together and so form bonds of peace and mutual dependency, as they must also naturally sometimes make passing points of friction. The resultant situation inevitably imposes upon this Government vastly increased responsibilities. This Administration, through the Department of State and the foreign service, is lending all proper support to legitimate and beneficial American enterprises in foreign countries, the degree of such support being measured by the national advantages to be expected. A citizen himself can not by contract or otherwise divest himself of the right, nor can this Government escape the obligation, of his protection in his personal and property rights when these are unjustly infringed in a foreign country. To avoid ceaseless vexations it is proper that in considering whether American enterprise should be encouraged or supported in a particular country, the Government should give full weight not only to the national, as opposed to the individual benefits to accrue, but also to the fact whether or not the Government of the country in question is in its administration and in its diplomacy faithful to the principles of moderation, equity and justice upon which alone depend international credit, in diplomacy as well as in finance. The Pan-American policy of this Government has long been fixed in its principles and remains unchanged. With the changed circumstances of the United States and of the Republics to the south of us, most of which have great natural resources, stable government and progressive ideals, the apprehension which gave rise to the Monroe Doctrine may be said to have nearly disappeared, and neither the doctrine as it exists nor any other doctrine of American policy should be permitted to operate for the perpetuation of irresponsible government, the escape of just obligations, or the insidious allegation of dominating ambitions on the part of the United States. Beside the fundamental doctrines of our Pan-American policy there have grown up a realization of political interests, community of institutions and ideals, and a flourishing commerce. All these bonds will be greatly strengthened as time goes on and increased facilities, such as the great bank soon to be established in Latin America, supply the means for building up the colossal intercontinental commerce of the future. My meeting with President Diaz and the greeting exchanged on both American and Mexican soil served, I hope, to signalize the close and cordial relations which so well bind together this Republic and the great Republic immediately to the south, between which there is so vast a network of material interests. I am happy to say that all but one of the cases which for so long vexed our relations with Venezuela have been settled within the past few months and that, under the enlightened regime now directing the Government of Venezuela, provision has been made for arbitration of the remaining case before The Hague Tribunal. On July 30, 1909, the Government of Panama agreed, after considerable negotiation, to indemnify the relatives of the American officers and sailors who were brutally treated, one of them having, indeed, been killed by the Panaman police this year. The sincere desire of the Government of Panama to do away with a situation where such an accident could occur is manifest in the recent request in compliance with which this Government has lent the services of an officer of the Army to be employed by the Government of Panama as Instructor of Police. The sanitary improvements and public works undertaken in Cuba prior to the present administration of that Government, in the success of which the United States is interested under the treaty, are reported to be making good progress and since the Congress provided for the continuance of the reciprocal commercial arrangement between Cuba and the United States assurance has been received that no negotiations injuriously affecting the situation will be undertaken without consultation. The collection of the customs of the Dominican Republic through the general receiver of customs appointed by the President of the United States in accordance with the convention of February 8, 1907, has proceeded in an uneventful and satisfactory manner. The customs receipts have decreased owing to disturbed political and economic conditions and to a very natural curtailment of imports in view of the anticipated revision of the Dominican tariff schedule. The payments to the fiscal agency fund for the service of the bonded debt of the Republic, as provided by the convention, have been regularly and promptly made, and satisfactory progress has been made in carrying out the provisions of the convention looking towards the completion of the adjustment of the debt and the acquirement by the Dominican Government of certain concessions and monopolies which have been a burden to the commerce of the country. In short, the receivership has demonstrated its ability, even under unfavorable economic and political conditions, to do the work for which it was intended. This Government was obliged to intervene diplomatically to bring about arbitration or settlement of the claim of the Emery Company against Nicaragua, which it had long before been agreed should be arbitrated. A settlement of this troublesome case was reached by the signature of a protocol on September 18, 1909. Many years ago diplomatic intervention became necessary to the protection of the interests in the American claim of Alsop and Company against the Government of Chile. The Government of Chile had frequently admitted obligation in the case and had promised this Government to settle. There had been two abortive attempts to do so through arbitral commissions, which failed through lack of jurisdiction. Now, happily, as the result of the recent diplomatic negotiations, the Governments of the United States and of Chile, actuated by the sincere desire to free from any strain those cordial and friendly relations upon which both set such store, have agreed by a protocol to submit the controversy to definitive settlement by His Britannic Majesty, Edward VII. Since the Washington Conventions of 1907 were communicated to the Government of the United States as a consulting and advising party, this Government has been almost continuously called upon by one or another, and in turn by all the five Central American Republics, to exert itself for the maintenance of the Conventions. Nearly every complaint has been against the Zelaya Government of Nicaragua, which has kept Central America in constant tension or turmoil. The responses made to the representations of Central American Republics, as due from the United States on account of its relation to the Washington Conventions, have been at all times conservative and have avoided, so far as possible, any semblance of interference, although it is very apparent that the considerations of geographic proximity to the Canal Zone and of the very substantial American interests in Central America give to the United States a special position in the zone of these Republics and the Caribbean Sea. I need not rehearse here the patient efforts of this Government to promote peace and welfare among these Republics, efforts which are fully appreciated by the majority of them who are loyal to their true interests. It would be no less unnecessary to rehearse here the sad tale of unspeakable barbarities and oppression alleged to have been committed by the Zelaya Government. Recently two Americans were put to death by order of President Zelaya himself. They were reported to have been regularly commissioned officers in the organized forces of a revolution which had continued many weeks and was in control of about half of the Republic, and as such, according to the modern enlightened practice of civilized nations, they were entitled to be dealt with as prisoners of war. At the date when this message is printed this Government has terminated diplomatic relations with the Zelaya Government, for reasons made public in a communication to the former Nicaraguan charge' d'affaires, and is intending to take such future steps as may be found most consistent with its dignity, its duty to American interests, and its moral obligations to Central America and to civilization. It may later be necessary for me to bring this subject to the attention of the Congress in a special message. The International Bureau of American Republics has carried on an important and increasing work during the last year. In the exercise of its peculiar functions as an international agency, maintained by all the American Republics for the development of Pan-American commerce and friendship, it has accomplished a great practical good which could be done in the same way by no individual department or bureau of one government, and is therefore deserving of your liberal support. The fact that it is about to enter a new building, erected through the munificence of an American philanthropist and the contributions of all the American nations, where both its efficiency of administration and expense of maintenance will naturally be much augmented, further entitles it to special consideration. In the Far East this Government preserves unchanged its policy of supporting the principle of equality of opportunity and scrupulous respect for the integrity of the Chinese Empire, to which policy are pledged the interested Powers of both East and West. By the Treaty of 1903 China has undertaken the abolition of likin with a moderate and proportionate raising of the customs tariff along with currency reform. These reforms being of manifest advantage to foreign commerce as well as to the interests of China, this Government is endeavoring to facilitate these measures and the needful acquiescence of the treaty Powers. When it appeared that Chinese likin revenues were to be hypothecated to foreign bankers in connection with a great railway project, it was obvious that the Governments whose nationals held this loan would have a certain direct interest in the question of the carrying out by China of the reforms in question. Because this railroad loan represented a practical and real application of the open door policy through cooperation with China by interested Powers as well as because of its relations to the reforms referred to above, the Administration deemed American participation to be of great national interest. Happily, when it was as a matter of broad policy urgent that this opportunity should not be lost, the indispensable instrumentality presented itself when a group of American bankers, of international reputation and great resources, agreed at once to share in the loan upon precisely such terms as this Government should approve. The chief of those terms was that American railway material should be upon an exact equality with that of the other nationals joining in the loan in the placing of orders for this whole railroad system. After months of negotiation the equal participation of Americans seems at last assured. It is gratifying that Americans will thus take their share in this extension of these great highways of trade, and to believe that such activities will give a real impetus to our commerce and will prove a practical corollary to our historic policy in the Far East. The Imperial Chinese Government in pursuance of its decision to devote funds from the portion of the indemnity remitted by the United States to the sending of students to this country has already completed arrangements for carrying out this purpose, and a considerable body of students have arrived to take up their work in our schools and universities. No one can doubt the happy effect that the associations formed by these representative young men will have when they return to take up their work in the progressive development of their country. The results of the Opium Conference held at Shanghai last spring at the invitation of the United States have been laid before the Government. The report shows that China is making remarkable progress and admirable efforts toward the eradication of the opium evil and that the Governments concerned have not allowed their commercial interests to interfere with a helpful cooperation in this reform. Collateral investigations of the opium question in this country lead me to recommend that the manufacture, sale and use of opium and its derivatives in the United States should be so far as possible more rigorously controlled by legislation. In one of the Chinese-Japanese Conventions of September 4 of this year there was a provision which caused considerable public apprehension in that upon its face it was believed in some quarters to seek to establish a monopoly of mining privileges along the South Manchurian and Antung-Mukden Railroads, and thus to exclude Americans from a wide field of enterprise, to take part in which they were by treaty with China entitled. After a thorough examination of the Conventions and of the several contextual documents, the Secretary of State reached the conclusion that no such monopoly was intended or accomplished. However, in view of the widespread discussion of this question, to confirm the view it had reached, this Government made inquiry of the Imperial Chinese and Japanese Governments and received from each official assurance that the provision had no purpose inconsistent with the policy of equality of opportunity to which the signatories, in common with the United States, are pledged. Our traditional relations with the Japanese Empire continue cordial as usual. As the representative of Japan, His Imperial Highness Prince Kuni visited the Hudson-Fulton Celebration. The recent visit of a delegation of prominent business men as guests of the chambers of commerce of the Pacific slope, whose representatives had been so agreeably received in Japan, will doubtless contribute to the growing trade across the Pacific, as well as to that mutual understanding which leads to mutual appreciation. The arrangement of 1908 for a cooperative control of the coming of laborers to the United States has proved to work satisfactorily. The matter of a revision of the existing treaty between the United States and Japan which is terminable in 1912 is already receiving the study of both countries. The Department of State is considering the revision in whole or in part, of the existing treaty with Siam, which was concluded in 1856, and is now, in respect to many of its provisions, out of date. I earnestly recommend to the favorable action of the Congress the estimates submitted by the Department of State and most especially the legislation suggested in the Secretary of State's letter of this date whereby it will be possible to develop and make permanent the reorganization of the Department upon modern lines in a manner to make it a thoroughly efficient instrument in the furtherance of our foreign trade and of American interests abroad. The plan to have Divisions of Latin-American and Far Eastern Affairs and to institute a certain specialization in business with Europe and the Near East will at once commend itself. These politico-geographical divisions and the detail from the diplomatic or consular service to the Department of a number of men, who bring to the study of complicated problems in different parts of the world practical knowledge recently gained on the spot, clearly is of the greatest advantage to the Secretary of State in foreseeing conditions likely to arise and in conducting the great variety of correspondence and negotiation. It should be remembered that such facilities exist in the foreign offices of all the leading commercial nations and that to deny them to the Secretary of State would be to place this Government at a great disadvantage in the rivalry of commercial competition. The consular service has been greatly improved under the law of April 5, 1906, and the Executive Order of June 27, 1906, and I commend to your consideration the question of embodying in a statute the principles of the present Executive Order upon which the efficiency of our consular service is wholly dependent. In modern times political and commercial interests are interrelated, and in the negotiation of commercial treaties, conventions and tariff agreements, the keeping open of opportunities and the proper support of American enterprises, our diplomatic service is quite as important as the consular service to the business interests of the country. Impressed with this idea and convinced that selection after rigorous examination, promotion for merit solely and the experience only to be gained through the continuity of an organized service are indispensable to a high degree of efficiency in the diplomatic service, I have signed an Executive Order as the first step toward this very desirable result. Its effect should be to place all secretaries in the diplomatic service in much the same position as consular officers are now placed and to tend to the promotion of the most efficient to the grade of minister, generally leaving for outside appointments such posts of the grade of ambassador or minister as it may be expedient to fill from without the service. It is proposed also to continue the practice instituted last summer of giving to all newly appointed secretaries at least one month's thorough training in the Department of State before they proceed to their posts. This has been done for some time in regard to the consular service with excellent results. Under a provision of the Act of August 5, 1909, I have appointed three officials to assist the officers of the Government in collecting information necessary to a wise administration of the tariff act of August 5, 1909. As to questions of customs administration they are cooperating with the officials of the Treasury Department and as to matters of the needs and the exigencies of our manufacturers and exporters, with the Department of Commerce and Labor, in its relation to the domestic aspect of the subject of foreign commerce. In the study of foreign tariff treatment they will assist the Bureau of Trade Relations of the Department of State. It is hoped thus to coordinate and bring to bear upon this most important subject all the agencies of the Government which can contribute anything to its efficient handling. As a consequence of Section 2 of the tariff act of August 5, 1909, it becomes the duty of the Secretary of State to conduct as diplomatic business all the negotiations necessary to place him in a position to advise me as to whether or not a particular country unduly discriminates against the United States in the sense of the statute referred to. The great scope and complexity of this work, as well as the obligation to lend all proper aid to our expanding commerce, is met by the expansion of the Bureau of Trade Relations as set forth in the estimates for the Department of State. I have thus in some detail described the important transactions of the State Department since the beginning of this Administration for the reason that there is no provision either by statute or custom for a formal report by the Secretary of State to the President or to Congress, and a Presidential message is the only means by which the condition of our foreign relations is brought to the attention of Congress and the public. In dealing with the affairs of the other Departments, the heads of which all submit annual reports, I shall touch only those matters that seem to me to call for special mention on my part without minimizing in any way the recommendations made by them for legislation affecting their respective Departments, in all of which I wish to express my general concurrence. Perhaps the most important question presented to this Administration is that of economy in expenditures and sufficiency of revenue. The deficit of the last fiscal year, and the certain deficit of the current year, prompted Congress to throw a greater responsibility on the Executive and the Secretary of the Treasury than had heretofore been declared by statute. This declaration imposes upon the Secretary of the Treasury the duty of assembling all the estimates of the Executive Departments, bureaus, and offices, of the expenditures necessary in the ensuing fiscal year, and of making an estimate of the revenues of the Government for the same period; and if a probable deficit is thus shown, it is made the duty of the President to recommend the method by which such deficit can be met. The report of the Secretary shows that the ordinary expenditures for the current fiscal year ending June 30, 1910, will exceed the estimated receipts by $34,075,620. If to this deficit is added the sum to be disbursed for the Panama Canal, amounting to $38,000,000, and $1,000,000 to be paid on the public debt, the deficit of ordinary receipts and expenditures will be increased to a total deficit of $73,075,620. This deficit the Secretary proposes to meet by the proceeds of bonds issued to pay the cost of constructing the Panama Canal. I approve this proposal. The policy of paying for the construction of the Panama Canal, not out of current revenue, but by bond issues, was adopted in the Spooner Act of 1902, and there seems to be no good reason for departing from the principle by which a part at least of the burden of the cost of the canal shall fall upon our posterity who are to enjoy it; and there is all the more reason for this view because the actual cost to date of the canal, which is now half done and which will be completed January 1, 1915, shows that the cost of engineering and construction will be $297,766,000, instead of $139,705,200, as originally estimated. In addition to engineering and construction, the other expenses, including sanitation and government, and the amount paid for the properties, the franchise, and the privilege of building the canal, increase the cost by $75,435,000, to a total of $375,201,000. The increase in the cost of engineering and construction is due to a substantial enlargement of the plan of construction by widening the canal 100 feet in the Culebra cut and by increasing the dimensions of the locks, to the underestimate of the quantity of the work to be done under the original plan, and to an underestimate of the cost of labor and materials both of which have greatly enhanced in price since the original estimate was made. In order to avoid a deficit for the ensuing fiscal year, I directed the heads of Departments in the preparation of their estimates to make them as low as possible consistent with imperative governmental necessity. The result has been, as I am advised by the Secretary of the Treasury, that the estimates for the expenses of the Government for the next fiscal year ending June 30, 1911, are less than the appropriations for this current fiscal year by $42,818,000. So far as the Secretary of the Treasury is able to form a judgment as to future income, and compare it with the expenditures for the next fiscal year ending June 30, 1911, and excluding payments on account of the Panama Canal, which will doubtless be taken up by bonds, there will be a surplus of $35,931,000. In the present estimates the needs of the Departments and of the Government have been cut to the quick, so to speak, and any assumption on the part of Congress, so often made in times past, that the estimates have been prepared with the expectation that they may be reduced, will result in seriously hampering proper administration. The Secretary of the Treasury points out what should be carefully noted in respect to this reduction in governmental expenses for the next fiscal year, that the economies are of two kinds--first, there is a saving in the permanent administration of the Departments, bureaus, and offices of the Government; and, second, there is a present reduction in expenses by a postponement of projects and improvements that ultimately will have to be carried out but which are now delayed with the hope that additional revenue in the future will permit their execution without producing a deficit. It has been impossible in the preparation of estimates greatly to reduce the cost of permanent administration. This can not be done without a thorough reorganization of bureaus, offices, and departments. For the purpose of securing information which may enable the executive and the legislative branches to unite in a plan for the permanent reduction of the cost of governmental administration, the Treasury Department has instituted an investigation by one of the most skilled expert accountants in the United States. The result of his work in two or three bureaus, which, if extended to the entire Government, must occupy two or more years, has been to show much room for improvement and opportunity for substantial reductions in the cost and increased efficiency of administration. The object of the investigation is to devise means to increase the average efficiency of each employee. There is great room for improvement toward this end, not only by the reorganization of bureaus and departments and in the avoidance of duplication, but also in the treatment of the individual employee. Under the present system it constantly happens that two employees receive the same salary when the work of one is far more difficult and important and exacting than that of the other. Superior ability is not rewarded or encouraged. As the classification is now entirely by salary, an employee often rises to the highest class while doing the easiest work, for which alone he may be fitted. An investigation ordered by my predecessor resulted in the recommendation that the civil service he reclassified according to the kind of work, so that the work requiring most application and knowledge and ability shall receive most compensation. I believe such a change would be fairer to the whole force and would permanently improve the personnel of the service. More than this, every reform directed toward the improvement in the average efficiency of government employees must depend on the ability of the Executive to eliminate from the government service those who are inefficient from any cause, and as the degree of efficiency in all the Departments is much lessened by the retention of old employees who have outlived their energy and usefulness, it is indispensable to any proper system of economy that provision be made so that their separation from the service shall be easy and inevitable. It is impossible to make such provision unless there is adopted a plan of civil pensions. Most of the great industrial organizations, and many of the well-conducted railways of this country, are coming to the conclusion that a system of pensions for old employees, and the substitution therefor of younger and more energetic servants, promotes both economy and efficiency of administration. I am aware that there is a strong feeling in both Houses of Congress, and possibly in the country, against the establishment of civil pensions, and that this has naturally grown out of the heavy burden of military pensions, which it has always been the policy of our Government to assume; but I am strongly convinced that no other practical solution of the difficulties presented by the superannuation of civil servants can be found than that of a system of civil pensions. The business and expenditures of the Government have expanded enormously since the Spanish war, but as the revenues have increased in nearly the same proportion as the expenditures until recently, the attention of the public, and of those responsible for the Government, has not been fastened upon the question of reducing the cost of administration. We can not, in view of the advancing prices of living, hope to save money by a reduction in the standard of salaries paid. Indeed, if any change is made in that regard, an increase rather than a decrease will be necessary; and the only means of economy will be in reducing the number of employees and in obtaining a greater average of efficiency from those retained in the service. Close investigation and study needed to make definite recommendations in this regard will consume at least two years. I note with much satisfaction the organization in the Senate of a Committee on Public Expenditures, charged with the duty of conducting such an investigation, and I tender to that committee all the assistance which the executive branch of the Government can possibly render. I regret to refer to the fact of the discovery of extensive frauds in the collections of the customs revenue at New York City, in which a number of the subordinate employees in the weighing and other departments were directly concerned, and in which the beneficiaries were the American Sugar Refining Company and others. The frauds consisted in the payment of duty on underweights of sugar. The Government has recovered from the American Sugar Refining Company all that it is shown to have been defrauded of. The sum was received in full of the amount due, which might have been recovered by civil suit against the beneficiary of the fraud, but there was an express reservation in the contract of settlement by which the settlement should not interfere with, or prevent the criminal prosecution of everyone who was found to be subject to the same. Criminal prosecutions are now proceeding against a number of the Government officers. The Treasury Department and the Department of Justice are exerting every effort to discover all the wrongdoers, including the officers and employees of the companies who may have been privy to the fraud. It would seem to me that an investigation of the frauds by Congress at present, pending the probing by the Treasury Department and the Department of Justice, as proposed, might by giving immunity and otherwise prove an embarrassment in securing conviction of the guilty parties. Two features of the new tariff act call for special reference. By virtue of the clause known as the "Maximum and Minimum" clause, it is the duty of the Executive to consider the laws and practices of other countries with reference to the importation into those countries of the products and merchandise of the United States, and if the Executive finds such laws and practices not to be unduly discriminatory against the United States, the minimum duties provided in the bill are to go into force. Unless the President makes such a finding, then the maximum duties provided in the bill, that is, an increase of twenty-five per cent. ad valorem over the minimum duties, are to be in force. Fear has been expressed that this power conferred and duty imposed on the Executive is likely to lead to a tariff war. I beg to express the hope and belief that no such result need be anticipated. The discretion granted to the Executive by the terms "unduly discriminatory" is wide. In order that the maximum duty shall be charged against the imports from a country, it is necessary that he shall find on the part of that country not only discriminations in its laws or the practice under them against the trade of the United States, but that the discriminations found shall be undue; that is, without good and fair reason. I conceive that this power was reposed in the President with the hope that the maximum duties might never be applied in any case, but that the power to apply them would enable the President and the State Department through friendly negotiation to secure the elimination from the laws and the practice under them of any foreign country of that which is unduly discriminatory. No one is seeking a tariff war or a condition in which the spirit of retaliation shall be aroused. The new tariff law enables me to appoint a tariff board to assist me in connection with the Department of State in the administration of the minimum and maximum clause of the act and also to assist officers of the Government in the administration of the entire law. An examination of the law and an understanding of the nature of the facts which should be considered in discharging the functions imposed upon the Executive show that I have the power to direct the tariff board to make a comprehensive glossary and encyclopedia of the terms used and articles embraced in the tariff law, and to secure information as to the cost of production of such goods in this country and the cost of their production in foreign countries. I have therefore appointed a tariff board consisting of three members and have directed them to perform all the duties above described. This work will perhaps take two or three years, and I ask from Congress a continuing annual appropriation equal to that already made for its prosecution. I believe that the work of this board will be of prime utility and importance whenever Congress shall deem it wise again to readjust the customs duties. If the facts secured by the tariff board are of such a character as to show generally that the rates of duties imposed by the present tariff law are excessive under the principles of protection as described in the platform of the successful party at the late election, I shall not hesitate to invite the attention of Congress to this fact and to the necessity for action predicated thereon. Nothing, however, halts business and interferes with the course of prosperity so much as the threatened revision of the tariff, and until the facts are at hand, after careful and deliberate investigation, upon which such revision can properly be undertaken, it seems to me unwise to attempt it. The amount of misinformation that creeps into arguments pro and con in respect to tariff rates is such as to require the kind of investigation that I have directed the tariff board to make, an investigation undertaken by it wholly without respect to the effect which the facts may have in calling for a readjustment of the rates of duty. In the interest of immediate economy and because of the prospect of a deficit, I have required a reduction in the estimates of the War Department for the coming fiscal year, which brings the total estimates down to an amount forty-five millions less than the corresponding estimates for last year. This could only be accomplished by cutting off new projects and suspending for the period of one year all progress in military matters. For the same reason I have directed that the Army shall not be recruited up to its present authorized strength. These measures can hardly be more than temporary--to last until our revenues are in better condition and until the whole question of the expediency of adopting a definite military policy can be submitted to Congress, for I am sure that the interests of the military establishment are seriously in need of careful consideration by Congress. The laws regulating the organization of our armed forces in the event of war need to be revised in order that the organization can be modified so as to produce a force which would be more consistently apportioned throughout its numerous branches. To explain the circumstances upon which this opinion is based would necessitate a lengthy discussion, and I postpone it until the first convenient opportunity shall arise to send to Congress a special message upon this subject. The Secretary of War calls attention to a number of needed changes in the Army in all of which I concur, but the point upon which I place most emphasis is the need for an elimination bill providing a method by which the merits of officers shall have some effect upon their advancement and by which the advancement of all may be accelerated by the effective elimination of a definite proportion of the least efficient. There are in every army, and certainly in ours, a number of officers who do not violate their duty in any such way as to give reason for a court-martial or dismissal, but who do not show such aptitude and skill and character for high command as to justify their remaining in the active service to be Promoted. Provision should be made by which they may be retired on a certain proportion of their pay, increasing with their length of service at the time of retirement. There is now a personnel law for the Navy which itself needs amendment and to which I shall make further reference. Such a law is needed quite as much for the Army. The coast defenses of the United States proper are generally all that could be desired, and in some respects they are rather more elaborate than under present conditions are needed to stop an enemy's fleet from entering the harbors defended. There is, however, one place where additional defense is badly needed, and that is at the mouth of Chesapeake Bay, where it is proposed to make an artificial island for a fort which shall prevent an enemy's fleet from entering this most important strategical base of operations on the whole Atlantic and Gulf coasts. I hope that appropriate legislation will be adopted to secure the construction of this defense. The military and naval joint board have unanimously agreed that it would be unwise to make the large expenditures which at one time were contemplated in the establishment of a naval base and station in the Philippine Islands, and have expressed their judgment, in which I fully concur, in favor of making an extensive naval base at Pearl Harbor, near Honolulu, and not in the Philippines. This does not dispense with the necessity for the comparatively small appropriations required to finish the proper coast defenses in the Philippines now under construction on the island of Corregidor and elsewhere or to complete a suitable repair station and coaling supply station at Olongapo, where is the floating dock "Dewey." I hope that this recommendation of the joint board will end the discussion as to the comparative merits of Manila Bay and Olongapo as naval stations, and will lead to prompt measures for the proper equipment and defense of Pearl Harbor. The return of the battle-ship fleet from its voyage around the world, in more efficient condition than when it started, was a noteworthy event of interest alike to our citizens and the naval authorities of the world. Besides the beneficial and far-reaching effect on our personal and diplomatic relations in the countries which the fleet visited, the marked success of the ships in steaming around the world in all weathers on schedule time has increased respect for our Navy and has added to our national prestige. Our enlisted personnel recruited from all sections of the country is young and energetic and representative of the national spirit. It is, moreover, owing to its intelligence, capable of quick training into the modern man-of-warsman. Our officers are earnest and zealous in their profession, but it is a regrettable fact that the higher officers are old for the responsibilities of the modern navy, and the admirals do not arrive at flag rank young enough to obtain adequate training in their duties as flag officers. This need for reform in the Navy has been ably and earnestly presented to Congress by my predecessor, and I also urgently recommend the subject for consideration. Early in the coming session a comprehensive plan for the reorganization of the officers of all corps of the Navy will be presented to Congress, and I hope it will meet with action suited to its urgency. Owing to the necessity for economy in expenditures, I have directed the curtailment of recommendations for naval appropriations so that they are thirty-eight millions less than the corresponding estimates of last year, and the request for new naval construction is limited to two first-class battle ships and one repair vessel. The use of a navy is for military purposes, and there has been found need in the Department of a military branch dealing directly with the military use of the fleet. The Secretary of the Navy has also felt the lack of responsible advisers to aid him in reaching conclusions and deciding important matters between coordinate branches of the Department. To secure these results he has inaugurated a tentative plan involving certain changes in the organization of the Navy Department, including the navy-yards, all of which have been found by the Attorney-General to be in accordance with law. I have approved the execution of the plan proposed because of the greater efficiency and economy it promises. The generosity of Congress has provided in the present Naval Observatory the most magnificent and expensive astronomical establishment in the world. It is being used for certain naval purposes which might easily and adequately be subserved by a small division connected with the Naval Department at only a fraction of the cost of the present Naval Observatory. The official Board of Visitors established by Congress and appointed in 1901 expressed its conclusion that the official head of the observatory should be an eminent astronomer appointed by the President by and with the advice and consent of the Senate, holding his place by a tenure at least as permanent as that of the Superintendent of the Coast Survey or the head of the Geological Survey, and not merely by a detail of two or three years' duration. I fully concur in this judgment, and urge a provision by law for the appointment of such a director. It may not be necessary to take the observatory out of the Navy Department and put it into another department in which opportunity for scientific research afforded by the observatory would seem to be more appropriate, though I believe such a transfer in the long run is the best policy. I am sure, however, I express the desire of the astronomers and those learned in the kindred sciences when I urge upon Congress that the Naval Observatory be now dedicated to science under control of a man of science who can, if need be, render all the service to the Navy Department which this observatory now renders, and still furnish to the world the discoveries in astronomy that a great astronomer using such a plant would be likely to make.   The deplorable delays in the administration of civil and criminal law have received the attention of committees of the American Bar Association and of many State Bar Associations, as well as the considered thought of judges and jurists. In my judgment, a change in judicial procedure, with a view to reducing its expense to private litigants in civil cases and facilitating the dispatch of business and final decision in both civil and criminal cases, constitutes the greatest need in our American institutions. I do not doubt for one moment that much of the lawless violence and cruelty exhibited in lynchings is directly due to the uncertainties and injustice growing out of the delays in trials, judgments, and the executions thereof by our courts. Of course these remarks apply quite as well to the administration of justice in State courts as to that in Federal courts, and without making invidious distinction it is perhaps not too much to say that, speaking generally, the defects are less in the Federal courts than in the State courts. But they are very great in the Federal courts. The expedition with which business is disposed of both on the civil and the criminal side of English courts under modern rules of procedure makes the delays in our courts seem archaic and barbarous. The procedure in the Federal courts should furnish an example for the State courts. I presume it is impossible, without an amendment to the Constitution, to unite under one form of action the proceedings at common law and proceedings in equity in the Federal courts, but it is certainly not impossible by a statute to simplify and make short and direct the procedure both at law and in equity in those courts. It is not impossible to cut down still more than it is cut down, the jurisdiction of the Supreme Court so as to confine it almost wholly to statutory and constitutional questions. Under the present statutes the equity and admiralty procedure in the Federal courts is under the control of the Supreme Court, but in the pressure of business to which that court is subjected, it is impossible to hope that a radical and proper reform of the Federal equity procedure can be brought about. I therefore recommend legislation providing for the appointment by the President of a commission with authority to examine the law and equity procedure of the Federal courts of first instance, the law of appeals from those courts to the courts of appeals and to the Supreme Court, and the costs imposed in such procedure upon the private litigants and upon the public treasury and make recommendation with a view to simplifying and expediting the procedure as far as possible and making it as inexpensive as may be to the litigant of little means. The platform of the successful party in the last election contained the following: 
  "The Republican party will uphold at all times the authority and integrity of the courts, State and Federal, and will ever insist that their powers to enforce their process and to protect life, liberty, and property shall be preserved inviolate. We believe, however, that the rules of procedure in the Federal courts with respect to the issuance of the writ of injunction should be more accurately defined by statute, and that no injunction or temporary restraining order should be issued without notice, except where irreparable injury would result from delay, in which case a speedy hearing thereafter should be granted."
 I recommend that in compliance with the promise thus made, appropriate legislation be adopted. The ends of justice will best be met and the chief cause of complaint against ill-considered injunctions without notice will be removed by the enactment of a statute forbidding hereafter the issuing of any injunction or restraining order, whether temporary or permanent, by any Federal court, without previous notice and a reasonable opportunity to he heard on behalf of the parties to be enjoined; unless it shall appear to the satisfaction of the court that the delay necessary to give such notice and hearing would result in irreparable injury to the complainant and unless also the court shall from the evidence make a written finding, which shall be spread upon the court minutes, that immediate and irreparable injury is likely to ensue to the complainant, and shall define the injury, state why it is irreparable, and shall also endorse on the order issued the date and the hour of the issuance of the order. Moreover, every such injunction or restraining order issued without previous notice and opportunity by the defendant to be heard should by force of the statute expire and be of no effect after seven days from the issuance thereof or within any time less than that period which the court may fix, unless within such seven days or such less period, the injunction or order is extended or renewed after previous notice and opportunity to be heard. My judgment is that the passage of such an act which really embodies the best practice in equity and is very like the rule now in force in some courts will prevent the issuing of ill-advised orders of injunction without notice and will render such orders when issued much less objectionable by the short time in which they may remain effective. The jurisdiction of the General Government over interstate commerce has led to the passage of the so-called "Sherman Anti-trust Law" and the "Interstate Commerce Law" and its amendments. The developments in the operation of those laws, as shown by indictments, trials, judicial decisions, and other sources of information, call for a discussion and some suggestions as to amendments. These I prefer to embody in a special message instead of including them in the present communication, and I shall avail myself of the first convenient opportunity to bring these subjects to the attention of Congress. My predecessor transmitted to the Congress a special message on January 11, 1909, accompanying the report of Commissioners theretofore appointed to investigate the jail, workhouse, etc., in the District of Columbia, in which he directed attention to the report as setting forth vividly, "the really outrageous conditions in the workhouse and jail." The Congress has taken action in pursuance of the recommendations of that report and of the President, to the extent of appropriating funds and enacting the necessary legislation for the establishment of a workhouse and reformatory. No action, however, has been taken by the Congress with respect to the jail, the conditions of which are still antiquated and insanitary. I earnestly recommend the passage of a sufficient appropriation to enable a thorough remodeling of that institution to be made without delay. It is a reproach to the National Government that almost under the shadow of the Capitol Dome prisoners should be confined in a building destitute of the ordinary decent appliances requisite to cleanliness and sanitary conditions.   The deficit every year in the Post-Office Department is largely caused by the low rate of postage of 1 cent a pound charged on second-class mail matter, which includes not only newspapers, but magazines and miscellaneous periodicals. The actual loss growing out of the transmission of this second-class mail matter at 1 cent a pound amounts to about $63,000,000 a year. The average cost of the transportation of this matter is more than 9 cents a pound. It appears that the average distance over which newspapers are delivered to their customers is 291 miles, while the average haul of magazines is 1,049, and of miscellaneous periodicals 1,128 miles. Thus, the average haul of the magazine is three and one-half times and that of the miscellaneous periodical nearly four times the haul of the daily newspaper, yet all of them pay the same postage rate of 1 cent a pound. The statistics of 1907 show that second-class mail matter constituted 63.91 per cent. of the weight of all the mail, and yielded only 5.19 per cent. of the revenue. The figures given are startling, and show the payment by the Government of an enormous subsidy to the newspapers, magazines, and periodicals, and Congress may well consider whether radical steps should not be taken to reduce the deficit in the Post-Office Department caused by this discrepancy between the actual cost of transportation and the compensation exacted therefor. A great saving might be made, amounting to much more than half of the loss, by imposing upon magazines and periodicals a higher rate of postage. They are much heavier than newspapers, and contain a much higher proportion of advertising to reading matter, and the average distance of their transportation is three and a half times as great. The total deficit for the last fiscal year in the Post-Office Department amounted to $17,500,000. The branches of its business which it did at a loss were the second-class mail service, in which the loss, as already said, was $63,000,000, and the free rural delivery, in which the loss was $28,000,000. These losses were in part offset by the profits of the letter postage and other sources of income. It would seem wise to reduce the loss upon second-class mail matter, at least to the extent of preventing a deficit in the total operations of the Post-Office. I commend the whole subject to Congress, not unmindful of the spread of intelligence which a low charge for carrying newspapers and periodicals assists. I very much doubt, however, the wisdom of a policy which constitutes so large a subsidy and requires additional taxation to meet it. The second subject worthy of mention in the Post-Office Department is the real necessity and entire practicability of establishing postal savings banks. The successful party at the last election declared in favor of postal savings banks, and although the proposition finds opponents in many parts of the country, I am convinced that the people desire such banks, and am sure that when the banks are furnished they will be productive of the utmost good. The postal savings banks are not constituted for the purpose of creating competition with other banks. The rate of interest upon deposits to which they would be limited would be so small as to prevent their drawing deposits away from other banks. I believe them to be necessary in order to offer a proper inducement to thrift and saving to a great many people of small means who do not now have banking facilities, and to whom such a system would offer an opportunity for the accumulation of capital. They will furnish a satisfactory substitute, based on sound principle and actual successful trial in nearly all the countries of the world, for the system of government guaranty of deposits now being adopted in several western States, which with deference to those who advocate it seems to me to have in it the seeds of demoralization to conservative banking and certain financial disaster. The question of how the money deposited in postal savings banks shall be invested is not free from difficulty, but I believe that a satisfactory provision for this purpose was inserted as an amendment to the bill considered by the Senate at its last session. It has been proposed to delay the consideration of legislation establishing a postal savings bank until after the report of the Monetary Commission. This report is likely to be delayed, and properly so, cause of the necessity for careful deliberation and close investigation. I do not see why the one should be tied up with the other. It is understood that the Monetary Commission have looked into the systems of banking which now prevail abroad, and have found that by a control there exercised in respect to reserves and the rates of exchange by some central authority panics are avoided. It is not apparent that a system of postal savings banks would in any way interfere with a change to such a system here. Certainly in most of the countries of Europe where control is thus exercised by a central authority, postal savings banks exist and are not thought to be inconsistent with a proper financial and banking system. Following the course of my distinguished predecessor, I earnestly recommend to Congress the consideration and passage of a ship subsidy bill, looking to the establishment of lines between our Atlantic seaboard and the eastern coast of South America, as well as lines from the west coast of the United States to South America. China, Japan, and the Philippines. The profits on foreign mails are perhaps a sufficient measure of the expenditures which might first be tentatively applied to this method of inducing American capital to undertake the establishment of American lines of steamships in those directions in which we now feel it most important that we should have means of transportation controlled in the interest of the expansion of our trade. A bill of this character has once passed the House and more than once passed the Senate, and I hope that at this session a bill framed on the same lines and with the same purposes may become a law.   The successful party in the last election in its national platform declared in favor of the admission as separate States of New Mexico and Arizona, and I recommend that legislation appropriate to this end be adopted. I urge, however, that care be exercised in the preparation of the legislation affecting each Territory to secure deliberation in the selection of persons as members of the convention to draft a constitution for the incoming State, and I earnestly advise that such constitution after adoption by the convention shall be submitted to the people of the Territory for their approval at an election in which the sole issue shall be the merits of the proposed constitution, and if the constitution is defeated by popular vote means shall be provided in the enabling act for a new convention and the drafting of a new constitution. I think it vital that the issue as to the merits of the constitution should not be mixed up with the selection of State officers, and that no election of State officers should be had until after the constitution has been fully approved and finally settled upon.  . With respect to the Territory of Alaska, I recommend legislation which shall provide for the appointment by the President of a governor and also of an executive council, the members of which shall during their term of office reside in the Territory, and which shall have legislative powers sufficient to enable it to give to the Territory local laws adapted to its present growth. I strongly deprecate legislation looking to the election of a Territorial legislature in that vast district. The lack of permanence of residence of a large part of the present population and the small number of the people who either permanently or temporarily reside in the district as compared with its vast expanse and the variety of the interests that have to be subserved, make it altogether unfitting in my judgment to provide for a popular election of a legislative body. The present system is not adequate and does not furnish the character of local control that ought to be there. The only compromise it seems to me which may give needed local legislation and secure a conservative government is the one I propose. In several Departments there is presented the necessity for legislation looking to the further conservation of our national resources, and the subject is one of such importance as to require a more detailed and extended discussion than can be entered upon in this communication. For that reason I shall take an early opportunity to send a special message to Congress on the subject of the improvement of our waterways, upon the reclamation and irrigation of arid, semiarid, and swamp lands; upon the preservation of our forests and the reforesting of suitable areas; upon the reclassification of the public domain with a view of separating from agricultural settlement mineral, coal, and phosphate lands and sites belonging to the Government bordering on streams suitable for the utilization of water power. I commend to your careful consideration the report of the Secretary of Agriculture as showing the immense sphere of usefulness which that Department now fills and the wonderful addition to the wealth of the nation made by the farmers of this country in the crops of the current year.   The Light-House Board now discharges its duties under the Department of Commerce and Labor. For upwards of forty years this Board has been constituted of military and naval officers and two or three men of science, with such an absence of a duly constituted executive head that it is marvelous what work has been accomplished. In the period of construction the energy and enthusiasm of all the members prevented the inherent defects of the system from interfering greatly with the beneficial work of the Board, but now that the work is chiefly confined to maintenance and repair, for which purpose the country is divided into sixteen districts, to which are assigned an engineer officer of the Army and an inspector of the Navy, each with a light-house tender and the needed plant for his work, it has become apparent by the frequent friction that arises, due to the absence of any central independent authority, that there must be a complete reorganization of the Board. I concede the advantage of keeping in the system the rigidity of discipline that the presence of naval and military officers in charge insures, but unless the presence of such officers in the Board can be made consistent with a responsible executive head that shall have proper authority, I recommend the transfer of control over the light-houses to a suitable civilian bureau. This is in accordance with the judgment of competent persons who are familiar with the workings of the present system. I am confident that a reorganization can be effected which shall avoid the recurrence of friction between members, instances of which have been officially brought to my attention, and that by such reorganization greater efficiency and a substantial reduction in the expense of operation can be brought about. I request Congressional authority to enable the Secretary of Commerce and Labor to unite the Bureaus of Manufactures and Statistics. This was recommended by a competent committee appointed in the previous administration for the purpose of suggesting changes in the interest of economy and efficiency, and is requested by the Secretary. I greatly regret to have to say that the investigations made in the Bureau of Immigration and other sources of information lead to the view that there is urgent necessity for additional legislation and greater executive activity to suppress the recruiting of the ranks of prostitutes from the streams of immigration into this country--an evil which, for want of a better name, has been called "The White Slave Trade." I believe it to be constitutional to forbid, under penalty, the transportation of persons for purposes of prostitution across national and state lines; and by appropriating a fund of $50,000 to be used by the Secretary of Commerce and Labor for the employment of special inspectors it will be possible to bring those responsible for this trade to indictment and conviction under a federal law. For a very considerable period a movement has been gathering strength, especially among the members of the medical profession, in favor of a concentration of the instruments of the National Government which have to do with the promotion of public health. In the nature of things, the Medical Department of the Army and the Medical Department of the Navy must be kept separate. But there seems to be no reason why all the other bureaus and offices in the General Government which have to do with the public health or subjects akin thereto should not be united in a bureau to be called the "Bureau of Public Health." This would necessitate the transfer of the Marine-Hospital Service to such a bureau. I am aware that there is wide field in respect to the public health committed to the States in which the Federal Government can not exercise jurisdiction, but we have seen in the Agricultural Department the expansion into widest usefulness of a department giving attention to agriculture when that subject is plainly one over which the States properly exercise direct jurisdiction. The opportunities offered for useful research and the spread of useful information in regard to the cultivation of the soil and the breeding of stock and the solution of many of the intricate problems in progressive agriculture have demonstrated the wisdom of establishing that department. Similar reasons, of equal force, can be given for the establishment of a bureau of health that shall not only exercise the police jurisdiction of the Federal Government respecting quarantine, but which shall also afford an opportunity for investigation and research by competent experts into questions of health affecting the whole country, or important sections thereof, questions which, in the absence of Federal governmental work, are not likely to be promptly solved. The work of the United States Civil Service Commission has been performed to the general satisfaction of the executive officers with whom the Commission has been brought into official communication. The volume of that work and its variety and extent have under new laws, such as the Census Act, and new Executive orders, greatly increased. The activities of the Commission required by the statutes have reached to every portion of the public domain. The accommodations of the Commission are most inadequate for its needs. I call your attention to its request for increase in those accommodations as will appear from the annual report for this year. I urgently recommend to Congress that a law be passed requiring that candidates in elections of Members of the House of Representatives, and committees in charge of their candidacy and campaign, file in a proper office of the United States Government a statement of the contributions received and of the expenditures incurred in the campaign for such elections and that similar legislation be enacted in respect to all other elections which are constitutionally within the control of Congress Recommendations have been made by my predecessors that Congress appropriate a sufficient sum to pay the balance--about 38 per cent.--of the amounts due depositors in the Freedman's Savings and Trust Company. I renew this recommendation, and advise also that a proper limitation be prescribed fixing a period within which the claims may be presented, that assigned claims be not recognized, and that a limit be imposed on the amount of fees collectible for services in presenting such claims. The year 1913 will mark the fiftieth anniversary of the issuance of the Emancipation Proclamation granting freedom to the negroes. It seems fitting that this event should be properly celebrated. Already a movement has been started by prominent Negroes, encouraged by prominent white people and the press. The South especially is manifesting its interest in this movement. It is suggested that a proper form of celebration would be an exposition to show the progress the Negroes have made, not only during their period of freedom, but also from the time of their coming to this country. I heartily indorse this proposal, and request that the Executive be authorized to appoint a preliminary commission of not more than seven persons to consider carefully whether or not it is wise to hold such an exposition, and if so, to outline a plan for the enterprise. I further recommend that such preliminary commission serve without salary, except as to their actual expenses, and that an appropriation be made to meet such expenses.  . I have thus, in a message compressed as much as the subjects will permit, referred to many of the legislative needs of the country, with the exceptions already noted. Speaking generally, the country is in a high state of prosperity. There is every reason to believe that we are on the eve of a substantial business expansion, and we have just garnered a harvest unexampled in the market value of our agricultural products. The high prices which such products bring mean great prosperity for the farming community, but on the other hand they mean a very considerably increased burden upon those classes in the community whose yearly compensation does not expand with the improvement in business and the general prosperity. Various reasons are given for the high prices. The proportionate increase in the output of gold, which to-day is the chief medium of exchange and is in some respects a measure of value, furnishes a substantial explanation of at least a part of the increase in prices. The increase in population and the more expensive mode of living of the people, which have not been accompanied by a proportionate increase in acreage production, may furnish a further reason. It is well to note that the increase in the cost of living is not confined to this country, but prevails the world over, and that those who would charge increases in prices to the existing protective tariff must meet the fact that the rise in prices has taken place almost wholly in those products of the factory and farm in respect to which there has been either no increase in the tariff or in many instances a very considerable reduction.
The relations of the United States with all foreign governments have continued upon the normal basis of amity and good understanding, and are very generally satisfactory. . Pursuant to the provisions of the general treaty of arbitration concluded between the United States and Great Britain, April 4, 1908, a special agreement was entered into between the two countries on January 27, 1909, for the submission of questions relating to the fisheries on the North Atlantic Coast to a tribunal to be formed from members of the Permanent Court of Arbitration at The Hague. In accordance with the provisions of the special agreement the printed case of each Government was, on October 4 last, submitted to the other and to the Arbitral Tribunal at The Hague, and the counter case of the United States is now in course of preparation. The American rights under the fisheries article of the Treaty of 1818 have been a because of difference between the United States and Great Britain for nearly seventy years. The interests involved are of great importance to the American fishing industry, and the final settlement of the controversy will remove a source of constant irritation and complaint. This is the first case involving such great international questions which has been submitted to the Permanent Court of Arbitration at The Hague. The treaty between the United States and Great Britain concerning the Canadian International boundary, concluded April 11, 1908, authorizes the appointment of two commissioners to define and mark accurately the international boundary line between the United States and the Dominion of Canada in the waters of the Passamaquoddy Bay, and provides for the exchange of briefs within the period of six months. The briefs were duly presented within the prescribed period, but as the commissioners failed to agree within six months after the exchange of the printed statements, as required by the treaty, it has now become necessary to resort to the arbitration provided for in the article. The International Fisheries Commission appointed pursuant to and under the authority of the Convention of April 11, 1908, between the United States and Great Britain, has completed a system of uniform and common international regulations for the protection and preservation of the food fishes in international boundary waters of the United States and Canada. The regulations will be duly submitted to Congress with a view to the enactment of such legislation as will be necessary under the convention to put them into operation. The Convention providing for the settlement of international differences between the United States and Canada, including the apportionment between the two countries of certain of the boundary waters and the appointment of commissioners to adjust certain other questions, signed on the 11th day of January, 1909, and to the ratification of which the Senate gave its advice and consent on March 3, 1909, has not yet been ratified on the part of Great Britain. Commissioners have been appointed on the part of the United States to act jointly with Commissioners on the part of Canada in examining into the question of obstructions in the St. John River between Maine and New Brunswick, and to make recommendations for the regulation of the uses thereof, and are now engaged in this work. Negotiations for an international conference to consider and reach an arrangement providing for the preservation and protection of the fur seals in the North Pacific are in progress with the Governments of Great Britain, Japan, and Russia. The attitude of the Governments interested leads me to hope for a satisfactory settlement of this question as the ultimate outcome of the negotiations. The Second Peace Conference recently held at The Hague adopted a convention for the establishment of an International Prize Court upon the joint proposal of delegations of the United States, France, Germany and Great Britain. The law to be observed by the Tribunal in the decision of prize cases was, however, left in an uncertain and therefore unsatisfactory state. Article 7 of the Convention provided that the Court was to be governed by the provisions of treaties existing between the belligerents, but that "in the absence of such provisions, the court shall apply the rules of international law. If no generally recognized rule exists, the court shall give judgment in accordance with the general principles of justice and equity." As, however, many questions in international maritime law are understood differently and therefore interpreted differently in various countries, it was deemed advisable not to intrust legislative powers to the proposed court, but to determine the rules of law properly applicable in a Conference of the representative maritime nations. Pursuant to an invitation of Great Britain a conference was held at London from December 2, 1908, to February 26, 1909, in which the following Powers participated: the United States, Austria-Hungary, France, Germany, Great Britain, Italy, Japan, the Netherlands, Russia and Spain. The conference resulted in the Declaration of London, unanimously agreed to and signed by the participating Powers, concerning among other matters, the highly important subjects of blockade, contraband, the destruction of neutral prizes, and continuous voyages. The declaration of London is an eminently satisfactory codification of the international maritime law, and it is hoped that its reasonableness and fairness will secure its general adoption, as well as remove one of the difficulties standing in the way of the establishment of an International Prize Court. Under the authority given in the sundry civil appropriation act, approved March 4, 1909, the United States was represented at the International Conference on Maritime Law at Brussels. The Conference met on the 28th of September last and resulted in the signature ad referendum of a convention for the unification of certain regulations with regard to maritime assistance and salvage and a convention for the unification of certain rules with regard to collisions at sea. Two new projects of conventions which have not heretofore been considered in a diplomatic conference, namely, one concerning the limitation of the responsibility of shipowners, and the other concerning marine mortgages and privileges, have been submitted by the Conference to the different governments. The Conference adjourned to meet again on April 11, 1910. The International Conference for the purpose of promoting uniform legislation concerning letters of exchange, which was called by the Government of the Netherlands to meet at The Hague in September, 1909, has been postponed to meet at that capital in June, 1910. The United States will be appropriately represented in this Conference under the provision therefor already made by Congress. The cordial invitation of Belgium to be represented by a fitting display of American progress in the useful arts and inventions at the World's Fair to be held at Brussels in 1910 remains to be acted upon by the Congress. Mindful of the advantages to accrue to our artisans and producers in competition with their Continental rivals, I renew the recommendation heretofore made that provision be made for acceptance of the invitation and adequate representation in the Exposition. The question arising out of the Belgian annexation of the Independent State of the Congo, which has so long and earnestly preoccupied the attention of this Government and enlisted the sympathy of our best citizens, is still open, but in a more hopeful stage. This Government was among the foremost in the great work of uplifting the uncivilized regions of Africa and urging the extension of the benefits of civilization, education, and fruitful open commerce to that vast domain, and is a party to treaty engagements of all the interested powers designed to carry out that great duty to humanity. The way to better the original and adventitious conditions, so burdensome to the natives and so destructive to their development, has been pointed out, by observation and experience, not alone of American representatives, but by cumulative evidence from all quarters and by the investigations of Belgian Agents. The announced programmes of reforms, striking at many of the evils known to exist, are an augury of better things. The attitude of the United States is one of benevolent encouragement, coupled with a hopeful trust that the good work, responsibly undertaken and zealously perfected to the accomplishment of the results so ardently desired, will soon justify the wisdom that inspires them and satisfy the demands of humane sentiment throughout the world. A convention between the United States and Germany, under which the nonworking provisions of the German patent law are made inapplicable to the patents of American citizens, was concluded on February 23, 1909, and is now in force. Negotiations for similar conventions looking to the placing of American inventors on the same footing as nationals have recently been initiated with other European governments whose laws require the local working of foreign patents. Under an appropriation made at the last session of the Congress, a commission was sent on American cruisers to Monrovia to investigate the interests of the United States and its citizens in Liberia. Upon its arrival at Monrovia the commission was enthusiastically received, and during its stay in Liberia was everywhere met with the heartiest expressions of good will for the American Government and people and the hope was repeatedly expressed on all sides that this Government might see its way clear to do something to relieve the critical position of the Republic arising in a measure from external as well as internal and financial embarrassments. The Liberian Government afforded every facility to the Commission for ascertaining the true state of affairs. The Commission also had conferences with representative citizens, interested foreigners and the representatives of foreign governments in Monrovia. Visits were made to various parts of the Republic and to the neighboring British colony of Sierra Leone, where the Commission was received by and conferred with the Governor. It will be remembered that the interest of the United States in the Republic of Liberia springs from the historical fact of the foundation of the Republic by the colonization of American citizens of the African race. In an early treaty with Liberia there is a provision under which the United States may be called upon for advice or assistance. Pursuant to this provision and in the spirit of the moral relationship of the United States to Liberia, that Republic last year asked this Government to lend assistance in the solution of certain of their national problems, and hence the Commission was sent. The report of our commissioners has just been completed and is now under examination by the Department of State. It is hoped that there may result some helpful measures, in which case it may be my duty again to invite your attention to this subject. The Norwegian Government, by a note addressed on January 26, 1909, to the Department of State, conveyed an invitation to the Government of the United States to take part in a conference which it is understood will be held in February or March, 1910, for the purpose of devising means to remedy existing conditions in the Spitzbergen Islands. This invitation was conveyed under the reservation that the question of altering the status of the islands as countries belonging to no particular State, and as equally open to the citizens and subjects of all States, should not be raised. The European Powers invited to this Conference by the Government of Norway were Belgium, Denmark, France, Germany, Great Britain, Russia, Sweden and the Netherlands. The Department of State, in view of proofs filed with it in 1906, showing the American possession, occupation, and working of certain coal-bearing lands in Spitzbergen, accepted the invitation under the reservation above stated, and under the further reservation that all interests in those islands already vested should be protected and that there should be equality of opportunity for the future. It was further pointed out that membership in the Conference on the part of the United States was qualified by the consideration that this Government would not become a signatory to any conventional arrangement concluded by the European members of the Conference which would imply contributory participation by the United States in any obligation or responsibility for the enforcement of any scheme of administration which might be devised by the Conference for the islands. His Majesty Mehmed V, Sultan of Turkey, recently sent to this country a special embassy to announce his accession. The quick transition of the Government of the Ottoman Empire from one of retrograde tendencies to a constitutional government with a Parliament and with progressive modern policies of reform and public improvement is one of the important phenomena of our times. Constitutional government seems also to have made further advance in Persia. These events have turned the eyes of the world upon the Near East. In that quarter the prestige of the United States has spread widely through the peaceful influence of American schools, universities and missionaries. There is every reason why we should obtain a greater share of the commerce of the Near East since the conditions are more favorable now than ever before. One of the happiest events in recent Pan-American diplomacy was the pacific, independent settlement by the Governments of Bolivia and Peru of a boundary difference between them, which for some weeks threatened to because war and even to entrain embitterments affecting other republics less directly concerned. From various quarters, directly or indirectly concerned, the intermediation of the United States was sought to assist in a solution of the controversy. Desiring at all times to abstain from any undue mingling in the affairs of sister republics and having faith in the ability of the Governments of Peru and Bolivia themselves to settle their differences in a manner satisfactory to themselves which, viewed with magnanimity, would assuage all embitterment, this Government steadily abstained from being drawn into the controversy and was much gratified to find its confidence justified by events. On the 9th of July next there will open at Buenos Aires the Fourth Pan-American Conference. This conference will have a special meaning to the hearts of all Americans, because around its date are clustered the anniversaries of the independence of so many of the American republics. It is not necessary for me to remind the Congress of the political, social and commercial importance of these gatherings. You are asked to make liberal appropriation for our participation. If this be granted, it is my purpose to appoint a distinguished and representative delegation, qualified fittingly to represent this country and to deal with the problems of intercontinental interest which will there be discussed. The Argentine Republic will also hold from May to November, 1910, at Buenos Aires, a great International Agricultural Exhibition in which the United States has been invited to participate. Considering the rapid growth of the trade of the United States with the Argentine Republic and the cordial relations existing between the two nations, together with the fact that it provides an opportunity to show deference to a sister republic on the occasion of the celebration of its national independence, the proper Departments of this Government are taking steps to apprise the interests concerned of the opportunity afforded by this Exhibition, in which appropriate participation by this country is so desirable. The designation of an official representative is also receiving consideration. To-day, more than ever before, American capital is seeking investment in foreign countries, and American products are more and more generally seeking foreign markets. As a consequence, in all countries there are American citizens and American interests to be protected, on occasion, by their Government. These movements of men, of capital, and of commodities bring peoples and governments closer together and so form bonds of peace and mutual dependency, as they must also naturally sometimes make passing points of friction. The resultant situation inevitably imposes upon this Government vastly increased responsibilities. This Administration, through the Department of State and the foreign service, is lending all proper support to legitimate and beneficial American enterprises in foreign countries, the degree of such support being measured by the national advantages to be expected. A citizen himself can not by contract or otherwise divest himself of the right, nor can this Government escape the obligation, of his protection in his personal and property rights when these are unjustly infringed in a foreign country. To avoid ceaseless vexations it is proper that in considering whether American enterprise should be encouraged or supported in a particular country, the Government should give full weight not only to the national, as opposed to the individual benefits to accrue, but also to the fact whether or not the Government of the country in question is in its administration and in its diplomacy faithful to the principles of moderation, equity and justice upon which alone depend international credit, in diplomacy as well as in finance. The Pan-American policy of this Government has long been fixed in its principles and remains unchanged. With the changed circumstances of the United States and of the Republics to the south of us, most of which have great natural resources, stable government and progressive ideals, the apprehension which gave rise to the Monroe Doctrine may be said to have nearly disappeared, and neither the doctrine as it exists nor any other doctrine of American policy should be permitted to operate for the perpetuation of irresponsible government, the escape of just obligations, or the insidious allegation of dominating ambitions on the part of the United States. Beside the fundamental doctrines of our Pan-American policy there have grown up a realization of political interests, community of institutions and ideals, and a flourishing commerce. All these bonds will be greatly strengthened as time goes on and increased facilities, such as the great bank soon to be established in Latin America, supply the means for building up the colossal intercontinental commerce of the future. My meeting with President Diaz and the greeting exchanged on both American and Mexican soil served, I hope, to signalize the close and cordial relations which so well bind together this Republic and the great Republic immediately to the south, between which there is so vast a network of material interests. I am happy to say that all but one of the cases which for so long vexed our relations with Venezuela have been settled within the past few months and that, under the enlightened regime now directing the Government of Venezuela, provision has been made for arbitration of the remaining case before The Hague Tribunal. On July 30, 1909, the Government of Panama agreed, after considerable negotiation, to indemnify the relatives of the American officers and sailors who were brutally treated, one of them having, indeed, been killed by the Panaman police this year. The sincere desire of the Government of Panama to do away with a situation where such an accident could occur is manifest in the recent request in compliance with which this Government has lent the services of an officer of the Army to be employed by the Government of Panama as Instructor of Police. The sanitary improvements and public works undertaken in Cuba prior to the present administration of that Government, in the success of which the United States is interested under the treaty, are reported to be making good progress and since the Congress provided for the continuance of the reciprocal commercial arrangement between Cuba and the United States assurance has been received that no negotiations injuriously affecting the situation will be undertaken without consultation. The collection of the customs of the Dominican Republic through the general receiver of customs appointed by the President of the United States in accordance with the convention of February 8, 1907, has proceeded in an uneventful and satisfactory manner. The customs receipts have decreased owing to disturbed political and economic conditions and to a very natural curtailment of imports in view of the anticipated revision of the Dominican tariff schedule. The payments to the fiscal agency fund for the service of the bonded debt of the Republic, as provided by the convention, have been regularly and promptly made, and satisfactory progress has been made in carrying out the provisions of the convention looking towards the completion of the adjustment of the debt and the acquirement by the Dominican Government of certain concessions and monopolies which have been a burden to the commerce of the country. In short, the receivership has demonstrated its ability, even under unfavorable economic and political conditions, to do the work for which it was intended. This Government was obliged to intervene diplomatically to bring about arbitration or settlement of the claim of the Emery Company against Nicaragua, which it had long before been agreed should be arbitrated. A settlement of this troublesome case was reached by the signature of a protocol on September 18, 1909. Many years ago diplomatic intervention became necessary to the protection of the interests in the American claim of Alsop and Company against the Government of Chile. The Government of Chile had frequently admitted obligation in the case and had promised this Government to settle. There had been two abortive attempts to do so through arbitral commissions, which failed through lack of jurisdiction. Now, happily, as the result of the recent diplomatic negotiations, the Governments of the United States and of Chile, actuated by the sincere desire to free from any strain those cordial and friendly relations upon which both set such store, have agreed by a protocol to submit the controversy to definitive settlement by His Britannic Majesty, Edward VII. Since the Washington Conventions of 1907 were communicated to the Government of the United States as a consulting and advising party, this Government has been almost continuously called upon by one or another, and in turn by all the five Central American Republics, to exert itself for the maintenance of the Conventions. Nearly every complaint has been against the Zelaya Government of Nicaragua, which has kept Central America in constant tension or turmoil. The responses made to the representations of Central American Republics, as due from the United States on account of its relation to the Washington Conventions, have been at all times conservative and have avoided, so far as possible, any semblance of interference, although it is very apparent that the considerations of geographic proximity to the Canal Zone and of the very substantial American interests in Central America give to the United States a special position in the zone of these Republics and the Caribbean Sea. I need not rehearse here the patient efforts of this Government to promote peace and welfare among these Republics, efforts which are fully appreciated by the majority of them who are loyal to their true interests. It would be no less unnecessary to rehearse here the sad tale of unspeakable barbarities and oppression alleged to have been committed by the Zelaya Government. Recently two Americans were put to death by order of President Zelaya himself. They were reported to have been regularly commissioned officers in the organized forces of a revolution which had continued many weeks and was in control of about half of the Republic, and as such, according to the modern enlightened practice of civilized nations, they were entitled to be dealt with as prisoners of war. At the date when this message is printed this Government has terminated diplomatic relations with the Zelaya Government, for reasons made public in a communication to the former Nicaraguan charge' d'affaires, and is intending to take such future steps as may be found most consistent with its dignity, its duty to American interests, and its moral obligations to Central America and to civilization. It may later be necessary for me to bring this subject to the attention of the Congress in a special message. The International Bureau of American Republics has carried on an important and increasing work during the last year. In the exercise of its peculiar functions as an international agency, maintained by all the American Republics for the development of Pan-American commerce and friendship, it has accomplished a great practical good which could be done in the same way by no individual department or bureau of one government, and is therefore deserving of your liberal support. The fact that it is about to enter a new building, erected through the munificence of an American philanthropist and the contributions of all the American nations, where both its efficiency of administration and expense of maintenance will naturally be much augmented, further entitles it to special consideration. In the Far East this Government preserves unchanged its policy of supporting the principle of equality of opportunity and scrupulous respect for the integrity of the Chinese Empire, to which policy are pledged the interested Powers of both East and West. By the Treaty of 1903 China has undertaken the abolition of likin with a moderate and proportionate raising of the customs tariff along with currency reform. These reforms being of manifest advantage to foreign commerce as well as to the interests of China, this Government is endeavoring to facilitate these measures and the needful acquiescence of the treaty Powers. When it appeared that Chinese likin revenues were to be hypothecated to foreign bankers in connection with a great railway project, it was obvious that the Governments whose nationals held this loan would have a certain direct interest in the question of the carrying out by China of the reforms in question. Because this railroad loan represented a practical and real application of the open door policy through cooperation with China by interested Powers as well as because of its relations to the reforms referred to above, the Administration deemed American participation to be of great national interest. Happily, when it was as a matter of broad policy urgent that this opportunity should not be lost, the indispensable instrumentality presented itself when a group of American bankers, of international reputation and great resources, agreed at once to share in the loan upon precisely such terms as this Government should approve. The chief of those terms was that American railway material should be upon an exact equality with that of the other nationals joining in the loan in the placing of orders for this whole railroad system. After months of negotiation the equal participation of Americans seems at last assured. It is gratifying that Americans will thus take their share in this extension of these great highways of trade, and to believe that such activities will give a real impetus to our commerce and will prove a practical corollary to our historic policy in the Far East. The Imperial Chinese Government in pursuance of its decision to devote funds from the portion of the indemnity remitted by the United States to the sending of students to this country has already completed arrangements for carrying out this purpose, and a considerable body of students have arrived to take up their work in our schools and universities. No one can doubt the happy effect that the associations formed by these representative young men will have when they return to take up their work in the progressive development of their country. The results of the Opium Conference held at Shanghai last spring at the invitation of the United States have been laid before the Government. The report shows that China is making remarkable progress and admirable efforts toward the eradication of the opium evil and that the Governments concerned have not allowed their commercial interests to interfere with a helpful cooperation in this reform. Collateral investigations of the opium question in this country lead me to recommend that the manufacture, sale and use of opium and its derivatives in the United States should be so far as possible more rigorously controlled by legislation. In one of the Chinese-Japanese Conventions of September 4 of this year there was a provision which caused considerable public apprehension in that upon its face it was believed in some quarters to seek to establish a monopoly of mining privileges along the South Manchurian and Antung-Mukden Railroads, and thus to exclude Americans from a wide field of enterprise, to take part in which they were by treaty with China entitled. After a thorough examination of the Conventions and of the several contextual documents, the Secretary of State reached the conclusion that no such monopoly was intended or accomplished. However, in view of the widespread discussion of this question, to confirm the view it had reached, this Government made inquiry of the Imperial Chinese and Japanese Governments and received from each official assurance that the provision had no purpose inconsistent with the policy of equality of opportunity to which the signatories, in common with the United States, are pledged. Our traditional relations with the Japanese Empire continue cordial as usual. As the representative of Japan, His Imperial Highness Prince Kuni visited the Hudson-Fulton Celebration. The recent visit of a delegation of prominent business men as guests of the chambers of commerce of the Pacific slope, whose representatives had been so agreeably received in Japan, will doubtless contribute to the growing trade across the Pacific, as well as to that mutual understanding which leads to mutual appreciation. The arrangement of 1908 for a cooperative control of the coming of laborers to the United States has proved to work satisfactorily. The matter of a revision of the existing treaty between the United States and Japan which is terminable in 1912 is already receiving the study of both countries. The Department of State is considering the revision in whole or in part, of the existing treaty with Siam, which was concluded in 1856, and is now, in respect to many of its provisions, out of date. I earnestly recommend to the favorable action of the Congress the estimates submitted by the Department of State and most especially the legislation suggested in the Secretary of State's letter of this date whereby it will be possible to develop and make permanent the reorganization of the Department upon modern lines in a manner to make it a thoroughly efficient instrument in the furtherance of our foreign trade and of American interests abroad. The plan to have Divisions of Latin-American and Far Eastern Affairs and to institute a certain specialization in business with Europe and the Near East will at once commend itself. These politico-geographical divisions and the detail from the diplomatic or consular service to the Department of a number of men, who bring to the study of complicated problems in different parts of the world practical knowledge recently gained on the spot, clearly is of the greatest advantage to the Secretary of State in foreseeing conditions likely to arise and in conducting the great variety of correspondence and negotiation. It should be remembered that such facilities exist in the foreign offices of all the leading commercial nations and that to deny them to the Secretary of State would be to place this Government at a great disadvantage in the rivalry of commercial competition. The consular service has been greatly improved under the law of April 5, 1906, and the Executive Order of June 27, 1906, and I commend to your consideration the question of embodying in a statute the principles of the present Executive Order upon which the efficiency of our consular service is wholly dependent. In modern times political and commercial interests are interrelated, and in the negotiation of commercial treaties, conventions and tariff agreements, the keeping open of opportunities and the proper support of American enterprises, our diplomatic service is quite as important as the consular service to the business interests of the country. Impressed with this idea and convinced that selection after rigorous examination, promotion for merit solely and the experience only to be gained through the continuity of an organized service are indispensable to a high degree of efficiency in the diplomatic service, I have signed an Executive Order as the first step toward this very desirable result. Its effect should be to place all secretaries in the diplomatic service in much the same position as consular officers are now placed and to tend to the promotion of the most efficient to the grade of minister, generally leaving for outside appointments such posts of the grade of ambassador or minister as it may be expedient to fill from without the service. It is proposed also to continue the practice instituted last summer of giving to all newly appointed secretaries at least one month's thorough training in the Department of State before they proceed to their posts. This has been done for some time in regard to the consular service with excellent results. Under a provision of the Act of August 5, 1909, I have appointed three officials to assist the officers of the Government in collecting information necessary to a wise administration of the tariff act of August 5, 1909. As to questions of customs administration they are cooperating with the officials of the Treasury Department and as to matters of the needs and the exigencies of our manufacturers and exporters, with the Department of Commerce and Labor, in its relation to the domestic aspect of the subject of foreign commerce. In the study of foreign tariff treatment they will assist the Bureau of Trade Relations of the Department of State. It is hoped thus to coordinate and bring to bear upon this most important subject all the agencies of the Government which can contribute anything to its efficient handling. As a consequence of Section 2 of the tariff act of August 5, 1909, it becomes the duty of the Secretary of State to conduct as diplomatic business all the negotiations necessary to place him in a position to advise me as to whether or not a particular country unduly discriminates against the United States in the sense of the statute referred to. The great scope and complexity of this work, as well as the obligation to lend all proper aid to our expanding commerce, is met by the expansion of the Bureau of Trade Relations as set forth in the estimates for the Department of State. I have thus in some detail described the important transactions of the State Department since the beginning of this Administration for the reason that there is no provision either by statute or custom for a formal report by the Secretary of State to the President or to Congress, and a Presidential message is the only means by which the condition of our foreign relations is brought to the attention of Congress and the public. In dealing with the affairs of the other Departments, the heads of which all submit annual reports, I shall touch only those matters that seem to me to call for special mention on my part without minimizing in any way the recommendations made by them for legislation affecting their respective Departments, in all of which I wish to express my general concurrence. Perhaps the most important question presented to this Administration is that of economy in expenditures and sufficiency of revenue. The deficit of the last fiscal year, and the certain deficit of the current year, prompted Congress to throw a greater responsibility on the Executive and the Secretary of the Treasury than had heretofore been declared by statute. This declaration imposes upon the Secretary of the Treasury the duty of assembling all the estimates of the Executive Departments, bureaus, and offices, of the expenditures necessary in the ensuing fiscal year, and of making an estimate of the revenues of the Government for the same period; and if a probable deficit is thus shown, it is made the duty of the President to recommend the method by which such deficit can be met. The report of the Secretary shows that the ordinary expenditures for the current fiscal year ending June 30, 1910, will exceed the estimated receipts by $34,075,620. If to this deficit is added the sum to be disbursed for the Panama Canal, amounting to $38,000,000, and $1,000,000 to be paid on the public debt, the deficit of ordinary receipts and expenditures will be increased to a total deficit of $73,075,620. This deficit the Secretary proposes to meet by the proceeds of bonds issued to pay the cost of constructing the Panama Canal. I approve this proposal. The policy of paying for the construction of the Panama Canal, not out of current revenue, but by bond issues, was adopted in the Spooner Act of 1902, and there seems to be no good reason for departing from the principle by which a part at least of the burden of the cost of the canal shall fall upon our posterity who are to enjoy it; and there is all the more reason for this view because the actual cost to date of the canal, which is now half done and which will be completed January 1, 1915, shows that the cost of engineering and construction will be $297,766,000, instead of $139,705,200, as originally estimated. In addition to engineering and construction, the other expenses, including sanitation and government, and the amount paid for the properties, the franchise, and the privilege of building the canal, increase the cost by $75,435,000, to a total of $375,201,000. The increase in the cost of engineering and construction is due to a substantial enlargement of the plan of construction by widening the canal 100 feet in the Culebra cut and by increasing the dimensions of the locks, to the underestimate of the quantity of the work to be done under the original plan, and to an underestimate of the cost of labor and materials both of which have greatly enhanced in price since the original estimate was made. In order to avoid a deficit for the ensuing fiscal year, I directed the heads of Departments in the preparation of their estimates to make them as low as possible consistent with imperative governmental necessity. The result has been, as I am advised by the Secretary of the Treasury, that the estimates for the expenses of the Government for the next fiscal year ending June 30, 1911, are less than the appropriations for this current fiscal year by $42,818,000. So far as the Secretary of the Treasury is able to form a judgment as to future income, and compare it with the expenditures for the next fiscal year ending June 30, 1911, and excluding payments on account of the Panama Canal, which will doubtless be taken up by bonds, there will be a surplus of $35,931,000. In the present estimates the needs of the Departments and of the Government have been cut to the quick, so to speak, and any assumption on the part of Congress, so often made in times past, that the estimates have been prepared with the expectation that they may be reduced, will result in seriously hampering proper administration. The Secretary of the Treasury points out what should be carefully noted in respect to this reduction in governmental expenses for the next fiscal year, that the economies are of two kinds--first, there is a saving in the permanent administration of the Departments, bureaus, and offices of the Government; and, second, there is a present reduction in expenses by a postponement of projects and improvements that ultimately will have to be carried out but which are now delayed with the hope that additional revenue in the future will permit their execution without producing a deficit. It has been impossible in the preparation of estimates greatly to reduce the cost of permanent administration. This can not be done without a thorough reorganization of bureaus, offices, and departments. For the purpose of securing information which may enable the executive and the legislative branches to unite in a plan for the permanent reduction of the cost of governmental administration, the Treasury Department has instituted an investigation by one of the most skilled expert accountants in the United States. The result of his work in two or three bureaus, which, if extended to the entire Government, must occupy two or more years, has been to show much room for improvement and opportunity for substantial reductions in the cost and increased efficiency of administration. The object of the investigation is to devise means to increase the average efficiency of each employee. There is great room for improvement toward this end, not only by the reorganization of bureaus and departments and in the avoidance of duplication, but also in the treatment of the individual employee. Under the present system it constantly happens that two employees receive the same salary when the work of one is far more difficult and important and exacting than that of the other. Superior ability is not rewarded or encouraged. As the classification is now entirely by salary, an employee often rises to the highest class while doing the easiest work, for which alone he may be fitted. An investigation ordered by my predecessor resulted in the recommendation that the civil service he reclassified according to the kind of work, so that the work requiring most application and knowledge and ability shall receive most compensation. I believe such a change would be fairer to the whole force and would permanently improve the personnel of the service. More than this, every reform directed toward the improvement in the average efficiency of government employees must depend on the ability of the Executive to eliminate from the government service those who are inefficient from any because, and as the degree of efficiency in all the Departments is much lessened by the retention of old employees who have outlived their energy and usefulness, it is indispensable to any proper system of economy that provision be made so that their separation from the service shall be easy and inevitable. It is impossible to make such provision unless there is adopted a plan of civil pensions. Most of the great industrial organizations, and many of the well-conducted railways of this country, are coming to the conclusion that a system of pensions for old employees, and the substitution therefor of younger and more energetic servants, promotes both economy and efficiency of administration. I am aware that there is a strong feeling in both Houses of Congress, and possibly in the country, against the establishment of civil pensions, and that this has naturally grown out of the heavy burden of military pensions, which it has always been the policy of our Government to assume; but I am strongly convinced that no other practical solution of the difficulties presented by the superannuation of civil servants can be found than that of a system of civil pensions. The business and expenditures of the Government have expanded enormously since the Spanish war, but as the revenues have increased in nearly the same proportion as the expenditures until recently, the attention of the public, and of those responsible for the Government, has not been fastened upon the question of reducing the cost of administration. We can not, in view of the advancing prices of living, hope to save money by a reduction in the standard of salaries paid. Indeed, if any change is made in that regard, an increase rather than a decrease will be necessary; and the only means of economy will be in reducing the number of employees and in obtaining a greater average of efficiency from those retained in the service. Close investigation and study needed to make definite recommendations in this regard will consume at least two years. I note with much satisfaction the organization in the Senate of a Committee on Public Expenditures, charged with the duty of conducting such an investigation, and I tender to that committee all the assistance which the executive branch of the Government can possibly render. I regret to refer to the fact of the discovery of extensive frauds in the collections of the customs revenue at New York City, in which a number of the subordinate employees in the weighing and other departments were directly concerned, and in which the beneficiaries were the American Sugar Refining Company and others. The frauds consisted in the payment of duty on underweights of sugar. The Government has recovered from the American Sugar Refining Company all that it is shown to have been defrauded of. The sum was received in full of the amount due, which might have been recovered by civil suit against the beneficiary of the fraud, but there was an express reservation in the contract of settlement by which the settlement should not interfere with, or prevent the criminal prosecution of everyone who was found to be subject to the same. Criminal prosecutions are now proceeding against a number of the Government officers. The Treasury Department and the Department of Justice are exerting every effort to discover all the wrongdoers, including the officers and employees of the companies who may have been privy to the fraud. It would seem to me that an investigation of the frauds by Congress at present, pending the probing by the Treasury Department and the Department of Justice, as proposed, might by giving immunity and otherwise prove an embarrassment in securing conviction of the guilty parties. Two features of the new tariff act call for special reference. By virtue of the clause known as the "Maximum and Minimum" clause, it is the duty of the Executive to consider the laws and practices of other countries with reference to the importation into those countries of the products and merchandise of the United States, and if the Executive finds such laws and practices not to be unduly discriminatory against the United States, the minimum duties provided in the bill are to go into force. Unless the President makes such a finding, then the maximum duties provided in the bill, that is, an increase of twenty-five per cent. ad valorem over the minimum duties, are to be in force. Fear has been expressed that this power conferred and duty imposed on the Executive is likely to lead to a tariff war. I beg to express the hope and belief that no such result need be anticipated. The discretion granted to the Executive by the terms "unduly discriminatory" is wide. In order that the maximum duty shall be charged against the imports from a country, it is necessary that he shall find on the part of that country not only discriminations in its laws or the practice under them against the trade of the United States, but that the discriminations found shall be undue; that is, without good and fair reason. I conceive that this power was reposed in the President with the hope that the maximum duties might never be applied in any case, but that the power to apply them would enable the President and the State Department through friendly negotiation to secure the elimination from the laws and the practice under them of any foreign country of that which is unduly discriminatory. No one is seeking a tariff war or a condition in which the spirit of retaliation shall be aroused. The new tariff law enables me to appoint a tariff board to assist me in connection with the Department of State in the administration of the minimum and maximum clause of the act and also to assist officers of the Government in the administration of the entire law. An examination of the law and an understanding of the nature of the facts which should be considered in discharging the functions imposed upon the Executive show that I have the power to direct the tariff board to make a comprehensive glossary and encyclopedia of the terms used and articles embraced in the tariff law, and to secure information as to the cost of production of such goods in this country and the cost of their production in foreign countries. I have therefore appointed a tariff board consisting of three members and have directed them to perform all the duties above described. This work will perhaps take two or three years, and I ask from Congress a continuing annual appropriation equal to that already made for its prosecution. I believe that the work of this board will be of prime utility and importance whenever Congress shall deem it wise again to readjust the customs duties. If the facts secured by the tariff board are of such a character as to show generally that the rates of duties imposed by the present tariff law are excessive under the principles of protection as described in the platform of the successful party at the late election, I shall not hesitate to invite the attention of Congress to this fact and to the necessity for action predicated thereon. Nothing, however, halts business and interferes with the course of prosperity so much as the threatened revision of the tariff, and until the facts are at hand, after careful and deliberate investigation, upon which such revision can properly be undertaken, it seems to me unwise to attempt it. The amount of misinformation that creeps into arguments pro and con in respect to tariff rates is such as to require the kind of investigation that I have directed the tariff board to make, an investigation undertaken by it wholly without respect to the effect which the facts may have in calling for a readjustment of the rates of duty. In the interest of immediate economy and because of the prospect of a deficit, I have required a reduction in the estimates of the War Department for the coming fiscal year, which brings the total estimates down to an amount forty-five millions less than the corresponding estimates for last year. This could only be accomplished by cutting off new projects and suspending for the period of one year all progress in military matters. For the same reason I have directed that the Army shall not be recruited up to its present authorized strength. These measures can hardly be more than temporary--to last until our revenues are in better condition and until the whole question of the expediency of adopting a definite military policy can be submitted to Congress, for I am sure that the interests of the military establishment are seriously in need of careful consideration by Congress. The laws regulating the organization of our armed forces in the event of war need to be revised in order that the organization can be modified so as to produce a force which would be more consistently apportioned throughout its numerous branches. To explain the circumstances upon which this opinion is based would necessitate a lengthy discussion, and I postpone it until the first convenient opportunity shall arise to send to Congress a special message upon this subject. The Secretary of War calls attention to a number of needed changes in the Army in all of which I concur, but the point upon which I place most emphasis is the need for an elimination bill providing a method by which the merits of officers shall have some effect upon their advancement and by which the advancement of all may be accelerated by the effective elimination of a definite proportion of the least efficient. There are in every army, and certainly in ours, a number of officers who do not violate their duty in any such way as to give reason for a court-martial or dismissal, but who do not show such aptitude and skill and character for high command as to justify their remaining in the active service to be Promoted. Provision should be made by which they may be retired on a certain proportion of their pay, increasing with their length of service at the time of retirement. There is now a personnel law for the Navy which itself needs amendment and to which I shall make further reference. Such a law is needed quite as much for the Army. The coast defenses of the United States proper are generally all that could be desired, and in some respects they are rather more elaborate than under present conditions are needed to stop an enemy's fleet from entering the harbors defended. There is, however, one place where additional defense is badly needed, and that is at the mouth of Chesapeake Bay, where it is proposed to make an artificial island for a fort which shall prevent an enemy's fleet from entering this most important strategical base of operations on the whole Atlantic and Gulf coasts. I hope that appropriate legislation will be adopted to secure the construction of this defense. The military and naval joint board have unanimously agreed that it would be unwise to make the large expenditures which at one time were contemplated in the establishment of a naval base and station in the Philippine Islands, and have expressed their judgment, in which I fully concur, in favor of making an extensive naval base at Pearl Harbor, near Honolulu, and not in the Philippines. This does not dispense with the necessity for the comparatively small appropriations required to finish the proper coast defenses in the Philippines now under construction on the island of Corregidor and elsewhere or to complete a suitable repair station and coaling supply station at Olongapo, where is the floating dock "Dewey." I hope that this recommendation of the joint board will end the discussion as to the comparative merits of Manila Bay and Olongapo as naval stations, and will lead to prompt measures for the proper equipment and defense of Pearl Harbor. The return of the battle-ship fleet from its voyage around the world, in more efficient condition than when it started, was a noteworthy event of interest alike to our citizens and the naval authorities of the world. Besides the beneficial and far-reaching effect on our personal and diplomatic relations in the countries which the fleet visited, the marked success of the ships in steaming around the world in all weathers on schedule time has increased respect for our Navy and has added to our national prestige. Our enlisted personnel recruited from all sections of the country is young and energetic and representative of the national spirit. It is, moreover, owing to its intelligence, capable of quick training into the modern man-of-warsman. Our officers are earnest and zealous in their profession, but it is a regrettable fact that the higher officers are old for the responsibilities of the modern navy, and the admirals do not arrive at flag rank young enough to obtain adequate training in their duties as flag officers. This need for reform in the Navy has been ably and earnestly presented to Congress by my predecessor, and I also urgently recommend the subject for consideration. Early in the coming session a comprehensive plan for the reorganization of the officers of all corps of the Navy will be presented to Congress, and I hope it will meet with action suited to its urgency. Owing to the necessity for economy in expenditures, I have directed the curtailment of recommendations for naval appropriations so that they are thirty-eight millions less than the corresponding estimates of last year, and the request for new naval construction is limited to two first-class battle ships and one repair vessel. The use of a navy is for military purposes, and there has been found need in the Department of a military branch dealing directly with the military use of the fleet. The Secretary of the Navy has also felt the lack of responsible advisers to aid him in reaching conclusions and deciding important matters between coordinate branches of the Department. To secure these results he has inaugurated a tentative plan involving certain changes in the organization of the Navy Department, including the navy-yards, all of which have been found by the Attorney-General to be in accordance with law. I have approved the execution of the plan proposed because of the greater efficiency and economy it promises. The generosity of Congress has provided in the present Naval Observatory the most magnificent and expensive astronomical establishment in the world. It is being used for certain naval purposes which might easily and adequately be subserved by a small division connected with the Naval Department at only a fraction of the cost of the present Naval Observatory. The official Board of Visitors established by Congress and appointed in 1901 expressed its conclusion that the official head of the observatory should be an eminent astronomer appointed by the President by and with the advice and consent of the Senate, holding his place by a tenure at least as permanent as that of the Superintendent of the Coast Survey or the head of the Geological Survey, and not merely by a detail of two or three years' duration. I fully concur in this judgment, and urge a provision by law for the appointment of such a director. It may not be necessary to take the observatory out of the Navy Department and put it into another department in which opportunity for scientific research afforded by the observatory would seem to be more appropriate, though I believe such a transfer in the long run is the best policy. I am sure, however, I express the desire of the astronomers and those learned in the kindred sciences when I urge upon Congress that the Naval Observatory be now dedicated to science under control of a man of science who can, if need be, render all the service to the Navy Department which this observatory now renders, and still furnish to the world the discoveries in astronomy that a great astronomer using such a plant would be likely to make. The deplorable delays in the administration of civil and criminal law have received the attention of committees of the American Bar Association and of many State Bar Associations, as well as the considered thought of judges and jurists. In my judgment, a change in judicial procedure, with a view to reducing its expense to private litigants in civil cases and facilitating the dispatch of business and final decision in both civil and criminal cases, constitutes the greatest need in our American institutions. I do not doubt for one moment that much of the lawless violence and cruelty exhibited in lynchings is directly due to the uncertainties and injustice growing out of the delays in trials, judgments, and the executions thereof by our courts. Of course these remarks apply quite as well to the administration of justice in State courts as to that in Federal courts, and without making invidious distinction it is perhaps not too much to say that, speaking generally, the defects are less in the Federal courts than in the State courts. But they are very great in the Federal courts. The expedition with which business is disposed of both on the civil and the criminal side of English courts under modern rules of procedure makes the delays in our courts seem archaic and barbarous. The procedure in the Federal courts should furnish an example for the State courts. I presume it is impossible, without an amendment to the Constitution, to unite under one form of action the proceedings at common law and proceedings in equity in the Federal courts, but it is certainly not impossible by a statute to simplify and make short and direct the procedure both at law and in equity in those courts. It is not impossible to cut down still more than it is cut down, the jurisdiction of the Supreme Court so as to confine it almost wholly to statutory and constitutional questions. Under the present statutes the equity and admiralty procedure in the Federal courts is under the control of the Supreme Court, but in the pressure of business to which that court is subjected, it is impossible to hope that a radical and proper reform of the Federal equity procedure can be brought about. I therefore recommend legislation providing for the appointment by the President of a commission with authority to examine the law and equity procedure of the Federal courts of first instance, the law of appeals from those courts to the courts of appeals and to the Supreme Court, and the costs imposed in such procedure upon the private litigants and upon the public treasury and make recommendation with a view to simplifying and expediting the procedure as far as possible and making it as inexpensive as may be to the litigant of little means. The platform of the successful party in the last election contained the following: "The Republican party will uphold at all times the authority and integrity of the courts, State and Federal, and will ever insist that their powers to enforce their process and to protect life, liberty, and property shall be preserved inviolate. We believe, however, that the rules of procedure in the Federal courts with respect to the issuance of the writ of injunction should be more accurately defined by statute, and that no injunction or temporary restraining order should be issued without notice, except where irreparable injury would result from delay, in which case a speedy hearing thereafter should be granted." I recommend that in compliance with the promise thus made, appropriate legislation be adopted. The ends of justice will best be met and the chief because of complaint against ill-considered injunctions without notice will be removed by the enactment of a statute forbidding hereafter the issuing of any injunction or restraining order, whether temporary or permanent, by any Federal court, without previous notice and a reasonable opportunity to he heard on behalf of the parties to be enjoined; unless it shall appear to the satisfaction of the court that the delay necessary to give such notice and hearing would result in irreparable injury to the complainant and unless also the court shall from the evidence make a written finding, which shall be spread upon the court minutes, that immediate and irreparable injury is likely to ensue to the complainant, and shall define the injury, state why it is irreparable, and shall also endorse on the order issued the date and the hour of the issuance of the order. Moreover, every such injunction or restraining order issued without previous notice and opportunity by the defendant to be heard should by force of the statute expire and be of no effect after seven days from the issuance thereof or within any time less than that period which the court may fix, unless within such seven days or such less period, the injunction or order is extended or renewed after previous notice and opportunity to be heard. My judgment is that the passage of such an act which really embodies the best practice in equity and is very like the rule now in force in some courts will prevent the issuing of ill-advised orders of injunction without notice and will render such orders when issued much less objectionable by the short time in which they may remain effective. The jurisdiction of the General Government over interstate commerce has led to the passage of the so-called "Sherman Anti-trust Law" and the "Interstate Commerce Law" and its amendments. The developments in the operation of those laws, as shown by indictments, trials, judicial decisions, and other sources of information, call for a discussion and some suggestions as to amendments. These I prefer to embody in a special message instead of including them in the present communication, and I shall avail myself of the first convenient opportunity to bring these subjects to the attention of Congress. My predecessor transmitted to the Congress a special message on January 11, 1909, accompanying the report of Commissioners theretofore appointed to investigate the jail, workhouse, etc., in the District of Columbia, in which he directed attention to the report as setting forth vividly, "the really outrageous conditions in the workhouse and jail." The Congress has taken action in pursuance of the recommendations of that report and of the President, to the extent of appropriating funds and enacting the necessary legislation for the establishment of a workhouse and reformatory. No action, however, has been taken by the Congress with respect to the jail, the conditions of which are still antiquated and insanitary. I earnestly recommend the passage of a sufficient appropriation to enable a thorough remodeling of that institution to be made without delay. It is a reproach to the National Government that almost under the shadow of the Capitol Dome prisoners should be confined in a building destitute of the ordinary decent appliances requisite to cleanliness and sanitary conditions. The deficit every year in the Post-Office Department is largely caused by the low rate of postage of 1 cent a pound charged on second-class mail matter, which includes not only newspapers, but magazines and miscellaneous periodicals. The actual loss growing out of the transmission of this second-class mail matter at 1 cent a pound amounts to about $63,000,000 a year. The average cost of the transportation of this matter is more than 9 cents a pound. It appears that the average distance over which newspapers are delivered to their customers is 291 miles, while the average haul of magazines is 1,049, and of miscellaneous periodicals 1,128 miles. Thus, the average haul of the magazine is three and one-half times and that of the miscellaneous periodical nearly four times the haul of the daily newspaper, yet all of them pay the same postage rate of 1 cent a pound. The statistics of 1907 show that second-class mail matter constituted 63.91 per cent. of the weight of all the mail, and yielded only 5.19 per cent. of the revenue. The figures given are startling, and show the payment by the Government of an enormous subsidy to the newspapers, magazines, and periodicals, and Congress may well consider whether radical steps should not be taken to reduce the deficit in the Post-Office Department caused by this discrepancy between the actual cost of transportation and the compensation exacted therefor. A great saving might be made, amounting to much more than half of the loss, by imposing upon magazines and periodicals a higher rate of postage. They are much heavier than newspapers, and contain a much higher proportion of advertising to reading matter, and the average distance of their transportation is three and a half times as great. The total deficit for the last fiscal year in the Post-Office Department amounted to $17,500,000. The branches of its business which it did at a loss were the second-class mail service, in which the loss, as already said, was $63,000,000, and the free rural delivery, in which the loss was $28,000,000. These losses were in part offset by the profits of the letter postage and other sources of income. It would seem wise to reduce the loss upon second-class mail matter, at least to the extent of preventing a deficit in the total operations of the Post-Office. I commend the whole subject to Congress, not unmindful of the spread of intelligence which a low charge for carrying newspapers and periodicals assists. I very much doubt, however, the wisdom of a policy which constitutes so large a subsidy and requires additional taxation to meet it. The second subject worthy of mention in the Post-Office Department is the real necessity and entire practicability of establishing postal savings banks. The successful party at the last election declared in favor of postal savings banks, and although the proposition finds opponents in many parts of the country, I am convinced that the people desire such banks, and am sure that when the banks are furnished they will be productive of the utmost good. The postal savings banks are not constituted for the purpose of creating competition with other banks. The rate of interest upon deposits to which they would be limited would be so small as to prevent their drawing deposits away from other banks. I believe them to be necessary in order to offer a proper inducement to thrift and saving to a great many people of small means who do not now have banking facilities, and to whom such a system would offer an opportunity for the accumulation of capital. They will furnish a satisfactory substitute, based on sound principle and actual successful trial in nearly all the countries of the world, for the system of government guaranty of deposits now being adopted in several western States, which with deference to those who advocate it seems to me to have in it the seeds of demoralization to conservative banking and certain financial disaster. The question of how the money deposited in postal savings banks shall be invested is not free from difficulty, but I believe that a satisfactory provision for this purpose was inserted as an amendment to the bill considered by the Senate at its last session. It has been proposed to delay the consideration of legislation establishing a postal savings bank until after the report of the Monetary Commission. This report is likely to be delayed, and properly so, because of the necessity for careful deliberation and close investigation. I do not see why the one should be tied up with the other. It is understood that the Monetary Commission have looked into the systems of banking which now prevail abroad, and have found that by a control there exercised in respect to reserves and the rates of exchange by some central authority panics are avoided. It is not apparent that a system of postal savings banks would in any way interfere with a change to such a system here. Certainly in most of the countries of Europe where control is thus exercised by a central authority, postal savings banks exist and are not thought to be inconsistent with a proper financial and banking system. Following the course of my distinguished predecessor, I earnestly recommend to Congress the consideration and passage of a ship subsidy bill, looking to the establishment of lines between our Atlantic seaboard and the eastern coast of South America, as well as lines from the west coast of the United States to South America. China, Japan, and the Philippines. The profits on foreign mails are perhaps a sufficient measure of the expenditures which might first be tentatively applied to this method of inducing American capital to undertake the establishment of American lines of steamships in those directions in which we now feel it most important that we should have means of transportation controlled in the interest of the expansion of our trade. A bill of this character has once passed the House and more than once passed the Senate, and I hope that at this session a bill framed on the same lines and with the same purposes may become a law. The successful party in the last election in its national platform declared in favor of the admission as separate States of New Mexico and Arizona, and I recommend that legislation appropriate to this end be adopted. I urge, however, that care be exercised in the preparation of the legislation affecting each Territory to secure deliberation in the selection of persons as members of the convention to draft a constitution for the incoming State, and I earnestly advise that such constitution after adoption by the convention shall be submitted to the people of the Territory for their approval at an election in which the sole issue shall be the merits of the proposed constitution, and if the constitution is defeated by popular vote means shall be provided in the enabling act for a new convention and the drafting of a new constitution. I think it vital that the issue as to the merits of the constitution should not be mixed up with the selection of State officers, and that no election of State officers should be had until after the constitution has been fully approved and finally settled upon. . With respect to the Territory of Alaska, I recommend legislation which shall provide for the appointment by the President of a governor and also of an executive council, the members of which shall during their term of office reside in the Territory, and which shall have legislative powers sufficient to enable it to give to the Territory local laws adapted to its present growth. I strongly deprecate legislation looking to the election of a Territorial legislature in that vast district. The lack of permanence of residence of a large part of the present population and the small number of the people who either permanently or temporarily reside in the district as compared with its vast expanse and the variety of the interests that have to be subserved, make it altogether unfitting in my judgment to provide for a popular election of a legislative body. The present system is not adequate and does not furnish the character of local control that ought to be there. The only compromise it seems to me which may give needed local legislation and secure a conservative government is the one I propose. In several Departments there is presented the necessity for legislation looking to the further conservation of our national resources, and the subject is one of such importance as to require a more detailed and extended discussion than can be entered upon in this communication. For that reason I shall take an early opportunity to send a special message to Congress on the subject of the improvement of our waterways, upon the reclamation and irrigation of arid, semiarid, and swamp lands; upon the preservation of our forests and the reforesting of suitable areas; upon the reclassification of the public domain with a view of separating from agricultural settlement mineral, coal, and phosphate lands and sites belonging to the Government bordering on streams suitable for the utilization of water power. I commend to your careful consideration the report of the Secretary of Agriculture as showing the immense sphere of usefulness which that Department now fills and the wonderful addition to the wealth of the nation made by the farmers of this country in the crops of the current year. The Light-House Board now discharges its duties under the Department of Commerce and Labor. For upwards of forty years this Board has been constituted of military and naval officers and two or three men of science, with such an absence of a duly constituted executive head that it is marvelous what work has been accomplished. In the period of construction the energy and enthusiasm of all the members prevented the inherent defects of the system from interfering greatly with the beneficial work of the Board, but now that the work is chiefly confined to maintenance and repair, for which purpose the country is divided into sixteen districts, to which are assigned an engineer officer of the Army and an inspector of the Navy, each with a light-house tender and the needed plant for his work, it has become apparent by the frequent friction that arises, due to the absence of any central independent authority, that there must be a complete reorganization of the Board. I concede the advantage of keeping in the system the rigidity of discipline that the presence of naval and military officers in charge insures, but unless the presence of such officers in the Board can be made consistent with a responsible executive head that shall have proper authority, I recommend the transfer of control over the light-houses to a suitable civilian bureau. This is in accordance with the judgment of competent persons who are familiar with the workings of the present system. I am confident that a reorganization can be effected which shall avoid the recurrence of friction between members, instances of which have been officially brought to my attention, and that by such reorganization greater efficiency and a substantial reduction in the expense of operation can be brought about. I request Congressional authority to enable the Secretary of Commerce and Labor to unite the Bureaus of Manufactures and Statistics. This was recommended by a competent committee appointed in the previous administration for the purpose of suggesting changes in the interest of economy and efficiency, and is requested by the Secretary. I greatly regret to have to say that the investigations made in the Bureau of Immigration and other sources of information lead to the view that there is urgent necessity for additional legislation and greater executive activity to suppress the recruiting of the ranks of prostitutes from the streams of immigration into this country--an evil which, for want of a better name, has been called "The White Slave Trade." I believe it to be constitutional to forbid, under penalty, the transportation of persons for purposes of prostitution across national and state lines; and by appropriating a fund of $50,000 to be used by the Secretary of Commerce and Labor for the employment of special inspectors it will be possible to bring those responsible for this trade to indictment and conviction under a federal law. For a very considerable period a movement has been gathering strength, especially among the members of the medical profession, in favor of a concentration of the instruments of the National Government which have to do with the promotion of public health. In the nature of things, the Medical Department of the Army and the Medical Department of the Navy must be kept separate. But there seems to be no reason why all the other bureaus and offices in the General Government which have to do with the public health or subjects akin thereto should not be united in a bureau to be called the "Bureau of Public Health." This would necessitate the transfer of the Marine-Hospital Service to such a bureau. I am aware that there is wide field in respect to the public health committed to the States in which the Federal Government can not exercise jurisdiction, but we have seen in the Agricultural Department the expansion into widest usefulness of a department giving attention to agriculture when that subject is plainly one over which the States properly exercise direct jurisdiction. The opportunities offered for useful research and the spread of useful information in regard to the cultivation of the soil and the breeding of stock and the solution of many of the intricate problems in progressive agriculture have demonstrated the wisdom of establishing that department. Similar reasons, of equal force, can be given for the establishment of a bureau of health that shall not only exercise the police jurisdiction of the Federal Government respecting quarantine, but which shall also afford an opportunity for investigation and research by competent experts into questions of health affecting the whole country, or important sections thereof, questions which, in the absence of Federal governmental work, are not likely to be promptly solved. The work of the United States Civil Service Commission has been performed to the general satisfaction of the executive officers with whom the Commission has been brought into official communication. The volume of that work and its variety and extent have under new laws, such as the Census Act, and new Executive orders, greatly increased. The activities of the Commission required by the statutes have reached to every portion of the public domain. The accommodations of the Commission are most inadequate for its needs. I call your attention to its request for increase in those accommodations as will appear from the annual report for this year. I urgently recommend to Congress that a law be passed requiring that candidates in elections of Members of the House of Representatives, and committees in charge of their candidacy and campaign, file in a proper office of the United States Government a statement of the contributions received and of the expenditures incurred in the campaign for such elections and that similar legislation be enacted in respect to all other elections which are constitutionally within the control of Congress Recommendations have been made by my predecessors that Congress appropriate a sufficient sum to pay the balance--about 38 per cent.--of the amounts due depositors in the Freedman's Savings and Trust Company. I renew this recommendation, and advise also that a proper limitation be prescribed fixing a period within which the claims may be presented, that assigned claims be not recognized, and that a limit be imposed on the amount of fees collectible for services in presenting such claims. The year 1913 will mark the fiftieth anniversary of the issuance of the Emancipation Proclamation granting freedom to the negroes. It seems fitting that this event should be properly celebrated. Already a movement has been started by prominent Negroes, encouraged by prominent white people and the press. The South especially is manifesting its interest in this movement. It is suggested that a proper form of celebration would be an exposition to show the progress the Negroes have made, not only during their period of freedom, but also from the time of their coming to this country. I heartily indorse this proposal, and request that the Executive be authorized to appoint a preliminary commission of not more than seven persons to consider carefully whether or not it is wise to hold such an exposition, and if so, to outline a plan for the enterprise. I further recommend that such preliminary commission serve without salary, except as to their actual expenses, and that an appropriation be made to meet such expenses. . I have thus, in a message compressed as much as the subjects will permit, referred to many of the legislative needs of the country, with the exceptions already noted. Speaking generally, the country is in a high state of prosperity. There is every reason to believe that we are on the eve of a substantial business expansion, and we have just garnered a harvest unexampled in the market value of our agricultural products. The high prices which such products bring mean great prosperity for the farming community, but on the other hand they mean a very considerably increased burden upon those classes in the community whose yearly compensation does not expand with the improvement in business and the general prosperity. Various reasons are given for the high prices. The proportionate increase in the output of gold, which to-day is the chief medium of exchange and is in some respects a measure of value, furnishes a substantial explanation of at least a part of the increase in prices. The increase in population and the more expensive mode of living of the people, which have not been accompanied by a proportionate increase in acreage production, may furnish a further reason. It is well to note that the increase in the cost of living is not confined to this country, but prevails the world over, and that those who would charge increases in prices to the existing protective tariff must meet the fact that the rise in prices has taken place almost wholly in those products of the factory and farm in respect to which there has been either no increase in the tariff or in many instances a very considerable reduction.
the relations of the united states with all foreign governments have continued upon the normal basis of amity and good understanding and are very generally satisfactory pursuant to the provisions of the general treaty of arbitration concluded between the united states and great britain april 4 1908 a special agreement was entered into between the two countries on january 27 1909 for the submission of questions relating to the fisheries on the north atlantic coast to a tribunal to be formed from members of the permanent court of arbitration at the hague in accordance with the provisions of the special agreement the printed case of each government was on october 4 last submitted to the other and to the arbitral tribunal at the hague and the counter case of the united states is now in course of preparation the american rights under the fisheries article of the treaty of 1818 have been a because of difference between the united states and great britain for nearly seventy years the interests involved are of great importance to the american fishing industry and the final settlement of the controversy will remove a source of constant irritation and complaint this is the first case involving such great international questions which has been submitted to the permanent court of arbitration at the hague the treaty between the united states and great britain concerning the canadian international boundary concluded april 11 1908 authorizes the appointment of two commissioners to define and mark accurately the international boundary line between the united states and the dominion of canada in the waters of the passamaquoddy bay and provides for the exchange of briefs within the period of six months the briefs were duly presented within the prescribed period but as the commissioners failed to agree within six months after the exchange of the printed statements as required by the treaty it has now become necessary to resort to the arbitration provided for in the article the international fisheries commission appointed pursuant to and under the authority of the convention of april 11 1908 between the united states and great britain has completed a system of uniform and common international regulations for the protection and preservation of the food fishes in international boundary waters of the united states and canada the regulations will be duly submitted to congress with a view to the enactment of such legislation as will be necessary under the convention to put them into operation the convention providing for the settlement of international differences between the united states and canada including the apportionment between the two countries of certain of the boundary waters and the appointment of commissioners to adjust certain other questions signed on the 11th day of january 1909 and to the ratification of which the senate gave its advice and consent on march 3 1909 has not yet been ratified on the part of great britain commissioners have been appointed on the part of the united states to act jointly with commissioners on the part of canada in examining into the question of obstructions in the john river between maine and new brunswick and to make recommendations for the regulation of the uses thereof and are now engaged in this work negotiations for an international conference to consider and reach an arrangement providing for the preservation and protection of the fur seals in the north pacific are in progress with the governments of great britain japan and russia the attitude of the governments interested leads me to hope for a satisfactory settlement of this question as the ultimate outcome of the negotiations the second peace conference recently held at the hague adopted a convention for the establishment of an international prize court upon the joint proposal of delegations of the united states france germany and great britain the law to be observed by the tribunal in the decision of prize cases was however left in an uncertain and therefore unsatisfactory state article 7 of the convention provided that the court was to be governed by the provisions of treaties existing between the belligerents but that in the absence of such provisions the court shall apply the rules of international law if no generally recognized rule exists the court shall give judgment in accordance with the general principles of justice and equity as however many questions in international maritime law are understood differently and therefore interpreted differently in various countries it was deemed advisable not to intrust legislative powers to the proposed court but to determine the rules of law properly applicable in a conference of the representative maritime nations pursuant to an invitation of great britain a conference was held at london from december 2 1908 to february 26 1909 in which the following powers participated the united states france germany great britain italy japan the netherlands russia and spain the conference resulted in the declaration of london unanimously agreed to and signed by the participating powers concerning among other matters the highly important subjects of blockade contraband the destruction of neutral prizes and continuous voyages the declaration of london is an eminently satisfactory codification of the international maritime law and it is hoped that its reasonableness and fairness will secure its general adoption as well as remove one of the difficulties standing in the way of the establishment of an international prize court under the authority given in the sundry civil appropriation act approved march 4 1909 the united states was represented at the international conference on maritime law at brussels the conference met on the 28th of september last and resulted in the signature ad referendum of a convention for the unification of certain regulations with regard to maritime assistance and salvage and a convention for the unification of certain rules with regard to collisions at sea two new projects of conventions which have not heretofore been considered in a diplomatic conference namely one concerning the limitation of the responsibility of shipowners and the other concerning marine mortgages and privileges have been submitted by the conference to the different governments the conference adjourned to meet again on april 11 1910 the international conference for the purpose of promoting uniform legislation concerning letters of exchange which was called by the government of the netherlands to meet at the hague in september 1909 has been postponed to meet at that capital in june 1910 the united states will be appropriately represented in this conference under the provision therefor already made by congress the cordial invitation of belgium to be represented by a fitting display of american progress in the useful arts and inventions at the world fair to be held at brussels in 1910 remains to be acted upon by the congress mindful of the advantages to accrue to our artisans and producers in competition with their continental rivals i renew the recommendation heretofore made that provision be made for acceptance of the invitation and adequate representation in the exposition the question arising out of the belgian annexation of the independent state of the congo which has so long and earnestly preoccupied the attention of this government and enlisted the sympathy of our best citizens is still open but in a more hopeful stage this government was among the foremost in the great work of uplifting the uncivilized regions of africa and urging the extension of the benefits of civilization education and fruitful open commerce to that vast domain and is a party to treaty engagements of all the interested powers designed to carry out that great duty to humanity the way to better the original and adventitious conditions so burdensome to the natives and so destructive to their development has been pointed out by observation and experience not alone of american representatives but by cumulative evidence from all quarters and by the investigations of belgian agents the announced programmes of reforms striking at many of the evils known to exist are an augury of better things the attitude of the united states is one of benevolent encouragement coupled with a hopeful trust that the good work responsibly undertaken and zealously perfected to the accomplishment of the results so ardently desired will soon justify the wisdom that inspires them and satisfy the demands of humane sentiment throughout the world a convention between the united states and germany under which the nonworking provisions of the german patent law are made inapplicable to the patents of american citizens was concluded on february 23 1909 and is now in force negotiations for similar conventions looking to the placing of american inventors on the same footing as nationals have recently been initiated with other european governments whose laws require the local working of foreign patents under an appropriation made at the last session of the congress a commission was sent on american cruisers to monrovia to investigate the interests of the united states and its citizens in liberia upon its arrival at monrovia the commission was enthusiastically received and during its stay in liberia was everywhere met with the heartiest expressions of good will for the american government and people and the hope was repeatedly expressed on all sides that this government might see its way clear to do something to relieve the critical position of the republic arising in a measure from external as well as internal and financial embarrassments the liberian government afforded every facility to the commission for ascertaining the true state of affairs the commission also had conferences with representative citizens interested foreigners and the representatives of foreign governments in monrovia visits were made to various parts of the republic and to the neighboring british colony of sierra leone where the commission was received by and conferred with the governor it will be remembered that the interest of the united states in the republic of liberia springs from the historical fact of the foundation of the republic by the colonization of american citizens of the african race in an early treaty with liberia there is a provision under which the united states may be called upon for advice or assistance pursuant to this provision and in the spirit of the moral relationship of the united states to liberia that republic last year asked this government to lend assistance in the solution of certain of their national problems and hence the commission was sent the report of our commissioners has just been completed and is now under examination by the department of state it is hoped that there may result some helpful measures in which case it may be my duty again to invite your attention to this subject the norwegian government by a note addressed on january 26 1909 to the department of state conveyed an invitation to the government of the united states to take part in a conference which it is understood will be held in february or march 1910 for the purpose of devising means to remedy existing conditions in the spitzbergen islands this invitation was conveyed under the reservation that the question of altering the status of the islands as countries belonging to no particular state and as equally open to the citizens and subjects of all states should not be raised the european powers invited to this conference by the government of norway were belgium denmark france germany great britain russia sweden and the netherlands the department of state in view of proofs filed with it in 1906 showing the american possession occupation and working of certain lands in spitzbergen accepted the invitation under the reservation above stated and under the further reservation that all interests in those islands already vested should be protected and that there should be equality of opportunity for the future it was further pointed out that membership in the conference on the part of the united states was qualified by the consideration that this government would not become a signatory to any conventional arrangement concluded by the european members of the conference which would imply contributory participation by the united states in any obligation or responsibility for the enforcement of any scheme of administration which might be devised by the conference for the islands his majesty mehmed v sultan of turkey recently sent to this country a special embassy to announce his accession the quick transition of the government of the ottoman empire from one of retrograde tendencies to a constitutional government with a parliament and with progressive modern policies of reform and public improvement is one of the important phenomena of our times constitutional government seems also to have made further advance in persia these events have turned the eyes of the world upon the near east in that quarter the prestige of the united states has spread widely through the peaceful influence of american schools universities and missionaries there is every reason why we should obtain a greater share of the commerce of the near east since the conditions are more favorable now than ever before one of the happiest events in recent diplomacy was the pacific independent settlement by the governments of bolivia and peru of a boundary difference between them which for some weeks threatened to because war and even to entrain embitterments affecting other republics less directly concerned from various quarters directly or indirectly concerned the intermediation of the united states was sought to assist in a solution of the controversy desiring at all times to abstain from any undue mingling in the affairs of sister republics and having faith in the ability of the governments of peru and bolivia themselves to settle their differences in a manner satisfactory to themselves which viewed with magnanimity would assuage all embitterment this government steadily abstained from being drawn into the controversy and was much gratified to find its confidence justified by events on the 9th of july next there will open at buenos aires the fourth conference this conference will have a special meaning to the hearts of all americans because around its date are clustered the anniversaries of the independence of so many of the american republics it is not necessary for me to remind the congress of the political social and commercial importance of these gatherings you are asked to make liberal appropriation for our participation if this be granted it is my purpose to appoint a distinguished and representative delegation qualified fittingly to represent this country and to deal with the problems of intercontinental interest which will there be discussed the argentine republic will also hold from may to november 1910 at buenos aires a great international agricultural exhibition in which the united states has been invited to participate considering the rapid growth of the trade of the united states with the argentine republic and the cordial relations existing between the two nations together with the fact that it provides an opportunity to show deference to a sister republic on the occasion of the celebration of its national independence the proper departments of this government are taking steps to apprise the interests concerned of the opportunity afforded by this exhibition in which appropriate participation by this country is so desirable the designation of an official representative is also receiving consideration more than ever before american capital is seeking investment in foreign countries and american products are more and more generally seeking foreign markets as a consequence in all countries there are american citizens and american interests to be protected on occasion by their government these movements of men of capital and of commodities bring peoples and governments closer together and so form bonds of peace and mutual dependency as they must also naturally sometimes make passing points of friction the resultant situation inevitably imposes upon this government vastly increased responsibilities this administration through the department of state and the foreign service is lending all proper support to legitimate and beneficial american enterprises in foreign countries the degree of such support being measured by the national advantages to be expected a citizen himself can not by contract or otherwise divest himself of the right nor can this government escape the obligation of his protection in his personal and property rights when these are unjustly infringed in a foreign country to avoid ceaseless vexations it is proper that in considering whether american enterprise should be encouraged or supported in a particular country the government should give full weight not only to the national as opposed to the individual benefits to accrue but also to the fact whether or not the government of the country in question is in its administration and in its diplomacy faithful to the principles of moderation equity and justice upon which alone depend international credit in diplomacy as well as in finance the policy of this government has long been fixed in its principles and remains unchanged with the changed circumstances of the united states and of the republics to the south of us most of which have great natural resources stable government and progressive ideals the apprehension which gave rise to the monroe doctrine may be said to have nearly disappeared and neither the doctrine as it exists nor any other doctrine of american policy should be permitted to operate for the perpetuation of irresponsible government the escape of just obligations or the insidious allegation of dominating ambitions on the part of the united states beside the fundamental doctrines of our policy there have grown up a realization of political interests community of institutions and ideals and a flourishing commerce all these bonds will be greatly strengthened as time goes on and increased facilities such as the great bank soon to be established in latin america supply the means for building up the colossal intercontinental commerce of the future my meeting with president diaz and the greeting exchanged on both american and mexican soil served i hope to signalize the close and cordial relations which so well bind together this republic and the great republic immediately to the south between which there is so vast a network of material interests i am happy to say that all but one of the cases which for so long vexed our relations with venezuela have been settled within the past few months and that under the enlightened regime now directing the government of venezuela provision has been made for arbitration of the remaining case before the hague tribunal on july 30 1909 the government of panama agreed after considerable negotiation to indemnify the relatives of the american officers and sailors who were brutally treated one of them having indeed been killed by the panaman police this year the sincere desire of the government of panama to do away with a situation where such an accident could occur is manifest in the recent request in compliance with which this government has lent the services of an officer of the army to be employed by the government of panama as instructor of police the sanitary improvements and public works undertaken in cuba prior to the present administration of that government in the success of which the united states is interested under the treaty are reported to be making good progress and since the congress provided for the continuance of the reciprocal commercial arrangement between cuba and the united states assurance has been received that no negotiations injuriously affecting the situation will be undertaken without consultation the collection of the customs of the dominican republic through the general receiver of customs appointed by the president of the united states in accordance with the convention of february 8 1907 has proceeded in an uneventful and satisfactory manner the customs receipts have decreased owing to disturbed political and economic conditions and to a very natural curtailment of imports in view of the anticipated revision of the dominican tariff schedule the payments to the fiscal agency fund for the service of the bonded debt of the republic as provided by the convention have been regularly and promptly made and satisfactory progress has been made in carrying out the provisions of the convention looking towards the completion of the adjustment of the debt and the acquirement by the dominican government of certain concessions and monopolies which have been a burden to the commerce of the country in short the receivership has demonstrated its ability even under unfavorable economic and political conditions to do the work for which it was intended this government was obliged to intervene diplomatically to bring about arbitration or settlement of the claim of the emery company against nicaragua which it had long before been agreed should be arbitrated a settlement of this troublesome case was reached by the signature of a protocol on september 18 1909 many years ago diplomatic intervention became necessary to the protection of the interests in the american claim of alsop and company against the government of chile the government of chile had frequently admitted obligation in the case and had promised this government to settle there had been two abortive attempts to do so through arbitral commissions which failed through lack of jurisdiction now happily as the result of the recent diplomatic negotiations the governments of the united states and of chile actuated by the sincere desire to free from any strain those cordial and friendly relations upon which both set such store have agreed by a protocol to submit the controversy to definitive settlement by his britannic majesty edward vii since the washington conventions of 1907 were communicated to the government of the united states as a consulting and advising party this government has been almost continuously called upon by one or another and in turn by all the five central american republics to exert itself for the maintenance of the conventions nearly every complaint has been against the zelaya government of nicaragua which has kept central america in constant tension or turmoil the responses made to the representations of central american republics as due from the united states on account of its relation to the washington conventions have been at all times conservative and have avoided so far as possible any semblance of interference although it is very apparent that the considerations of geographic proximity to the canal zone and of the very substantial american interests in central america give to the united states a special position in the zone of these republics and the caribbean sea i need not rehearse here the patient efforts of this government to promote peace and welfare among these republics efforts which are fully appreciated by the majority of them who are loyal to their true interests it would be no less unnecessary to rehearse here the sad tale of unspeakable barbarities and oppression alleged to have been committed by the zelaya government recently two americans were put to death by order of president zelaya himself they were reported to have been regularly commissioned officers in the organized forces of a revolution which had continued many weeks and was in control of about half of the republic and as such according to the modern enlightened practice of civilized nations they were entitled to be dealt with as prisoners of war at the date when this message is printed this government has terminated diplomatic relations with the zelaya government for reasons made public in a communication to the former nicaraguan charge and is intending to take such future steps as may be found most consistent with its dignity its duty to american interests and its moral obligations to central america and to civilization it may later be necessary for me to bring this subject to the attention of the congress in a special message the international bureau of american republics has carried on an important and increasing work during the last year in the exercise of its peculiar functions as an international agency maintained by all the american republics for the development of commerce and friendship it has accomplished a great practical good which could be done in the same way by no individual department or bureau of one government and is therefore deserving of your liberal support the fact that it is about to enter a new building erected through the munificence of an american philanthropist and the contributions of all the american nations where both its efficiency of administration and expense of maintenance will naturally be much augmented further entitles it to special consideration in the far east this government preserves unchanged its policy of supporting the principle of equality of opportunity and scrupulous respect for the integrity of the chinese empire to which policy are pledged the interested powers of both east and west by the treaty of 1903 china has undertaken the abolition of likin with a moderate and proportionate raising of the customs tariff along with currency reform these reforms being of manifest advantage to foreign commerce as well as to the interests of china this government is endeavoring to facilitate these measures and the needful acquiescence of the treaty powers when it appeared that chinese likin revenues were to be hypothecated to foreign bankers in connection with a great railway project it was obvious that the governments whose nationals held this loan would have a certain direct interest in the question of the carrying out by china of the reforms in question because this railroad loan represented a practical and real application of the open door policy through cooperation with china by interested powers as well as because of its relations to the reforms referred to above the administration deemed american participation to be of great national interest happily when it was as a matter of broad policy urgent that this opportunity should not be lost the indispensable instrumentality presented itself when a group of american bankers of international reputation and great resources agreed at once to share in the loan upon precisely such terms as this government should approve the chief of those terms was that american railway material should be upon an exact equality with that of the other nationals joining in the loan in the placing of orders for this whole railroad system after months of negotiation the equal participation of americans seems at last assured it is gratifying that americans will thus take their share in this extension of these great highways of trade and to believe that such activities will give a real impetus to our commerce and will prove a practical corollary to our historic policy in the far east the imperial chinese government in pursuance of its decision to devote funds from the portion of the indemnity remitted by the united states to the sending of students to this country has already completed arrangements for carrying out this purpose and a considerable body of students have arrived to take up their work in our schools and universities no one can doubt the happy effect that the associations formed by these representative young men will have when they return to take up their work in the progressive development of their country the results of the opium conference held at shanghai last spring at the invitation of the united states have been laid before the government the report shows that china is making remarkable progress and admirable efforts toward the eradication of the opium evil and that the governments concerned have not allowed their commercial interests to interfere with a helpful cooperation in this reform collateral investigations of the opium question in this country lead me to recommend that the manufacture sale and use of opium and its derivatives in the united states should be so far as possible more rigorously controlled by legislation in one of the conventions of september 4 of this year there was a provision which caused considerable public apprehension in that upon its face it was believed in some quarters to seek to establish a monopoly of mining privileges along the south manchurian and railroads and thus to exclude americans from a wide field of enterprise to take part in which they were by treaty with china entitled after a thorough examination of the conventions and of the several contextual documents the secretary of state reached the conclusion that no such monopoly was intended or accomplished however in view of the widespread discussion of this question to confirm the view it had reached this government made inquiry of the imperial chinese and japanese governments and received from each official assurance that the provision had no purpose inconsistent with the policy of equality of opportunity to which the signatories in common with the united states are pledged our traditional relations with the japanese empire continue cordial as usual as the representative of japan his imperial highness prince kuni visited the celebration the recent visit of a delegation of prominent business men as guests of the chambers of commerce of the pacific slope whose representatives had been so agreeably received in japan will doubtless contribute to the growing trade across the pacific as well as to that mutual understanding which leads to mutual appreciation the arrangement of 1908 for a cooperative control of the coming of laborers to the united states has proved to work satisfactorily the matter of a revision of the existing treaty between the united states and japan which is terminable in 1912 is already receiving the study of both countries the department of state is considering the revision in whole or in part of the existing treaty with siam which was concluded in 1856 and is now in respect to many of its provisions out of date i earnestly recommend to the favorable action of the congress the estimates submitted by the department of state and most especially the legislation suggested in the secretary of state letter of this date whereby it will be possible to develop and make permanent the reorganization of the department upon modern lines in a manner to make it a thoroughly efficient instrument in the furtherance of our foreign trade and of american interests abroad the plan to have divisions of and far eastern affairs and to institute a certain specialization in business with europe and the near east will at once commend itself these divisions and the detail from the diplomatic or consular service to the department of a number of men who bring to the study of complicated problems in different parts of the world practical knowledge recently gained on the spot clearly is of the greatest advantage to the secretary of state in foreseeing conditions likely to arise and in conducting the great variety of correspondence and negotiation it should be remembered that such facilities exist in the foreign offices of all the leading commercial nations and that to deny them to the secretary of state would be to place this government at a great disadvantage in the rivalry of commercial competition the consular service has been greatly improved under the law of april 5 1906 and the executive order of june 27 1906 and i commend to your consideration the question of embodying in a statute the principles of the present executive order upon which the efficiency of our consular service is wholly dependent in modern times political and commercial interests are interrelated and in the negotiation of commercial treaties conventions and tariff agreements the keeping open of opportunities and the proper support of american enterprises our diplomatic service is quite as important as the consular service to the business interests of the country impressed with this idea and convinced that selection after rigorous examination promotion for merit solely and the experience only to be gained through the continuity of an organized service are indispensable to a high degree of efficiency in the diplomatic service i have signed an executive order as the first step toward this very desirable result its effect should be to place all secretaries in the diplomatic service in much the same position as consular officers are now placed and to tend to the promotion of the most efficient to the grade of minister generally leaving for outside appointments such posts of the grade of ambassador or minister as it may be expedient to fill from without the service it is proposed also to continue the practice instituted last summer of giving to all newly appointed secretaries at least one month thorough training in the department of state before they proceed to their posts this has been done for some time in regard to the consular service with excellent results under a provision of the act of august 5 1909 i have appointed three officials to assist the officers of the government in collecting information necessary to a wise administration of the tariff act of august 5 1909 as to questions of customs administration they are cooperating with the officials of the treasury department and as to matters of the needs and the exigencies of our manufacturers and exporters with the department of commerce and labor in its relation to the domestic aspect of the subject of foreign commerce in the study of foreign tariff treatment they will assist the bureau of trade relations of the department of state it is hoped thus to coordinate and bring to bear upon this most important subject all the agencies of the government which can contribute anything to its efficient handling as a consequence of section 2 of the tariff act of august 5 1909 it becomes the duty of the secretary of state to conduct as diplomatic business all the negotiations necessary to place him in a position to advise me as to whether or not a particular country unduly discriminates against the united states in the sense of the statute referred to the great scope and complexity of this work as well as the obligation to lend all proper aid to our expanding commerce is met by the expansion of the bureau of trade relations as set forth in the estimates for the department of state i have thus in some detail described the important transactions of the state department since the beginning of this administration for the reason that there is no provision either by statute or custom for a formal report by the secretary of state to the president or to congress and a presidential message is the only means by which the condition of our foreign relations is brought to the attention of congress and the public in dealing with the affairs of the other departments the heads of which all submit annual reports i shall touch only those matters that seem to me to call for special mention on my part without minimizing in any way the recommendations made by them for legislation affecting their respective departments in all of which i wish to express my general concurrence perhaps the most important question presented to this administration is that of economy in expenditures and sufficiency of revenue the deficit of the last fiscal year and the certain deficit of the current year prompted congress to throw a greater responsibility on the executive and the secretary of the treasury than had heretofore been declared by statute this declaration imposes upon the secretary of the treasury the duty of assembling all the estimates of the executive departments bureaus and offices of the expenditures necessary in the ensuing fiscal year and of making an estimate of the revenues of the government for the same period and if a probable deficit is thus shown it is made the duty of the president to recommend the method by which such deficit can be met the report of the secretary shows that the ordinary expenditures for the current fiscal year ending june 30 1910 will exceed the estimated receipts by if to this deficit is added the sum to be disbursed for the panama canal amounting to and to be paid on the public debt the deficit of ordinary receipts and expenditures will be increased to a total deficit of this deficit the secretary proposes to meet by the proceeds of bonds issued to pay the cost of constructing the panama canal i approve this proposal the policy of paying for the construction of the panama canal not out of current revenue but by bond issues was adopted in the spooner act of 1902 and there seems to be no good reason for departing from the principle by which a part at least of the burden of the cost of the canal shall fall upon our posterity who are to enjoy it and there is all the more reason for this view because the actual cost to date of the canal which is now half done and which will be completed january 1 1915 shows that the cost of engineering and construction will be instead of as originally estimated in addition to engineering and construction the other expenses including sanitation and government and the amount paid for the properties the franchise and the privilege of building the canal increase the cost by to a total of the increase in the cost of engineering and construction is due to a substantial enlargement of the plan of construction by widening the canal 100 feet in the culebra cut and by increasing the dimensions of the locks to the underestimate of the quantity of the work to be done under the original plan and to an underestimate of the cost of labor and materials both of which have greatly enhanced in price since the original estimate was made in order to avoid a deficit for the ensuing fiscal year i directed the heads of departments in the preparation of their estimates to make them as low as possible consistent with imperative governmental necessity the result has been as i am advised by the secretary of the treasury that the estimates for the expenses of the government for the next fiscal year ending june 30 1911 are less than the appropriations for this current fiscal year by so far as the secretary of the treasury is able to form a judgment as to future income and compare it with the expenditures for the next fiscal year ending june 30 1911 and excluding payments on account of the panama canal which will doubtless be taken up by bonds there will be a surplus of in the present estimates the needs of the departments and of the government have been cut to the quick so to speak and any assumption on the part of congress so often made in times past that the estimates have been prepared with the expectation that they may be reduced will result in seriously hampering proper administration the secretary of the treasury points out what should be carefully noted in respect to this reduction in governmental expenses for the next fiscal year that the economies are of two kinds first there is a saving in the permanent administration of the departments bureaus and offices of the government and second there is a present reduction in expenses by a postponement of projects and improvements that ultimately will have to be carried out but which are now delayed with the hope that additional revenue in the future will permit their execution without producing a deficit it has been impossible in the preparation of estimates greatly to reduce the cost of permanent administration this can not be done without a thorough reorganization of bureaus offices and departments for the purpose of securing information which may enable the executive and the legislative branches to unite in a plan for the permanent reduction of the cost of governmental administration the treasury department has instituted an investigation by one of the most skilled expert accountants in the united states the result of his work in two or three bureaus which if extended to the entire government must occupy two or more years has been to show much room for improvement and opportunity for substantial reductions in the cost and increased efficiency of administration the object of the investigation is to devise means to increase the average efficiency of each employee there is great room for improvement toward this end not only by the reorganization of bureaus and departments and in the avoidance of duplication but also in the treatment of the individual employee under the present system it constantly happens that two employees receive the same salary when the work of one is far more difficult and important and exacting than that of the other superior ability is not rewarded or encouraged as the classification is now entirely by salary an employee often rises to the highest class while doing the easiest work for which alone he may be fitted an investigation ordered by my predecessor resulted in the recommendation that the civil service he reclassified according to the kind of work so that the work requiring most application and knowledge and ability shall receive most compensation i believe such a change would be fairer to the whole force and would permanently improve the personnel of the service more than this every reform directed toward the improvement in the average efficiency of government employees must depend on the ability of the executive to eliminate from the government service those who are inefficient from any because and as the degree of efficiency in all the departments is much lessened by the retention of old employees who have outlived their energy and usefulness it is indispensable to any proper system of economy that provision be made so that their separation from the service shall be easy and inevitable it is impossible to make such provision unless there is adopted a plan of civil pensions most of the great industrial organizations and many of the railways of this country are coming to the conclusion that a system of pensions for old employees and the substitution therefor of younger and more energetic servants promotes both economy and efficiency of administration i am aware that there is a strong feeling in both houses of congress and possibly in the country against the establishment of civil pensions and that this has naturally grown out of the heavy burden of military pensions which it has always been the policy of our government to assume but i am strongly convinced that no other practical solution of the difficulties presented by the superannuation of civil servants can be found than that of a system of civil pensions the business and expenditures of the government have expanded enormously since the spanish war but as the revenues have increased in nearly the same proportion as the expenditures until recently the attention of the public and of those responsible for the government has not been fastened upon the question of reducing the cost of administration we can not in view of the advancing prices of living hope to save money by a reduction in the standard of salaries paid indeed if any change is made in that regard an increase rather than a decrease will be necessary and the only means of economy will be in reducing the number of employees and in obtaining a greater average of efficiency from those retained in the service close investigation and study needed to make definite recommendations in this regard will consume at least two years i note with much satisfaction the organization in the senate of a committee on public expenditures charged with the duty of conducting such an investigation and i tender to that committee all the assistance which the executive branch of the government can possibly render i regret to refer to the fact of the discovery of extensive frauds in the collections of the customs revenue at new york city in which a number of the subordinate employees in the weighing and other departments were directly concerned and in which the beneficiaries were the american sugar refining company and others the frauds consisted in the payment of duty on underweights of sugar the government has recovered from the american sugar refining company all that it is shown to have been defrauded of the sum was received in full of the amount due which might have been recovered by civil suit against the beneficiary of the fraud but there was an express reservation in the contract of settlement by which the settlement should not interfere with or prevent the criminal prosecution of everyone who was found to be subject to the same criminal prosecutions are now proceeding against a number of the government officers the treasury department and the department of justice are exerting every effort to discover all the wrongdoers including the officers and employees of the companies who may have been privy to the fraud it would seem to me that an investigation of the frauds by congress at present pending the probing by the treasury department and the department of justice as proposed might by giving immunity and otherwise prove an embarrassment in securing conviction of the guilty parties two features of the new tariff act call for special reference by virtue of the clause known as the maximum and minimum clause it is the duty of the executive to consider the laws and practices of other countries with reference to the importation into those countries of the products and merchandise of the united states and if the executive finds such laws and practices not to be unduly discriminatory against the united states the minimum duties provided in the bill are to go into force unless the president makes such a finding then the maximum duties provided in the bill that is an increase of per cent ad valorem over the minimum duties are to be in force fear has been expressed that this power conferred and duty imposed on the executive is likely to lead to a tariff war i beg to express the hope and belief that no such result need be anticipated the discretion granted to the executive by the terms unduly discriminatory is wide in order that the maximum duty shall be charged against the imports from a country it is necessary that he shall find on the part of that country not only discriminations in its laws or the practice under them against the trade of the united states but that the discriminations found shall be undue that is without good and fair reason i conceive that this power was reposed in the president with the hope that the maximum duties might never be applied in any case but that the power to apply them would enable the president and the state department through friendly negotiation to secure the elimination from the laws and the practice under them of any foreign country of that which is unduly discriminatory no one is seeking a tariff war or a condition in which the spirit of retaliation shall be aroused the new tariff law enables me to appoint a tariff board to assist me in connection with the department of state in the administration of the minimum and maximum clause of the act and also to assist officers of the government in the administration of the entire law an examination of the law and an understanding of the nature of the facts which should be considered in discharging the functions imposed upon the executive show that i have the power to direct the tariff board to make a comprehensive glossary and encyclopedia of the terms used and articles embraced in the tariff law and to secure information as to the cost of production of such goods in this country and the cost of their production in foreign countries i have therefore appointed a tariff board consisting of three members and have directed them to perform all the duties above described this work will perhaps take two or three years and i ask from congress a continuing annual appropriation equal to that already made for its prosecution i believe that the work of this board will be of prime utility and importance whenever congress shall deem it wise again to readjust the customs duties if the facts secured by the tariff board are of such a character as to show generally that the rates of duties imposed by the present tariff law are excessive under the principles of protection as described in the platform of the successful party at the late election i shall not hesitate to invite the attention of congress to this fact and to the necessity for action predicated thereon nothing however halts business and interferes with the course of prosperity so much as the threatened revision of the tariff and until the facts are at hand after careful and deliberate investigation upon which such revision can properly be undertaken it seems to me unwise to attempt it the amount of misinformation that creeps into arguments pro and con in respect to tariff rates is such as to require the kind of investigation that i have directed the tariff board to make an investigation undertaken by it wholly without respect to the effect which the facts may have in calling for a readjustment of the rates of duty in the interest of immediate economy and because of the prospect of a deficit i have required a reduction in the estimates of the war department for the coming fiscal year which brings the total estimates down to an amount millions less than the corresponding estimates for last year this could only be accomplished by cutting off new projects and suspending for the period of one year all progress in military matters for the same reason i have directed that the army shall not be recruited up to its present authorized strength these measures can hardly be more than temporary to last until our revenues are in better condition and until the whole question of the expediency of adopting a definite military policy can be submitted to congress for i am sure that the interests of the military establishment are seriously in need of careful consideration by congress the laws regulating the organization of our armed forces in the event of war need to be revised in order that the organization can be modified so as to produce a force which would be more consistently apportioned throughout its numerous branches to explain the circumstances upon which this opinion is based would necessitate a lengthy discussion and i postpone it until the first convenient opportunity shall arise to send to congress a special message upon this subject the secretary of war calls attention to a number of needed changes in the army in all of which i concur but the point upon which i place most emphasis is the need for an elimination bill providing a method by which the merits of officers shall have some effect upon their advancement and by which the advancement of all may be accelerated by the effective elimination of a definite proportion of the least efficient there are in every army and certainly in ours a number of officers who do not violate their duty in any such way as to give reason for a or dismissal but who do not show such aptitude and skill and character for high command as to justify their remaining in the active service to be promoted provision should be made by which they may be retired on a certain proportion of their pay increasing with their length of service at the time of retirement there is now a personnel law for the navy which itself needs amendment and to which i shall make further reference such a law is needed quite as much for the army the coast defenses of the united states proper are generally all that could be desired and in some respects they are rather more elaborate than under present conditions are needed to stop an enemy fleet from entering the harbors defended there is however one place where additional defense is badly needed and that is at the mouth of chesapeake bay where it is proposed to make an artificial island for a fort which shall prevent an enemy fleet from entering this most important strategical base of operations on the whole atlantic and gulf coasts i hope that appropriate legislation will be adopted to secure the construction of this defense the military and naval joint board have unanimously agreed that it would be unwise to make the large expenditures which at one time were contemplated in the establishment of a naval base and station in the philippine islands and have expressed their judgment in which i fully concur in favor of making an extensive naval base at pearl harbor near honolulu and not in the philippines this does not dispense with the necessity for the comparatively small appropriations required to finish the proper coast defenses in the philippines now under construction on the island of corregidor and elsewhere or to complete a suitable repair station and coaling supply station at olongapo where is the floating dock dewey i hope that this recommendation of the joint board will end the discussion as to the comparative merits of manila bay and olongapo as naval stations and will lead to prompt measures for the proper equipment and defense of pearl harbor the return of the fleet from its voyage around the world in more efficient condition than when it started was a noteworthy event of interest alike to our citizens and the naval authorities of the world besides the beneficial and effect on our personal and diplomatic relations in the countries which the fleet visited the marked success of the ships in steaming around the world in all weathers on schedule time has increased respect for our navy and has added to our national prestige our enlisted personnel recruited from all sections of the country is young and energetic and representative of the national spirit it is moreover owing to its intelligence capable of quick training into the modern our officers are earnest and zealous in their profession but it is a regrettable fact that the higher officers are old for the responsibilities of the modern navy and the admirals do not arrive at flag rank young enough to obtain adequate training in their duties as flag officers this need for reform in the navy has been ably and earnestly presented to congress by my predecessor and i also urgently recommend the subject for consideration early in the coming session a comprehensive plan for the reorganization of the officers of all corps of the navy will be presented to congress and i hope it will meet with action suited to its urgency owing to the necessity for economy in expenditures i have directed the curtailment of recommendations for naval appropriations so that they are millions less than the corresponding estimates of last year and the request for new naval construction is limited to two battle ships and one repair vessel the use of a navy is for military purposes and there has been found need in the department of a military branch dealing directly with the military use of the fleet the secretary of the navy has also felt the lack of responsible advisers to aid him in reaching conclusions and deciding important matters between coordinate branches of the department to secure these results he has inaugurated a tentative plan involving certain changes in the organization of the navy department including the all of which have been found by the to be in accordance with law i have approved the execution of the plan proposed because of the greater efficiency and economy it promises the generosity of congress has provided in the present naval observatory the most magnificent and expensive astronomical establishment in the world it is being used for certain naval purposes which might easily and adequately be subserved by a small division connected with the naval department at only a fraction of the cost of the present naval observatory the official board of visitors established by congress and appointed in 1901 expressed its conclusion that the official head of the observatory should be an eminent astronomer appointed by the president by and with the advice and consent of the senate holding his place by a tenure at least as permanent as that of the superintendent of the coast survey or the head of the geological survey and not merely by a detail of two or three years duration i fully concur in this judgment and urge a provision by law for the appointment of such a director it may not be necessary to take the observatory out of the navy department and put it into another department in which opportunity for scientific research afforded by the observatory would seem to be more appropriate though i believe such a transfer in the long run is the best policy i am sure however i express the desire of the astronomers and those learned in the kindred sciences when i urge upon congress that the naval observatory be now dedicated to science under control of a man of science who can if need be render all the service to the navy department which this observatory now renders and still furnish to the world the discoveries in astronomy that a great astronomer using such a plant would be likely to make the deplorable delays in the administration of civil and criminal law have received the attention of committees of the american bar association and of many state bar associations as well as the considered thought of judges and jurists in my judgment a change in judicial procedure with a view to reducing its expense to private litigants in civil cases and facilitating the dispatch of business and final decision in both civil and criminal cases constitutes the greatest need in our american institutions i do not doubt for one moment that much of the lawless violence and cruelty exhibited in lynchings is directly due to the uncertainties and injustice growing out of the delays in trials judgments and the executions thereof by our courts of course these remarks apply quite as well to the administration of justice in state courts as to that in federal courts and without making invidious distinction it is perhaps not too much to say that speaking generally the defects are less in the federal courts than in the state courts but they are very great in the federal courts the expedition with which business is disposed of both on the civil and the criminal side of english courts under modern rules of procedure makes the delays in our courts seem archaic and barbarous the procedure in the federal courts should furnish an example for the state courts i presume it is impossible without an amendment to the constitution to unite under one form of action the proceedings at common law and proceedings in equity in the federal courts but it is certainly not impossible by a statute to simplify and make short and direct the procedure both at law and in equity in those courts it is not impossible to cut down still more than it is cut down the jurisdiction of the supreme court so as to confine it almost wholly to statutory and constitutional questions under the present statutes the equity and admiralty procedure in the federal courts is under the control of the supreme court but in the pressure of business to which that court is subjected it is impossible to hope that a radical and proper reform of the federal equity procedure can be brought about i therefore recommend legislation providing for the appointment by the president of a commission with authority to examine the law and equity procedure of the federal courts of first instance the law of appeals from those courts to the courts of appeals and to the supreme court and the costs imposed in such procedure upon the private litigants and upon the public treasury and make recommendation with a view to simplifying and expediting the procedure as far as possible and making it as inexpensive as may be to the litigant of little means the platform of the successful party in the last election contained the following the republican party will uphold at all times the authority and integrity of the courts state and federal and will ever insist that their powers to enforce their process and to protect life liberty and property shall be preserved inviolate we believe however that the rules of procedure in the federal courts with respect to the issuance of the writ of injunction should be more accurately defined by statute and that no injunction or temporary restraining order should be issued without notice except where irreparable injury would result from delay in which case a speedy hearing thereafter should be granted i recommend that in compliance with the promise thus made appropriate legislation be adopted the ends of justice will best be met and the chief because of complaint against injunctions without notice will be removed by the enactment of a statute forbidding hereafter the issuing of any injunction or restraining order whether temporary or permanent by any federal court without previous notice and a reasonable opportunity to he heard on behalf of the parties to be enjoined unless it shall appear to the satisfaction of the court that the delay necessary to give such notice and hearing would result in irreparable injury to the complainant and unless also the court shall from the evidence make a written finding which shall be spread upon the court minutes that immediate and irreparable injury is likely to ensue to the complainant and shall define the injury state why it is irreparable and shall also endorse on the order issued the date and the hour of the issuance of the order moreover every such injunction or restraining order issued without previous notice and opportunity by the defendant to be heard should by force of the statute expire and be of no effect after seven days from the issuance thereof or within any time less than that period which the court may fix unless within such seven days or such less period the injunction or order is extended or renewed after previous notice and opportunity to be heard my judgment is that the passage of such an act which really embodies the best practice in equity and is very like the rule now in force in some courts will prevent the issuing of orders of injunction without notice and will render such orders when issued much less objectionable by the short time in which they may remain effective the jurisdiction of the general government over interstate commerce has led to the passage of the sherman law and the interstate commerce law and its amendments the developments in the operation of those laws as shown by indictments trials judicial decisions and other sources of information call for a discussion and some suggestions as to amendments these i prefer to embody in a special message instead of including them in the present communication and i shall avail myself of the first convenient opportunity to bring these subjects to the attention of congress my predecessor transmitted to the congress a special message on january 11 1909 accompanying the report of commissioners theretofore appointed to investigate the jail workhouse in the district of columbia in which he directed attention to the report as setting forth vividly the really outrageous conditions in the workhouse and jail the congress has taken action in pursuance of the recommendations of that report and of the president to the extent of appropriating funds and enacting the necessary legislation for the establishment of a workhouse and reformatory no action however has been taken by the congress with respect to the jail the conditions of which are still antiquated and insanitary i earnestly recommend the passage of a sufficient appropriation to enable a thorough remodeling of that institution to be made without delay it is a reproach to the national government that almost under the shadow of the capitol dome prisoners should be confined in a building destitute of the ordinary decent appliances requisite to cleanliness and sanitary conditions the deficit every year in the department is largely caused by the low rate of postage of 1 cent a pound charged on mail matter which includes not only newspapers but magazines and miscellaneous periodicals the actual loss growing out of the transmission of this mail matter at 1 cent a pound amounts to about a year the average cost of the transportation of this matter is more than 9 cents a pound it appears that the average distance over which newspapers are delivered to their customers is 291 miles while the average haul of magazines is and of miscellaneous periodicals miles thus the average haul of the magazine is three and times and that of the miscellaneous periodical nearly four times the haul of the daily newspaper yet all of them pay the same postage rate of 1 cent a pound the statistics of 1907 show that mail matter constituted per cent of the weight of all the mail and yielded only per cent of the revenue the figures given are startling and show the payment by the government of an enormous subsidy to the newspapers magazines and periodicals and congress may well consider whether radical steps should not be taken to reduce the deficit in the department caused by this discrepancy between the actual cost of transportation and the compensation exacted therefor a great saving might be made amounting to much more than half of the loss by imposing upon magazines and periodicals a higher rate of postage they are much heavier than newspapers and contain a much higher proportion of advertising to reading matter and the average distance of their transportation is three and a half times as great the total deficit for the last fiscal year in the department amounted to the branches of its business which it did at a loss were the mail service in which the loss as already said was and the free rural delivery in which the loss was these losses were in part offset by the profits of the letter postage and other sources of income it would seem wise to reduce the loss upon mail matter at least to the extent of preventing a deficit in the total operations of the i commend the whole subject to congress not unmindful of the spread of intelligence which a low charge for carrying newspapers and periodicals assists i very much doubt however the wisdom of a policy which constitutes so large a subsidy and requires additional taxation to meet it the second subject worthy of mention in the department is the real necessity and entire practicability of establishing postal savings banks the successful party at the last election declared in favor of postal savings banks and although the proposition finds opponents in many parts of the country i am convinced that the people desire such banks and am sure that when the banks are furnished they will be productive of the utmost good the postal savings banks are not constituted for the purpose of creating competition with other banks the rate of interest upon deposits to which they would be limited would be so small as to prevent their drawing deposits away from other banks i believe them to be necessary in order to offer a proper inducement to thrift and saving to a great many people of small means who do not now have banking facilities and to whom such a system would offer an opportunity for the accumulation of capital they will furnish a satisfactory substitute based on sound principle and actual successful trial in nearly all the countries of the world for the system of government guaranty of deposits now being adopted in several western states which with deference to those who advocate it seems to me to have in it the seeds of demoralization to conservative banking and certain financial disaster the question of how the money deposited in postal savings banks shall be invested is not free from difficulty but i believe that a satisfactory provision for this purpose was inserted as an amendment to the bill considered by the senate at its last session it has been proposed to delay the consideration of legislation establishing a postal savings bank until after the report of the monetary commission this report is likely to be delayed and properly so because of the necessity for careful deliberation and close investigation i do not see why the one should be tied up with the other it is understood that the monetary commission have looked into the systems of banking which now prevail abroad and have found that by a control there exercised in respect to reserves and the rates of exchange by some central authority panics are avoided it is not apparent that a system of postal savings banks would in any way interfere with a change to such a system here certainly in most of the countries of europe where control is thus exercised by a central authority postal savings banks exist and are not thought to be inconsistent with a proper financial and banking system following the course of my distinguished predecessor i earnestly recommend to congress the consideration and passage of a ship subsidy bill looking to the establishment of lines between our atlantic seaboard and the eastern coast of south america as well as lines from the west coast of the united states to south america china japan and the philippines the profits on foreign mails are perhaps a sufficient measure of the expenditures which might first be tentatively applied to this method of inducing american capital to undertake the establishment of american lines of steamships in those directions in which we now feel it most important that we should have means of transportation controlled in the interest of the expansion of our trade a bill of this character has once passed the house and more than once passed the senate and i hope that at this session a bill framed on the same lines and with the same purposes may become a law the successful party in the last election in its national platform declared in favor of the admission as separate states of new mexico and arizona and i recommend that legislation appropriate to this end be adopted i urge however that care be exercised in the preparation of the legislation affecting each territory to secure deliberation in the selection of persons as members of the convention to draft a constitution for the incoming state and i earnestly advise that such constitution after adoption by the convention shall be submitted to the people of the territory for their approval at an election in which the sole issue shall be the merits of the proposed constitution and if the constitution is defeated by popular vote means shall be provided in the enabling act for a new convention and the drafting of a new constitution i think it vital that the issue as to the merits of the constitution should not be mixed up with the selection of state officers and that no election of state officers should be had until after the constitution has been fully approved and finally settled upon with respect to the territory of alaska i recommend legislation which shall provide for the appointment by the president of a governor and also of an executive council the members of which shall during their term of office reside in the territory and which shall have legislative powers sufficient to enable it to give to the territory local laws adapted to its present growth i strongly deprecate legislation looking to the election of a territorial legislature in that vast district the lack of permanence of residence of a large part of the present population and the small number of the people who either permanently or temporarily reside in the district as compared with its vast expanse and the variety of the interests that have to be subserved make it altogether unfitting in my judgment to provide for a popular election of a legislative body the present system is not adequate and does not furnish the character of local control that ought to be there the only compromise it seems to me which may give needed local legislation and secure a conservative government is the one i propose in several departments there is presented the necessity for legislation looking to the further conservation of our national resources and the subject is one of such importance as to require a more detailed and extended discussion than can be entered upon in this communication for that reason i shall take an early opportunity to send a special message to congress on the subject of the improvement of our waterways upon the reclamation and irrigation of arid semiarid and swamp lands upon the preservation of our forests and the reforesting of suitable areas upon the reclassification of the public domain with a view of separating from agricultural settlement mineral coal and phosphate lands and sites belonging to the government bordering on streams suitable for the utilization of water power i commend to your careful consideration the report of the secretary of agriculture as showing the immense sphere of usefulness which that department now fills and the wonderful addition to the wealth of the nation made by the farmers of this country in the crops of the current year the board now discharges its duties under the department of commerce and labor for upwards of forty years this board has been constituted of military and naval officers and two or three men of science with such an absence of a duly constituted executive head that it is marvelous what work has been accomplished in the period of construction the energy and enthusiasm of all the members prevented the inherent defects of the system from interfering greatly with the beneficial work of the board but now that the work is chiefly confined to maintenance and repair for which purpose the country is divided into sixteen districts to which are assigned an engineer officer of the army and an inspector of the navy each with a tender and the needed plant for his work it has become apparent by the frequent friction that arises due to the absence of any central independent authority that there must be a complete reorganization of the board i concede the advantage of keeping in the system the rigidity of discipline that the presence of naval and military officers in charge insures but unless the presence of such officers in the board can be made consistent with a responsible executive head that shall have proper authority i recommend the transfer of control over the to a suitable civilian bureau this is in accordance with the judgment of competent persons who are familiar with the workings of the present system i am confident that a reorganization can be effected which shall avoid the recurrence of friction between members instances of which have been officially brought to my attention and that by such reorganization greater efficiency and a substantial reduction in the expense of operation can be brought about i request congressional authority to enable the secretary of commerce and labor to unite the bureaus of manufactures and statistics this was recommended by a competent committee appointed in the previous administration for the purpose of suggesting changes in the interest of economy and efficiency and is requested by the secretary i greatly regret to have to say that the investigations made in the bureau of immigration and other sources of information lead to the view that there is urgent necessity for additional legislation and greater executive activity to suppress the recruiting of the ranks of prostitutes from the streams of immigration into this country an evil which for want of a better name has been called the white slave trade i believe it to be constitutional to forbid under penalty the transportation of persons for purposes of prostitution across national and state lines and by appropriating a fund of to be used by the secretary of commerce and labor for the employment of special inspectors it will be possible to bring those responsible for this trade to indictment and conviction under a federal law for a very considerable period a movement has been gathering strength especially among the members of the medical profession in favor of a concentration of the instruments of the national government which have to do with the promotion of public health in the nature of things the medical department of the army and the medical department of the navy must be kept separate but there seems to be no reason why all the other bureaus and offices in the general government which have to do with the public health or subjects akin thereto should not be united in a bureau to be called the bureau of public health this would necessitate the transfer of the service to such a bureau i am aware that there is wide field in respect to the public health committed to the states in which the federal government can not exercise jurisdiction but we have seen in the agricultural department the expansion into widest usefulness of a department giving attention to agriculture when that subject is plainly one over which the states properly exercise direct jurisdiction the opportunities offered for useful research and the spread of useful information in regard to the cultivation of the soil and the breeding of stock and the solution of many of the intricate problems in progressive agriculture have demonstrated the wisdom of establishing that department similar reasons of equal force can be given for the establishment of a bureau of health that shall not only exercise the police jurisdiction of the federal government respecting quarantine but which shall also afford an opportunity for investigation and research by competent experts into questions of health affecting the whole country or important sections thereof questions which in the absence of federal governmental work are not likely to be promptly solved the work of the united states civil service commission has been performed to the general satisfaction of the executive officers with whom the commission has been brought into official communication the volume of that work and its variety and extent have under new laws such as the census act and new executive orders greatly increased the activities of the commission required by the statutes have reached to every portion of the public domain the accommodations of the commission are most inadequate for its needs i call your attention to its request for increase in those accommodations as will appear from the annual report for this year i urgently recommend to congress that a law be passed requiring that candidates in elections of members of the house of representatives and committees in charge of their candidacy and campaign file in a proper office of the united states government a statement of the contributions received and of the expenditures incurred in the campaign for such elections and that similar legislation be enacted in respect to all other elections which are constitutionally within the control of congress recommendations have been made by my predecessors that congress appropriate a sufficient sum to pay the balance about 38 per of the amounts due depositors in the freedman savings and trust company i renew this recommendation and advise also that a proper limitation be prescribed fixing a period within which the claims may be presented that assigned claims be not recognized and that a limit be imposed on the amount of fees collectible for services in presenting such claims the year 1913 will mark the fiftieth anniversary of the issuance of the emancipation proclamation granting freedom to the negroes it seems fitting that this event should be properly celebrated already a movement has been started by prominent negroes encouraged by prominent white people and the press the south especially is manifesting its interest in this movement it is suggested that a proper form of celebration would be an exposition to show the progress the negroes have made not only during their period of freedom but also from the time of their coming to this country i heartily indorse this proposal and request that the executive be authorized to appoint a preliminary commission of not more than seven persons to consider carefully whether or not it is wise to hold such an exposition and if so to outline a plan for the enterprise i further recommend that such preliminary commission serve without salary except as to their actual expenses and that an appropriation be made to meet such expenses i have thus in a message compressed as much as the subjects will permit referred to many of the legislative needs of the country with the exceptions already noted speaking generally the country is in a high state of prosperity there is every reason to believe that we are on the eve of a substantial business expansion and we have just garnered a harvest unexampled in the market value of our agricultural products the high prices which such products bring mean great prosperity for the farming community but on the other hand they mean a very considerably increased burden upon those classes in the community whose yearly compensation does not expand with the improvement in business and the general prosperity various reasons are given for the high prices the proportionate increase in the output of gold which is the chief medium of exchange and is in some respects a measure of value furnishes a substantial explanation of at least a part of the increase in prices the increase in population and the more expensive mode of living of the people which have not been accompanied by a proportionate increase in acreage production may furnish a further reason it is well to note that the increase in the cost of living is not confined to this country but prevails the world over and that those who would charge increases in prices to the existing protective tariff must meet the fact that the rise in prices has taken place almost wholly in those products of the factory and farm in respect to which there has been either no increase in the tariff or in many instances a very considerable reduction
relations united states foreign governments continued upon normal basis amity good understanding generally satisfactory pursuant provisions general treaty arbitration concluded united states great britain april 4 1908 special agreement entered two countries january 27 1909 submission questions relating fisheries north atlantic coast tribunal formed members permanent court arbitration hague accordance provisions special agreement printed case government october 4 last submitted arbitral tribunal hague counter case united states course preparation american rights fisheries article treaty 1818 difference united states great britain nearly seventy years interests involved great importance american fishing industry final settlement controversy remove source constant irritation complaint first case involving great international questions submitted permanent court arbitration hague treaty united states great britain concerning canadian international boundary concluded april 11 1908 authorizes appointment two commissioners define mark accurately international boundary line united states dominion canada waters passamaquoddy bay provides exchange briefs within period six months briefs duly presented within prescribed period commissioners failed agree within six months exchange printed statements required treaty become necessary resort arbitration provided article international fisheries commission appointed pursuant authority convention april 11 1908 united states great britain completed system uniform common international regulations protection preservation food fishes international boundary waters united states canada regulations duly submitted congress view enactment legislation necessary convention put operation convention providing settlement international differences united states canada including apportionment two countries certain boundary waters appointment commissioners adjust certain questions signed 11th day january 1909 ratification senate gave advice consent march 3 1909 yet ratified part great britain commissioners appointed part united states act jointly commissioners part canada examining question obstructions john river maine new brunswick make recommendations regulation uses thereof engaged work negotiations international conference consider reach arrangement providing preservation protection fur seals north pacific progress governments great britain japan russia attitude governments interested leads hope satisfactory settlement question ultimate outcome negotiations second peace conference recently held hague adopted convention establishment international prize court upon joint proposal delegations united states france germany great britain law observed tribunal decision prize cases however left uncertain therefore unsatisfactory state article 7 convention provided court governed provisions treaties existing belligerents absence provisions court shall apply rules international law generally recognized rule exists court shall give judgment accordance general principles justice equity however many questions international maritime law understood differently therefore interpreted differently various countries deemed advisable intrust legislative powers proposed court determine rules law properly applicable conference representative maritime nations pursuant invitation great britain conference held london december 2 1908 february 26 1909 following powers participated united states france germany great britain italy japan netherlands russia spain conference resulted declaration london unanimously agreed signed participating powers concerning among matters highly important subjects blockade contraband destruction neutral prizes continuous voyages declaration london eminently satisfactory codification international maritime law hoped reasonableness fairness secure general adoption well remove one difficulties standing way establishment international prize court authority given sundry civil appropriation act approved march 4 1909 united states represented international conference maritime law brussels conference met 28th september last resulted signature ad referendum convention unification certain regulations regard maritime assistance salvage convention unification certain rules regard collisions sea two new projects conventions heretofore considered diplomatic conference namely one concerning limitation responsibility shipowners concerning marine mortgages privileges submitted conference different governments conference adjourned meet april 11 1910 international conference purpose promoting uniform legislation concerning letters exchange called government netherlands meet hague september 1909 postponed meet capital june 1910 united states appropriately represented conference provision therefor already made congress cordial invitation belgium represented fitting display american progress useful arts inventions world fair held brussels 1910 remains acted upon congress mindful advantages accrue artisans producers competition continental rivals renew recommendation heretofore made provision made acceptance invitation adequate representation exposition question arising belgian annexation independent state congo long earnestly preoccupied attention government enlisted sympathy best citizens still open hopeful stage government among foremost great work uplifting uncivilized regions africa urging extension benefits civilization education fruitful open commerce vast domain party treaty engagements interested powers designed carry great duty humanity way better original adventitious conditions burdensome natives destructive development pointed observation experience alone american representatives cumulative evidence quarters investigations belgian agents announced programmes reforms striking many evils known exist augury better things attitude united states one benevolent encouragement coupled hopeful trust good work responsibly undertaken zealously perfected accomplishment results ardently desired soon justify wisdom inspires satisfy demands humane sentiment throughout world convention united states germany nonworking provisions german patent law made inapplicable patents american citizens concluded february 23 1909 force negotiations similar conventions looking placing american inventors footing nationals recently initiated european governments whose laws require local working foreign patents appropriation made last session congress commission sent american cruisers monrovia investigate interests united states citizens liberia upon arrival monrovia commission enthusiastically received stay liberia everywhere met heartiest expressions good american government people hope repeatedly expressed sides government might see way clear something relieve critical position republic arising measure external well internal financial embarrassments liberian government afforded every facility commission ascertaining true state affairs commission also conferences representative citizens interested foreigners representatives foreign governments monrovia visits made various parts republic neighboring british colony sierra leone commission received conferred governor remembered interest united states republic liberia springs historical fact foundation republic colonization american citizens african race early treaty liberia provision united states may called upon advice assistance pursuant provision spirit moral relationship united states liberia republic last year asked government lend assistance solution certain national problems hence commission sent report commissioners completed examination department state hoped may result helpful measures case may duty invite attention subject norwegian government note addressed january 26 1909 department state conveyed invitation government united states take part conference understood held february march 1910 purpose devising means remedy existing conditions spitzbergen islands invitation conveyed reservation question altering status islands countries belonging particular state equally open citizens subjects states raised european powers invited conference government norway belgium denmark france germany great britain russia sweden netherlands department state view proofs filed 1906 showing american possession occupation working certain lands spitzbergen accepted invitation reservation stated reservation interests islands already vested protected equality opportunity future pointed membership conference part united states qualified consideration government would become signatory conventional arrangement concluded european members conference would imply contributory participation united states obligation responsibility enforcement scheme administration might devised conference islands majesty mehmed v sultan turkey recently sent country special embassy announce accession quick transition government ottoman empire one retrograde tendencies constitutional government parliament progressive modern policies reform public improvement one important phenomena times constitutional government seems also made advance persia events turned eyes world upon near east quarter prestige united states spread widely peaceful influence american schools universities missionaries every reason obtain greater share commerce near east since conditions favorable ever one happiest events recent diplomacy pacific independent settlement governments bolivia peru boundary difference weeks threatened war even entrain embitterments affecting republics less directly concerned various quarters directly indirectly concerned intermediation united states sought assist solution controversy desiring times abstain undue mingling affairs sister republics faith ability governments peru bolivia settle differences manner satisfactory viewed magnanimity would assuage embitterment government steadily abstained drawn controversy much gratified find confidence justified events 9th july next open buenos aires fourth conference conference special meaning hearts americans around date clustered anniversaries independence many american republics necessary remind congress political social commercial importance gatherings asked make liberal appropriation participation granted purpose appoint distinguished representative delegation qualified fittingly represent country deal problems intercontinental interest discussed argentine republic also hold may november 1910 buenos aires great international agricultural exhibition united states invited participate considering rapid growth trade united states argentine republic cordial relations existing two nations together fact provides opportunity show deference sister republic occasion celebration national independence proper departments government taking steps apprise interests concerned opportunity afforded exhibition appropriate participation country desirable designation official representative also receiving consideration ever american capital seeking investment foreign countries american products generally seeking foreign markets consequence countries american citizens american interests protected occasion government movements men capital commodities bring peoples governments closer together form bonds peace mutual dependency must also naturally sometimes make passing points friction resultant situation inevitably imposes upon government vastly increased responsibilities administration department state foreign service lending proper support legitimate beneficial american enterprises foreign countries degree support measured national advantages expected citizen contract otherwise divest right government escape obligation protection personal property rights unjustly infringed foreign country avoid ceaseless vexations proper considering whether american enterprise encouraged supported particular country government give full weight national opposed individual benefits accrue also fact whether government country question administration diplomacy faithful principles moderation equity justice upon alone depend international credit diplomacy well finance policy government long fixed principles remains unchanged changed circumstances united states republics south us great natural resources stable government progressive ideals apprehension gave rise monroe doctrine may said nearly disappeared neither doctrine exists doctrine american policy permitted operate perpetuation irresponsible government escape obligations insidious allegation dominating ambitions part united states beside fundamental doctrines policy grown realization political interests community institutions ideals flourishing commerce bonds greatly strengthened time goes increased facilities great bank soon established latin america supply means building colossal intercontinental commerce future meeting president diaz greeting exchanged american mexican soil served hope signalize close cordial relations well bind together republic great republic immediately south vast network material interests happy say one cases long vexed relations venezuela settled within past months enlightened regime directing government venezuela provision made arbitration remaining case hague tribunal july 30 1909 government panama agreed considerable negotiation indemnify relatives american officers sailors brutally treated one indeed killed panaman police year sincere desire government panama away situation accident could occur manifest recent request compliance government lent services officer army employed government panama instructor police sanitary improvements public works undertaken cuba prior present administration government success united states interested treaty reported making good progress since congress provided continuance reciprocal commercial arrangement cuba united states assurance received negotiations injuriously affecting situation undertaken without consultation collection customs dominican republic general receiver customs appointed president united states accordance convention february 8 1907 proceeded uneventful satisfactory manner customs receipts decreased owing disturbed political economic conditions natural curtailment imports view anticipated revision dominican tariff schedule payments fiscal agency fund service bonded debt republic provided convention regularly promptly made satisfactory progress made carrying provisions convention looking towards completion adjustment debt acquirement dominican government certain concessions monopolies burden commerce country short receivership demonstrated ability even unfavorable economic political conditions work intended government obliged intervene diplomatically bring arbitration settlement claim emery company nicaragua long agreed arbitrated settlement troublesome case reached signature protocol september 18 1909 many years ago diplomatic intervention became necessary protection interests american claim alsop company government chile government chile frequently admitted obligation case promised government settle two abortive attempts arbitral commissions failed lack jurisdiction happily result recent diplomatic negotiations governments united states chile actuated sincere desire free strain cordial friendly relations upon set store agreed protocol submit controversy definitive settlement britannic majesty edward vii since washington conventions 1907 communicated government united states consulting advising party government almost continuously called upon one another turn five central american republics exert maintenance conventions nearly every complaint zelaya government nicaragua kept central america constant tension turmoil responses made representations central american republics due united states account relation washington conventions times conservative avoided far possible semblance interference although apparent considerations geographic proximity canal zone substantial american interests central america give united states special position zone republics caribbean sea need rehearse patient efforts government promote peace welfare among republics efforts fully appreciated majority loyal true interests would less unnecessary rehearse sad tale unspeakable barbarities oppression alleged committed zelaya government recently two americans put death order president zelaya reported regularly commissioned officers organized forces revolution continued many weeks control half republic according modern enlightened practice civilized nations entitled dealt prisoners war date message printed government terminated diplomatic relations zelaya government reasons made public communication former nicaraguan charge intending take future steps may found consistent dignity duty american interests moral obligations central america civilization may later necessary bring subject attention congress special message international bureau american republics carried important increasing work last year exercise peculiar functions international agency maintained american republics development commerce friendship accomplished great practical good could done way individual department bureau one government therefore deserving liberal support fact enter new building erected munificence american philanthropist contributions american nations efficiency administration expense maintenance naturally much augmented entitles special consideration far east government preserves unchanged policy supporting principle equality opportunity scrupulous respect integrity chinese empire policy pledged interested powers east west treaty 1903 china undertaken abolition likin moderate proportionate raising customs tariff along currency reform reforms manifest advantage foreign commerce well interests china government endeavoring facilitate measures needful acquiescence treaty powers appeared chinese likin revenues hypothecated foreign bankers connection great railway project obvious governments whose nationals held loan would certain direct interest question carrying china reforms question railroad loan represented practical real application open door policy cooperation china interested powers well relations reforms referred administration deemed american participation great national interest happily matter broad policy urgent opportunity lost indispensable instrumentality presented group american bankers international reputation great resources agreed share loan upon precisely terms government approve chief terms american railway material upon exact equality nationals joining loan placing orders whole railroad system months negotiation equal participation americans seems last assured gratifying americans thus take share extension great highways trade believe activities give real impetus commerce prove practical corollary historic policy far east imperial chinese government pursuance decision devote funds portion indemnity remitted united states sending students country already completed arrangements carrying purpose considerable body students arrived take work schools universities one doubt happy effect associations formed representative young men return take work progressive development country results opium conference held shanghai last spring invitation united states laid government report shows china making remarkable progress admirable efforts toward eradication opium evil governments concerned allowed commercial interests interfere helpful cooperation reform collateral investigations opium question country lead recommend manufacture sale use opium derivatives united states far possible rigorously controlled legislation one conventions september 4 year provision caused considerable public apprehension upon face believed quarters seek establish monopoly mining privileges along south manchurian railroads thus exclude americans wide field enterprise take part treaty china entitled thorough examination conventions several contextual documents secretary state reached conclusion monopoly intended accomplished however view widespread discussion question confirm view reached government made inquiry imperial chinese japanese governments received official assurance provision purpose inconsistent policy equality opportunity signatories common united states pledged traditional relations japanese empire continue cordial usual representative japan imperial highness prince kuni visited celebration recent visit delegation prominent business men guests chambers commerce pacific slope whose representatives agreeably received japan doubtless contribute growing trade across pacific well mutual understanding leads mutual appreciation arrangement 1908 cooperative control coming laborers united states proved work satisfactorily matter revision existing treaty united states japan terminable 1912 already receiving study countries department state considering revision whole part existing treaty siam concluded 1856 respect many provisions date earnestly recommend favorable action congress estimates submitted department state especially legislation suggested secretary state letter date whereby possible develop make permanent reorganization department upon modern lines manner make thoroughly efficient instrument furtherance foreign trade american interests abroad plan divisions far eastern affairs institute certain specialization business europe near east commend divisions detail diplomatic consular service department number men bring study complicated problems different parts world practical knowledge recently gained spot clearly greatest advantage secretary state foreseeing conditions likely arise conducting great variety correspondence negotiation remembered facilities exist foreign offices leading commercial nations deny secretary state would place government great disadvantage rivalry commercial competition consular service greatly improved law april 5 1906 executive order june 27 1906 commend consideration question embodying statute principles present executive order upon efficiency consular service wholly dependent modern times political commercial interests interrelated negotiation commercial treaties conventions tariff agreements keeping open opportunities proper support american enterprises diplomatic service quite important consular service business interests country impressed idea convinced selection rigorous examination promotion merit solely experience gained continuity organized service indispensable high degree efficiency diplomatic service signed executive order first step toward desirable result effect place secretaries diplomatic service much position consular officers placed tend promotion efficient grade minister generally leaving outside appointments posts grade ambassador minister may expedient fill without service proposed also continue practice instituted last summer giving newly appointed secretaries least one month thorough training department state proceed posts done time regard consular service excellent results provision act august 5 1909 appointed three officials assist officers government collecting information necessary wise administration tariff act august 5 1909 questions customs administration cooperating officials treasury department matters needs exigencies manufacturers exporters department commerce labor relation domestic aspect subject foreign commerce study foreign tariff treatment assist bureau trade relations department state hoped thus coordinate bring bear upon important subject agencies government contribute anything efficient handling consequence section 2 tariff act august 5 1909 becomes duty secretary state conduct diplomatic business negotiations necessary place position advise whether particular country unduly discriminates united states sense statute referred great scope complexity work well obligation lend proper aid expanding commerce met expansion bureau trade relations set forth estimates department state thus detail described important transactions state department since beginning administration reason provision either statute custom formal report secretary state president congress presidential message means condition foreign relations brought attention congress public dealing affairs departments heads submit annual reports shall touch matters seem call special mention part without minimizing way recommendations made legislation affecting respective departments wish express general concurrence perhaps important question presented administration economy expenditures sufficiency revenue deficit last fiscal year certain deficit current year prompted congress throw greater responsibility executive secretary treasury heretofore declared statute declaration imposes upon secretary treasury duty assembling estimates executive departments bureaus offices expenditures necessary ensuing fiscal year making estimate revenues government period probable deficit thus shown made duty president recommend method deficit met report secretary shows ordinary expenditures current fiscal year ending june 30 1910 exceed estimated receipts deficit added sum disbursed panama canal amounting paid public debt deficit ordinary receipts expenditures increased total deficit deficit secretary proposes meet proceeds bonds issued pay cost constructing panama canal approve proposal policy paying construction panama canal current revenue bond issues adopted spooner act 1902 seems good reason departing principle part least burden cost canal shall fall upon posterity enjoy reason view actual cost date canal half done completed january 1 1915 shows cost engineering construction instead originally estimated addition engineering construction expenses including sanitation government amount paid properties franchise privilege building canal increase cost total increase cost engineering construction due substantial enlargement plan construction widening canal 100 feet culebra cut increasing dimensions locks underestimate quantity work done original plan underestimate cost labor materials greatly enhanced price since original estimate made order avoid deficit ensuing fiscal year directed heads departments preparation estimates make low possible consistent imperative governmental necessity result advised secretary treasury estimates expenses government next fiscal year ending june 30 1911 less appropriations current fiscal year far secretary treasury able form judgment future income compare expenditures next fiscal year ending june 30 1911 excluding payments account panama canal doubtless taken bonds surplus present estimates needs departments government cut quick speak assumption part congress often made times past estimates prepared expectation may reduced result seriously hampering proper administration secretary treasury points carefully noted respect reduction governmental expenses next fiscal year economies two kinds first saving permanent administration departments bureaus offices government second present reduction expenses postponement projects improvements ultimately carried delayed hope additional revenue future permit execution without producing deficit impossible preparation estimates greatly reduce cost permanent administration done without thorough reorganization bureaus offices departments purpose securing information may enable executive legislative branches unite plan permanent reduction cost governmental administration treasury department instituted investigation one skilled expert accountants united states result work two three bureaus extended entire government must occupy two years show much room improvement opportunity substantial reductions cost increased efficiency administration object investigation devise means increase average efficiency employee great room improvement toward end reorganization bureaus departments avoidance duplication also treatment individual employee present system constantly happens two employees receive salary work one far difficult important exacting superior ability rewarded encouraged classification entirely salary employee often rises highest class easiest work alone may fitted investigation ordered predecessor resulted recommendation civil service reclassified according kind work work requiring application knowledge ability shall receive compensation believe change would fairer whole force would permanently improve personnel service every reform directed toward improvement average efficiency government employees must depend ability executive eliminate government service inefficient degree efficiency departments much lessened retention old employees outlived energy usefulness indispensable proper system economy provision made separation service shall easy inevitable impossible make provision unless adopted plan civil pensions great industrial organizations many railways country coming conclusion system pensions old employees substitution therefor younger energetic servants promotes economy efficiency administration aware strong feeling houses congress possibly country establishment civil pensions naturally grown heavy burden military pensions always policy government assume strongly convinced practical solution difficulties presented superannuation civil servants found system civil pensions business expenditures government expanded enormously since spanish war revenues increased nearly proportion expenditures recently attention public responsible government fastened upon question reducing cost administration view advancing prices living hope save money reduction standard salaries paid indeed change made regard increase rather decrease necessary means economy reducing number employees obtaining greater average efficiency retained service close investigation study needed make definite recommendations regard consume least two years note much satisfaction organization senate committee public expenditures charged duty conducting investigation tender committee assistance executive branch government possibly render regret refer fact discovery extensive frauds collections customs revenue new york city number subordinate employees weighing departments directly concerned beneficiaries american sugar refining company others frauds consisted payment duty underweights sugar government recovered american sugar refining company shown defrauded sum received full amount due might recovered civil suit beneficiary fraud express reservation contract settlement settlement interfere prevent criminal prosecution everyone found subject criminal prosecutions proceeding number government officers treasury department department justice exerting every effort discover wrongdoers including officers employees companies may privy fraud would seem investigation frauds congress present pending probing treasury department department justice proposed might giving immunity otherwise prove embarrassment securing conviction guilty parties two features new tariff act call special reference virtue clause known maximum minimum clause duty executive consider laws practices countries reference importation countries products merchandise united states executive finds laws practices unduly discriminatory united states minimum duties provided bill go force unless president makes finding maximum duties provided bill increase per cent ad valorem minimum duties force fear expressed power conferred duty imposed executive likely lead tariff war beg express hope belief result need anticipated discretion granted executive terms unduly discriminatory wide order maximum duty shall charged imports country necessary shall find part country discriminations laws practice trade united states discriminations found shall undue without good fair reason conceive power reposed president hope maximum duties might never applied case power apply would enable president state department friendly negotiation secure elimination laws practice foreign country unduly discriminatory one seeking tariff war condition spirit retaliation shall aroused new tariff law enables appoint tariff board assist connection department state administration minimum maximum clause act also assist officers government administration entire law examination law understanding nature facts considered discharging functions imposed upon executive show power direct tariff board make comprehensive glossary encyclopedia terms used articles embraced tariff law secure information cost production goods country cost production foreign countries therefore appointed tariff board consisting three members directed perform duties described work perhaps take two three years ask congress continuing annual appropriation equal already made prosecution believe work board prime utility importance whenever congress shall deem wise readjust customs duties facts secured tariff board character show generally rates duties imposed present tariff law excessive principles protection described platform successful party late election shall hesitate invite attention congress fact necessity action predicated thereon nothing however halts business interferes course prosperity much threatened revision tariff facts hand careful deliberate investigation upon revision properly undertaken seems unwise attempt amount misinformation creeps arguments pro con respect tariff rates require kind investigation directed tariff board make investigation undertaken wholly without respect effect facts may calling readjustment rates duty interest immediate economy prospect deficit required reduction estimates war department coming fiscal year brings total estimates amount millions less corresponding estimates last year could accomplished cutting new projects suspending period one year progress military matters reason directed army shall recruited present authorized strength measures hardly temporary last revenues better condition whole question expediency adopting definite military policy submitted congress sure interests military establishment seriously need careful consideration congress laws regulating organization armed forces event war need revised order organization modified produce force would consistently apportioned throughout numerous branches explain circumstances upon opinion based would necessitate lengthy discussion postpone first convenient opportunity shall arise send congress special message upon subject secretary war calls attention number needed changes army concur point upon place emphasis need elimination bill providing method merits officers shall effect upon advancement advancement may accelerated effective elimination definite proportion least efficient every army certainly number officers violate duty way give reason dismissal show aptitude skill character high command justify remaining active service promoted provision made may retired certain proportion pay increasing length service time retirement personnel law navy needs amendment shall make reference law needed quite much army coast defenses united states proper generally could desired respects rather elaborate present conditions needed stop enemy fleet entering harbors defended however one place additional defense badly needed mouth chesapeake bay proposed make artificial island fort shall prevent enemy fleet entering important strategical base operations whole atlantic gulf coasts hope appropriate legislation adopted secure construction defense military naval joint board unanimously agreed would unwise make large expenditures one time contemplated establishment naval base station philippine islands expressed judgment fully concur favor making extensive naval base pearl harbor near honolulu philippines dispense necessity comparatively small appropriations required finish proper coast defenses philippines construction island corregidor elsewhere complete suitable repair station coaling supply station olongapo floating dock dewey hope recommendation joint board end discussion comparative merits manila bay olongapo naval stations lead prompt measures proper equipment defense pearl harbor return fleet voyage around world efficient condition started noteworthy event interest alike citizens naval authorities world besides beneficial effect personal diplomatic relations countries fleet visited marked success ships steaming around world weathers schedule time increased respect navy added national prestige enlisted personnel recruited sections country young energetic representative national spirit moreover owing intelligence capable quick training modern officers earnest zealous profession regrettable fact higher officers old responsibilities modern navy admirals arrive flag rank young enough obtain adequate training duties flag officers need reform navy ably earnestly presented congress predecessor also urgently recommend subject consideration early coming session comprehensive plan reorganization officers corps navy presented congress hope meet action suited urgency owing necessity economy expenditures directed curtailment recommendations naval appropriations millions less corresponding estimates last year request new naval construction limited two battle ships one repair vessel use navy military purposes found need department military branch dealing directly military use fleet secretary navy also felt lack responsible advisers aid reaching conclusions deciding important matters coordinate branches department secure results inaugurated tentative plan involving certain changes organization navy department including found accordance law approved execution plan proposed greater efficiency economy promises generosity congress provided present naval observatory magnificent expensive astronomical establishment world used certain naval purposes might easily adequately subserved small division connected naval department fraction cost present naval observatory official board visitors established congress appointed 1901 expressed conclusion official head observatory eminent astronomer appointed president advice consent senate holding place tenure least permanent superintendent coast survey head geological survey merely detail two three years duration fully concur judgment urge provision law appointment director may necessary take observatory navy department put another department opportunity scientific research afforded observatory would seem appropriate though believe transfer long run best policy sure however express desire astronomers learned kindred sciences urge upon congress naval observatory dedicated science control man science need render service navy department observatory renders still furnish world discoveries astronomy great astronomer using plant would likely make deplorable delays administration civil criminal law received attention committees american bar association many state bar associations well considered thought judges jurists judgment change judicial procedure view reducing expense private litigants civil cases facilitating dispatch business final decision civil criminal cases constitutes greatest need american institutions doubt one moment much lawless violence cruelty exhibited lynchings directly due uncertainties injustice growing delays trials judgments executions thereof courts course remarks apply quite well administration justice state courts federal courts without making invidious distinction perhaps much say speaking generally defects less federal courts state courts great federal courts expedition business disposed civil criminal side english courts modern rules procedure makes delays courts seem archaic barbarous procedure federal courts furnish example state courts presume impossible without amendment constitution unite one form action proceedings common law proceedings equity federal courts certainly impossible statute simplify make short direct procedure law equity courts impossible cut still cut jurisdiction supreme court confine almost wholly statutory constitutional questions present statutes equity admiralty procedure federal courts control supreme court pressure business court subjected impossible hope radical proper reform federal equity procedure brought therefore recommend legislation providing appointment president commission authority examine law equity procedure federal courts first instance law appeals courts courts appeals supreme court costs imposed procedure upon private litigants upon public treasury make recommendation view simplifying expediting procedure far possible making inexpensive may litigant little means platform successful party last election contained following republican party uphold times authority integrity courts state federal ever insist powers enforce process protect life liberty property shall preserved inviolate believe however rules procedure federal courts respect issuance writ injunction accurately defined statute injunction temporary restraining order issued without notice except irreparable injury would result delay case speedy hearing thereafter granted recommend compliance promise thus made appropriate legislation adopted ends justice best met chief complaint injunctions without notice removed enactment statute forbidding hereafter issuing injunction restraining order whether temporary permanent federal court without previous notice reasonable opportunity heard behalf parties enjoined unless shall appear satisfaction court delay necessary give notice hearing would result irreparable injury complainant unless also court shall evidence make written finding shall spread upon court minutes immediate irreparable injury likely ensue complainant shall define injury state irreparable shall also endorse order issued date hour issuance order moreover every injunction restraining order issued without previous notice opportunity defendant heard force statute expire effect seven days issuance thereof within time less period court may fix unless within seven days less period injunction order extended renewed previous notice opportunity heard judgment passage act really embodies best practice equity like rule force courts prevent issuing orders injunction without notice render orders issued much less objectionable short time may remain effective jurisdiction general government interstate commerce led passage sherman law interstate commerce law amendments developments operation laws shown indictments trials judicial decisions sources information call discussion suggestions amendments prefer embody special message instead including present communication shall avail first convenient opportunity bring subjects attention congress predecessor transmitted congress special message january 11 1909 accompanying report commissioners theretofore appointed investigate jail workhouse district columbia directed attention report setting forth vividly really outrageous conditions workhouse jail congress taken action pursuance recommendations report president extent appropriating funds enacting necessary legislation establishment workhouse reformatory action however taken congress respect jail conditions still antiquated insanitary earnestly recommend passage sufficient appropriation enable thorough remodeling institution made without delay reproach national government almost shadow capitol dome prisoners confined building destitute ordinary decent appliances requisite cleanliness sanitary conditions deficit every year department largely caused low rate postage 1 cent pound charged mail matter includes newspapers magazines miscellaneous periodicals actual loss growing transmission mail matter 1 cent pound amounts year average cost transportation matter 9 cents pound appears average distance newspapers delivered customers 291 miles average haul magazines miscellaneous periodicals miles thus average haul magazine three times miscellaneous periodical nearly four times haul daily newspaper yet pay postage rate 1 cent pound statistics 1907 show mail matter constituted per cent weight mail yielded per cent revenue figures given startling show payment government enormous subsidy newspapers magazines periodicals congress may well consider whether radical steps taken reduce deficit department caused discrepancy actual cost transportation compensation exacted therefor great saving might made amounting much half loss imposing upon magazines periodicals higher rate postage much heavier newspapers contain much higher proportion advertising reading matter average distance transportation three half times great total deficit last fiscal year department amounted branches business loss mail service loss already said free rural delivery loss losses part offset profits letter postage sources income would seem wise reduce loss upon mail matter least extent preventing deficit total operations commend whole subject congress unmindful spread intelligence low charge carrying newspapers periodicals assists much doubt however wisdom policy constitutes large subsidy requires additional taxation meet second subject worthy mention department real necessity entire practicability establishing postal savings banks successful party last election declared favor postal savings banks although proposition finds opponents many parts country convinced people desire banks sure banks furnished productive utmost good postal savings banks constituted purpose creating competition banks rate interest upon deposits would limited would small prevent drawing deposits away banks believe necessary order offer proper inducement thrift saving great many people small means banking facilities system would offer opportunity accumulation capital furnish satisfactory substitute based sound principle actual successful trial nearly countries world system government guaranty deposits adopted several western states deference advocate seems seeds demoralization conservative banking certain financial disaster question money deposited postal savings banks shall invested free difficulty believe satisfactory provision purpose inserted amendment bill considered senate last session proposed delay consideration legislation establishing postal savings bank report monetary commission report likely delayed properly necessity careful deliberation close investigation see one tied understood monetary commission looked systems banking prevail abroad found control exercised respect reserves rates exchange central authority panics avoided apparent system postal savings banks would way interfere change system certainly countries europe control thus exercised central authority postal savings banks exist thought inconsistent proper financial banking system following course distinguished predecessor earnestly recommend congress consideration passage ship subsidy bill looking establishment lines atlantic seaboard eastern coast south america well lines west coast united states south america china japan philippines profits foreign mails perhaps sufficient measure expenditures might first tentatively applied method inducing american capital undertake establishment american lines steamships directions feel important means transportation controlled interest expansion trade bill character passed house passed senate hope session bill framed lines purposes may become law successful party last election national platform declared favor admission separate states new mexico arizona recommend legislation appropriate end adopted urge however care exercised preparation legislation affecting territory secure deliberation selection persons members convention draft constitution incoming state earnestly advise constitution adoption convention shall submitted people territory approval election sole issue shall merits proposed constitution constitution defeated popular vote means shall provided enabling act new convention drafting new constitution think vital issue merits constitution mixed selection state officers election state officers constitution fully approved finally settled upon respect territory alaska recommend legislation shall provide appointment president governor also executive council members shall term office reside territory shall legislative powers sufficient enable give territory local laws adapted present growth strongly deprecate legislation looking election territorial legislature vast district lack permanence residence large part present population small number people either permanently temporarily reside district compared vast expanse variety interests subserved make altogether unfitting judgment provide popular election legislative body present system adequate furnish character local control ought compromise seems may give needed local legislation secure conservative government one propose several departments presented necessity legislation looking conservation national resources subject one importance require detailed extended discussion entered upon communication reason shall take early opportunity send special message congress subject improvement waterways upon reclamation irrigation arid semiarid swamp lands upon preservation forests reforesting suitable areas upon reclassification public domain view separating agricultural settlement mineral coal phosphate lands sites belonging government bordering streams suitable utilization water power commend careful consideration report secretary agriculture showing immense sphere usefulness department fills wonderful addition wealth nation made farmers country crops current year board discharges duties department commerce labor upwards forty years board constituted military naval officers two three men science absence duly constituted executive head marvelous work accomplished period construction energy enthusiasm members prevented inherent defects system interfering greatly beneficial work board work chiefly confined maintenance repair purpose country divided sixteen districts assigned engineer officer army inspector navy tender needed plant work become apparent frequent friction arises due absence central independent authority must complete reorganization board concede advantage keeping system rigidity discipline presence naval military officers charge insures unless presence officers board made consistent responsible executive head shall proper authority recommend transfer control suitable civilian bureau accordance judgment competent persons familiar workings present system confident reorganization effected shall avoid recurrence friction members instances officially brought attention reorganization greater efficiency substantial reduction expense operation brought request congressional authority enable secretary commerce labor unite bureaus manufactures statistics recommended competent committee appointed previous administration purpose suggesting changes interest economy efficiency requested secretary greatly regret say investigations made bureau immigration sources information lead view urgent necessity additional legislation greater executive activity suppress recruiting ranks prostitutes streams immigration country evil want better name called white slave trade believe constitutional forbid penalty transportation persons purposes prostitution across national state lines appropriating fund used secretary commerce labor employment special inspectors possible bring responsible trade indictment conviction federal law considerable period movement gathering strength especially among members medical profession favor concentration instruments national government promotion public health nature things medical department army medical department navy must kept separate seems reason bureaus offices general government public health subjects akin thereto united bureau called bureau public health would necessitate transfer service bureau aware wide field respect public health committed states federal government exercise jurisdiction seen agricultural department expansion widest usefulness department giving attention agriculture subject plainly one states properly exercise direct jurisdiction opportunities offered useful research spread useful information regard cultivation soil breeding stock solution many intricate problems progressive agriculture demonstrated wisdom establishing department similar reasons equal force given establishment bureau health shall exercise police jurisdiction federal government respecting quarantine shall also afford opportunity investigation research competent experts questions health affecting whole country important sections thereof questions absence federal governmental work likely promptly solved work united states civil service commission performed general satisfaction executive officers commission brought official communication volume work variety extent new laws census act new executive orders greatly increased activities commission required statutes reached every portion public domain accommodations commission inadequate needs call attention request increase accommodations appear annual report year urgently recommend congress law passed requiring candidates elections members house representatives committees charge candidacy campaign file proper office united states government statement contributions received expenditures incurred campaign elections similar legislation enacted respect elections constitutionally within control congress recommendations made predecessors congress appropriate sufficient sum pay balance 38 per amounts due depositors freedman savings trust company renew recommendation advise also proper limitation prescribed fixing period within claims may presented assigned claims recognized limit imposed amount fees collectible services presenting claims year 1913 mark fiftieth anniversary issuance emancipation proclamation granting freedom negroes seems fitting event properly celebrated already movement started prominent negroes encouraged prominent white people press south especially manifesting interest movement suggested proper form celebration would exposition show progress negroes made period freedom also time coming country heartily indorse proposal request executive authorized appoint preliminary commission seven persons consider carefully whether wise hold exposition outline plan enterprise recommend preliminary commission serve without salary except actual expenses appropriation made meet expenses thus message compressed much subjects permit referred many legislative needs country exceptions already noted speaking generally country high state prosperity every reason believe eve substantial business expansion garnered harvest unexampled market value agricultural products high prices products bring mean great prosperity farming community hand mean considerably increased burden upon classes community whose yearly compensation expand improvement business general prosperity various reasons given high prices proportionate increase output gold chief medium exchange respects measure value furnishes substantial explanation least part increase prices increase population expensive mode living people accompanied proportionate increase acreage production may furnish reason well note increase cost living confined country prevails world would charge increases prices existing protective tariff must meet fact rise prices taken place almost wholly products factory farm respect either increase tariff many instances considerable reduction
relation united state foreign government continue upon normal basis amity good understanding generally satisfactory pursuant provision general treaty arbitration conclude united state great britain april 4 1908 special agreement enter two country january 27 1909 submission question relate fishery north atlantic coast tribunal form member permanent court arbitration hague accordance provision special agreement print case government october 4 last submitted arbitral tribunal hague counter case united state course preparation american right fishery article treaty 1818 difference united state great britain nearly seventy year interest involve great importance american fishing industry final settlement controversy remove source constant irritation complaint first case involve great international question submit permanent court arbitration hague treaty united state great britain concern canadian international boundary conclude april 11 1908 authorizes appointment two commissioner define mark accurately international boundary line united state dominion canada water passamaquoddy bay provide exchange brief within period six month brief duly present within prescribed period commissioner fail agree within six month exchange print statement require treaty become necessary resort arbitration provide article international fishery commission appoint pursuant authority convention april 11 1908 united state great britain complete system uniform common international regulation protection preservation food fish international boundary water united state canada regulation duly submit congress view enactment legislation necessary convention put operation convention provide settlement international difference united state canada include apportionment two country certain boundary water appointment commissioner adjust certain question sign 11th day january 1909 ratification senate give advice consent march 3 1909 yet ratify part great britain commissioner appoint part united state act jointly commissioner part canada examine question obstruction john river maine new brunswick make recommendation regulation use thereof engage work negotiation international conference consider reach arrangement provide preservation protection fur seal north pacific progress government great britain japan russia attitude government interested lead hope satisfactory settlement question ultimate outcome negotiation second peace conference recently hold hague adopt convention establishment international prize court upon joint proposal delegation united state france germany great britain law observe tribunal decision prize case however leave uncertain therefore unsatisfactory state article 7 convention provide court govern provision treaty exist belligerent absence provision court shall apply rule international law generally recognize rule exist court shall give judgment accordance general principle justice equity however many question international maritime law understood differently therefore interpret differently various country deem advisable intrust legislative power propose court determine rule law properly applicable conference representative maritime nation pursuant invitation great britain conference hold london december 2 1908 february 26 1909 follow power participate united state france germany great britain italy japan netherlands russia spain conference result declaration london unanimously agree sign participate power concern among matter highly important subject blockade contraband destruction neutral prize continuous voyage declaration london eminently satisfactory codification international maritime law hop reasonableness fairness secure general adoption well remove one difficulty stand way establishment international prize court authority give sundry civil appropriation act approve march 4 1909 united state represent international conference maritime law brussels conference meet 28th september last resulted signature ad referendum convention unification certain regulation regard maritime assistance salvage convention unification certain rule regard collision sea two new project convention heretofore consider diplomatic conference namely one concern limitation responsibility shipowner concern marine mortgage privilege submit conference different government conference adjourn meet april 11 1910 international conference purpose promote uniform legislation concern letter exchange call government netherlands meet hague september 1909 postpone meet capital june 1910 united state appropriately represent conference provision therefor already make congress cordial invitation belgium represent fitting display american progress useful art invention world fair hold brussels 1910 remain act upon congress mindful advantage accrue artisans producer competition continental rival renew recommendation heretofore make provision make acceptance invitation adequate representation exposition question arise belgian annexation independent state congo long earnestly preoccupy attention government enlist sympathy best citizen still open hopeful stage government among foremost great work uplift uncivilized region africa urge extension benefit civilization education fruitful open commerce vast domain party treaty engagement interested power design carry great duty humanity way well original adventitious condition burdensome native destructive development point observation experience alone american representative cumulative evidence quarter investigation belgian agent announce programme reform strike many evil know exist augury well thing attitude united state one benevolent encouragement couple hopeful trust good work responsibly undertaken zealously perfect accomplishment result ardently desire soon justify wisdom inspires satisfy demand humane sentiment throughout world convention united state germany nonworking provision german patent law make inapplicable patent american citizen conclude february 23 1909 force negotiation similar convention look place american inventor foot national recently initiate european government whose law require local work foreign patent appropriation make last session congress commission send american cruiser monrovia investigate interest unite state citizen liberia upon arrival monrovia commission enthusiastically receive stay liberia everywhere meet hearty expression good american government people hope repeatedly express side government might see way clear something relieve critical position republic arise measure external well internal financial embarrassment liberian government afford every facility commission ascertain true state affair commission also conferences representative citizen interested foreigner representative foreign government monrovia visit make various part republic neighbor british colony sierra leone commission receive conferred governor remember interest unite state republic liberia spring historical fact foundation republic colonization american citizen african race early treaty liberia provision united state may call upon advice assistance pursuant provision spirit moral relationship united state liberia republic last year ask government lend assistance solution certain national problem hence commission send report commissioner complete examination department state hop may result helpful measure case may duty invite attention subject norwegian government note address january 26 1909 department state convey invitation government united state take part conference understand held february march 1910 purpose devise mean remedy exist condition spitzbergen island invitation convey reservation question alter status island country belong particular state equally open citizen subject state raise european power invite conference government norway belgium denmark france germany great britain russia sweden netherlands department state view proof file 1906 show american possession occupation work certain land spitzbergen accept invitation reservation state reservation interest islands already vest protected equality opportunity future point membership conference part united state qualify consideration government would become signatory conventional arrangement conclude european member conference would imply contributory participation united state obligation responsibility enforcement scheme administration might devise conference island majesty mehmed v sultan turkey recently send country special embassy announce accession quick transition government ottoman empire one retrograde tendency constitutional government parliament progressive modern policy reform public improvement one important phenomenon time constitutional government seem also make advance persia event turn eyes world upon near east quarter prestige united state spread widely peaceful influence american school university missionary every reason obtain great share commerce near east since condition favorable ever one happy event recent diplomacy pacific independent settlement government bolivia peru boundary difference week threaten war even entrain embitterment affect republic less directly concern various quarter directly indirectly concerned intermediation united state seek assist solution controversy desire time abstain undue mingle affair sister republic faith ability government peru bolivia settle difference manner satisfactory view magnanimity would assuage embitterment government steadily abstain draw controversy much gratify find confidence justified event 9th july next open buenos aire fourth conference conference special meaning heart americans around date cluster anniversary independence many american republic necessary remind congress political social commercial importance gathering ask make liberal appropriation participation grant purpose appoint distinguish representative delegation qualify fittingly represent country deal problem intercontinental interest discuss argentine republic also hold may november 1910 buenos air great international agricultural exhibition united state invite participate consider rapid growth trade unite state argentine republic cordial relation exist two nation together fact provide opportunity show deference sister republic occasion celebration national independence proper department government take step apprise interest concerned opportunity afford exhibition appropriate participation country desirable designation official representative also receive consideration ever american capital seek investment foreign country american product generally seek foreign market consequence country american citizen american interest protect occasion government movement men capital commodity bring people government closer together form bond peace mutual dependency must also naturally sometimes make passing point friction resultant situation inevitably impose upon government vastly increase responsibility administration department state foreign service lend proper support legitimate beneficial american enterprise foreign country degree support measure national advantage expect citizen contract otherwise divest right government escape obligation protection personal property right unjustly infringe foreign country avoid ceaseless vexation proper consider whether american enterprise encourage supported particular country government give full weight national oppose individual benefit accrue also fact whether government country question administration diplomacy faithful principle moderation equity justice upon alone depend international credit diplomacy well finance policy government long fixed principle remain unchanged change circumstance united state republic south u great natural resource stable government progressive ideal apprehension give rise monroe doctrine may say nearly disappear neither doctrine exist doctrine american policy permit operate perpetuation irresponsible government escape obligation insidious allegation dominate ambition part united state beside fundamental doctrine policy grow realization political interest community institution ideal flourish commerce bond greatly strengthen time go increase facility great bank soon establish latin america supply mean building colossal intercontinental commerce future meeting president diaz greet exchange american mexican soil serve hope signalize close cordial relation well bind together republic great republic immediately south vast network material interest happy say one case long vexed relation venezuela settle within past month enlighten regime directing government venezuela provision make arbitration remain case hague tribunal july 30 1909 government panama agree considerable negotiation indemnify relative american officer sailor brutally treat one indeed kill panaman police year sincere desire government panama away situation accident could occur manifest recent request compliance government lent service officer army employed government panama instructor police sanitary improvement public work undertaken cuba prior present administration government success unite state interested treaty report make good progress since congress provide continuance reciprocal commercial arrangement cuba united state assurance receive negotiation injuriously affect situation undertake without consultation collection custom dominican republic general receiver custom appoint president united state accordance convention february 8 1907 proceed uneventful satisfactory manner custom receipt decrease owe disturbed political economic condition natural curtailment import view anticipated revision dominican tariff schedule payment fiscal agency fund service bond debt republic provide convention regularly promptly make satisfactory progress make carry provision convention look towards completion adjustment debt acquirement dominican government certain concession monopoly burden commerce country short receivership demonstrate ability even unfavorable economic political condition work intended government oblige intervene diplomatically bring arbitration settlement claim emery company nicaragua long agree arbitrate settlement troublesome case reach signature protocol september 18 1909 many year ago diplomatic intervention become necessary protection interest american claim alsop company government chile government chile frequently admit obligation case promised government settle two abortive attempt arbitral commission fail lack jurisdiction happily result recent diplomatic negotiation government united state chile actuate sincere desire free strain cordial friendly relation upon set store agree protocol submit controversy definitive settlement britannic majesty edward vii since washington convention 1907 communicated government unite state consult advise party government almost continuously call upon one another turn five central american republic exert maintenance convention nearly every complaint zelaya government nicaragua keep central america constant tension turmoil response make representation central american republic due united state account relation washington convention times conservative avoid far possible semblance interference although apparent consideration geographic proximity canal zone substantial american interest central america give united state special position zone republic caribbean sea need rehearse patient effort government promote peace welfare among republic effort fully appreciate majority loyal true interest would less unnecessary rehearse sad tale unspeakable barbarity oppression allege committed zelaya government recently two american put death order president zelaya report regularly commission officer organize force revolution continue many week control half republic accord modern enlighten practice civilize nation entitle dealt prisoner war date message print government terminate diplomatic relation zelaya government reason make public communication former nicaraguan charge intend take future step may find consistent dignity duty american interest moral obligation central america civilization may later necessary bring subject attention congress special message international bureau american republic carry important increase work last year exercise peculiar function international agency maintain american republic development commerce friendship accomplish great practical good could do way individual department bureau one government therefore deserve liberal support fact enter new building erect munificence american philanthropist contribution american nation efficiency administration expense maintenance naturally much augment entitle special consideration far east government preserve unchanged policy support principle equality opportunity scrupulous respect integrity chinese empire policy pledge interested power east west treaty 1903 china undertaken abolition likin moderate proportionate raise custom tariff along currency reform reform manifest advantage foreign commerce well interest china government endeavor facilitate measure needful acquiescence treaty power appear chinese likin revenue hypothecate foreign banker connection great railway project obvious government whose national hold loan would certain direct interest question carry china reform question railroad loan represent practical real application open door policy cooperation china interested power well relation reform refer administration deem american participation great national interest happily matter broad policy urgent opportunity lose indispensable instrumentality present group american banker international reputation great resource agree share loan upon precisely term government approve chief term american railway material upon exact equality national join loan place order whole railroad system month negotiation equal participation americans seem last assured gratifying american thus take share extension great highway trade believe activity give real impetus commerce prove practical corollary historic policy far east imperial chinese government pursuance decision devote fund portion indemnity remit united state send student country already complete arrangement carry purpose considerable body student arrive take work school universities one doubt happy effect association form representative young men return take work progressive development country result opium conference hold shanghai last spring invitation united state laid government report show china make remarkable progress admirable effort toward eradication opium evil government concern allow commercial interest interfere helpful cooperation reform collateral investigation opium question country lead recommend manufacture sale use opium derivative united state far possible rigorously control legislation one convention september 4 year provision cause considerable public apprehension upon face believe quarter seek establish monopoly mining privilege along south manchurian railroad thus exclude american wide field enterprise take part treaty china entitle thorough examination convention several contextual document secretary state reach conclusion monopoly intend accomplish however view widespread discussion question confirm view reach government make inquiry imperial chinese japanese government receive official assurance provision purpose inconsistent policy equality opportunity signatory common united state pledge traditional relation japanese empire continue cordial usual representative japan imperial highness prince kuni visit celebration recent visit delegation prominent business men guests chamber commerce pacific slope whose representative agreeably receive japan doubtless contribute grow trade across pacific well mutual understand lead mutual appreciation arrangement 1908 cooperative control come laborer united state prove work satisfactorily matter revision exist treaty united state japan terminable 1912 already receive study country department state consider revision whole part exist treaty siam conclude 1856 respect many provision date earnestly recommend favorable action congress estimate submit department state especially legislation suggest secretary state letter date whereby possible develop make permanent reorganization department upon modern line manner make thoroughly efficient instrument furtherance foreign trade american interest abroad plan division far eastern affair institute certain specialization business europe near east commend division detail diplomatic consular service department number men bring study complicate problem different part world practical knowledge recently gain spot clearly great advantage secretary state foreseeing condition likely arise conduct great variety correspondence negotiation remember facility exist foreign office lead commercial nation deny secretary state would place government great disadvantage rivalry commercial competition consular service greatly improve law april 5 1906 executive order june 27 1906 commend consideration question embody statute principle present executive order upon efficiency consular service wholly dependent modern time political commercial interest interrelate negotiation commercial treaty convention tariff agreement keep open opportunity proper support american enterprise diplomatic service quite important consular service business interest country impress idea convince selection rigorous examination promotion merit solely experience gain continuity organize service indispensable high degree efficiency diplomatic service sign executive order first step toward desirable result effect place secretary diplomatic service much position consular officer place tend promotion efficient grade minister generally leave outside appointment post grade ambassador minister may expedient fill without service propose also continue practice institute last summer give newly appoint secretary least one month thorough training department state proceed post do time regard consular service excellent result provision act august 5 1909 appoint three official assist officer government collect information necessary wise administration tariff act august 5 1909 question custom administration cooperate official treasury department matter need exigency manufacturer exporter department commerce labor relation domestic aspect subject foreign commerce study foreign tariff treatment assist bureau trade relation department state hop thus coordinate bring bear upon important subject agency government contribute anything efficient handle consequence section 2 tariff act august 5 1909 becomes duty secretary state conduct diplomatic business negotiation necessary place position advise whether particular country unduly discriminates united state sense statute refer great scope complexity work well obligation lend proper aid expand commerce meet expansion bureau trade relation set forth estimate department state thus detail describe important transaction state department since begin administration reason provision either statute custom formal report secretary state president congress presidential message mean condition foreign relation bring attention congress public deal affair department head submit annual report shall touch matter seem call special mention part without minimize way recommendation make legislation affect respective department wish express general concurrence perhaps important question present administration economy expenditures sufficiency revenue deficit last fiscal year certain deficit current year prompt congress throw great responsibility executive secretary treasury heretofore declare statute declaration imposes upon secretary treasury duty assemble estimate executive department bureaus office expenditures necessary ensue fiscal year make estimate revenue government period probable deficit thus show make duty president recommend method deficit meet report secretary show ordinary expenditure current fiscal year end june 30 1910 exceed estimate receipt deficit add sum disburse panama canal amounting pay public debt deficit ordinary receipt expenditure increase total deficit deficit secretary propose meet proceeds bond issue pay cost constructing panama canal approve proposal policy pay construction panama canal current revenue bond issue adopt spooner act 1902 seem good reason depart principle part least burden cost canal shall fall upon posterity enjoy reason view actual cost date canal half do complete january 1 1915 show cost engineering construction instead originally estimate addition engineering construction expense include sanitation government amount pay property franchise privilege building canal increase cost total increase cost engineering construction due substantial enlargement plan construction widen canal 100 foot culebra cut increase dimension lock underestimate quantity work do original plan underestimate cost labor material greatly enhanced price since original estimate make order avoid deficit ensue fiscal year direct head department preparation estimate make low possible consistent imperative governmental necessity result advise secretary treasury estimate expense government next fiscal year end june 30 1911 less appropriation current fiscal year far secretary treasury able form judgment future income compare expenditures next fiscal year end june 30 1911 exclude payment account panama canal doubtless take bond surplus present estimate need department government cut quick speak assumption part congress often make time past estimate prepared expectation may reduce result seriously hamper proper administration secretary treasury point carefully note respect reduction governmental expense next fiscal year economy two kind first save permanent administration department bureaus office government second present reduction expense postponement project improvement ultimately carry delay hope additional revenue future permit execution without produce deficit impossible preparation estimate greatly reduce cost permanent administration do without thorough reorganization bureau office department purpose secure information may enable executive legislative branch unite plan permanent reduction cost governmental administration treasury department institute investigation one skilled expert accountant united state result work two three bureau extend entire government must occupy two year show much room improvement opportunity substantial reduction cost increase efficiency administration object investigation devise mean increase average efficiency employee great room improvement toward end reorganization bureau department avoidance duplication also treatment individual employee present system constantly happen two employee receive salary work one far difficult important exact superior ability reward encourage classification entirely salary employee often rise high class easy work alone may fit investigation order predecessor result recommendation civil service reclassify accord kind work work require application knowledge ability shall receive compensation believe change would fairer whole force would permanently improve personnel service every reform direct toward improvement average efficiency government employee must depend ability executive eliminate government service inefficient degree efficiency department much lessen retention old employee outlive energy usefulness indispensable proper system economy provision make separation service shall easy inevitable impossible make provision unless adopt plan civil pension great industrial organization many railway country come conclusion system pension old employee substitution therefor young energetic servant promote economy efficiency administration aware strong feeling house congress possibly country establishment civil pension naturally grow heavy burden military pension always policy government assume strongly convinced practical solution difficulty present superannuation civil servant find system civil pension business expenditures government expand enormously since spanish war revenue increase nearly proportion expenditure recently attention public responsible government fasten upon question reduce cost administration view advance price live hope save money reduction standard salary pay indeed change make regard increase rather decrease necessary mean economy reduce number employee obtain great average efficiency retain service close investigation study need make definite recommendation regard consume least two year note much satisfaction organization senate committee public expenditure charge duty conduct investigation tender committee assistance executive branch government possibly render regret refer fact discovery extensive fraud collection custom revenue new york city number subordinate employee weigh department directly concerned beneficiary american sugar refine company others frauds consisted payment duty underweights sugar government recover american sugar refine company show defraud sum receive full amount due might recover civil suit beneficiary fraud express reservation contract settlement settlement interfere prevent criminal prosecution everyone find subject criminal prosecution proceed number government officer treasury department department justice exert every effort discover wrongdoer include officer employee company may privy fraud would seem investigation fraud congress present pending probe treasury department department justice propose might give immunity otherwise prove embarrassment secure conviction guilty party two feature new tariff act call special reference virtue clause know maximum minimum clause duty executive consider law practice country reference importation country product merchandise united state executive find law practice unduly discriminatory united state minimum duty provide bill go force unless president make find maximum duty provide bill increase per cent ad valorem minimum duty force fear express power confer duty impose executive likely lead tariff war beg express hope belief result need anticipate discretion grant executive term unduly discriminatory wide order maximum duty shall charge import country necessary shall find part country discrimination law practice trade unite state discrimination find shall undue without good fair reason conceive power repose president hope maximum duty might never apply case power apply would enable president state department friendly negotiation secure elimination law practice foreign country unduly discriminatory one seek tariff war condition spirit retaliation shall arouse new tariff law enable appoint tariff board assist connection department state administration minimum maximum clause act also assist officer government administration entire law examination law understanding nature fact consider discharge function impose upon executive show power direct tariff board make comprehensive glossary encyclopedia term use article embrace tariff law secure information cost production good country cost production foreign country therefore appoint tariff board consist three member direct perform duty describe work perhaps take two three year ask congress continue annual appropriation equal already make prosecution believe work board prime utility importance whenever congress shall deem wise readjust custom duty fact secure tariff board character show generally rate duty impose present tariff law excessive principle protection describe platform successful party late election shall hesitate invite attention congress fact necessity action predicate thereon nothing however halt business interferes course prosperity much threaten revision tariff fact hand careful deliberate investigation upon revision properly undertaken seem unwise attempt amount misinformation creep argument pro con respect tariff rate require kind investigation direct tariff board make investigation undertake wholly without respect effect fact may call readjustment rate duty interest immediate economy prospect deficit require reduction estimate war department come fiscal year bring total estimate amount million less correspond estimate last year could accomplish cut new project suspend period one year progress military matter reason direct army shall recruit present authorized strength measure hardly temporary last revenue well condition whole question expediency adopt definite military policy submit congress sure interest military establishment seriously need careful consideration congress law regulate organization arm force event war need revise order organization modify produce force would consistently apportion throughout numerous branch explain circumstance upon opinion base would necessitate lengthy discussion postpone first convenient opportunity shall arise send congress special message upon subject secretary war call attention number need change army concur point upon place emphasis need elimination bill provide method merit officer shall effect upon advancement advancement may accelerate effective elimination definite proportion least efficient every army certainly number officer violate duty way give reason dismissal show aptitude skill character high command justify remain active service promote provision make may retire certain proportion pay increase length service time retirement personnel law navy need amendment shall make reference law need quite much army coast defense united state proper generally could desire respect rather elaborate present condition need stop enemy fleet enter harbor defend however one place additional defense badly need mouth chesapeake bay propose make artificial island fort shall prevent enemy fleet enter important strategical base operation whole atlantic gulf coast hope appropriate legislation adopt secure construction defense military naval joint board unanimously agree would unwise make large expenditure one time contemplate establishment naval base station philippine island express judgment fully concur favor make extensive naval base pearl harbor near honolulu philippine dispense necessity comparatively small appropriation require finish proper coast defense philippines construction island corregidor elsewhere complete suitable repair station coal supply station olongapo float dock dewey hope recommendation joint board end discussion comparative merit manila bay olongapo naval station lead prompt measure proper equipment defense pearl harbor return fleet voyage around world efficient condition start noteworthy event interest alike citizen naval authority world besides beneficial effect personal diplomatic relation country fleet visit marked success ship steam around world weather schedule time increase respect navy add national prestige enlist personnel recruit section country young energetic representative national spirit moreover owe intelligence capable quick training modern officer earnest zealous profession regrettable fact high officer old responsibility modern navy admiral arrive flag rank young enough obtain adequate training duty flag officer need reform navy ably earnestly present congress predecessor also urgently recommend subject consideration early come session comprehensive plan reorganization officer corps navy present congress hope meet action suit urgency owe necessity economy expenditure direct curtailment recommendation naval appropriation million less correspond estimate last year request new naval construction limit two battle ship one repair vessel use navy military purpose find need department military branch deal directly military use fleet secretary navy also felt lack responsible adviser aid reach conclusion decide important matter coordinate branch department secure result inaugurate tentative plan involve certain change organization navy department include find accordance law approve execution plan propose great efficiency economy promise generosity congress provide present naval observatory magnificent expensive astronomical establishment world use certain naval purpose might easily adequately subserve small division connect naval department fraction cost present naval observatory official board visitor establish congress appoint 1901 expressed conclusion official head observatory eminent astronomer appoint president advice consent senate hold place tenure least permanent superintendent coast survey head geological survey merely detail two three year duration fully concur judgment urge provision law appointment director may necessary take observatory navy department put another department opportunity scientific research afford observatory would seem appropriate though believe transfer long run best policy sure however express desire astronomer learn kindred science urge upon congress naval observatory dedicate science control man science need render service navy department observatory render still furnish world discovery astronomy great astronomer use plant would likely make deplorable delay administration civil criminal law receive attention committee american bar association many state bar association well consider think judge jurist judgment change judicial procedure view reduce expense private litigant civil case facilitate dispatch business final decision civil criminal case constitute great need american institution doubt one moment much lawless violence cruelty exhibit lynching directly due uncertainty injustice grow delay trial judgment execution thereof court course remark apply quite well administration justice state court federal court without make invidious distinction perhaps much say speak generally defect less federal court state court great federal court expedition business dispose civil criminal side english court modern rule procedure make delay court seem archaic barbarous procedure federal court furnish example state court presume impossible without amendment constitution unite one form action proceeding common law proceeding equity federal court certainly impossible statute simplify make short direct procedure law equity court impossible cut still cut jurisdiction supreme court confine almost wholly statutory constitutional question present statute equity admiralty procedure federal court control supreme court pressure business court subject impossible hope radical proper reform federal equity procedure bring therefore recommend legislation provide appointment president commission authority examine law equity procedure federal court first instance law appeal court court appeal supreme court cost impose procedure upon private litigant upon public treasury make recommendation view simplify expedite procedure far possible make inexpensive may litigant little mean platform successful party last election contain following republican party uphold time authority integrity court state federal ever insist power enforce process protect life liberty property shall preserve inviolate believe however rule procedure federal court respect issuance writ injunction accurately define statute injunction temporary restrain order issue without notice except irreparable injury would result delay case speedy hearing thereafter grant recommend compliance promise thus make appropriate legislation adopt end justice best meet chief complaint injunction without notice remove enactment statute forbid hereafter issue injunction restrain order whether temporary permanent federal court without previous notice reasonable opportunity hear behalf party enjoin unless shall appear satisfaction court delay necessary give notice hearing would result irreparable injury complainant unless also court shall evidence make write find shall spread upon court minute immediate irreparable injury likely ensue complainant shall define injury state irreparable shall also endorse order issue date hour issuance order moreover every injunction restrain order issue without previous notice opportunity defendant hear force statute expire effect seven day issuance thereof within time less period court may fix unless within seven day less period injunction order extend renew previous notice opportunity heard judgment passage act really embody best practice equity like rule force court prevent issue order injunction without notice render order issue much less objectionable short time may remain effective jurisdiction general government interstate commerce lead passage sherman law interstate commerce law amendments development operation law show indictment trial judicial decision source information call discussion suggestion amendment prefer embody special message instead include present communication shall avail first convenient opportunity bring subject attention congress predecessor transmit congress special message january 11 1909 accompany report commissioner theretofore appoint investigate jail workhouse district columbia direct attention report set forth vividly really outrageous condition workhouse jail congress take action pursuance recommendation report president extent appropriate fund enact necessary legislation establishment workhouse reformatory action however take congress respect jail condition still antiquate insanitary earnestly recommend passage sufficient appropriation enable thorough remodel institution make without delay reproach national government almost shadow capitol dome prisoner confine build destitute ordinary decent appliance requisite cleanliness sanitary condition deficit every year department largely cause low rate postage 1 cent pound charge mail matter include newspaper magazine miscellaneous periodical actual loss grow transmission mail matter 1 cent pound amount year average cost transportation matter 9 cent pound appear average distance newspaper deliver customer 291 mile average haul magazine miscellaneous periodical mile thus average haul magazine three time miscellaneous periodical nearly four time haul daily newspaper yet pay postage rate 1 cent pound statistic 1907 show mail matter constitute per cent weight mail yield per cent revenue figure give startle show payment government enormous subsidy newspaper magazine periodical congress may well consider whether radical step take reduce deficit department cause discrepancy actual cost transportation compensation exact therefor great saving might make amount much half loss impose upon magazine periodical higher rate postage much heavy newspaper contain much high proportion advertising read matter average distance transportation three half time great total deficit last fiscal year department amount branch business loss mail service loss already say free rural delivery loss loss part offset profit letter postage source income would seem wise reduce loss upon mail matter least extent prevent deficit total operation commend whole subject congress unmindful spread intelligence low charge carry newspaper periodical assist much doubt however wisdom policy constitute large subsidy require additional taxation meet second subject worthy mention department real necessity entire practicability establish postal saving bank successful party last election declare favor postal saving bank although proposition find opponent many part country convince people desire bank sure bank furnish productive utmost good postal saving bank constitute purpose create competition bank rate interest upon deposit would limit would small prevent draw deposit away bank believe necessary order offer proper inducement thrift save great many people small mean banking facility system would offer opportunity accumulation capital furnish satisfactory substitute base sound principle actual successful trial nearly country world system government guaranty deposit adopt several western state deference advocate seem seeds demoralization conservative banking certain financial disaster question money deposit postal saving bank shall invest free difficulty believe satisfactory provision purpose insert amendment bill consider senate last session propose delay consideration legislation establish postal saving bank report monetary commission report likely delay properly necessity careful deliberation close investigation see one tie understood monetary commission look system bank prevail abroad find control exercise respect reserve rate exchange central authority panic avoid apparent system postal saving bank would way interfere change system certainly country europe control thus exercised central authority postal saving bank exist thought inconsistent proper financial banking system follow course distinguish predecessor earnestly recommend congress consideration passage ship subsidy bill look establishment line atlantic seaboard eastern coast south america well line west coast united state south america china japan philippines profit foreign mail perhaps sufficient measure expenditure might first tentatively apply method induce american capital undertake establishment american line steamship direction feel important mean transportation control interest expansion trade bill character pass house pass senate hope session bill frame line purpose may become law successful party last election national platform declare favor admission separate state new mexico arizona recommend legislation appropriate end adopt urge however care exercise preparation legislation affect territory secure deliberation selection person member convention draft constitution incoming state earnestly advise constitution adoption convention shall submit people territory approval election sole issue shall merit propose constitution constitution defeat popular vote mean shall provide enable act new convention draft new constitution think vital issue merit constitution mixed selection state officer election state officer constitution fully approve finally settle upon respect territory alaska recommend legislation shall provide appointment president governor also executive council member shall term office reside territory shall legislative power sufficient enable give territory local law adapt present growth strongly deprecate legislation look election territorial legislature vast district lack permanence residence large part present population small number people either permanently temporarily reside district compare vast expanse variety interest subserve make altogether unfitting judgment provide popular election legislative body present system adequate furnish character local control ought compromise seem may give needed local legislation secure conservative government one propose several department present necessity legislation look conservation national resource subject one importance require detail extended discussion enter upon communication reason shall take early opportunity send special message congress subject improvement waterways upon reclamation irrigation arid semiarid swamp land upon preservation forest reforest suitable area upon reclassification public domain view separate agricultural settlement mineral coal phosphate land site belong government border stream suitable utilization water power commend careful consideration report secretary agriculture show immense sphere usefulness department fill wonderful addition wealth nation make farmer country crop current year board discharge duty department commerce labor upwards forty year board constitute military naval officer two three men science absence duly constitute executive head marvelous work accomplished period construction energy enthusiasm member prevent inherent defect system interfere greatly beneficial work board work chiefly confine maintenance repair purpose country divide sixteen district assign engineer officer army inspector navy tender need plant work become apparent frequent friction arises due absence central independent authority must complete reorganization board concede advantage keep system rigidity discipline presence naval military officer charge insures unless presence officer board make consistent responsible executive head shall proper authority recommend transfer control suitable civilian bureau accordance judgment competent person familiar working present system confident reorganization effect shall avoid recurrence friction member instance officially bring attention reorganization great efficiency substantial reduction expense operation bring request congressional authority enable secretary commerce labor unite bureau manufacture statistic recommend competent committee appoint previous administration purpose suggest change interest economy efficiency request secretary greatly regret say investigation make bureau immigration source information lead view urgent necessity additional legislation great executive activity suppress recruit rank prostitute stream immigration country evil want well name call white slave trade believe constitutional forbid penalty transportation person purpose prostitution across national state line appropriate fund use secretary commerce labor employment special inspector possible bring responsible trade indictment conviction federal law considerable period movement gather strength especially among member medical profession favor concentration instrument national government promotion public health nature thing medical department army medical department navy must keep separate seem reason bureau office general government public health subject akin thereto unite bureau call bureau public health would necessitate transfer service bureau aware wide field respect public health commit state federal government exercise jurisdiction see agricultural department expansion wide usefulness department give attention agriculture subject plainly one state properly exercise direct jurisdiction opportunity offer useful research spread useful information regard cultivation soil breed stock solution many intricate problem progressive agriculture demonstrate wisdom establish department similar reason equal force give establishment bureau health shall exercise police jurisdiction federal government respect quarantine shall also afford opportunity investigation research competent expert question health affect whole country important section thereof question absence federal governmental work likely promptly solve work united state civil service commission perform general satisfaction executive officer commission bring official communication volume work variety extent new law census act new executive order greatly increase activity commission require statute reach every portion public domain accommodation commission inadequate need call attention request increase accommodation appear annual report year urgently recommend congress law pass require candidate election member house representative committee charge candidacy campaign file proper office unite states government statement contribution receive expenditure incur campaign election similar legislation enact respect election constitutionally within control congress recommendation make predecessor congress appropriate sufficient sum pay balance 38 per amount due depositor freedman saving trust company renew recommendation advise also proper limitation prescribe fixing period within claim may present assigned claim recognize limit impose amount fee collectible service present claim year 1913 mark fiftieth anniversary issuance emancipation proclamation grant freedom negro seem fitting event properly celebrate already movement start prominent negro encourage prominent white people press south especially manifest interest movement suggest proper form celebration would exposition show progress negro make period freedom also time come country heartily indorse proposal request executive authorize appoint preliminary commission seven person consider carefully whether wise hold exposition outline plan enterprise recommend preliminary commission serve without salary except actual expense appropriation make meet expense thus message compressed much subject permit refer many legislative need country exception already note speak generally country high state prosperity every reason believe eve substantial business expansion garner harvest unexampled market value agricultural product high price product bring mean great prosperity farm community hand mean considerably increase burden upon class community whose yearly compensation expand improvement business general prosperity various reason give high price proportionate increase output gold chief medium exchange respect measure value furnish substantial explanation least part increase price increase population expensive mode live people accompanied proportionate increase acreage production may furnish reason well note increase cost living confine country prevail world would charge increase price exist protective tariff must meet fact rise price take place almost wholly product factory farm respect either increase tariff many instance considerable reduction